The Informalisation of the EU's External Action in the Field of Migration and Asylum PDF
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Global Europe: Legal and Policy Issues Volume 1 of the EU’s External Action The Informalisation of the EU’s External Action in the Field of Migration and Asylum Eva Kassoti Narin Idriz Editors Global Europe: Legal and Policy Issues of the EU’s External Action Volume 1 Editors-in-Chief NarinIdriz,T.M.C.AsserInstitute,TheHague,TheNetherlands EvaKassoti,T.M.C.AsserInstitute,TheHague,TheNetherlands AdvisoryEditors ElaineFahey,InstitutefortheStudyofEuropeanLaw,CityUniversityLondon, CityLawSchool,London,UK RamsesA.Wessel,FacultyofLaw,UniversityofGroningen,Groningen, TheNetherlands KatjaZiegler,UniversityofLeicester,Leicester,UK The Global Europe Book Series: Legal and Policy Issues of the EU’s External ActionSeriesisapeer-reviewedbookseriesthatexploresthelegalandpolicyissues pertainingtotheEU’sglobalactorness.Theeditorsofthebookserieswelcomeedited volumesaswellasmonographsexploringtheEU’sidentityasaninternationalactor. Thecoverageextendstosubmissionsidentifyingtheinternalandexternalfactorsthat maychallengetheEU’scapacitytoexercisevalue-basedgloballeadershiponcrucial issuesaffectingEuropeancitizensaswellasthosefromotherpartsoftheworld;crit- icallyreflectingonwhethertheexternalprojectionoftheEUasavirtuousnormative powercomportswithitspracticeonthegroundaswellasaddressingthedescriptive, normative and conceptual challenges that complement the ever-expanding global reachofEUlaw. Moreinformationaboutthisseriesathttps://link.springer.com/bookseries/16683 · Eva Kassoti Narin Idriz Editors The Informalisation of the EU’s External Action in the Field of Migration and Asylum Editors EvaKassoti NarinIdriz T.M.C.AsserInstitute T.M.C.AsserInstitute TheHague,TheNetherlands TheHague,TheNetherlands ISSN2666-4828 ISSN2666-4836 (electronic) GlobalEurope:LegalandPolicyIssuesoftheEU’sExternalAction ISBN978-94-6265-486-0 ISBN978-94-6265-487-7 (eBook) https://doi.org/10.1007/978-94-6265-487-7 Publishedbyt.m.c. asser press,TheHague,TheNetherlandswww.asserpress.nl Producedanddistributedfort.m.c. asser pressbySpringer-VerlagBerlinHeidelberg ©T.M.C.ASSERPRESSandtheauthors2022 Nopartofthisworkmaybereproduced,storedinaretrievalsystem,ortransmittedinanyformorby anymeans,electronic,mechanical,photocopying,microfilming,recordingorotherwise,withoutwritten permissionfromthePublisher,withtheexceptionofanymaterialsuppliedspecificallyforthepurposeof beingenteredandexecutedonacomputersystem,forexclusiveusebythepurchaserofthework. Theuseofgeneraldescriptivenames,registerednames,trademarks,servicemarks,etc.inthispublication doesnotimply,evenintheabsenceofaspecificstatement,thatsuchnamesareexemptfromtherelevant protectivelawsandregulationsandthereforefreeforgeneraluse. Thist.m.c. asser pressimprintispublishedbytheregisteredcompanySpringer-VerlagGmbH, DEpartofSpringerNature. Theregisteredcompanyaddressis:HeidelbergerPlatz3,14197Berlin,Germany Contents 1 TheInformalisationoftheEU’sExternalActionintheField ofMigrationandAsylum ...................................... 1 EvaKassotiandNarinIdriz PartI ConstitutionalImplications 2 EU Readmission Deals and Constitutional Allocation ofPowers:ParallelPathsthatNeedtoCross? .................... 15 CaterinaMolinari 3 The Informalization of EU Return Policy: A Change ofParadigminMigrationCooperationwithThirdCountries? ..... 37 JuanSantosVaraandLauraPascualMatellán 4 LabourImmigration:Can“Soft”InstrumentsProvideLegal PathwaysforThirdCountryNationals? ......................... 53 FannyTittel-Mosser 5 The EU-Turkey Statement and the Structure of Legal Accountability ................................................ 73 BasSchotel PartII HumanRights 6 The Right to Transparency in the External Dimension oftheEUMigrationPolicy:PastandFutureSecrets .............. 97 MauroGatti 7 Effective Judicial Protection in the External Dimension oftheEU’sMigrationandAsylumPolicies? ..................... 117 MelanieFinkandNarinIdriz v vi Contents 8 TheInformalisationofMigrationDealsandHumanRights ofPeopleontheMove:DoesItMatter? ......................... 147 AnnickPijnenburg 9 AdjudicatingAsylumasaTechnical MatterattheCourt ofJusticeoftheEuropeanUnion:NeglectingHumanRights whentheCEASAppearstobeinJeopardy? ..................... 