D.5.9. INEX-FRONTEX workshop II (Mobility and secur ity at the EU`s external borders)

Deliverable submitted June 2010 (M27) in fulfilment of requirements of the FP7 Project, Converging and Conflicting Ethical Values in the Internal/External

Security Continuum in Europe (INEX)

International Peace PO Box 9229 Grønland T: +47 22 54 77 00 www.inexproject.eu

Research Institute, Oslo NO-0134 Oslo, Norway F: +47 22 54 77 01

Work Package 5: Deliverable D.5.9.

Mobility and Security at the EU’s Eastern Borders.

17th

May 2010, Collegium Civitas

The purpose of the workshop was to gain a better understanding of the evolving relationships in the JHA area between the EU and its closest Eastern neighbours: Moldova, Ukraine and Belarus, through the particular prism of border management. Drawing on some of the key themes that arose from the EU Justice and Home Affairs Council meeting of February 2010, where 29 measures for ‘reinforcing the protection of the external borders and combating illegal immigration’ were laid out, the workshop explored the ways in which the EU is endeavouring to strengthen its Eastern borders, with particular reference to the evolving role of FRONTEX. The workshop sought to explore those measures under development that endeavour to better identify ‘those migrants who are in need of international protection’ in mixed flows of regular and irregular migration towards the EU’s outer borders.1 In this context WP 5 was interested to learn about current levels of cooperation between the EU and the three Eastern neighbours in the area of border security and migration management. An emphasis was also set on the relations between the three Eastern neighbours and FRONTEX. Furthermore, the workshop objective was also to further demarcate the research area, define key questions prior to the fieldwork phase of the project and to consolidate contacts and research partners.

The workshop brought together researchers and practitioners (from EU member states as well

as Belarus and Moldova) working in the field of border management, European Neighbourhood

Policy, mobility and cross-border issues.

The workshop began with an introductory panel presenting the evolution of EU policies towards

the borders. It was proposed that the current process may be defined as an externalisation of

internal EU policies, led by several border services which are responsible for border protection.

In one speakers opinion there should be one single service in order to provide fast border

control checks and an effective pass of information to other authorities. This would lead to well

managed borders, which would provide protection against external threats and at the same

time allow neighbouring countries to “breathe” via valuable contacts with the external world

(ex. trade cooperation, facilitation of travel).

1 Council conclusions on 29 measures for reinforcing the protection of the external borders and combating illegal

Immigration, 2998th JUSTICE and HOME AFFAIRS Council meeting Brussels, 25 and 26 February 2010 http://www.frontex.europa.eu/gfx/frontex/files/jha_council/2998_jha_council_26-26feb2010.pdf

The introductory paper was followed by a presentation which gave the participants a broad

overview on the cooperation of Frontex with Third Countries and on scenarios for cooperation

with the Eastern neighbours (among others: building Migration Partnerships, Mobility

Partnerships, The Söderköping Process). The panel included a paper which discussed the impact

of EU immigration policy on the transformations in EaP states. Statistics show that the EU is not

the primary migration destination for citizens from EaP states (but rather Russia, due to

language reasons, the visa free regime and the relative ease to find a job) and that the EU is not

a settlement destination (the length of stay is approximately 1 year). The EU has had little

influence on political transformations in EaP states due to the lack of sufficient incentives.

Incentives which could encourage changes are: opening the EU labour market or offering large

structural funds (as they were offered to former EU candidate states as Poland).

The second panel focused on cooperation between Polish ministries and agencies with EaP

states. Discussion centred on the following key subjects - cooperation between Polish Border

Guard officials and Belarus, Moldova and Ukraine as well as the situation on the Polish/EU’s

eastern external border.

Cooperation between the Polish Border Guards and Ukrainian, Moldovan and Belarusian Border

Services is well developed (cooperation with Ukraine is a model: joint patrols, Liaison Officers,

common trainings, passes for local border movement have been successfully functioning since

2009). Cooperation is improved by annual meetings on the level of Chief Border Delegates (held

separately with Ukraine and Belarus), which is regarded as a good forum for exchange of

information and the solving of outstanding problems.

Panel three gave a perspective from the EaP states on cooperation with the EU, Frontex and

EUBAM. It was a general point that the capacities of the neighbouring states to combat serious

cross border crime is somewhat limited and that more cooperation with the EU and member

states’ agencies is vital. Having said this, Moldova is the most advanced of the Eastern

neighbours in its relations with the EU on border-relevant issues and much has been achieved

over the course of a year. In the context of the Moldova-EU Association Agreement visa-free

travel stands close to the top of the agenda. Moldova has implemented biometric passports

(with chip, facial image and finger prints) in 2008. This presentation was followed by a paper on

main ENPI programmes which the State Border Committee takes part in: the flagship initiative

«Integrated Border Management (IBM)» of the EU initiative Eastern Partnership (assistance in

the development of infrastructure of the Belarus Border Staff Training Institute to be

established; pilot project on the establishment of IBM system at the Belarus-Ukraine border

which provides for provision of technical equipment to green border and border checkpoints on

both sides of the border as well as organization of joint trainings on different aspects of border

security; demarcation of the Belarus-Ukraine state border [after the adoption of the Law of the

Republic of Belarus on ratification of the Treaty on the State Border between the Republic of

Belarus and Ukraine]; in-depth English learning by Belarus border guards); the ENPI Cross-Border

Cooperation Programme «Latvia-Lithuania-Belarus»; the ENPI Cross-Border Cooperation

Programme «Poland-Belarus-Ukraine»; the EU Technical Assistance Information Exchange

Instrument (TAIEX).

