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Application of the EU policies on migration to the
Eastern Neighbourhood and Russian Federation


                                                Dr. Oleg Korneev
                                             Jean Monnet Fellow
                      CARIM-East Project, Migration Policy Centre
                            RSCAS, European University Institute




                                                              1
Outline



•   External dimension of EU migration policies
•   Modes of EU migration governance in the
    Eastern Neighbourhood
•   EU - Russia
•   EU – ENP/Eastern partnership countries
•   Challenges for the EU
•   Discussion: comparing policy tools and their
    impact in the region


                                                   2
External dimension of EU migration policies

•   “Proximity” challenges (Casier), shifts of “buffer zones” (Potemkina) and the extension of
    “remote control” (Zolberg)

•   Using external policy mechanisms for responding to internal policy challenges (Lavenex)

•   Diversification of actors, including private ones: international organisations, transportation
    companies, security/logistics companies, etc. (Guiraudon)

•   “Structural foreign policy”: stimulation of changes in internal policies of EU partners, e.g. in
    migration policies of Eastern Partnership countries and Russia (Keukeleire)

•   Mainstreaming of migration policy goals in EU external relations, BUT also fostering of
    functional cooperation in other policy sectors thanks to declared migration policy priorities

•   Terminological shifts and issue-linkage in policy transfer: migration management, migration
    and development, circular migration, integrated border management, etc. (Geiger and
    Pecoud; Betts)


                                                                                                       3
Modes of EU migration governance in
                            the Eastern Neighbourhood
•   Bilateral cooperation – “traditional” policy tools:
   PCAs
   Readmission agreements
   Visa facilitation agreements

•   Multilateralism, embededness, trans-regionalism (Alexander Betts) – “innovative”
    policy tools
   Consultative processes (Budapest, Soderkoping, Prague)
   ENP and Eastern Partnership frameworks
   GAM (2005, 2007) and GAMM (2011)
   Mobility partnerships (mainstreaming mobility)
   Migration profiles (mainstreaming development)
   Cooperation with other international organisations (mainstreaming security and
    development)
   Project funding: “EU influence becomes most tangible in form of EU projects set in
    time and space” (Wunderlich, 2011)
                                                                                     4
EU - Russia
Path-dependency in predominantly bilateral cooperation:
• Cooperation on migration issues is included in the PCA (1994)
• Common strategy of the European Union on Russia (1999)
• Russia’s Strategy for Russia-EU relations (1999)
• Joint Action plan on the fight against organised crime (2000)
• Kaliningrad transit solution (2002), start of negotiations on VFA and RA
• ENP (2003) – Russia’s refusal to step in => Common Spaces
• 2005: Road Maps, including the one for FSJ
• 2006: Readmission and VF agreements (issue-linkage)
• 2007: two agreements entered into force
• “The EU main fears of visa-free regime entailing increase of illegal
   immigration and criminality do not concern Russian citizens, but rather
   human traffickers through the porous Southern borders” (Fernando
   Valenzuela, 2010)
                                                                             5
EU – Russia (cont)

• 2010: Evaluations of RA after the transitory period – positive both from
  the EU and Russia (this covers only Russian citizens):
    by November 2010 Russia has received 4715 readmission requests;

    more than 3500 requests have been examined;

    2214 requests have been accepted as eligible for readmission;

    793 persons have been readmitted.

• Visa liberalization stalemate and ambiguous results of visa facilitation
  agreement
• 2011: migration dialogue – policy transfer in other sub-fields: legal
  migration, asylum process, international subsidiary protection, combatting
  trafficking
• Russia’s impact on EU policy tools and their use in the Neighbourhood,
  e.g. visa facilitation agreements (see Korneev 2008, 2012; Hernandez I
  Sagrera 2011)

                                                                           6
EU – ENP/Eastern Partnership
Bilateral tools:
• Readmission agreements: Ukraine (2007), Republic of Moldova (2007), Georgia
    (2010), Armenia (2012 – initialled)
• Visa facilitation agreements: Ukraine (2007), Republic of Moldova (2007), Georgia
    (2010), Armenia (2012)
• Mobility Partnerships: Republic of Moldova (2008), Georgia (2009), Armenia
    (2011)
• Policy transfer efforts in other fields: IBM (Frontex and EUBAM), protection, long-
    term residents, highly skilled, etc.

Key issue: Visa Liberalisation (see MPC report for MD and UA)

Regional approach (examples)
• SIREADA (targeting readmission capacities, IOM)
• Prague process (multiple priorities, ICMPD)

                                                                                        7
Challenges for the EU
• Implementation of agreements: reception of policies and technical issues (as in
  EU-Russia RA case)
• The need to account for diversity in the Neighbourhood
• Promotion of regionalism
• Discrepancies in migration policy goals and tools, e.g. promoting RA in countries
  where protection standards are low and re-integration capacities are virtually
  absent
 “Domestic actors have other choices in responding to Europeanisation than
  endorsing or resisting EU induced reforms; they can instrumentalise EU policies
  and institutions to advance their own interests, decoupling them from their
  normative contents… ” (Tanja A. Börzel & Yasemin Pamuk (2012): Pathologies of
  Europeanisation: Fighting Corruption in the Southern Caucasus, West European
  Politics, 35:1, P.80).
• Problems of co-ordination with other policy transfer actors, donors and
  implementing partners in the region
• Actual policy transfer within and beyond the Eastern Neighbourhood?