169 AyselKüçüksu 10 “Protection” or “Instrumentalization” of Refugees: Will the European Court of Human Rights Fill in the Gaps inPushbackCasesAftertheGreece/TurkeyBorderEvents? ...... 193 Ays¸eDicleErgin PartIII ImpactonThirdCountriesandGlobalImplications 11 One Instrument in Search of an Author: Revisiting theAuthorshipandLegalNatureoftheEU-TurkeyStatement .... 237 EvaKassotiandAlinaCarrozzini 12 The Internal Effects of the EU-Turkey Deal on Turkey’s MigrationandAsylumSystem .................................. 259 NevaÖvünçÖztürk 13 TheGlobalPoliticsofRefugeeProtectionandReturn:The CaseoftheSyrianRefugees .................................... 287 SunaGülferIhlamur-Öner 14 The “Burden” of Being “Safe”—How Do Informal EU MigrationAgreementsAffectInternationalResponsibility Sharing? ..................................................... 317 EmanuelaRoman Chapter 1 The Informalisation of the EU’s External Action in the Field of Migration and Asylum EvaKassotiandNarinIdriz Contents 1.1 Introduction ............................................................... 2 1.2 AbouttheBook ............................................................ 4 1.2.1 ContentoftheBook .................................................. 5 References ..................................................................... 11 Abstract While the use informal instruments in the external dimension of EU Migration and Asylum Policy is nothing new, this chapter argues that there was a significant increase in the adoption of such instruments in the aftermath of the 2015migrationcrisis.Itbeginsbyprovidingabriefoverviewofthistrendwhereby theEUconcludesinformaldealsandarrangementstocooperatewiththirdcountry partners to curb and manage migration flows and facilitate the return of irregular migrants.Subsequently,itintroducesthethreepartsofthebookwhichdealwiththe implicationsofthistrendontheEUconstitutionalorder(PartI),onthehumanrights ofindividualsaffectedbythesedeals(PartII),andonthirdcountrypartnersandthe globalregimeontheprotectionofrefugees(PartIII).Lastbutnotleast,itprovides anoverviewofeachcontributioncontainedinthesethreeparts. · · Keywords overview migrationdealsandarrangements implicationsof · · informalisation externaldimensionofEUmigrationandasylumpolicy · cooperationwiththirdcountrypartners humanrights B E.Kassoti( )·N.Idriz T.M.C.AsserInstitute,TheHague,TheNetherlands e-mail:[email protected] N.Idriz e-mail:[email protected] ©T.M.C.ASSERPRESSandtheauthors2022 1 E.KassotiandN.Idriz(eds.),TheInformalisationoftheEU’sExternalAction intheFieldofMigrationandAsylum,GlobalEurope:LegalandPolicyIssuesoftheEU’s ExternalAction1,https://doi.org/10.1007/978-94-6265-487-7_1 2 E.KassotiandN.Idriz 1.1 Introduction EUMemberStateshavenotbeenabletoagreeonhowtoreformtheinternaldimen- sion of the Common European Asylum System (CEAS) in the aftermath of the so-called“migrationcrisis”of2015.1 Thisinternalstalemateresultedinconcerted effortsintheexternaldimensionofmigrationandasylumpolicy.Theseeffortsaimed atcontrollingandmanagingmigrationflowsincooperationwiththirdcountries.Such cooperationisnothingnew.ItwasalsoenvisagedintheGlobalApproachtoMigra- tion(2005)aswellastheGlobalApproachtoMobilityandMigration(2011).2What isrelativelynewintheEU’spost-2015strategyhowever,istheincreasingemphasis placed on “[e]ffective return, readmission and reintegration policies for those not qualifyingforprotection”3andtheneedtobroadenthemigrationtoolkit.4Thelatter istobeachievednotonlybyborrowinginstrumentsfromotherpolicyareas,5butalso bybeingcreativeandflexibleandgoingbeyondthearsenalofformalinstrumentsto negotiating“tailor-madepartnerships”.6 The2015crisisprovidednewimpetusforconcludingsuchtailor-madeinformal arrangementsintheareaofreturn.Atthesametime,arguably,thisshifttoinformality and employing broader range of instruments was bound to happen. The EU had alreadyrunoutofpartnerswithwhichithadrealisticchancesofconcludingformal ReadmissionAgreementsinthewakeofthecrisis.IthadalreadysignedReadmission AgreementswithitsStabilizationandAssociationpartnersintheWesternBalkans, theEasternPartnershipcountries(exceptBelaruswhosignedsuchanagreementin 2020) and Turkey before 2015.7 Even though negotiations have been going on for quite some years, its partners to the south have remained unwilling to sign formal ReadmissionAgreements.8 1TheCommission’s2016apackageofproposalstoreformtheCEASwasnotadopted.SeeEuropean Commission2016.ItproposedanewpackageunderthenameNewPactonMigrationinSeptember 2020.SeeEuropeanCommission2020. 