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Final Report on the Implementation of the 2014–2017 Action Plan

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Final Report on the Implementation of the 2014–2017 Action Plan Integrated Border Management Final report on the implementation of the 2014–2017 Action Plan November 2018 Adopted by the Border Steering Group in its extended configuration on 13 September 2018 Adopted by the KKJPD on 15 November 2018 Acknowledged by the Federal Council on 30 November 2018 Publication details Published by: State Secretariat for Migration (SEM), Quellenweg 6, CH-3003 Bern-Wabern Editing and concept: SEM, Entry Division Realisation: www.casalini.ch Available from: SFBL, Federal publications, CH-3003 Bern, www.bundespublikationen.admin.ch © SEM/FDJP November 2018 Photo credits: FDFA/FDFA Information, Bulletin editorial staff: cover page Keystone: cover page Contents Integrated Border Management 1 Final report on the implementation of the 2014–2017 Action Plan 1 Abbreviations 4 1. Introduction 6 2. Current challenges in border management 7 3. Implementation of the Action Plan 8 4. Evaluation of IBM 10 4.1 Background 10 4.2 Research question and methodology 11 4.3 Evaluation of the formulation of the IBM Strategy and IBM Action Plan 11 4.4 Evaluation of the implementation and effectiveness of selected IBM measures 12 4.5 Recommendations 13 5. Overall conclusions on IBM 14 6. Outlook 15 6.1 Future challenges in border management 15 6.2 The future of IBM 16 Appendix I: Implementation status of all measures 17 Abbreviations ALO Airline Liaison Officer AP Action Plan API Advance Passenger Information (electronic system that sends passenger data to the relevant border management agencies immediately after airline check-in) Art. Article BE Canton of Bern CC Web Competency Centre Web of the GS-FDJP CD Consular Directorate of the FDFA cf. Please refer to CP Cantonal police CS-VIS Centralised European visa system DDPS Federal Department of Defence, Civil Protection and Sport DEA Directorate for European Affairs of the FDFA DETEC Federal Department of the Environment, Transport, Energy and Communications DGC Directorate General of Customs of the FDF DIL Directorate of International Law of the FDFA DPA Directorate of Political Affairs of the FDFA DR Directorate for Resources of the FDFA EAER Federal Department of Economic Affairs, Education and Research EES Entry/Exit System EFTA European Free Trade Association EMF Resident services, migration and immigration police of the City of Bern EMN European Migration Network (supports political decision-making processes in asylum and migration-related matters at a European level) ETIAS European Travel Information and Authorisation System EU European Union FCA Federal Customs Administration of the FDF FDF Federal Department of Finance FDFA Federal Department of Foreign Affairs FDHA Federal Department of Home Affairs FDJP Federal Department of Justice and Police FDPIC Federal Data Protection and Information Commissioner fedpol Federal Office of the Police of the FDJP FEDRO Federal Roads Office of the DETEC FIS Federal Intelligence Service of the DDPS FNA Foreign Nationals Act ( SR 142.20) FOBL Federal Office for Buildings and Logistics of the FDF FOJ Federal Office of Justice of the FDJP FSO Federal Statistical Office of the FDHA GE Canton of Geneva GR Canton of Graubünden GS-FDJP General Secretariat of the FDJP IBM Integrated Border Management ILA Integral survey of the external border IPAS Computerised identity, legitimation and administrative system of fedpol ISA Information system for ID documents ISC-FDJP IT Service Centre of the FDJP ISF Internal Security Fund ISR Information system for issuing Swiss travel documents and re-entry passes to foreign nationals 4 KdK Conference of Cantonal Governments KKJPD Conference of Cantonal Directors of Justice and Police KKPKS Conference of Cantonal Police Commanders of Switzerland KSBS Conference of Law Enforcement Authorities of Switzerland (since 2014 SSK) LU Canton of Lucerne MoU Memorandum of Understanding NAA (RE3) NAA: new residence permit for non-nationals; RE3: realisation phase 3 of the project OJ Official Journal of the European Union PA19 Production of non-national identity cards from 2019 onwards PCN Process Control Number (number unambiguously linked to a fingerprint taken within the context of EURODAC) PNR Passenger Name Record RIPOL Recherches informatisées de police (Swiss Confederation’s automatic tracing system) RPC Reception and Processing Centres of the SEM RTP Registered Traveller Programme (automatic border-control system requiring pre-registration) SBG Swiss Border Guard of the FDF SDC Swiss Agency for Development and Cooperation of the FDFA SECO State Secretariat for Economic Affairs of the EAER SEM State Secretariat for Migration SIRENE Supplementary Information Request at the National Entry (office