Communication from the Commission to the Council and the European Parliament - The global approach to migration one year on: towards a comprehensive European migration policy
Date: 2006-11-30
Institutions: European Commission
Subjects: EU migration policy, EU relations, illegal migration, migration control, political asylum, political refugee

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 30.11.2006 
COM(2006) 735 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE 
EUROPEAN PARLIAMENT 

The Global Approach to Migration one year on: 
Towards a comprehensive European migration policy 

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The Global Approach to Migration one year on:  
Towards a comprehensive European migration policy 

1.  

RESPONDING TO THE CHALLENGES OF MIGRATION 

In  October  2005  Heads  of  State  and  Government  discussed  migration  as  one  of  the  main 
challenges of globalisation and agreed on the urgent need to step up action. The EU was able 
to  react  quickly.  Within  a  month,  the  Commission  produced  a  plan  for  a  comprehensive 
programme  of  action,  Priority  actions  for  responding  to  the  challenges  of  migration:  First 
follow-up to Hampton Court.1 This Communication proposed a set of concrete measures that 
constituted  a  comprehensive  approach  to  migration  and  formed  the  basis  for  further 
discussion by the European Council that focused on Africa and the Mediterranean region. 

In  December  2005,  the  European  Council  adopted  the  Global  Approach  to  Migration: 
Priority actions focusing on Africa and the Mediterranean. The Global Approach formulates 
coherent  policies  and  action  on  migration,  addressing  a  vast  array  of  migration  issues  and 
bringing together the various relevant policy areas including external relations, development, 
employment,  and  justice,  freedom  and  security.  The  approach  taken  shows  tangible,  active 
solidarity, hinged on responsibility-sharing between Member States and with third countries.  

Migration is a phenomenon of all periods of history. Today's numbers of migrants worldwide 
are not higher in relation to world population than during other periods of history. However, 
migration  has  become  more  important  for  Europe.  In  a  few  decades  Europe  has  developed 
from a region of emigration to a major destination of immigration. According to OECD and 
Eurostat  data,  the  most  important  migration  flows  from  third  countries  into  the  EU  in  2004 
came  from  Romania,  Morocco,  Bulgaria,  Turkey,  Ukraine  and  the  Russian  Federation. 
Inflows  have  become  more  diversified,  with  increasing  numbers  of  immigrants  from  new 
sources  in  Central  and  Eastern  Europe,  Asia  (especially  China)  and  Central  and  Latin 
America  (especially  Ecuador).  Migration  from  Africa  has  substantially  increased  in  recent 
months.  This  development  is  unlikely  to  stop  in  the  foreseeable  future  and  migratory 
pressures may grow. At the same time, the EU will need migrants to ensure the sustainability 
of  its  labour  markets  given  its  demographic  developments.  The  EU  needs  to  compete  with 
other world regions and it needs migrants with the appropriate skills to accomplish that. 

This Communication has two aims. First, it responds to the European Council's invitation to 
the Commission to report back on progress made in implementing the first phase of the 
Global Approach and the priority actions focusing on Africa and the Mediterranean by 
the end of 2006. Second, it proposes ways to make the European Union's approach truly 
comprehensive.  This  responds  to  the  calls  to  intensify  efforts  made  by  Justice  and  Home 
Affairs Ministers in Tampere on 21 September and Heads of State and Government in Lahti 
on  20  October.  It  therefore  suggests  including  other  policy  areas  that  were  not  part  of  the 
December  2005  Global  Approach,  such  as  legal  migration  and  integration  measures.  In  this 
way,  partnership  with  third  countries  will  address  the  full  range  of  issues  of  interest  and 
concern to all involved.  

1 References to all documents cited are listed in Annex A. 

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In this framework, given the urgent need to strengthen EU policies on migration and related 
areas,  the  effectiveness  of  decision-making  procedures,  including  in  the  area  of  legal 
migration, is a necessity, since it would allow the Union to respond to citizens' expectations in 
this field. The Treaty establishing a Constitution for Europe offers the appropriate solution to 
the  current  weaknesses  of  the  decision-making  process,  by  applying  to  legal  migration  the 
rules  of  qualified  majority  voting  and  ordinary  legislative  procedure  (co-decision).  In  the 
present situation, the bridging clause contained in Article 67 TEC would offer an important 
tool to achieve this goal, while searching for a comprehensive institutional settlement within 
the framework set up by the European Council of June 2006, and needs to be applied.  

