The Transformation of European Migration Governance

8/13/2019 The Transformation of European Migration Governance

1/22

The Transformation of EuropeanMigration Governance

Adw Gdd

N. 56 | N 2013

WORKING PAPER


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2 | KFGWorking Paper No. 56 | November 2013

KFG Working Paper Series

Edited by the Kolleg-ForschergruppeT T Pw E

T KFG W P S d l Kll-F y

ll d l. I d x wll d d

x l d xl d E d E U.

All KFG W P ll KFG w www.. dd

l [email protected].

Cy : Adw Gdd

Edl d d: Ad B d Fl B

Gdd, Adw 2013: T T E M G, KFG W P S, N. 56,

N 2013, Kll-F (KFG) T T Pw E, F U Bl.

ISSN 1868-6834 (P)

ISSN 1868-7601 (I)

T l dd y G R Fd (DFG).

F U Bl

Kll-F

T T Pw E:

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I. 26

14195 Bl

Gy

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[email protected]

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The Transformation of European Migration Governance | 3

The Transformation of European Migration

governance

Adw Gdd

Abstract

T xl l lyd y d d wld l

l wld d w EU -

. T d ld l lyd y -

l, l d l l . T w , wl y

E d d -d l l,

w d dd d ly j lly

d y EU. A y l lyd y y ld ly d

l , l l l l

lly d lly EU . I x y d

l wld ly l, y d l wld

l d ll EU ld q d wl-

d w l l d l l l

w d.

T A

Adw Gdd P Pl Uy Sld. H w-

xly B, E d EU l, w l

l . R l ld M d

Mly EU (w C Bwll) d T EU d S E E:

T Dy Ml-Ll G d E (w Adw

Tyl d Cl L). H w V Fllw Kll-F

T T Pw E J/Jly 2012. F Fy 2013,

wll ld 5-y E R Cl dd

j l .

C: .dd@ld..


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Contents

1. Id 5

2. D d C 53. T Dl EU M G 8

3.1 Instuonal Development 8

3.2 Policy Development 9

4. T D D 11

5. El C d Tl M G 13

6. T E M Nw Cy P 16

7. Cl 19

R 20


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1. Id1

T dl -d E . I

w l d d wld l l wld ly d w EU . T

w, d ld l,

l d l l . T -

w y ly y l d l ddd d

. T w , wl y E

d d -d l l, w d d-

d d ly j lly d y EU. A y

l lyd y y ld ly d l ,

l l l l lly d lly EU

. Wl EU d l d l l , y

l wld d l . I x ,

d y d l wld dd ly l,

y l d ll EU ld q d

wld. T l l d l l,

.. [] l d l l w -

d dd d d d l

(Sl 2004: 14).

T -d EU l

ll l j w w x l

ld dl d d d dly (W

2010). T w w d w w l d l d

d d y w w

d l x d d d , j

, d, - d d . T ll

l, d E M Nw (EMN) d y

ly w w x x d wld .

2. D d C

Kw, d wld d dd l

l y dd l (W 1998: 226). Al d S (2012: 1195) w

l l y z y [ z]

wld. I zl y, wld lly dd w

l d d ll- (Al/S 2012: 1195). I x

1 R w d y Vlw S dd j S-Sy Dl

M I E (-dd y E Uy Rd) d y llw

Kll-F T T Pw E, F Uy Bl, J-Jly 2012.


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l w l d l ly, d d w ly d -

l wld, l Rdll (1995: 161) l (l wld) ld

ly dd ly l l l w

w, w l d, , xd ly wld.

T l y E ly d d d y d

d d, ld d x , wll

wld. T d d d dd

dl ly wy (S 1988). A

l d E

, l y zl d, l d wl

(Gdd 2005). Al dl -

d ld, xl, l d .

Kwld, , d q wld l l

d - - l E (Bwll 2009;

Bwll l. 2011). T d, d wld dd ly l

ly l. T ld ly d wld ly

wld dd (Cl 2004). EU , lly C, l

l x d lz wld (, xl, Z/S 2009). T

d, , l wld ly d

d-d ly-. Hw, Ll (2012: 3) , d ly d wl

ly d, l d l d w ()

w, l d jd xl

y ly [ll w] d w l lly

d dd d w d d ly d.

