Working Papers Global Migration: Consequences and Responses Paper 2019/21, June 2019 Border Management and Migration Controls Germany Report Valeria Hänsel, Sabine Hess, Bernd Kasparek Georg-August Universität Göttingen © Sabine Hess Reference: RESPOND D 2.2 This research was conducted under the Horizon 2020 project “‘RESPOND Multilevel Governance oF MiGration and Beyond (770564). The sole responsibility oF this publication lies with the authors. The European Union is not responsible For any use that may be made oF the inFormation contained therein. Any enquiries reGardinG this publication should be sent to us at: [email protected]. This document is available For download at www.respondmiGration.com Horizon 2020 RESPOND: Multilevel Governance oF MiGration and Beyond (770564) Contents LIST OF FIGURES ...................................................................................................................................... 4 LIST OF TABLES ........................................................................................................................................ 4 LIST OF ABBREVIATIONS ......................................................................................................................... 4 ACKNOWLEDGEMENTS ............................................................................................................................ 7 ABOUT THE PROJECT .............................................................................................................................. 8 EXECUTIVE SUMMARY ............................................................................................................................. 9 1. INTRODUCTION ............................................................................................................................... 10 2. METHODOLOGY .............................................................................................................................. 11 3. KEY DEVELOPMENTS SINCE 2011 ................................................................................................. 11 3.1. THE DUBLIN REGULATION ............................................................................................................. 11 3.2. TEMPORARY BORDER CONTROLS AFTER THE ARAB SPRING ............................................................. 12 3.3. REFUGEE PROTESTS ................................................................................................................... 12 3.4. SAFE COUNTRIES OF ORIGIN ........................................................................................................ 12 3.5. THE MIGRATIONS OF 2015 AND TEMPORARY INTERNAL BORDER CONTROLS ..................................... 12 3.6. TEMPORARY SUSPENSION OF THE DUBLIN REGULATION FOR SYRIAN NATIONALS IN 2015 ................... 14 3.7. RELEVANT LEGISLATIVE DEVELOPMENTS ....................................................................................... 14 4. THE LEGAL FRAMEWORK .............................................................................................................. 18 4.1. MIGRATION CONTROL .................................................................................................................. 18 4.1.1. The Residency Act: Pre-entry, At the Border, Return ............................................................. 18 4.1.2. The Asylum Act: at the Border, Return................................................................................... 19 4.1.3. The Act to Combat Undeclared Work and UnlawFul Employment: Internal Control.................. 20 4.1.4. The Act on the Central ReGister oF ForeiGn Nationals: Pre-entry, At-the-Border, and Internal Controls ............................................................................................................................................. 20 4.1.5. Relevant EU LeGislation ........................................................................................................ 20 4.2. BORDER POLICING....................................................................................................................... 21 4.2.1. Act on the Federal Police ...................................................................................................... 21 4.2.2. Relevant EU leGislation ......................................................................................................... 21 4.3. CORRESPONDENCE BETWEEN EU AND GERMAN LEGISLATION .......................................................... 22 4.3.1. Pre-entry Controls ................................................................................................................. 22 4.3.2. At-the-Border Controls .......................................................................................................... 22 4.3.3. Internal Controls .................................................................................................................... 23 4.3.4. Return, Detention For Return, and Readmission ..................................................................... 24 5. KEY NARRATIVES AND THEMES ................................................................................................... 25 5.1. SECURITIZING MIGRATION: THE NARRATIVE OF BORDER CONTROL AS AN ESSENTIAL ELEMENT OF INTEGRATED MIGRATION MANAGEMENT ..................................................................................................... 25 5.2. EUROPEAN VERSUS NATIONAL MIGRATION MANAGEMENT AND BORDER CONTROLS ........................... 27 5.2.1. National Border Policies and Bilateral Governance Approaches............................................. 27 5.2.2. Externalization as a Necessary Complementary StrateGy ...................................................... 27 5.3. FILTERING, DIVIDING, RETURNING: ENFORCING SPEEDY PROCEDURES AND SWIFT RETURNS .............. 28 5.3.1. Transit Centres and “Anker Centres” and Pre-Removal Detention ......................................... 28 2 5.3.2. Secondary MiGration and Returns to EU Countries ................................................................ 29 5.3.3. Return AGreements with Non-EU Countries ........................................................................... 30 5.4. BORDER POLICIES BETWEEN NEOLIBERAL AND HUMANITARIAN NARRATIVES ...................................... 30 5.4.1. Voluntary Returns ................................................................................................................. 30 5.4.2. The Reduction oF Causes oF FliGht and Development Cooperation ......................................... 30 5.4.3. Human Rights ....................................................................................................................... 31 6. IMPLEMENTATION .......................................................................................................................... 31 6.1. KEY ACTORS............................................................................................................................... 31 6.2. PRE-ENTRY ................................................................................................................................. 32 6.2.1. Visa Policies.......................................................................................................................... 32 6.2.2. Carrier Sanctions .................................................................................................................. 32 6.3. AT THE BORDER .......................................................................................................................... 33 6.3.1. The Reintroduction oF Border Controls ................................................................................... 33 6.3.2. ReFusal oF Entry and Expulsions ............................................................................................ 34 6.3.3. Airport Procedure .................................................................................................................. 34 6.3.4. Germany’s International Police Missions in the Field oF Border AFFairs ................................... 35 6.4. RETURN AND DEPORTATION ......................................................................................................... 38 6.4.1. Deportations.......................................................................................................................... 38 6.4.2. The European Union’s Readmission AGreements .................................................................. 38 6.4.3. Germany’s Bilateral Readmission AGreements ...................................................................... 39 6.4.4. Administrative Readmission ArranGements with Greece, Italy and Spain ............................... 39 6.4.5. “Voluntary Returns” ............................................................................................................... 40 6.4.6. Detention .............................................................................................................................. 40 6.5. COOPERATION AMONG SUBNATIONAL, NATIONAL AND SUPRANATIONAL ACTORS ................................ 42 6.5.1. Bilateral Cooperation at the German Border .......................................................................... 42 6.5.2. Extended Trilateral Police Cooperation .................................................................................. 42 6.5.3. Cooperation with FRONTEX, the European Border and Coast Guard AGency........................ 43 6.5.4. Cooperation amonG