In an effort to further strengthen the EU’s comprehensive migration policy, the Commission 
set up a Group of Commissioners on migration. A similar development of bringing together 
different albeit related policy areas, can be witnessed in a number of Member States and this 
trend is to be welcomed and, where possible, encouraged.  

the  Mediterranean 

this  Communication 

region, 
focuses  on  Africa  and 
While 
comprehensiveness also needs to be translated in geographic terms in the future. Serious 
consideration should be given to applying the approach to other regions, in particular those at 
the eastern and south-eastern external borders of the EU given the challenges these migratory 
routes  pose.  Moreover,  although  not  a  short  term  priority,  the  increasing  importance  of 
migration-related  issues  in  our  relations  with  Asian  and  Latin  American  countries  and  the 
increased expectations of these countries for cooperation with the EU must be kept in mind. 
Furthermore,  the  recent  Iberoamerican  Summit  called  for  intensifying  dialogue  and 
cooperation  on  migration  and  for  giving  a  concrete  expression  in  national  policies,  sub-
regional fora and international agreements, to the Montevideo Compromise on Migration and 
Development. Indeed, many measures and policies described in section 3 could be applied, in 
a similar way, in our cooperation and dialogue with Latin America and Asia. 

2.  

IMPLEMENTATION  OF  THE  GLOBAL  APPROACH:  ACHIEVEMENTS  OF  THE  FIRST 
YEAR IN AFRICA AND THE MEDITERRANEAN REGION 

2006 has been a year of agenda setting with Africa. A ministerial conference on migration and 
development was held last July in Rabat bringing together some 60 countries along West and 
Central  African  migration  routes.  African  and  EU  states  participated  in  the  UN  High  Level 
Dialogue on Migration and Development in September. An EU-Africa Ministerial Conference 
on  Migration  and  Development  was  also  held  in  Libya  in  November  to  formulate  a  joint 
approach to migration between the EU and the whole of Africa for the first time. 'Migration' 
has  been  a  recurrent  agenda  item  in  dialogue  and  cooperation  programmes  with 
Mediterranean  countries,  building  on  the  considerable  work  already  carried  out  in  the  ENP 
framework, and the EuroMed forum has been used to further exchange best practice and work 
towards a joint programme of activities. It has also been on the agenda of high level meetings 
with the African Union and the regional organisations.  Dialogue  on  migration issues  on the 
basis  of  Article  13  of  the  Cotonou  Agreement  was  opened  with  key  Sub-Saharan  African 
states. The Rapid Reaction Mechanism has been employed to support Mauritania and Senegal 
in their efforts to cope with illegal migration.  

In less than twelve months, work has indeed started on all of the priority actions. By the end 
of the year, FRONTEX will have launched and coordinated several joint maritime operations 
in  the  Atlantic  and  Mediterranean  regions,  completed  risk  analyses  on  Africa  and  presented 
feasibility studies on establishing a Mediterranean Coastal Patrols Network and a surveillance 

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system  covering  the  whole  southern  maritime  border  of  the  EU  and  the  Mediterranean  Sea. 
Regional  networks  of  Immigration  Liaison  Officers  (ILOs)  are  being  set  up  along  key 
migration routes through Africa. The Commission issued a proposal for the establishment of 
Rapid Border Intervention Teams and has carried out an analysis of the international law of 
the sea.  

A more detailed report on implementation of the Global Approach is provided in Annex B. 

3.  

REINFORCING COHERENCE: A COMPREHENSIVE EUROPEAN MIGRATION POLICY  

The comprehensive approach must be strongly based on three principles: solidarity between 
Member States, partnership with third countries, and the protection of migrants, in particular 
vulnerable groups such as unaccompanied minors and women. The  following three sections 
suggest ways to develop this approach, both with Africa and beyond.  

3.1.  

Strengthening  dialogue  and  cooperation  with  African  countries  of  origin  and 
transit 

3.1.1.  

Dialogue with African countries 

The overall framework for EU cooperation with Africa is defined by the EU Strategy 
for  Africa,  which  was  adopted  by  the  European  Council  on  15-16  December  2005. 
The  primary  aims  of  this  Strategy  are  the  achievement  of  the  Millennium 
Development Goals and the promotion of sustainable development, security and good 
governance  in  Africa.  Future  work  in  the  area  of  migration  must  be  consistent  with 
this Strategy, notably in the context of addressing the root causes of migration such as 
poverty,  conflict  and  unemployment.  Other  EU  policies,  including  trade,  agriculture 
and  fisheries,  should  serve  the  same  objectives  through  enhanced  Policy  Coherence 
for Development (PCD).  

