European integration and refugee protection [Elektronische Ressource] : the development of asylum policy in the European Union / by Esther Ezra

Ezra Pound, Esther

Informations

• Publié par: ludwig-maximilians-universitat_munchen
• Publié le: 01 janvier 2004
• Nombre de lectures: 33
• Langue: English

Extrait

Ludwig-Maximilians-Universität München
Geschwister-Scholl-Institut für Politische Wissenschaft
Thesis Advisor:
Prof. Dr. Dr. h.c Werner Weidenfeld


EUROPEAN INTEGRATION AND REFUGEE PROTECTION:
THE DEVELOPMENT OF ASYLUM POLICY IN THE
EUROPEAN UNION

By Esther Ezra

April 16, 2004


Dissertation submitted for the Degree of Doctor of Philosophy










i
Dedicated to my late great uncle, Cézar Soubéry, for always being there for me.
































Referent: Prof. Dr. Dr. h.c. Werner Weidenfeld
Korreferent: Prof. Dr. Michael Brenner
Tag der mündlichen Prüfung: 26.07.2004

ii


TABLE OF CONTENTS


Acknowledgments………………………………………………………………...……………….….vii
INTRODUCTION……………………………………………………………..…………………1
1. The EU Community-building Process: The Search for Legitimacy………………………. 3
2. Power and Responsibility in EU Policy-Making: The Critical Role of Power in
Explaining the Position of EU Institutions towards the Granting of Asylum…………4
3. Future Cooperation in the Field of Asylum: The Likelihood of Growing
Interdependence among EU Member States…………………………………………..6
4. Outline of Study……………………………………………………………………………6

PART ONE: LITERATURE REVIEW AND BASIC CONCEPTS

I. Introduction……………………………………………………………………………..…8

II. The Study of Asylum (1945-2002): An Overview……...……………………………….9
1. Debating Asylum during the Cold War (1945-1985): Idealization of a Concept……...…10
2. Towards the End of the Cold War (1985-1992): A New Narrative in the
Scientific Debate…………...………………………………………………………...14
3. The Present Discourse (1992-2003): Legalistic and Normative Approaches to
Western European Policy on Asylum…………...……………….…………………..15

III. Theoretical Framework………………………………………………………..………27
1. Asylum Policy in Western Society: The Built-in Conflict of Liberal Democracy.….…...28
2. State Pursuit of National Interests and Universal Human Rights………………..……….28
3. Asylum and Migration: The Inevitable Bond……………………………………….……35
3.1. The Attitude towards Asylum Seekers during the Cold War………………….……….35
3.2. First Signs of Attitude Change: The Demographic Factor and its Implications on
Asylum Policy……………………….……………………………………………….37
3.3. The Perception of Asylum Seekers after the Cold War………….……………………..39
3.4. The Relevance of 9/11 to Immigration and Asylum Policy……………………………40
4. Asylum Policy and Regional Integration: The Development of Asylum
Policy in the European Union………………………………………………………..41
4.1. The Inclusive Nature of the European Project……………………………..……...……42
4.2. EU’s Search for Legitimacy: “More Democracy, Transparency and Efficiency”.….....46
4.3. The Different Positions towards asylum among EU Institutions: The Role of Power
in EU Policy Making………………………………………………..……………….49
4.4. Future Prospects: Institutional Developments and Movement towards
Increased Cooperation……………………………………………………….………53
iii
PART TWO: REFUGEE PROTECTION IN A HISTORICAL PERSPECTIVE

I. Introduction……………………………………………………………………………..56

II. The Right of Asylum in History………………………….……………………………57

III. The Evolution of Asylum Policy after World War I………...………………………61
1. The League of Nations and Refugee Protection in the Inter-War Period…………………61
2. Jewish Refugees as an Example……………..……………………………………………63

IV. The Evolution of Asylum Policy after World War II………………...………………70
1. UNRRA and IRO Policy in the Shadow of the Cold War………..………………………70
2. The 1951 Geneva Convention: The Impact of Western Bloc Interests on the
Definition of the Term ‘Refugee’……………………………………………..….….74
3. UNHCR’s Role in the Cold War……………………………………………………...….77
3.1. UNHCR Policy vis-à-vis Refugees from Communist Regimes:
Hungary and Vietnam………………………………………………………………..78
3.2. UNHCR Policy vis-à-vis Refugees from non-Communist Regimes:
Haiti and El Salvador…………………...……………………………………………80
3.3. “Good Office Strategy”: UNHCR Policy towards Refugees not Within Its
Competence…………………………………………………………………………..83
3.4. The UNHCR in a Changing World………………………….……………………….…84

