Horizontal and Vertical Diversity: Unintended Consequences of EU External Migration Policy

ABSTRACT

Unintended consequences arising from EU external migration policy are a result of the multi-actor nature of this policy and of policy interactions. In addition, scholars face serious methodological challenges in establishing what the EU’s ‘intent’ is in external migration policy and, therefore, in determining which consequences are intended and which are unintended. The literature on the implementation and evaluation of EU external migration policy is in its infancy, and future work should take into account all policy outcomes – both those that were intended and those that were not.     

Deterrence and Protection in the EU’s Migration Policy

EU migration and asylum policy is facing tough challenges at the southern borders of the Union as migration and asylum pressures rise, fuelled by political instability and poverty in several regions of Asia and Africa. Current European border control practices create three spaces of control: externalised borders, through readmission and return agreements which enrol third countries in border control; the EU borders themselves through the work of Frontex and the development of a whole arsenal of technology tools for controlling mobility to and from the EU; and the Schengen area, whose regulations tend to reinforce deterrence at the borders through the Smart Border System. As a result, the EU’s balancing act between irregular migration control and protection of refugees and human life clearly tips towards the former, even if it pays lip service to the latter. More options for mobility across the Mediterranean and more cooperation for growth are essential ingredients of a sustainable migration management policy on the EU’s southern borders. In addition asylum management could benefit from EU level humanitarian visas issued at countries of origin.     

Tempering the EU? NGO advocacy in the Area of Freedom,Security, and Justice

The European Union's (EU) area of Freedom, Security and Justice (AFSJ) portfolio comprises policy areas such as immigration and asylum, and police and judicial cooperation. Steps were taken to bring this field into the mandate of the EU first by the Maastricht Treaty, followed by changes implemented by the Amsterdam and Lisbon Treaties, the last one ‘normalizing’ the EU's erstwhile Third Pillar. As the emergent EU regime continues to consolidate in this field, NGOs of various kinds continue to seek to influence policy-making and implementation, with varying success. This article seeks to establish the context in which NGOs carry out their work and argues that the EU-NGO interface is impacted both by the institutional realities of the European Union and the capacities of EU-oriented NGOs to seize and expand opportunities for access and input into the policy cycle. Using EU instruments representing three different policy bundles in AFSJ (immigration, asylum and judicial cooperation in criminal matters), the article seeks to map out NGO strategies in engaging and oftentimes resisting European Union policy instruments.     

The Impact of EU-based Populism on Turkey-EU Relations

ABSTRACT

The May 2019 EP elections once again highlighted the current cultural backlash throughout Europe against progressive values such as cosmopolitanism and multiculturalism, which impacts on the ‘future of Europe’ debate, raising important questions for the evolution of Turkey-EU relations. Even though Turkey is no longer a hot topic in EU political parlance and public opinion, opposition to Turkish EU membership continues in the form of nativism, particularly with reference to the issues of immigration and Islam, as the cases of AfD in Germany and UKIP in Britain show.     

The EU as a Global Actor? EU Policy Towards Iran

Abstract

This paper explores EU policy towards Iran to challenge the common implicit or explicit notion that the EU's ‘actorness’ in the international system rests primarily, or solely, on its Pillar I external relations. Utilising criteria developed to examine the ‘actorness’ of the EU, the article explores this policy area to demonstrate that the EU's ‘actorness’ resulted not only from the ‘Community’ aspects of foreign policy, but also from its Common Foreign and Security Policy (CFSP).     

Change and Continuity in the European Union's Political Conditionality: Aims,Approach, and Priorities

The EU's political conditionality has acquired increasing importance with successive enlargements; this also goes for the period since 2004 compared with that before. The focus here is on change and continuity in conditionality policy with respect to its aims, approach, and priorities. The article presents and applies a three-dimensional analysis concerning the challenge to, the process of, and the management of that policy. Given the need for assessing it in a broad and dynamic context, the discussion revolves around three relationships: between conditionality and post-communist democratization; between conditionality and the enlargement process; and between conditionality and the EU itself in terms of institutional responsibility for enlargement and conditionality matters. This explains how the policy since 2004 has been driven by four factors: more difficult democratization cases from the West Balkans; lessons from the earlier 2004 enlargement involving East–Central Europe; the policy outlook of Commissioner Olli Rehn; and ‘enlargement fatigue’ and stronger pressures from EU actors other than the Commission. As a result, political conditionality has become broader in its scope, much tighter in its procedures, and less easy to control within a less enlargement-friendly environment in the EU and against less certainty about enlargement prospects.     