in every Schengen Member State for exchanging police operations information in association with the SIS between Member States) SIS Schengen Information System SO Canton of Solothurn SPI Swiss Police Institute SR Systematic collection of federal laws SSK Conference of Swiss Public Prosecutors (until 2014 KSBS) SVZW Swiss Civil Servants’ Association VIS European Visa Information System VKM Association of Cantonal Migration Agencies VS Canton of Valais VSAA Association of Swiss Labour Market Authorities ZEMIS Central Migration Information System ZH Canton of Zurich 5 1. Introduction The Schengen Association Agreement fundamentally The Federal Council and the Conference of Cantonal changed the regime for identity checks at national Directors of Justice and Police KKJPD decided in 2014 borders. This change of system not only required new to implement the IBM Strategy and IBM Action Plan. forms of cooperation throughout the Schengen Area, The authorities defined in the IBM Action Plan were but also demanded closer collaboration between then tasked with this work. An annual monitoring border management agencies at the national level. round examined the implementation status of the Having recognised this, and also prompted by a recom- measures defined in the Action Plan. Findings were mendation from the 2008 Schengen Evaluation Report, set out in a report which was approved by both under the lead of the State Secretariat for Migration the Federal Council and the KKJPD. (SEM, formerly the Federal Office for Migration FOM) the federal and cantonal authorities concerned and The first strategy cycle ended as planned in 2017, after involved developed the Integrated Border Management five years. In addition to the usual annual round of Strategy (IBM Strategy) and the Integrated Border monitoring by the SEM, to mark this milestone an Management Action Plan (IBM Action Plan). The external agency was also engaged to evaluate the intention was to create a common umbrella for all Strategy and the Action Plan. This evaluation was to of the activities of the individual agencies involved focus in particular on the process by which the IBM in border management, in order: Strategy and Action Plan came about. It was also • to efficiently coordinate the fight against to apply precise criteria to describe and rate the way illegal migration and, in particular, in which the Strategy and the Action Plan had been people-smuggling on a commercial scale implemented. In all of this work, the objective was • to combat cross-border crime to use these systematic findings to generate specific • to facilitate legal migration, and recommendations, as a foundation for the next itera- • to ensure that border management in itself tion of the strategy. complies with the law and with human rights conventions. In addition to the findings of the most recent regular round of monitoring, this Final Report thus contains Drawing on the four-filter EU model of integrated a summary of the findings of the external evaluation, border management, the IBM Strategy covers all an overview of developments in integrated border activities by the authorities in connection with migra- management over the past seven years, and a look tion and travel processes in third-party states, in other ahead to the new strategy. Schengen States, at the external Swiss border and internal measures downstream. 6 2. Current challenges in border management Where internal borders are concerned, 2017 saw the More than 20 acts of terrorism were recorded migration situation normalise still further. A comparison throughout Europe in 2017. These included those with migratory movements via the Balkan route in on La Rambla in Barcelona and at nearby Cambrils, 2015, and via the central Mediterranean route in 2015 the attack on a pop concert in Manchester, and various and 2016, shows that the measures that have been bomb, knife and firearm attacks in France and Belgium. instituted are working. Such measures include the These terrorist attacks and the after-effects of the agreement between Turkey and the EU, the border 2015 migration crisis meant that, despite the migration defence measures instituted by various states along situation in Europe overall having eased, six Schengen the Balkan route, and the package of measures States – Germany, Austria, France, Norway, Sweden that the EU and Italy put together with Libya. From and Denmark – continued to conduct the internal mid-July 2017 the latter resulted in a sharp drop Schengen border controls that they had previously in dangerous sea crossings from Libya to Italy. Conse- re-introduced. Terrorism-related developments, in quently, the number of internal interceptions reported particular, left certain Schengen States feeling a by the SBG (and thus also those at internal borders) greater need to maintain those internal borders. fell
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