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Fortress Europe Fortress Europe – a brief history of the European migration and asylum policy A historical institutionalist analysis of the migration and asylum policy, and the impacts of the current migration crisis Josi Seilonen Helsingin yliopisto Valtiotieteellinen tiedekunta Hallinnon ja organisaatioiden tutkimuksen linja Pro gradu-tutkielma Lokakuu 2016 Tiedekunta/Osasto – Fakultet/Sektion – Faculty Laitos – Institution – Department Valtiotieteellinen tiedekunta Politiikan ja talouden tutkimuksen laitos Tekijä – Författare – Author Josi Joosua Joonatan Seilonen Työn nimi – Arbetets titel – Title Fortress Europe – a brief history of the European migration and asylum policy A historical institutionalist analysis of the migration and asylum policy, and the impacts of the current migration crisis Oppiaine – Läroämne – Subject Yleinen valtio-oppi: hallinnon ja organisaatioiden tutkimuksen linja Työn laji – Arbetets art – Aika – Datum – Month and Sivumäärä – Sidoantal – Number of pages Level year 101+10 Pro gradu Lokakuu 2016 Tiivistelmä – Referat – Abstract 1900-luvun Euroopan historialle tunnusomaista ovat suuret sosiaaliset, poliittiset ja taloudelliset muutokset sekä yhtenäisen eurooppalaisen yhteiskunnan luominen. Enemmistön Euroopan maista ollessa nyt EU:n jäseniä, poliittinen fokus on kuitenkin 2000-luvulla siirtynyt suurelta osin Euroopan ulkopuolelta peräisin olevaan maahanmuuttoon. Vaikka EU sen aikaisemmissa muodoissa loi useita mekanismeja maahanmuuton koordinoimiseksi, virallinen alku yhteistyölle sijoittuu vuoteen 1999. Viime vuosina maahanmuuttokeskustelu on keskittynyt turvapaikanhakijoihin, ja tilannetta kutsutaan yleisesti pakolaiskriisiksi. Eurooppalainen maahanmuutto- ja pakolaispolitiikka eivät ole vain äärimmäisen ajankohtaisia aiheita, mutta suurin osa kattavasta tutkimuksesta on peräisin ajalta ennen Lissabonin sopimusta, ja tuoreemmat tutkimukset käsittelevät politiikkakehitystä vain lyhyesti. Toisaalta syvällisemmät katsaukset keskittyvät vain tiettyihin ajanjaksoihin EU:n historiassa. Tämän tutkimuksen tavoitteena on lisätä ymmärrystä EU:n maahanmuuttopolitiikan kehittymisestä, ja tätä kautta tarjota selityksiä EU:n vaikeuksille selvitä nykyisestä pakolaiskriisistä ja luoda toimivaa turvapaikkajärjestelmää. Tässä onnistuttiin hyödyntämällä historiallis- institutionalistista näkökulmaa. Historiallinen institutionalismi tarjoaa työkaluja selittää EU:n kyvyttömyyttä saavuttaa yhteisymmärrystä etenkin turvapaikkakysymyksissä. Apuvälineinä toimivat etenkin polkuriippuvuuksien ja epäjatkuvuuskohtien analyysi sekä tuoreempana vähittäisen muutoksen käsite. Lisäksi kerronnallista prosessin seurantaa käyttäen muutoksen keskeisiä tekijöitä voitiin tunnistaa. Tutkimuksen toinen, kunnianhimoinen tavoite oli historiallisen institutionalismin tärkeimpiin tutkijoihin tukeutuen vastata teorian havaittuihin heikkouksiin, ja mm. syytöksiin sen kykenemättömyydestä selittää muutosta lainkaan. Tutkimuskysymykset olivat seuraavat: Miten eurooppalainen maahanmuutto- ja turvapaikkapolitiikka ovat muuttuneet ajan saatossa? Miksi EU on epäonnistunut yhtenäisen maahanmuuttopolitiikan luomisessa? Kerronnallista prosessin seurantaa soveltaen kehityksen analyysi liitettiin onnistuneesti kausaalisen prosessin askelten kuvailuun, alkaen kahdenkeskisistä sopimuksista ja laissez-faire -politiikasta johtaen vähitellen sopimusten luomiseen, joiden tarkoituksena oli luoda yhteinen maahanmuutto- ja turvapaikkapolitiikka. Sekä sisäisiä prosesseja että ulkoisia yllykeitä muutokselle havaittiin, ja päätösten ajallista aspektia sekä keskinäisriippuvuutta painottaen muodostettiin historiallisen institutionalismin mukainen narratiivi. Jatkuvalle kehitykselle löydettiin useita tekijöitä, joista monet olivat haasteita kuten laiton maahanmuutto, turvapaikanhakijoiden suuri määrä, ja turvallisuushuolet. Muita keskeisiä tekijöitä ovat EU:n sisäiseen vapaaseen liikkuvuuteen johtanut jatkuva integraatio, Euroopan yhtenäisasiakirja, laajentuneet ulkorajat ja ammattitaitoisen työvoiman tarve. Toiseen tutkimuskysymykseen liittyen huomattiin, että EU:n maahanmuutto- ja turvapaikkapolitiikka eivät ole kovin organisoituja eivätkä johdonmukaisia. EU-instituutiot ovat itse tunnistaneet ristiriidan odotettujen lopputulosten ja todellisten seurausten välillä. Taustalla oleva institutionaalinen syy tälle vaikuttaa pitkälti olevan EU-lainsäädännön joustamattomuus. Lopuksi Hoffmannin tutkimusta hyödyntäen esitettiin osan ongelmista olevan seurausta joidenkin maiden näkemyksestä siitä, että kansalliset toimenpiteet ovat hyödyllisempiä yksittäisille maille kuin yhteistyö. Historiallis-institutionalistisia metodeita sovellettiin menestyksekkäästi todennettavien ja kiinnostuvien tuloksien saamiseksi EU:n maahanmuutto- ja turvapaikkapolitiikkaan