The Pandora’s box: democratization and rule of law in Turkey

A prominent question in the literature on democracy is concerned with the role of external factors in stimulating the process of democratization and uploading rule of law. This paper tackles the following questions: How does the political conditionality of an international organization—the EU in this case—stimulate democracy in third countries? Equally important, does conditionality always have a positive impact and could it be possible to witness the EU undermining democracy in an unexpected manner? This paper addresses these questions through an analysis of the Turkish democracy in the light of its accession to the EU and through an application of the EU membership conditionality by looking at rule of law in Turkey. The general contention in the political conditionality literature is that the EU enables an acceding country to adopt its democratic principles, and facilitates transition to democracy, while strengthening rule of law. However, the Turkish transformation seems to challenge this contention. This paper proposes that the EU’s political conditionality in bringing about political transformation in Turkey as a membership precondition unexpectedly illuminated the underlying anti-democratic tendencies and tensions in Turkish politics. The democratization process in Turkey since 1999, partly stimulated by the EU, has opened up a Pandora’s box releasing the conflict between the secularists and religious conservatives in Turkey that has long been suppressed. This paper analyzes these cleavages through the prism of EU political conditionality with regards to rule of law.     

Securitising Migration: The European Union in the Context of the Post-2011 Arab Upheavals

The migration-security nexus, already at the heart of EU policymaking before the 2011 Arab uprisings, became acute after the forced displacements from Syria and the deterrence measures introduced. The internalisation by broader publics of “security knowledge” regarding migration contributed to the securitisation move. However, the construction of migration into a security-laden notion goes beyond both the adoption of deterrence measures and the straightforward association of migration with state as well as societal (in)security. Through the lens of its cooperative tools with its southern neighbours, the EU has built complex interdependencies between migration, post-2011 regional stabilisation and security. In order to read the EU’s securitised migration politics properly, the migration-security nexus must be embedded in its social, geopolitical and temporal fields. Perceptions of geopolitical threats, concurrent strains and divergences over European integration and immigration constitute an enabling terrain for the politics of securitisation.     

‘Blocked’ Youth: The Politics of Migration from South and East Mediterranean Countries Before and After the Arab Uprisings

Migration from South and East Mediterranean (SEM) countries has been considered a growing security threat in the EU and Gulf states following the 9/11 attacks and the Arab uprisings. Since 2011, the economic slowdown, regime changes and socio-political instability have spurred growing migration pressure from SEM countries. However, the securitisation of migration of young citizens from these countries in the EU and the Gulf states is manifested in the drastic limitation of migrants’ inflows, and in the selection of prospective migrants on demographic, socio-economic and political grounds. Today’s ‘governmentality’ of youth migration from SEM countries poses ethical and development-related issues.     

The Leverage of the Gatekeeper: Power and Interdependence in the Migration Nexus between the EU and Turkey

In March 2016, the European Union and Turkey reached an agreement seeking to end the refugee flows from Turkey to Greece. This agreement is the outcome of a bargaining process in which Turkey gained considerable leverage from its position as a ‘gatekeeper’ situated between Syria and an increasingly ‘immigration-averse’ and securitised EU. More importantly, this bargaining process might have broader implications for the EU and its relations with its periphery, since Turkey has progressively reversed the asymmetries of power by demonstrating the indispensability of its continued commitment to act as gatekeeper vis-à-vis an increasingly fragmented and anxious EU.     