The EU-Africa Ministerial Conference on Migration and Development hosted by 
Libya on 22-23 November 2006 successfully identified priorities for cooperation and 
adopted  an  ambitious  declaration  that  paves  the  way  for  joint  action  between  Africa 
and the EU at continental, regional and national level in various areas, ranging from 
the fight against illegal migration to facilitation of regular movements of people and 
action  to  address  the  root  causes  of  migration.  Africa  and  the  EU  should  seriously 
engage  in  implementing  the  actions  contained  in  the  final  declaration  in  order  to 
achieve  concrete  results  to  report  to  the  second  Ministerial  Conference  that  will  be 
held within three years.  

On a regional level, the Rabat conference held in July was also a success and paved 
the  way  for  action  tailored  to  specific  migratory  routes.  Efforts  should  now  be 
concentrated on ensuring an appropriate follow-up with a view to assessing progress at 
a second ministerial conference in two  years’  time. Contacts between the  EU and 
East  African  states  should  also  be  further  promoted  to  develop  concrete  cooperation 
along the East Africa Migration Routes.  

On  the  basis  of  the  work  carried  out  on  migratory  routes,  the  EU  will  foster  more 
specific cooperation with various regions in Africa. Cooperation platforms will bring 
together  African  countries,  EU  Member  States  and  international  organisations  in  an 

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effort  to  manage  migration  more  effectively  in  the  interests  of  all.  This  common 
framework could then lead to the formulation of regional agreements with interested 
African countries. 

Dialogue and cooperation with North African countries at bilateral and regional levels 
will be further developed in the framework of the European Neighbourhood Policy 
(ENP).  Migration  issues  are  an  essential  element  in  our  ENP  Action  Plans,  our 
political  dialogue  and  financial  assistance  in  order  to  strengthen  the  capabilities  of 
these countries to manage migration more effectively. Work must also continue in the 
context  of  EUROMED.  Partners  have  agreed  to  give  concrete  follow-up  to  the 
chapter dealing with migration, social integration, justice and security of the Five Year 
Work  programme  agreed  at  Barcelona  in  November  2005.  This  should  allow  for  a 
ministerial conference on migration to be convened in the second half of 2007.  

The  EU  will  also  continue  to  integrate  migration  issues  into  the  regular  political 
dialogue  with  all  ACP  countries  and  key  Regional  Economic  Communities 
(RECs).  This  dialogue  is  based  on  the  broad  agenda  of  Article  13  of  the  Cotonou 
Agreement,  which  covers  a  wide  range  of  topics  in  the  area  of  migration  and 
development. On the EU side the dialogue will be led by Commission delegations and 
Presidency  embassies  in  the  countries  concerned  and  involve  interested  Member 
States,  in  line  with  the  provisions  of  Article  8  Cotonou.  Where  appropriate,  the 
dialogue is further enhanced through specific Commission missions. In 2006 three of 
these  'article  13  missions'  took  place.  Other  key  African  countries  will  follow  in 
2007,  including  Cameroon,  Ethiopia,  Ghana  and  Nigeria.  A  joint  EU-ECOWAS 
(Economic Community of West African States) working group on migration is to meet 
for the first time in 2007. 

The  EU  should  also  take  an  active  role  in  the  follow  up  to  the  UN  High  Level 
Dialogue  on  Migration  and  Development,  in  particular  as  the  global  forum  on 
migration is established. The Commission is ready and willing to contribute actively to 
the first meeting of this forum that is due to take place in Belgium in the summer of 
2007. 

3.1.2. Promoting the migration and development agenda 

Turning to the migration and development agenda, the prime challenge is to tackle 
the main push factors for migration: poverty and the lack of job opportunities. The EU 
must  recognise  that  creating  jobs  in  developing  countries  could  significantly  reduce 
migratory  pressure  from  Africa.  Migrants  should  be  supported  in  contributing  to  the 
development of their countries of origin. In addition, migrant remittances will continue 
to  increase,  and  the  Commission  is  exploring  cooperation  mechanisms  in  this  area 
with institutions such as the World Bank and the European Investment Bank. Efforts 
will concentrate on improving data collection, reducing the transfer costs, facilitating 
the  use  of  the  financial  sector  as  transfer  channel  and  exploring  ways  to  further 
enhance the impact of remittances on development policies.   

