Challenges for Integrated Border Management in the European Union
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Geneva Centre for the Democratic Control of Armed Forces (DCAF) Occasional Paper – №17 Challenges for Integrated Border Management in the European Union Otwin Marenin GENEVA CENTRE FOR THE DEMOCRATIC CONTROL OF ARMED FORCES (DCAF) OCCASIONAL PAPER – №17 Challenges for Integrated Border Management in the European Union Otwin Marenin Copyright © 2010 by the Geneva Centre for the Democratic Control of Armed Forces ISBN 92-9222-117-5 DCAF Occasional Papers are detailed, theoretical studies on core issues of Security Sector Governance. DCAF Occasional Papers can be downloaded free of charge from the DCAF website at www.dcaf.ch/publications Table of Contents Abstract .......................................................................................... 3 List of Abbreviations and Acronyms ........................................................ 5 1. Introduction ................................................................................ 7 1.1 The Borders Policy Problems ...................................................... 7 1.2 European Borders ................................................................. 12 1.3 Policy Issues at the European Borders ......................................... 14 1.4 Conceptions of Integrated Border Management .............................. 17 1.5 Borders as Theoretical Objects ................................................. 21 1.6 Questions ........................................................................... 21 1.7 Thesis and Argument ............................................................. 22 1.8 Roadmap ............................................................................ 24 2. The Changing Nature of Borders ..................................................... 26 2.1 Global Interdependence and Its Impacts ...................................... 26 2.2 The Paradox of Borders .......................................................... 28 2.3 Border Threats and Vulnerabilities ............................................. 29 2.4 Types of Borders .................................................................. 34 3. The Practices of Border Management ............................................... 39 3.1 The Managerialist Impulse in Policy Thinking ................................ 39 3.2 The Basic Tasks of Border Management ....................................... 42 3.3 The Border Is Everywhere ....................................................... 43 3.4 Border Regimes .................................................................... 48 3.5 Crossing Borders ................................................................... 49 4. The Multiple Dimensions of Integrated Border Management ................... 55 4.1 The Integration Continuum ...................................................... 55 4.2 Horizontal and Vertical Integration ............................................ 56 5. The Political Contexts of IBM in the EU ............................................ 58 5.1 The Political Playing Fields of EU Integration ................................ 58 5.2 The Historical Fluidity of European Borders .................................. 59 5.3 Searching for an EU Identity .................................................... 61 5.4 Conceptions of IBM ................................................................ 65 1 6. Security Sector Reform and IBM ..................................................... 68 6.1 Integrated Border Management within the Context of SSR ................ 68 6.2 SSR/IBM as Accession Policy ..................................................... 70 6.3 Implementing SSR/IBM in the Balkans ......................................... 74 6.4 Assessments ........................................................................ 81 7. IBM in EU Policy Thinking .............................................................. 85 7.1 Structural Antecedents and Precedents ....................................... 85 7.2 Assessments ........................................................................ 88 8. FRONTEX .................................................................................. 93 8.1 Origins .............................................................................. 93 8.2 The FRONTEX Establishment Regulation ...................................... 94 8.3 The Rapid Team Regulation ..................................................... 98 8.4 Activities and Assessments ..................................................... 100 8.5 Overall Assessment .............................................................. 108 9. The Challenges for IBM in the EU: Can IBM Succeed? ........................... 114 9.1 Challenges for IBM/EC ........................................................... 114 9.2 Challenges of SSR/IBM in the Western Balkans .............................. 127 9.3 Challenges for FRONTEX ........................................................ 130 10. Building Integrative Capacity in the European Union .......................... 136 10.1 Focusing on the Core Tasks ..................................................... 136 10.2 Enhancing Learning Capacity in FRONTEX.................................... 136 10.3 Creating a European Occupational Border Guard Culture ................. 139 10.4 Building Networks with Collateral Border Control Agencies .............. 144 10.5 Building Democratic Governance Capacity .................................. 146 10.6 Planning for the Ends of IBM ................................................... 148 11. Appendix: Methodological Note ..................................................... 149 12. References ............................................................................... 151 2 Abstract The expansion of the European Union has required a rethinking of how the external borders of the EU can best be protected against transnational crime, illegal immigration, trafficking in goods and people, non-legitimate asylum seekers and terrorist-related threats. The history, strategic logic, issues faced and current policies for securing the expanding external borders of the EU through the integrated border management (IBM) vision and strategy will be described and critically analysed. The paper is based on information in publicly available documents from EU institutions, scholarly writings on borders and the management of border controls, my own prior writings on border controls and police reforms, and a few interviews with participants involved in creating a new EU integrated border management system. 3 List of Abbreviations and Acronyms AFSJ Area of Freedom, Security and Justice BG Border Guard CARDS Community Assistance for Reconstruction, Development and Stabilisation CCC Common Core Curriculum (for border guards) CEPOL European Police College CEPS Centre for European Policy Studies CEU Council of the European Union (formerly the Council of Ministers); ministers represent the member states of the EU CIRAM Common Integrated Risk Analysis Model CoE Council of Europe (Not an EU institution, has 47 member states, focuses on promoting human rights) CRATE Centralised Record of Available Technical Equipment (FRONTEX) DCAF Geneva Centre for the Democratic Control of Armed Forces EBF External Border Fund EC European Commission EMCDDA European Monitoring Centre for Drugs and Drug Addiction EPN European Patrols Network EPNI European Neighbourhood and Partnership Instrument ESTA Electronic Travel Authorisation System EU European Union Europol European Police Office EUROSUR European border surveillance system FJSTs FRONTEX joint support teams FRONTEX European Agency for the Management of Operational Cooperation at the External Borders of the Member States of the European Union IBM Integrated Border Management IGO Inter-Governmental Organisation IOM International Organization for Migration JHA Justice and Home Affairs JO Joint Operation MoU Memorandum of Understanding MS Member State of the EU MSs Member States of the EU NATO North Atlantic Treaty Organization NGO Non-Governmental Organisation OSCE Organization for Security and Co-operation in Europe PNR Passenger Name Record RABIT Rapid Border Intervention Team RAU Risk Analysis Unit (FRONTEX) SaR Search and Rescue SBC Schengen Borders Code SIS Schengen Information System SMB Swedish Migration Board SSG Security Sector Governance SSR Security Sector Reform UNCHR UN Commission on Human Rights UNHCR Office of the UN High Commissioner for Refugees WB Western Balkans 5 Challenges for Integrated Border Management in the European Union1 Otwin Marenin 1. Introduction 1.1 The Borders Policy Problems The integrated management of borders is a messy, ‘wicked’ policy problem (Harmon and Mayer, 1986). Wicked problems have no neat, routine, technical, bureaucratic, managerialist solutions. ‘The metaphor of the wicked problem stands in contrast to traditional bureaucratic policymaking and implementation. For wicked problems, agreement is forged by jointly steering courses of action and delivering policy outputs that are consistent with the multiplicity of societal interests’ (Agranoff and McGuire, 2003: 24). Agreements require extensive negotiation, political compromises, a willingness by individual stakeholders to balance individual gains and losses against the larger goals of a policy and the sustained ability by all to work together, to collaborate and cooperate with other groups and organisations. The obstacles faced when seeking to manage control of the borders of the European Union are characteristic of a wicked problem: problems and goals have to be agreed