                                                                                      8
Challenges and opportunities for Russia and Eastern
              Partnership countries?




                                                      9
Thank you for your attention!




                                10

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Application of the EU policies on migration to the Eastern Neighbourhood and Russian Federation

  • 1. Application of the EU policies on migration to the Eastern Neighbourhood and Russian Federation Dr. Oleg Korneev Jean Monnet Fellow CARIM-East Project, Migration Policy Centre RSCAS, European University Institute 1
  • 2. Outline • External dimension of EU migration policies • Modes of EU migration governance in the Eastern Neighbourhood • EU - Russia • EU – ENP/Eastern partnership countries • Challenges for the EU • Discussion: comparing policy tools and their impact in the region 2
  • 3. External dimension of EU migration policies • “Proximity” challenges (Casier), shifts of “buffer zones” (Potemkina) and the extension of “remote control” (Zolberg) • Using external policy mechanisms for responding to internal policy challenges (Lavenex) • Diversification of actors, including private ones: international organisations, transportation companies, security/logistics companies, etc. (Guiraudon) • “Structural foreign policy”: stimulation of changes in internal policies of EU partners, e.g. in migration policies of Eastern Partnership countries and Russia (Keukeleire) • Mainstreaming of migration policy goals in EU external relations, BUT also fostering of functional cooperation in other policy sectors thanks to declared migration policy priorities • Terminological shifts and issue-linkage in policy transfer: migration management, migration and development, circular migration, integrated border management, etc. (Geiger and Pecoud; Betts) 3
  • 4. Modes of EU migration governance in the Eastern Neighbourhood • Bilateral cooperation – “traditional” policy tools:  PCAs  Readmission agreements  Visa facilitation agreements • Multilateralism, embededness, trans-regionalism (Alexander Betts) – “innovative” policy tools  Consultative processes (Budapest, Soderkoping, Prague)  ENP and Eastern Partnership frameworks  GAM (2005, 2007) and GAMM (2011)  Mobility partnerships (mainstreaming mobility)  Migration profiles (mainstreaming development)  Cooperation with other international organisations (mainstreaming security and development)  Project funding: “EU influence becomes most tangible in form of EU projects set in time and space” (Wunderlich, 2011) 4
  • 5. EU - Russia Path-dependency in predominantly bilateral cooperation: • Cooperation on migration issues is included in the PCA (1994) • Common strategy of the European Union on Russia (1999) • Russia’s Strategy for Russia-EU relations (1999) • Joint Action plan on the fight against organised crime (2000) • Kaliningrad transit solution (2002), start of negotiations on VFA and RA • ENP (2003) – Russia’s refusal to step in => Common Spaces • 2005: Road Maps, including the one for FSJ • 2006: Readmission and VF agreements (issue-linkage) • 2007: two agreements entered into force • “The EU main fears of visa-free regime entailing increase of illegal immigration and criminality do not concern Russian citizens, but rather human traffickers through the porous Southern borders” (Fernando Valenzuela, 2010) 5
  • 6. EU – Russia (cont) • 2010: Evaluations of RA after the transitory period – positive both from the EU and Russia (this covers only Russian citizens):  by November 2010 Russia has received 4715 readmission requests;  more than 3500 requests have been examined;  2214 requests have been accepted as eligible for readmission;  793 persons have been readmitted. • Visa liberalization stalemate and ambiguous results of visa facilitation agreement • 2011: migration dialogue – policy transfer in other sub-fields: legal migration, asylum process, international subsidiary protection, combatting trafficking • Russia’s impact on EU policy tools and their use in the Neighbourhood, e.g. visa facilitation agreements (see Korneev 2008, 2012; Hernandez I Sagrera 2011) 6
  • 7. EU – ENP/Eastern Partnership Bilateral tools: • Readmission agreements: Ukraine (2007), Republic of Moldova (2007), Georgia (2010), Armenia (2012 – initialled) • Visa facilitation agreements: Ukraine (2007), Republic of Moldova (2007), Georgia (2010), Armenia (2012) • Mobility Partnerships: Republic of Moldova (2008), Georgia (2009), Armenia (2011) • Policy transfer efforts in other fields: IBM (Frontex and EUBAM), protection, long- term residents, highly skilled, etc. Key issue: Visa Liberalisation (see MPC report for MD and UA) Regional approach (examples) • SIREADA (targeting readmission capacities, IOM) • Prague process (multiple priorities, ICMPD) 7
  • 8. Challenges for the EU • Implementation of agreements: reception of policies and technical issues (as in EU-Russia RA case) • The need to account for diversity in the Neighbourhood • Promotion of regionalism • Discrepancies in migration policy goals and tools, e.g. promoting RA in countries where protection standards are low and re-integration capacities are virtually absent  “Domestic actors have other choices in responding to Europeanisation than endorsing or resisting EU induced reforms; they can instrumentalise EU policies and institutions to advance their own interests, decoupling them from their normative contents… ” (Tanja A. Börzel & Yasemin Pamuk (2012): Pathologies of Europeanisation: Fighting Corruption in the Southern Caucasus, West European Politics, 35:1, P.80). • Problems of co-ordination with other policy transfer actors, donors and implementing partners in the region • Actual policy transfer within and beyond the Eastern Neighbourhood? 8
  • 9. Challenges and opportunities for Russia and Eastern Partnership countries? 9
  • 10. Thank you for your attention! 10