The  EU  Programme  on  Migration  and  Development  in  Africa  would  seek  to 
provide  a  short-term  developmental  response  to  the  migration  challenge  for  ACP 
countries. The first objective of this joint programming initiative would be to address 
in a serious manner the lack of decent jobs in Africa. Promoting investments in labour-
intensive sectors in regions with high outward migration will be an important priority, 

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in  a  wider  context  of  facilitating  intra-African  labour  migration  and  mobility.  Other 
areas of cooperation will include remittances, brain drain, diasporas, good governance 
and illegal migration and trafficking in human beings. Member States will be invited 
to  join  the  Commission  in  the  programming  of  these  actions.  The  Commission  will 
reserve  an  amount  of  €40  million  for  the  first  phase  of  this  Initiative  (9th  EDF 
resources),  to  be  complemented  by  Member  States'  contributions.  The  geographical 
scope of the Initiative will be sub-Saharan Africa, but actions may focus on specific 
countries or regions and – in its first phase – notably on West Africa. 

The EU must continue helping African states to build capacity to manage migration 
and  asylum,  including  South-South  flows,  without  prejudice  to  existing  regional 
agreements  on  migration  and  mobility.  Important  initiatives  are  being  taken  in  ENP 
countries  on  capacity-building,  in  particular  with  regard  to  border  management  and 
institutional  support  in  order  to  improve  the  reception  of  migrants  as  well  as  the 
protection  of  migrants'  rights.  Furthermore,  the  Commission  has  proposed  creating 
migration  profiles  for  each  interested  developing  country.2  Migration  profiles  are  a 
policy tool that serve to garner and analyse relevant information necessary to develop 
concrete  measures  to  a  given  situation  in  the  field  of  migration  and  development. 
Concise migration profiles are being introduced for all ACP countries as an annex to 
the  new  generation  of  Country  Strategy  Papers.  Migration  profiles  should  be 
established for all relevant partner countries in the medium term. This information can 
then be used to provide technical and financial assistance to African countries to solve 
the root causes of migration flows. One idea could be to establish Migration Support 
Teams  (MISTs)  composed  of  experts  from  EU  Member  States  which  could  provide 
the  necessary  assistance  to  requesting  African  states.  Europe  should  become  more 
active and forthcoming when it comes to migration issues. 

Policies  on  migration  need  to  be  based  on  reliable  evidence  and  be  coherent  with 
other,  related  policies.  Promoting  the  links  between  policy  and  research  can 
contribute  to  a  better  understanding  of  migration  realities  and  policy  development. 
in 
Inspired  by 
Mediterranean  countries  (CARIM), 
initiatives 
stimulating 
the  establishment  of  a  pan-African  network  of  migration 
'observatories' and/or migration research institutes. 

linking  migration  research 
the  Commission  will  support 

the  academic  network 

institutes 

in  developing 

Twinning measures should also be implemented using EC funding to assist African 
countries 
their  migration  and  asylum  policies.  Furthermore, 
Commission  Delegations  and  Member  State  Missions  in  African  countries  should 
ensure they can deal with migration related issues, via the designation of one contact 
person for migration issues. 

3.2.  

Legal migration 

The  further  development  of  a  common  European  policy  on  labour  immigration  is  an 
important component of the Global Approach. For a truly comprehensive European migration 
policy, legal migration needs to be integrated into both the external and internal EU policies. 
Migration  can  contribute  to  meeting  the  changing  needs  of  the  labour  market  and  the 
economic  aspects  of  migration  policy  should  be  taken  into  account.  On  28  November  2006 

2 See annex 8 of the Communication on Migration and Development. 

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the Ecofin Council adopted conclusions on policies to increase the economic benefits for the 
EU from migration. As stated in the Policy Plan on Legal Migration, and in line with aims of 
the European Employment Strategy, the EU is taking a two-track approach for the next years: 
facilitate  the  admission  of  certain  categories  of  immigrants  on  a  needs-based  approach  (e.g. 
highly skilled and seasonal workers) without prejudice to the application of the Community 
preference principle and provide a common secure legal status to all legal immigrant workers.  

Other actions should facilitate the matching between demand and supply of labour. The future 
Immigration Portal, the European Job Mobility Portal, the new 2007-2010 Guidelines for the 
EURES network and the European Researchers Mobility Portal are all fundamental  tools to 
achieve  this  objective.  Third  countries  will  be  provided  with  information  on  the  legal 
possibilities  for  working  in  Europe,  including  through  specific  information  campaigns.  By 
fostering  professional  training,  skills  development  programmes  and  language  courses, 
potential migrants can enhance their chances of finding legal employment. For this purpose, 
specific  migration  centres  could  be  established  in  partner  countries,  supported  by  EC 
funding.  Such  centres  could  also  play  a  role  in  facilitating  the  management  of  seasonal 
workers,  the  exchanges  of  students  and  researchers  and  other  forms  of  legal  movement  of 
people.  