T l w l wld (d-d ly-) ld y

w l wld. T l l l y dd

y ly wl d x ly (Bwll 2009;

l Fld/M 1981).

T EU w w w wld d l d d d-

d. D dd w d, dd () l d

d d (Bzl/R 2012: 5). Hw y d y . F

dd, dd y d (l lly xl) -

l l. C q EU lw d

. Ml ly ll d d ,

l d l . T d y l ly d y

ql l l. I d d

l EU ld l y, w w

l l (Bzl/R 2012: 7). C l

w y d , l d ld

l d ly dl.


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T l l l. Clly d

d EU ll l , l lly d

1970. T l d l w dd y d

y w wl d l l w w d wld EU . A wy dd

l , wll dd lly l.

D ld l l ly , w dd : y -

ly w ly (.. ly j, ly

, ly ) ll jd (l , ,

, ll ) d . Ply d d l

ly wd , dl l (Kll

2005: 5). T d l y ll

d d l . C

: dd w ld l w l l

l ly d d q w (S l. 2008: 980); l

xly dl, EU Ty w; d, l y

x d d.

T ld w d d -l ly -

w dy zl l ld l d ly

j d d l l . F xl, -

w dld y Cl l. (1994; dd Cl l. 2004) w

ll j d E d N A dd w -

l-d d ly ll

dd d ll w. N l y w d l

. Slly, F (1995) dd -l ll d d-

w ly ll dd d

l l d wld . T w d dly

ly ll d - , lly ly.

F d d d l

d y, l , ly d yl (F 2006). F

F, ll dy ld d d, d l-

d . O lly dy y dy

ll quall ld l d d

. F xl, l dd l l ,

d l d l-ld y (Hllld 1992; J 1998). T ddd l

ll ly l y . F xl, H (2002) dd lly -

ddd dd ld l d w ( w

Gy -ll UK) d ld .

T w d l EU ll d l -

. F xl, C (2009) lld dx w d d


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w OECD lld l d d d

d ll d l x. S x d ly l

EU l yd w -d dd y -lld

Bl Cd d, w ly x lw d lyqld l d y ly qld dd.

T d ll ld l d EU

d ly z y . By d-

, . W , wld l

d d l l d l d

ll (Zl 1989). Hw, E d l w d

w EU . T l d

q d wld l qd EU d

w d d l l

EU .

3. T Dl EU M G

I d dd l lyd y l, l d l d w

d d wld l E, y dy

y dly dy d d xl dl. A wl

d l dy w d l 1990 xl dl EU -

d yl. T w EU lly l w ld

lly w x l wld d d-

ly l d

(Gd 2000). T w w d l 1990, d

E dly lzd w wl

. S Ad Ty (1999), l EU

d yl ly w dl l l d ly.

3.1 Instuonal Development

S Ad Ty 1999 EU d yl ly

ll ly d y x qld jy (QMV)

Cl d-, -d E Pl d ll l C J

E U (CJEU). T CJEU l w

d ly w l EU l lw

ly d ld xl, ly -

d (A/Gdd 2013). T CJEU ly


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(G l. 1998: 174-5), w - d wll ly - l ll ll

d- (D 1998: 177). Hw, . Al 79(5)

L Ty (2009) d y EU-ll d

d l d TCN [Td Cy Nl] d y d w, w lyd l-lyd (Al 79(5)). T

ly l dd

EU. B, d xld EU wd ly, ly -

, l- d, yl d xl (ll dd lw).

T d EU ll ld y xly

Ty w. Flxly llwd Ty

d ll . T ld ld .

Flxly ll ll (P 2001: 127) d lly l-w

l l l - d

lly d dd ld l y, ld . I -

, xly w ld d d .

T Ad Ty lzd l -, w w y

d w j d y Sl E A (SEA)

w l w w w l (P 2001: 111).

T xly D, I d UK l S d

Tl IV Ad Ty. D, xl S d

Ad Tl IV , d yl. Ild d UK

S y . Flxly ll d-

d dy. I ld d dl Cy dl,

lly ly j l wl l d

l d l - y l l . T

ll d d d l d

d ll d w EU ll (Adl-N 2009: 69).