2SeerespectivelyEuropeanCommission2005,andEuropeanCommission2011.TheCommis- sion’s2005CommunicationwasconsideredbytheGeneralAffairsandExternalRelationsCouncil in December 2005, and the resulting text titled ‘Global approach to migration: Priority actions focusingonAfricaandtheMediterranean’wasadoptedasanAnnextotheNoteaddressedtothe EuropeanCouncil.SeeCounciloftheEuropeanUnion2005. 3EuropeanCommission2016b,p.6;Seealso,EuropeanCommission2020,pp.7–9and21–22. 4EuropeanCommission2016b,p.3. 5Ibid. 6EuropeanCommission2020,pp.2,17–18. 7For the full list of countries with which the EU has concluded Readmission Agree- ments, see: https://ec.europa.eu/home-affairs/what-we-do/policies/irregular-migration-return-pol icy/return-readmission_enAccessed6July2021. 8Currently,ReadmissionAgreementsarebeingnegotiatedwithMorocco,TunisiaandNigeria.See EuropeanCommission2021,p.6.NegotiationswithMoroccohavebeengoingonatintervalsfor morethantwentyyears.Forthepasttrajectoryofthesenegotiations,seeWolff2014,pp.77–81. 1 TheInformalisationoftheEU’sExternalAction… 3 Thestrongestpushtoconcludinginformaldealsandarrangementshowever,was givenbytheperceivedsuccessoftheEU-TurkeyStatement,alsoknownastheEU- Turkey deal.9 Few months after its publication on the web-site of the European Council, the Commission in its proposal for a new Partnership Framework with third countries emphasised how the Statement showed new ways for international cooperationtosucceed,andhow“itselementscaninspirecooperationwithotherkey third countries”.10 Other informal arrangements, all of them informal readmission agreementsattheircore,followedimmediatelyin2016aswellaslateron.Thefirst was the Joint Way Forward with Afghanistan (2016),11 followed by the Standard OperatingProcedureswithBangladesh(2017),12andtheAdmissionProcedureswith Ethiopia(2018).Thelatterdocumentwasnotpublishedofficially,butitsdraftversion was leaked,13 leading to a parliamentary question on the matter, as the European Parliament (EP) had access to the text through this leak.14 The Commission has acknowledged the existence of these types of arrangements also with Guinea, the GambiaandtheIvoryCoast.However,thetextsofthesearrangementsarenotpublicly available.15 Therearealreadyafewcontributionsdealingwiththeissuesraisedbythisturn toinformality.16Onecouldsafelyexpecttheretobemanymoreasthistrendishere tostay.InitslatestCouncilConclusionsof24–25June2021,theapproachproposed bytheCommissiononcooperationwiththirdcountriesinitsNewPactonMigration and Asylum has been confirmed. Partnerships with countries of origin and transit aretobeintensifiedwithaviewtoreducingthepressureonEuropeanbordersand 9EuropeanCouncil(2016)PressRelease,EU-TurkeyStatement,18March2016,https://www.con silium.europa.eu/en/press/press-releases/2016/03/18/eu-turkey-statement/Accessed6July2021. 10EuropeanCommission2016b,p.3. 11Joint Way Forward on migration issues between Afghanistan and the EU, Kabul, 2 October 2016. For full text, see: https://eeas.europa.eu/sites/default/files/eu_afghanistan_joint_way_for ward_on_migration_issues.pdf.ThisinstrumentwasreplacedbyJointDeclarationonMigration Cooperation between Afghanistan and the EU, Council Doc. 5223/21 ADD 1 of 13 January 2021,seehttps://www.statewatch.org/media/1801/eu-council-joint-declaration-afghanistan-5223- 21-add1.pdf.Accessed6July2021. 12CommissionDecisionontheSignatureoftheEU-BangladeshStandardOperatingProcedures for the Identification and Return of Persons without an Authorisation to Stay, C(2017) 6137 final,AnnexI.Seehttps://ec.europa.eu/transparency/regdoc/rep/3/2017/EN/C-2017-6137-F1-EN- ANNEX-1-PART-1.PDF.Accessed6July2021. 13ThedraftversionofthedocumentwasleakedbyStatewatch.Seehttps://www.statewatch.org/ media/documents/news/2018/jan/eu-council-regugees-return-ethiopians-15762-17.pdf. Accessed 6July2021. 14SeethequestionraisedbyJudithSargentini(Verts/ALE)on15February2018,https://www.eur oparl.europa.eu/doceo/document/E-8-2018-000957_EN.html.Accessed6July2021. 15EuropeanCommission2021,p.6.Thetransparencyissuesraisedinthiscontextarethesubject ofthecontributionbyGattiinChap.6ofthisvolume. 16Forexamples,seeCarreraetal2019;andKaya2020.
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