The potential offered by new forms of migration, in particular circular migration, should be 
further  explored.  In  addition,  it  will  be  important  to  support  the  development  of  tools  for 
better  managing  labour  migration  to  the  EU  in  third  countries.  This  will  require  support  to 
activities such as the reinforcement of third countries' administrative services responsible for 
labour migration management, capacity building of the national employment services in third 
countries and the development of intermediation establishments as well as the implementation 
of pre-immigration plans in countries of origin. 

Once certain conditions have been met, such as cooperation on illegal migration and effective 
mechanisms  for  readmission,  the  objective  could  be  to  agree  Mobility  Packages  with  a 
number of interested third countries which would enable their citizens to have better access to 
the EU. There is a clear need to better organise the various forms of legal movement between 
the  EU  and  third  countries.  Mobility  packages  would  provide  the  overall  framework  for 
managing such movements and would bring together the possibilities offered by the Member 
States  and  the  European  Community,  while  fully  respecting  the  division  of  competences  as 
provided by the Treaty. 

In  the  context  of  broader  packages,  establishing  readmission  agreements,  strengthening 
cooperation on illegal immigration and working together on effective border management can 
all be prerequisites for visa facilitation. The Commission considers that facilitating mobility is 
an important element in a comprehensive approach to migration, particularly for the countries 
covered by the ENP where a serious examination of how visa procedures can be made less of 
an obstacle to legitimate travel to the EU, and vice versa, will be required.3 

In developing policies that take account of the potential benefits to third countries of labour 
migration to Europe, the EU should be very much aware of the risks of brain drain and its 
socio-economic  consequences  on  developing  countries.  For  example,  recognition  of  the 
negative effects of excessive emigration of skilled workers on the health service of a number 

3 See the Communication on Strengthening the ENP COM(2006) 726 final. 

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of  countries  has  led  to  the  development  of  a  coordinated  EU  Strategy,  which  includes  the 
development of a set of principles governing ethical recruitment of health professionals and 
the  promotion  of  greater  self-sufficiency  of  health  worker  production  within  Europe  to 
minimise  future  demand  on  fragile  health  systems.  Similar  initiatives  should  be  taken  to 
address  (potential)  skills  shortages  and  brain  drain  in  other  sectors  as  well.  The  benefits 
related to brain circulation need to be given serious consideration in this context.   

3.3. 

Integration and intercultural dialogue 

The  nexus  between  migration  and  integration  will  be  a  priority  subject  for  the  EU.  The 
Commission  will  actively  promote  the  implementation  of  the  Common  Agenda  for 
Integration,  building  on  the  Common  Basic  Principles  on  integration,  covering  all  areas  of 
importance  including  labour  and  socio-economic,  public  health,  cultural  and  political 
that  will  allow  for  wider 
dimensions.  The  Commission  will  develop 
participation  of  the  different  stakeholders, 
thus 
contributing  to  the  promotion  of  an  effective  integration  strategy.  These  will  include  a)  the 
establishment  of  an  integration  platform  where  relevant  partners  can  exchange  views  on  a 
regular  basis;  b)  the  consolidation  of  the  role  played  by  local  authorities  building  on  the 
successful 'Integrating cities: European policies, local practices' conference held in Rotterdam 
on  9-10  October;  and  c)  the  creation  of  an  Integration  website  and  new  editions  of  the 
Integration Handbook and the Annual report on migration and integration.  

including  migrants 

themselves, 

instruments 

Improving integration into the labour market is essential. The High Level Group on the Social 
Integration  of  Ethnic  Minorities  and  their  Full  Access  to  the  Labour  Market  is  expected  to 
present  practical  recommendations  in  2007  that  could  enrich  the  existing  polices.  The  EU 
must keep its specific focus on education of children from immigrant backgrounds and should 
use the framework of the Education and Training 2010 process for that purpose. More action 
is  also  required  to  ensure  that  migrants  receive  civic  education  focussed  on  fundamental 
European values and learn the language of their host country. Possible barriers to language 
training  need  to  be  removed  as  a  matter  of  urgency.  At  the  same  time,  strengthening  the 
ability of the host society to adjust to diversity is equally important. The 2007 European Year 
of Equal Opportunities for All aims to raise awareness on this issue. 