3.2 Policy Development

T w EU d yl ly, l y ld

dd, w . T d, d

ly qld w ( -lld Bl Cd) d y ld ld

ly . T C l xd -d l w -

l l d - . T EU

ly l w dd y l wd. T EU l-d-

ld l d xl l d

dl ld - y EU

. T EU l l lly ld

EU l l, d w ld l

y EU d l y, Fx. Il d, w,


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ly l ly. T R (.. xl) d 2008 lzd

EU xl w wdly zd . Hw, q CJEU

lld l d, ly Ily. A

d Gdd (2013) EU ll w d w dd x l EU lw. T d

l xl l, d , xl, l

jdd w d .

Ayl ly ly dld EU ly. A d ly

2000 ld dw dd d, ql d d.

M ly, w CJEU y L Ty d

l ly yl- y y y l

- y yl l y Dl II l 2004.

EU ly d w l, d

E ll dd (M Ply G 2011). T ly d

(2003/86/EC) dd ly TCN w d lwlly y

EU M S; d d w ly d d M S; d

ly l ly d d,

xl, d d . T d l zd

d ly d d l d

ly, w d d . T w ddld w

lly d d ly.

I 2003, d w ll d EU ql

EU z 5 y ll d d d llw w qly

wl d . O

l- d qd ql EU z,

: ly d l-lyd y; d d l ;

l ql; l y, l d l dd y l

lw; x ; d d , ld ; d d , l

d , ld d . T d l

y q d y l ly w , d w l lw,

w y ld l .

I l l w d y w d

. Ply w EU ly d d ylly l d d

ly d z, .. ddd l ll d l l d l.

Flly, l , EU l dd

llly d d l , -d . Bd ld w -

-d d d J d N 2001 (2000/43/EC Rl Eqly d d

2000/78/EC Ely Eqly d) ld TCN d w ly -

y w yd . T d l l


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ql ll l, l . Ty l-

l- l d d d d d. Ty d

d d d d ly d , d, l

(ld l y d l ), l d, d l z w d ly, d d d ld . Ty

EU z d llly-d TCN.

I y, EU dy d l l -

l , yl, ly , d y l,

-d d d, ly, -d d l

ly qld. T d y l dl w l

Ody Ll Pd (OLP) d x ll

ly CJEU. Wl , l

y d ll , xl d E. S EU

xd llly d d y l wl ly d

ll lw d. T y

x ly llw ll l j

w EMN. N ly EU d q , l d

dl d wld d .

4. T D D

I d y l d l l, w

dy d l d E . I F 1,

lw, zl x d wd d y w l d-

l xl d wl y l ly

l w ll l. A l x

l d dl . Ml wy w w

d y . Idl wy

w l d l l dld

w ld l l ld y d d l l (Dz 2001: 56). F

1 dly dy l l lyd y l, l d

l l.


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Figure 1: Drivers of EU-Wide Policy Convergence in Migraon Governance

Material

Race to the bottom Walls and doors

Structure Agency

World society Elite consensus

Ideational

Source:dd Dz, 2001.

E qd F 1 l l w

l/l d l/dl l d l d ly d.

A , dly qd EU d w

, w y d l d.

T l qd dd lw d, ..,

y l w dl dd (Dz 2001:

57) ylly d w xl d l d E.

T qd y d l w lld wll d

d. T wll d d d dd y Zl (1989) w

dd, l d dl ly w ld

wll xld dd y l wd d w wd d

wll w ld , ly qld. E d

dly dl, d w wy dd d

EU-ll d l w xl y d l w.

EU dw y l ddd ly d

ddd l d ll w ll d

EU ll. Hw, w d l qd, lx EU

ll w l ly , w y

l y .

I lw l qd ly w d d lld wld

y wldwd dl d d d ll ll

d l (My l. 1997: 144-5). I qd, d y


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dl w dl lzd . Ed

ld dl ll d, w l -

z d d l l .

T lw qd ly w d d y d lld l ,

w l dd l w l d

l d dl ll y d dd

d ly xl (Dz 2001: 63). H, l y

d w d l l d d wld, wll q

wld. Uy ly y l w ly x-

ld l d, l l d dd

d w wld (Dz 2001: 63, l H 1992). T x (

d ) ly l l y dd wld,

l l l l d x ly (Bwll 2008, 2009; Bwll

l. 2011).

T wl w l d -d d F 1. T l-d d -

E d wld y - d , d d -

w ll y. Hw, d d wll w -

d l ll w ld ld lx d d

w -d d d d l w l, -d dy

- qd d l .