The View from Next Door: Greek-Turkish Relations after the Coup Attempt in Turkey

ABSTRACT

Turkey’s recent slide into authoritarianism will have implications for its close neighbours in the West. Especially Greece cannot avoid negative spill-over effects. A coalition government comprising Syriza and Independent Greeks does not have an unconstrained set of policy choices in responding to this. Maintaining effective working relations is a paramount interest but achieving this is easier in principle than in practice especially considering the issues of asylum seekers and Turkish revisionism on the Lausanne Treaty. Unlike the two parties that dominated the Greek political scene after 1974, PASOK and New Democracy, the current government has little experience navigating choppy diplomatic seas with Turkey.     

Understanding European asylum cooperation under the Schengen/Dublin system: a public goods framework

Abstract

Recent developments in European Union (EU) asylum cooperation raise important questions about the nature of cooperation and the potential problems facing collective action in the realm of EU internal security. The emergence and the subsequent stability of the Schengen/Dublin system is especially puzzling, given the highly inequitable distribution of costs and benefits that this system entails among the participating states and begs the question as to why those states that are likely to face a disproportionate ‘burden’ under the system would have agreed to it. This article seeks to provide an alternative approach to answering this question by drawing on a public goods framework. We argue that a simple focus on free-riding and exploitation dynamics, as emphasized in the traditional collective action literature, falls short as an explanation and instead demonstrates how more recent theoretical contributions to the public goods literature can offer new insights into the origin and evolution in cooperation in this sensitive policy area.     

The EU-Turkey Deal One Year On: A Delicate Balancing Act

Now in its sixth year, the war in Syria has triggered the largest humanitarian and refugee crisis of our time. For most refugees and migrants, Turkey is the main transit country to reach Europe, where Syrian refugees hope for a better future. However, this journey has been hampered as several European countries closed their borders following the arrival of an unprecedented number of migrants and asylum seekers in 2015. In response, a deal was struck with Turkey to stem the migrant flow to Europe in exchange for some concessions. By outsourcing the management of migration flows to Turkey, the EU is failing to take its fair share of responsibility for refugee protection. Furthermore, as a result of the political situation in Turkey and the unmet promises under the deal, relations between Turkey and the EU have touched their lowest point since the start of accession negotiations in 2005. While survival of the deal is of critical importance as the EU needs Turkey’s assistance in curbing migration flows and Turkey is keen on revitalising its accession negotiations, the deal has exposed serious flaws that need to be addressed and must not be replicated with other countries.     

Supporters’ responses to contested trade negotiations: the European Commission’s rhetoric on the Transatlantic Trade and Investment Partnership*

Abstract

Negotiations on the Transatlantic Trade and Investment Partnership (TTIP) commenced in 2013, and soon became the most controversial bilateral trade agreement negotiations ever attempted by the European Union (EU). When trying to understand the escalating debate over the proposed agreement, most analyses have highlighted opposition to the deal, especially from civil society organizations. However, a full understanding of the debate surrounding TTIP requires analysis of supporters’ responses, as these changed in response to strategies used by opponents of the agreement. This article uses a novel approach in trade policy scholarship—rhetorical analysis—to focus on the European Commission Trade Directorate’s response to contestation over TTIP. Drawing on work on the ‘rhetoric of reaction’, this article identifies the rhetorical strategies used by EU trade commissioners from 2013 to 2016. It outlines the evolution of the rhetoric and accompanying changes in process and policy, providing insights on the impact of TTIP politicization on the guiding principles of the EU’s trade policy.     

Making sense of the EU’s response to the Arab uprisings: foreign policy practice at times of crisis

ABSTRACT

The Arab uprisings of 2011 put into question previously held understandings about the stability of authoritarian regimes in North Africa as well as the European Union’s (EU’s) relations with countries in its southern neighbourhood. Despite early calls on behalf of the EU to change its policies, the Union’s responses in the early stages seemed mostly characterised by continuity. This article claims that certain dispositions and background knowledge developed over several decades vis-à-vis EU’s Mediterranean policies served as a baseline from which EU officials and diplomats acted. Drawing on insights from practice approaches, the article argues that the practical understandings on what the EU can (and cannot) do vis-à-vis partner countries in North Africa create a kind of power politics of practical dispositions. The article focuses on the European Neighbourhood Policy - the EU’s flagship initiative - and builds on a unique set of data that combine policy documents and interviews with about 30 EU officials and national diplomats from before and after the Arab uprisings. In this way, it illustrates how practice relates to change in that even though the EU’s responses drew on an established repertoire of practice, enacting it in a new context opened up new possibilities for action.     