Intercultural dialogue should also be used as a tool for integration. The 'European Year of 
Intercultural Dialogue 2008' will give priority to dialogue in daily life, for example in schools, 
sporting  and  cultural  activities,  and  at  work.  In  addition,  the  EU  must  continue  supporting 
projects  in  the  field  of  intercultural  education,  education  of  immigrants  and  inclusion  of 
disadvantaged youth via relevant programmes.  

3.4. 

Fighting illegal migration and trafficking in human beings 

At  EU  level,  the  fight  against  illegal  immigration  has  to  be  reinforced  in  the  priority  areas 
identified in the Commission's Communication of 19 July 2006. Priorities include the need to 
increase mutual trust and the exchange of information between Member States, including on 
regularisation  of  illegal  immigrants,  improving  access  control  to  EU  territory  and  enacting 
penalties  for  those  employers  offering  jobs  to  illegally  staying  third-country  nationals. 
Although the phenomenon of undeclared work is not limited to migrants, new legislation on 
penalties against employers of such persons will be proposed in spring 2007 given that the 
chance  to  obtain  work  in  the  EU  without  the  required  legal  status  is  a  key  pull-factor  for 
illegal immigration. In parallel, more emphasis will be placed on the enforcement of existing 
legislation that would also protect migrants, in particular the directives on health and safety in 

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the  work  place.  In  addition,  states  should  be  supported  in  becoming  Parties  to  the  UN 
Smuggling and Trafficking Protocols. 

In 2007, EUROPOL will dedicate attention to combating facilitated illegal immigration  and 
trafficking in human beings and will continue to provide operational intelligence and support 
and training  sessions, which are open to law enforcement officers of third countries. For its 
part FRONTEX should, within the framework of European external relations policy, establish 
technical working arrangements for joint operations with relevant third countries, and invite 
them to participate in operational activities where appropriate. Action plans on the different 
migratory routes are being prepared, using the recommendations of the ILOs along the routes. 
ILO networks must be reinforced, with the aim of having at least one Liaison Officer in each 
key  African  country  of  origin  and  transit.  In  addition,  Terms  of  Reference  should  be 
developed for an 'EU ILO', who would be able to act on behalf of several Member States.  

Return  and  readmission  will  remain  a  fundamental  part  of  managing  migration.  Member 
States must be supported in designing and implementing voluntary return programmes and 
plans for enforced return, including joint flights for removal. Supporting Member States in 
obtaining  the  necessary  documentation  for  an  immediate  return  and  readmission  of  illegal 
migrants remains a priority. Member States have been supported financially in their efforts to 
improve  the  management  of  return  in  all  its  dimensions  under  the  RETURN  Preparatory 
Actions, the results of which will serve to focus the multi-annual programming of the future 
European  Return  Fund.  In  this  context,  it  is  equally  important  that  the  proposed  Directive 
establishing  common  standards  for  Member  States'  return  procedures  is  adopted  as  soon  as 
possible.  

Negotiations  on  an  EC-Ukraine  readmission  agreement  have  been  finalised  while 
negotiations with Morocco are well advanced. Similar negotiations with Moldova and Algeria 
are expected to be formally launched soon. As part of a balanced approach and based on the 
dialogue  on  migration  and  visa  issues  foreseen  in  the  ENP  Action  Plans,  negotiations  on 
readmission  and visa  facilitation  with each neighbouring country should be envisaged, once 
the  proper  preconditions  have  been  met.  In  terms  of  cooperation  with  ACP  countries,  the 
readmission obligation contained in Article 13 Cotonou is crucial, and is an appropriate basis 
for supplementary bilateral readmission agreements between EU Member States and selected 
ACP countries. Its application, however, should be considered in the wider context of Article 
13.  

Experiences  have  demonstrated  that  to  broker  a  deal  the  EU  needs  to  offer  something  in 
return. In their bilateral readmission negotiations Member States are increasingly offering also 
other  forms  of  support  and  assistance  to  third  countries  to  facilitate  the  conclusion  of  such 
agreements,  and  the  possibilities  of  applying  this  wider  approach  at  EU  level  should  be 
explored. 

Integrated management of maritime borders is an important part of the Global Approach and 
is  the  subject  of  a  separate  Communication,  Reinforcing  the  Management  of  the  European 
Union's Southern Maritime Borders.   