5. El C d Tl M G

T w d d wld l , -

wld d y l ll lyd l l d

ly d d d E . T

wd wy w EU d d dl ly. T ld

d d ll w EU, E E d, wll

ld ld l w EU d d w

ld , Fw 7 . F xl, EU d

l y d l ld ly w l . T

d EU ll . I 2013, d w d ll w Fw 7 d

d d ly d.

T EMN w d d l ly l EU ll d

ll w l d l d ly d -

-d l wld d q

d wld .


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A l l d w EU xl

l d ll dl d (,

xl, Adl 2009; B 2011). C l w

y d d l w d y lly (W 2010:1). P y l l l

l l w j , l

d d l (W 2010: 229). S d -

y d l, y w l, ly y

ll.

T l d l y w ( d -

l x) w d l (, d l).

C lly d lly dd: T l w -

y d d (W 2010: 229). C d x

ly w y l d ll

l l. T l dy wld w l ld

y x l d l d .

T d l - , d l - -x.

E l l w wy x. A l

l qd l y d d

. T l y l y ( l y) d d

ll , l l d l ( EMN). T d d

l l dd l d y,

l, q ll, wll ddd w l d ly d

.

T l d l d d l

: d d l

d; x y dd y j , d d -

; d, y y w d .

P dl l l, q , x, - ,

-d d yy, d dl, d j, , wld

d dy (W 1998).

Tl l ly l dy , dd x -

. W EMN d dy -

l ly , dl l y ly,

d, d d q w d .

I EU l y , l ld -d

w , y

; d ly, w ll . Oly, y

ll l , l, ly -d w

wl dw y y.


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T ll y -d E , Tl 1 l y

l l y (CP) l d d l -

dy .

Table 1: The Space for Transgovernmentalism: Communies of Pracce and Boundary

Interacons

Cd Transparency Nbly

Engagement O j

d l

l

Exl

l

l

C ll

?

I Udd -

-

ly d -

dd

A ld

ld

D d -

l

y

w ?

Al C d -

d

d?

A CP l

l

d?

W dd w -

w CP d

?

Source:W 2010: 235.

Bdy ld y ddl d wl d-

y j dl d d l l dy

l d l l d (S/G 1989).

T EMN d d d dy , l d l-

l l wy w ld d d d EU ll. C

l , , ld dd -ly (M 1978; B 2002). I

, l d wld lz. Al l l, Ldl

(1959) ddl wl dl d- ly

zl w y l lly lz -

d lly (C l. 1972). S (1989) d l y

, l ld wlll, l wld

w w wld ld. T d d l

l d .

T l q w w l y ld dl lll -

(Al/S 2012: 1198). T y w w zl

x y w l y ld y l w

d d l d , x (Al/S 2012:


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1196). T l d lld l dy, .., ly

l y lly l z d y. Pl y -

wll ll w l d y d. T

l xy y q wld l d l j dd- d xl . T l ly

l d jy . A l

l q d w wy ld (Al/S

2012: 1196). I , l dy zlly-d l xy,

d j. I l l lll d w

d . I d y llw z ly. T

z d d y d d (Al/

S 2012: 1196).

6. T E M Nwk Cy P

T EMN w l. I 1996, C d ly dy

E M Oy, l d w ld. T L

E Cl O 2001 lld y x . I

2003, EMN w ld l j d w w Py A -

w 2004 d 2006 d w w ly d EMN w -

Gy. T EMN w q Impact of Immigraon

on European Sociees. T w l, dlyd d ld -l EMN

l w ld w l (Bwll 2009).

T H P J d H A d 2005-10 ldd l

G P EMN. O G P C A 2007

d Cl ll EMN, w w d y Cl D

2008/381/EC. T d lly EMN l l

l d Nl C P (NCP) y w

d .

Ad Cl D EMN d U

d M S d d yl y d

d, j, ll d l d yl w w

E ly- . T EMN wll l d wd l w -

, y, xl: ll, x d d d; lyz d d d d-

ly l ; dl d; l d ;

d d x y d l d.

