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Key Concepts in the Frontex and Exit

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Key Concepts in the Frontex and Exit Frontex and Exit Governance Dataveillance, civil society and markets for border control Lemberg-Pedersen, Martin; Joel Halpern, Oliver Publication date: 2021 Document version Publisher's PDF, also known as Version of record Citation for published version (APA): Lemberg-Pedersen, M., & Joel Halpern, O. (2021). Frontex and Exit Governance: Dataveillance, civil society and markets for border control. Advancing Alternative Migration Governance (AdMiGov) http://admigov.eu/upload/Deliverable_23_Frontex_and_Exit_Governance_Lemberg-Pedersen_Halpern.pdf Download date: 06. okt.. 2021 Key Concepts Advancingin the Alternative Migration Governance Frontex and Exit Governance: Dataveillence, Civil Society and Markets for Border Control Deliverable 2.3 Martin Lemberg-Pedersen & Oliver Joel Halpern 2021 This project has received funding from the European Union's Horizon 2020 research and innovation programme under grant agreement No 822625. The content reflects only the authors’ views, and the European Commission is not responsible for any use that may be made of the information it contains Publication information You are free to share and adapt the material if you include a proper reference. You may not use the material for commercial purposes. Suggested citation: Lemberg-Pedersen, M. and Halpern, O. J. (2021) Frontex and Exit Governance: Dataveillance, civil society and markets for border control. AdMiGov Deliverable 2.3., Copenhagen: University of Copenhagen. Available at http://admigov.eu Acknowledgments This paper has been written by Martin Lemberg-Pedersen and Oliver Joel Halpern, and peer- reviewed by Julien Jeandesboz. The views presented are those of the author(s) and do not necessarily represent the views of the institutions with which they are affiliated. Any enquiries regarding this publication should be sent to us at: [email protected] Table of content List of Figures ......................................................................................................................................... 5 Acronyms ................................................................................................................................................ 7 1. Introduction ................................................................................................................................. 10 2. Methodology ............................................................................................................................... 13 2.1 Constructing a database for EU funds to exit operations and infrastructures ..................... 14 2.2 Timelines and geographic maps ........................................................................................... 15 2.3 Semi-structured interviews .................................................................................................. 17 2.4 Delimitations ........................................................................................................................ 18 3. Frontex and exit. Institutional and sectoral developments ......................................................... 19 3.1 Background to the recent evolutions of Frontex .................................................................. 19 3.2 The evolving role of Frontex in exit policies ......................................................................... 26 3.3 Frontex and the datafication of exit governance ................................................................. 32 4. Frontex Joint and National Return Operations ............................................................................ 33 4.1 Return Operations 2016-2018 .............................................................................................. 34 4.2 Monitoring in Joint and National Return Operations ........................................................... 38 4.3 Frontex 2020-2021 pushback scandals ................................................................................ 43 4.4 The 2020-2021 investigations into Frontex ............................................................................... 45 4.5 Frontex information systems for EU exit governance .......................................................... 48 4.5.1 The Irregular Migration Management Application (IRMA) .......................................... 49 4.5.2 Frontex Application for Return (FAR) and the Joint Operations Reporting Application (JORA 2) 50 5. The reconfiguration of EU information systems towards exits ................................................... 51 5.1 The recast proposals for the Eurodac, the Visa Information System and the Schengen Information System ......................................................................................................................... 54 5.1.1 Schengen Information System (SIS II) ........................................................................... 55 5.1.2 Eurodac ......................................................................................................................... 58 5.1.3 Visa Information System (VIS) ...................................................................................... 60 5.1.4 The Entry/Exit System (EES) ......................................................................................... 61 5.1.5 A Common Identity Repository (CIR) ............................................................................ 62 6. Frontex, civil society and exit governance ................................................................................... 65 6.1 The Frontex Pool of Monitors (PoM) .................................................................................... 66 6.2 The Eastern Partnership and exit ......................................................................................... 69 6.3 The Frontex Consultative Forum on Fundamental Rights .................................................... 74 6.3.1 Focus in the Consultative Forum .................................................................................. 77 6.3.2 Forum membership and criticism ................................................................................. 79 7. Frontex and Markets for Exit Contracts ....................................................................................... 82 7.1 Background for commercial interests in Frontex exit governance ....................................... 82 7.2 Frontex Workshops, Industry Days and involvement in border research ............................ 85 7.3 The FronteX-DG Home Terms of Reference for research involvement ................................ 89 7.4 Frontex airline return contracts ........................................................................................... 89 7.5 Frontex and EU-Turkey eXit contracts ........................................................................................ 92 8. Conclusion ................................................................................................................................... 98 References .......................................................................................................................................... 101 List of Figures Figure 1:Standing corps hiring plan, 2021-2017. Source: European Parliament. ................................. 11 Figure 2 Frontex management structure ............................................................................................. 12 Figure 3: Frontex Divisions ................................................................................................................... 13 Figure 4: MatriX showing interview informants for the report ............................................................ 18 Figure 5: Frontex JROs 2006-2013.. ...................................................................................................... 20 Figure 6: Frontex coordinated/organized charter flights, staffers and return (cooperation/support) budget 2010-2018.. .............................................................................................................................. 21 Figure 7: Key developments in Frontex exit policies, 2004-2020 ......................................................... 24 Figure 8: Member State attitude in 2014 towards Frontex´s future role in EU border management. 27 Figure 9:Frontex´s European Centre for Return (ECRet) ...................................................................... 29 Figure 10: Returnees/Frontex operational expenditures, 2005-2019. ................................................. 29 Figure 11: Frontex´s European Centre for Return (ECRet). .................................................................. 30 Figure 12: Total number of returnees on Frontex chartered return operations, 2016-2018, by organizing Member State.. ................................................................................................................... 34 Figure 13: Timeline of Frontex return operations with chartered unmonitored return operations from EU Member States, 2016-2018 .................................................................................................... 35 Figure 14: Timeline of Frontex return operations with chartered monitored return operations from EU Member States. .............................................................................................................................. 35 Figure 15: Timeline showing unmonitored/monitored joint return operations from Member States chartered by Frontex, 2016-2018. .......................................................................................................
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