3.5.  Asylum and refugee protection 

While it is important to step up efforts to tackle the issue of illegal migration, there is also the 
need  to  ensure  access  to  asylum  processes  for  those  in  mixed  migratory  flows  who  might 
need international protection. The proposals contained in UNHCR's '10 point plan of action' 

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presented at the Rabat conference should be used to foster operational cooperation. It is vital 
to keep asylum and protection issues as one of the main elements of our wider cooperation 
and  dialogue  with  third  countries.  The  implementation  of  the  Regional  Protection 
Programmes, as well as activities in other areas giving support to asylum-seekers and persons 
in  need  of  international  protection,  such  as  Mauritania  and  southern  Africa,  are  to  be 
continued. Funds will also be made available to finance a UNHCR-run project for protection 
activities in all the southern and eastern Mediterranean countries – Morocco, Algeria, Tunisia, 
Libya, Jordan, Syria and Lebanon. 

4.  

FINANCIAL SUPPORT FOR THE COMPREHENSIVE EUROPEAN MIGRATION POLICY  

4.1.  

Supporting the external dimension 

As already announced in the context of the December 2005 European Council Conclusions, 
the Commission confirms its intention to intensify its financial assistance in areas concerning 
or  related  to  migration  in  respect  of  its  relations  with  third  countries,  including  by  an 
allocation  of  up  to  3%  of  the  European  Neighbourhood  Policy  Instrument  (ENPI)  and 
comparable  efforts  in  respect  of  other  relevant financial  instruments.  Equivalent  efforts  will 
also be made in particular in Sub-Saharan Africa, with a view to tackling the root causes of 
migration. Funding will be channelled through geographic programmes established under 
the relevant external assistance instruments and the thematic programme on migration 
and asylum.  

As  regards  the  European  Development  Fund  (EDF),  the  EU  Governance  Initiative  for  ACP 
countries is a relevant mechanism that allows these countries to obtain substantial additional 
financial  support  to  develop  and  implement  governance  reforms.  Access  to  these  10th  EDF 
incentive resources will depend on the outcome of a dialogue between the Commission and 
the  partner  country  on  the  past  performance  and  future  commitments  in  the  area  of 
governance, including on migration. Further resources will be made available through the EU 
Programme on Migration and Development in Africa. 

In addition, following the EU-Africa Tripoli Conference on migration and development, ways 
should  be  explored  to  assist  those  Northern  African  countries  wishing  to  help  alleviate 
migratory  pressures  in  sub-Saharan  countries  through  financial  support  to  coordinate  their 
efforts with those of the EU. 

The new thematic programme on migration and asylum has been elaborated on the basis of 
experience  gained  with  the  Aeneas  programme  and  builds  on  lessons  learned.  A  key 
innovation is that the financial resources will now be allocated either geographically, taking 
into account the 'migratory route'  concept, or  transversely, through global and multiregional 
initiatives not exclusively linked to a single migratory route.  

Finally,  the  objective  of  European  territorial  cooperation  of  Regional  Policy  may  also  offer 
measures  that  can  help  to  manage  migration  together  with  neighbouring  countries,  for 
example through common training measures for border patrol, customs authorities and police 
forces,  strengthened  controls  at  ports  and  airports,  information  exchange  networks  on 
migration, capacity-building and adequate migratory legislation in the countries of origin. 

More  specific  information  regarding  amounts  available  in  the  different  funding  instruments 
can be found in Annex C.  

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4.2.  

Promoting solidarity among Member States  

The €4,020 million envelope allocated by the budgetary authority for the period 2007-2013 to 
the  framework  programme  entitled  'Solidarity  and  Management  of  Migration  Flows'  is 
divided  into  four  separate  financial  instruments,  each  supporting  different  objectives  of  the 
management  of  migration flows to the EU: the External Borders Fund (€1,820  million), the 
Return Fund (€676 million),  the European  Refugee Fund (€699 million) and the Integration 
Fund (€825 million). For each Fund, the bulk of the resources will go directly to the Member 
States  under  shared  management  arrangements.  These  new  instruments  are  specific  and 
complementary  to  other  Community  funding  that  supports  tackling  issues  of  migration, 
including Regional Policy instruments. 

Member  States  should  actively  take  a  strategic  and  long-term  approach  to  the  use  of  these 
resources and support  national  measures that promote solidarity between Member States. 
While the main purpose of the framework programme is to reinforce the implementation of 
the  internal  dimension  of  the  Community  policies  on  asylum,  immigration  and  border 
controls, many of the actions are likely to favour the achievement of the objectives set out in 
this  Communication.  In  order  to  underscore  the  relationship,  the  Commission  will  propose 
strategic guidelines that will aim to incorporate the migration policy agenda in the operational 
framework of each Fund. The comprehensive and multi-purpose nature of such actions will be 
acknowledged  and  the  aim  of  the  framework  programme  to  support  a  continuum  of  actions 
relating to migration management in Member States reinforced. 