T EMN dd y C (DG H A) w d y w

w x d w dl ly

. T w d y EMN NCP ll (x D,


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ld Nwy) w l x, w l d. T ly

d j l l , NGO d l

z ( Il Oz M NCP ). T -

l l wll EMN l w zd y w l z:

There is sll a learning and exchange process that comes with that network. There is some kind of net-

work eect to it, its hard to put the nger on it, it s not a network that produces some groundbreaking

new evidence that changes the course of policies, but that rather informs the policymakers and these

people largely come from the instuons that also set policy course ()(Representave of internaonal

organizaon, Brussels, March 2013).

Nw w EMN d :

Rl NCP (wl 2009, 2010 d 2011);

EMN Sd dw ll w lly y;

A l EMN ;

T l d ;

Tw d ll ;

Sd dd ;

Al ll d C Al R M- d Ayl;

T dl ly d d ly dl dd w ly (EMN, Al R 2009, 17);

A x y w ;

Ad H q.

T Ad H q lly l. O 400 Ad H q w d w

2008 d 2012, 260 ld. Ad H q d d d:

lll , , , , , d, EU q, ly -

, d, d, , d l ld y. A w

l ld l Ad H q llw:

my impression () is that the EMN in parcular has become important through its more kind of research

gathering, the ad hoc queries. There is an enormous amount of queries that are circulated and that are

requested on a state basis () that really has become an important mechanism of policy learning ()

Member States who have an interest to make or change a policy on a parcular issue, somemes on

very specic issues () even if its just six or seven Member States replying to that, its sll something

that you dont have, or something that individual Member States dont have the capacity to deliver in

the same way. Its much more dicult for individual Member States to use their own contacts () to

get that kind of informaon in that meframe (Representave of internaonal organizaon, Brussels,

March 2013).


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Tw ld l dy, l wy

w x l ly- d:

It serves intergovernmental needs because it allows Member States to ask their ad hoc queries ()they are very polically movated () you can match almost every query to a naonal policy debate or

naonal policy process () it allows them to then make the comparave claim themselves () In the UK

there was a green paper restricng family reunicaon, with many proposals () and they were then

using comparisons, you know, saying () other countries do this () and then they would give certain

examples. Whereas they only chose very few countries in Europe that do this, not nong that all other

countries do not do this (Interviewee from Brussels think tank, Brussels, March 2013).

Ad hoc queries are surprisingly useful because they tend to be linked to one parcular Member States

deliberaons at a given moment () last year when the Dutch were thinking about the integraon of

EU cizens, they had an ad hoc query () and they got a wealth of informaon back and it really helped

them to think through what the key issues were () (Interviewee from Brussels think tank, Brussels,

March 2013).

T l d l (Sl 2004: 14) dw w l ly

y d d d . A NCP w

EMN y :

I am an avid reader of the country reports because () I am interested in what works, so those country

reports are extremely useful. There is a kind of hidden output of those. Are you aware of the informal

networks? The integraon contact points and the responsible authories for the various funds that we

manage have a number of informal networks () so for example I was in Braslava back in the spring

talking very specically about the funding issues () thats a kind of oshoot of some of the work thats

being done. You choose the networks you want to join on the basis of country reports () so this parc-

ular network is Slovakia, Slovenia, Czech Republic, Poland, Netherlands, Austria and the UK () looking

at common factors around the funding of projects. You have the background informaon from the

country reports () so you can nd out what are the similaries or what are the contrasts. We also have

other informal bilateral relaonships which are again informed by the country reports. I talk a lot to my

opposite numbers in the Netherlands, in Germany, Italy, France on quite specic issues that come out of

those reports () things that we want to follow up on () (Interview with EMN NCP, Brussels, June 2013).

T EMN dw w l ly y d x

ly, l dl dl

ly -d. I , w, l w d dd w -

l d l ld l w ld d

wld d l l l l d

x ly .


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7. Cl

T d ly d ly d l d ld

l E l, l EU ly l d . T dd w ly w -

l, l d l l d, l

-ld ld y EU ll y. T l d l

l.

T qld , z lw

d ll , w w dd y d ly

d y wy w EU -

ddd ly, l w d d wy w

dl w dd. T ld l l x

l d ddd l d ll w. I l dy

, d zd w w ly . E w ld

l x w w wld l dd. I w d

-d l d l d l ld ddd

l-ll . Hw, l wd x w w d

l ll d. M w ylly l w

d lz l d l EU x. A y

dly xl l wld l d

dl EU ll l d wld. T

wy w E l w

l dly lz d lly-d d

w y ld d.


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The Transformation of European Migration Governance

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