The panel was concluded by a presentation on EUBAM and its role in the region. Capacity

Building: recommendations at central level on institutional development, training and advice

at regional and local levels on EU best practices on border control and anticorruption; Cross-

Border Information Sharing between Moldova and Ukraine border agencies (CBSAR, PAIES, OIE

based on the 2006 Brussels Protocols); Joint Border Control Operations; Facilitation of

international cooperation between EUBAM partner services, EU agencies and EU Member

States; Jointly Operated Border Crossing Points; Coordinated and Joint Patrols.

Panel four concentrated on the EU visa policy towards Eastern Neighbourhood countries. Public

opinion surveys show that the enlargements of 2004 and 2007 and membership of countries

closest to the eastern border have caused a creation of barriers which had an influence on

contacts with the Eastern neighbours. The new visa procedure and price has also become a large

issue. There is a definite need for a new visa dialogue and for creating new roadmaps.

The seminar was concluded by a presentation which highlighted a few issues and questions for

further reflection – does everybody understand the words: “border” and “territory” in the same

way? This is one of the questions that WP5 will give further attention to.

Conclusions:

- New incentives from the EU’s side should be foreseen for EaP states in order for them to

conduct long and difficult political changes.

- A better balance should be reached between reducing to a minimum the current time

and resource consuming border controls whilst excluding safety risks to the highest

possible degree. WP5 is looking forward to the outcomes of the Integrated Border

Management Panel held in Brussels in late June 2010.

- Further exchange of information between border guards from all EU member states

should be held in order to improve security in the EU.

Marcin Zaborwski (Collegium Civitas), Jonas Gräns (PRIO), Szymon Ananicz (Centre for Eastern Studies),

Julio Vijande (Frontex), Peter Hobbing (CEPS)

Dariusz Stola (Collegium Civitas), Bogumił Rybak (Polish Ministry of Interior and Administration),

Aleksandra Świątecka (Polish Border Guards)

Peter Hobbing (CEPS), Andrei Kalinkin (Belarus State Border Committee),

Averian Borga (Border Guard Service of Moldova), Sławomir Pichor (EUBAM)

Participants: Szymon Ananicz Center for Eastern Studies Didier Bigo Centre d’études sur les conflits, Paris Averian Borga Deputy Head of the Department for International Relations and European

Integration HQ Border Guard Service of Moldova Jonas Gräns PRIO Peter Hobbing CEPS Julien Jeandesboz Centre d’études sur les conflits,Paris Andrei Kalinkin Deputy Head of International Cooperation Department of the Belarus State Border Committee Jadwiga Koralewicz Collegium Civitas Rafał Kownacki The Polish Institute of International Affairs Sławomir Pichor EUBAM Head of Operations Karol Reczkin European Parliament Bogumił Rybak Ministry of Interior and Administration, Poland Dariusz Stola Collegium Civitas Aleksandra Świątecka Polish Border Guards, Head of International Co-operation Bureau Olga Wasilewska Batory Foundation Julio Vijande FRONTEX, External Relations Unit Marcin Zaborowski Collegium Civitas Anna Zielińska Collegium Civitas

Mobility and Security at the EU’s Eastern Borders Collegium Civitas, 17 May 2010.

Programme

09.45 Welcome, Marcin Zaborowski (Collegium Civitas) and Jonas Gräns (PRIO)

10.00 – 11.30 Panel One

− The Evolution of EU policies towards the Borders – the External Dimension of Internal Security – Peter Hobbing (CEPS)

− Strengthening the role of FRONTEX/Cooperation with Third Countries – Tim Cooper

(FRONTEX)

− Labour mobility and the Eastern Partnership's transformative agenda – Szymon Ananicz

(Centre for Eastern Studies)

Chair: Marcin Zaborowski

11.30 – 11.45 Coffee break

11.45 – 13.15 Panel Two

− Perspectives from the Border: cooperation with FRONTEX, Belarus and Ukraine - Aleksandra Świątecka (Polish Border Guards)

− The Role of the EU Member States – Official (Ministry of Interior Affairs, Migration Policy Department, Warsaw)

Chair: Dariusz Stola (Collegium Civitas)

13.15 – 14.30 Lunch in Palace of Culture Restaurant

14.30 – 16.00 Panel Three

− Sławomir Pichor (EUBAM) –

− Averian Borga (Deputy Head of the Department for International Relations and European Integration HQ Border Guard Service of Moldova) -

− Belarus Border Guards participation in the Eastern Partnership and ENPI programmes. Andrei Kaklin (Deputy Head of International Cooperation Department of the Belarus State Border Committee) -

Chair: Peter Hobbing

16.00 – 16.15 Coffee break

16.15 – 17.45 Panel Four

− EU visa policy towards Eastern Neighbourhood countries - recent changes and possible developments - Olga Wasilewska (Batory Foundation, Warsaw)