PART THREE: THE DEVELOPMENT OF ASYLUM POLICY IN THE EUROPEAN UNION

I. Introduction……………………...………………………………………………………86

II. Towards the Creation of a Regional Refugee Policy in Western Europe……...……88
1. The Schengen Agreement and the Single European Act: The Logical Consequences
of the Free Movement of Persons…………………………………………………....89
2. Initial Outcomes of the Single Market Initiative: the ad-hoc Group on Migration and
the Schengen Implementation Agreement……………………..…………………….93
3. The Dublin Convention…………………………………………………………………...98
4. The External Border Convention…………………………………………………………99

III. The Maastricht Treaty and the Justice and Home Affairs Pillar: A Bastion
of National Sovereignty…………….……………………………………………..100
1. The Road to Maastricht: Preparatory Work before the Conclusion of the Treaty of
the European Union (TEU)………………………………………………………....102
2. The Treaty of Maastricht and Justice and Home Affairs Cooperation…………….……108
3. The Decision Making Process of the Third Pillar: The Various Actors and
their Chief Responsibilities…………………………………………………………112
3.1. The Non-Exclusive Right of Initiative of the European Commission………….……..112
iv3.2. The Marginal Role of the European Parliament (EP)…………………………………113
3.3. The Limited Jurisdiction of the European Court of Justice (ECJ)…………………….117
3.4. The Key Actor: The Council of Ministers………………………………….…………119
3.5. The European Council: “Giving the Impetus”…………………..…………………….121
4. The Nature of Cooperation among EU Member States after the Signing
of Maastricht………………………………………………………………………..123
4.1. Unjustified Claims for Asylum and Refugee Status: “Safe Country” and
“Safe Third Country” Concepts……………………………………………….……124
4.2. Origin Of Persecution: State and Non-State Agents………..…………………………129
4.3. Sharing the Burden of Asylum Protection with Non-EC Nationals…………………..132
5. The Main Outcomes of Maastricht………………………...……………………………136

IV. The Amsterdam Treaty: A New Code of Conduct………………………………….137
1. The Incentive for a New Intergovernmental Conference (IGC):“A Union Close
to its Citizens”……………………………………………………………...…….…137
2. The 1995 Reflection Group Report: The European Commission and European
Parliament Positions on Asylum and Third Pillar Issues……………………...……141
3. The 1996 White Paper: Member States’ Stance on Cooperation in the Fields of
Justice and Home Affairs………..…………………………………………………146
4. The 1997 Amsterdam Treaty: Setting a New Model for Cooperation among EU
Member States…………………………………………………………………...…155
5. The Division of Powers…………………………………………………………………156
5.1. The New Status of the European Commission: A Stronger Engagement in
Shaping Asylum Policy……………………………….……………………………157
5.2. The Limited Role of the European Parliament…………………….………………….158
5.3. Council of Ministers: Still the Main Actor……………..……………………………..160
5.4. The Increasing Authority of the European Court of Justice……………………….….160
6. The Development of a Common Immigration and Asylum Policy……………………..161
6.1. The 1998 Strategy Paper and the Commission Action Plan: Outlines for a
Community Policy………………………………………………………………….161
6.2. The Commission’s Proposals for the 2004 Common Immigration and Asylum
Policy: Adopting Common Measures on Asylum…………………………….……167
6.2.1. The Eurodac system: Effective Application of the Dublin Convention…….………167
6.2.2. Determining the State Responsible for Examining Applications for Asylum..……..169
6.2.3. Establishing Common Visa Policy…………………………………………….……170
6.2.4. Laying Down Minimum Standards for the Reception of Asylum
Seekers in EU Member States……………………………………………………...172
6.2.5. Laying Down Minimum Standards on Procedures for Granting or
Withdrawing Refugee Status………………………………………………….……174
6.3. The Creation of a Refugee Fund: A Burden Sharing Mechanism…………………….178
6.4. Return Policy of the EU via Cooperation with Third Countries:
Readmission Agreements…………………………………………………………...182
7. The Importance of Amsterdam to the Development of a Common Asylum Policy…….189

vV. The Nice Treaty and the European Convention……………………….……………191
1. The Rationale Behind Nice: Preparing for Enlargement………………………………..192
2. The Discourse on Asylum among EU Member States……………………………….....195
3. The Effect of Nice on Asylum Policy…………………………….……………………..197
4. EU policy on Asylum in Anticipation of the Future………………………………….....199
4.1. The European Convention………………………………………………………….…199
4.2. The Impact of the New Security Environment since 9/11 on EU Asylum Policy…….241

VI. SUMMARY AND FINAL REMARKS……………………………………………………..203

BIBLIOGRAPHY……………………………………………………………………………..210






<