EU politics on labour migration: inclusion versus admission

Two European Union (EU) directives on labour migration were adopted in 2009 and 2011. The EU scheme to attract highly qualified migrants, the so-called ‘Blue Card’ directive of 2009, allows member states broad flexibility in implementation. In contrast, the directive on a single permit for migrant workers and their rights of 2011 is far less flexible. It does significantly reduce the scope for derogations at a national level to a minimum. How can this variance in output be explained? Institutional rules are shown to be a key factor. The involvement of the European Parliament as co-legislator alongside the Council limited member states’ influence on legal outputs. The comparison of policy outputs between the two cases points to differences in actor orientations: rather than seeking to increase labour migration into the EU by defining expansive admission conditions, the common EU policy seeks to include migrant workers by defining their rights.     

‘A question between empires’: the restriction of Japanese immigration in British Columbia and the reassessment of Japan's foreign policy, 1907–1908

Abstract

Great Britain was the first of the major Powers that revised its unequal treaty with Japan, recognizing the success of Japan's modernization and its growing role in the international arena. However, British Columbia perceived Japanese residents as a threat to ‘the British character’ of this regions' population profile. After the movement against Japanese residents in British Columbia peaked during the anti-Japanese riots in Vancouver in September of 1907, Canadian Minister of Labor Rodolphe Lemieux headed a diplomatic delegation to Tokyo to negotiate the restriction of Japanese immigration to Canada. The dispatch of this mission revealed some of the complexities in relations between the Colonial and Foreign Offices in London on the one hand and the Dominion's and British Columbian governments on the other. Based on previously unused primary sources, this article will examine the interplay between the policy towards Japanese migrants in the British Dominion of Canada and the British policy towards Japan as a nation.     

The future of the United States as a European power: The case of NATO enlargement

Abstract

European Union enlargement has left Russia on the margins of European political processes and led to widespread suspicion in the Moscow foreign policy establishment of European motives. This has resulted in, first, increasing resistance to the imposition of European norms and, second, a more assertive policy, particularly in the EU's and Russia's ‘overlapping neighbourhoods’. Although Moscow is likely to continue the strategy of engagement initiated under Putin, Brussels must radically rethink the nature and extent of Russia's ‘Europeanisation’. Russia's drive for modernisation will coexist with the strengthening of sovereignty and the power of the state, seen by the Putin administration as key to external and internal security. The EU will have to limit its ambition and work within this ‘window’—wider or narrower depending on state of play—of policy possibilities.     

Obama and Afghanistan: a constructivist approach to shifting policy narrative and practices

Abstract

This article adopts a constructivist approach to explain how and why the Obama administration shifted its policy narrative and practices towards Afghanistan from 2011 onwards. It recognizes that the ‘Global War on Terror’ narrative helped pave the way for a set of institutionalized militarized practices and collectively held beliefs that have structured the post-9/11 world. At the same time, the article argues that the Obama administration’s ‘selling’ of its Afghan policy provided the space for an evolving approach. This policy narrative involved the ‘existential threat’ of transnational militant actors operating out of an Afghanistan–Pakistan ungoverned space being downgraded to a ‘containable’ one. Three key factors prompted this change: the administration’s discursive decoupling of the Taliban and al-Qaeda; the changing perception that the threat posed by ‘al-Qaeda and its affiliates’ was a decentralized one; and the United States’ changed conception of Afghanistan as a ‘safe haven’ for transnational terrorists.     

Europeanisation and Administrative Relations in Turkey in the Post-Helsinki Era

ABSTRACT

After the Helsinki Summit of 1999, Turkey faced the impact of Europeanisation in the context of regional policy and structural funds. This impact challenged the long-established statist tradition of the Turkish administrative structure and led to the need for reforms in order to bring its regional policy in line with European Union (EU) standards. The polity effect of Europeanisation in Turkey in the post-Helsinki era has been a change in administrative relations between three different territorial tiers: supranational, national and subnational.