liittyen. Polkuriippuvuuden, epäjatkuvuuskohtien ja vähittäisen muutoksen yhdistäminen osoittautui erittäin toimivaksi institutionalistisen muutoksen selittämiseksi ja teorian kohtaan osoitettuun kritiikkiin vastaamiseksi. Vähittäisen muutoksen käsite osoittautui keskeiseksi analyysille. Tämä tutkimus on onnistunut lisäämään ymmärrystä EU:n maahanmuutto- ja turvapaikkapolitiikasta, ja teorian testaamisen kautta parantamaan historiallisen institutionalismin käytettävyyttä tutkimusmenetelmänä. Teorian perinteistä viitekehystä lähestyttiin kriittisesti, ja osaan kritiikistä vastattiin. Lopputuloksena osoitettiin, että historiallinen institutionalismi tarjoaa huomattavaa potentiaalia politiikan muutoksen selittämisessä. Avainsanat – Nyckelord – Keywords EU, politiikka, maahanmuutto, pakolaiset, pakolaiskriisi, turvapaikanhakijat, historiallinen institutionalismi, uusinstitutionalismi, kerronnallinen analyysi, polkuriippuvuus, epäjatkuvuuskohdat, vähittäinen muutos Tiedekunta/Osasto – Fakultet/Sektion – Faculty Laitos – Institution – Department Faculty of Social Sciences The Department of Political and Economic Studies Tekijä – Författare – Author Josi Joosua Joonatan Seilonen Työn nimi – Arbetets titel – Title Fortress Europe – a brief history of the European migration and asylum policy A historical institutionalist analysis of the migration and asylum policy, and the impacts of the current migration crisis Oppiaine – Läroämne – Subject Administration and Organizations Työn laji – Arbetets art – Aika – Datum – Month and Sivumäärä – Sidoantal – Number of pages Level year 101+10 Master’s thesis November 2016 Tiivistelmä – Referat – Abstract The history of the 20th century Europe is characterized by great social, political and economic changes, and the construction of a common European society. However, with the majority of European countries now being members of the European Union, the political focus has in the 21st century largely shifted towards the non-European immigration. Despite establishing various mechanisms to co-ordinate the migration in the European Union during the past decades, it was only in 1999 that the EU officially started to work towards a common immigration policy for Europe. In the past few years, the migration discourse has focused on asylum applications, and the situation in Europe is now considered to be a migration crisis. Not only is the European migration and asylum policy a highly topical subject, but the majority of the comprehensive research has been done before the Lisbon Treaty, and the more recent studies address the historical development of the migration policy only in brief. On the other hand, the more thorough presentations tend to account for only a short time period in the EU’s history. The aim of this study is to contribute to the understanding of the development of the European Union migration policy in order to better comprehend the shortcomings in tackling the current migration crisis and the inability to create a working asylum system. This was achieved by applying a historical institutionalist view on the development of a European migration policy. The historical institutionalism offers tools to explain the EU’s inability to reach Europe-wide agreements especially in the asylum matters, e.g. through the concepts of critical junctures and path dependence, and the more recent addition of gradual change. Furthermore, using narrative process tracing, the constituting elements of change could be identified. Related to this understanding of HI is the ambitious secondary objective of this study. The fiercest critics claim HI to be “incapable of coping with change”. Drawing from the foremost HI theorists an attempt was made to address the perceived shortcomings of the theory. The research questions were the following: How has the European migration and asylum policy evolved over time? Why has the EU failed to create a coherent migration policy? Using narrative process tracing the analysis of development was successfully incorporated in the description of the steps in a causal process beginning with bilateral agreements and a laissez-faire policy on migration, gradually leading to the creation of treaties and agreements with an aim to consolidate a common European migration and asylum policy. Both endogenous processes and exogenous catalysts were identified, and emphasizing the temporal aspects of decisions as well as their interconnectedness, a narrative consistent with the historical institutionalist framework generated. Several reasons for continuous development were identified in the study, many of them challenges such as illegal immigration, high number of asylum seekers, and security concerns. Other important factors include the continuous integration that brought about free movement, the SEA, widened
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