The  Commission  will  also  ensure  that  the  Community  actions  under  these  four  Funds 
managed directly by the Commission provide opportunities to support Member States in the 
implementation  of  a  comprehensive  immigration  policy  by  financing  practical  cooperation, 
the development of common tools and reference documents, innovative pilot projects and by 
offering  stakeholders  opportunities  to  contribute  their  specific  expertise  to  EC  policy 
development  through  policy-oriented  research  and  activities.  The  Commission  is  also 
committed to exploring all possibilities to create a leverage effect with the Funds by finding 
financial arrangements with other stakeholders, such as the European Investment Bank. 

5.  

CONCLUSIONS 

The  European  Union  must  adopt  a  comprehensive  response  to  the  growing  and  evolving 
challenges posed by the management of migratory flows in a globalised world. 2006 has been 
a  pilot  year  for  the  Global  Approach.  The  EU  and  its  Member  States  have  succeeded  in 
launching  concrete  cooperation  never  seen  before.  However,  2006  has  also  seen  a  further 
increase in migratory pressure on the EU, particularly on its southern borders. Actions must 
therefore  be  further  increased  and  enhanced  in  a  comprehensive  way  to  increase  the 
capabilities of the EU to face the challenges linked to migration, including by improvements 
in the decision-making process.   

Since 1999, the European Union has taken a series of initiatives towards a common migration 
policy, in order to establish a common asylum policy, fight illegal immigration and trafficking 
in  human  beings,  ensure  fair  treatment  of  regular  migrants,  and  build  partnerships  with 
countries  of  origin  and  transit.  The  Commission  is  determined  to  proceed  yet  further  down 
this  road,  including  through  making  further  legislative  proposals  to  the  Council  and  the 
Parliament  for  legal  migration,  including  the  rights  of  migrant  workers.  But  the  Member 

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States  must  also  increase  their  efforts,  so  as  to  ensure  the  swift  implementation  of  those 
measures already agreed upon and to complement EU action with their own initiatives.  

It is of the utmost importance  that  an  assessment is made  on  a regular basis of the ongoing 
activities and that the EU's strategies are adjusted accordingly, while admitting that a lasting 
and  appropriate  response  to  the  migration  phenomenon  will  require  constant  and  long-term 
efforts and substantial resources.  

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Annex A  

REFERENCES 

The following list contains the full reference of each document quoted in the Communication, 
as well as some additional recent documents of relevance. 

COMMISSION COMMUNICATIONS 

•  Communication  from  the  Commission  on  Reinforcing  the  Management  of  the 
European  Union's  Southern  Maritime  Borders,  COM(2006)  of  30  November 
2006. 

•  Communication 

from 

the  Commission  on  Strengthening 

the  European 

Neighbourhood Policy, COM(2006) 726 final of 29 November 2006.  

•  Communication  from  the  Commission  on  The  demographic  future  of  Europe  – 

from challenge to opportunity, COM(2006) 571 of 12 October 2006. 

•  Communication  from  the  Commission  on  Policy  priorities  in  the  fight  against 
illegal  immigration  of  third country nationals,  COM (2006) 402 final of 19 July 
2006. 

•  Communication  from  the  Commission  on  Implementing  the  Hague  Programme: 

the way forward, COM (2006) 331 final of 28 June 2006. 

•  Communication from the Commission on Promoting decent work for all: The EU 
contribution  to  the  implementation  of  the  decent  work  agenda  in  the  world, 
COM(2006) 249 of 24 May 2006. 

•  Policy Plan on Legal Migration, COM(2005) 669 final of 21 December 2005. 

•  Communication from the Commission on an EU Strategy for Action on the Crisis 
in Human Resources for Health in Developing Countries, COM(2005) 642 of 12 
December 2005. 

•  Communication  from  the  Commission  on  Priority  actions  for  responding  to  the 
challenges of migration: First follow-up to Hampton Court, COM(2005) 621 final 
of 30 November 2005. 

•  Communication  from  the  Commission  on  Migration  and  Development:  Some 

concrete orientations, COM(2005) 390 final of 1 September 2005. 

•  Communication  from  the  Commission  on  A  Common  Agenda  for  Integration: 
Framework for the Integration of Third-Country Nationals in the European Union, 
COM(2005) 389 final of 1 September 2005. 

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COUNCIL AND EUROPEAN COUNCIL CONCLUSIONS 

•  Presidency  Conclusions  on  the  Global  Approach  to  Migration:  Priority  actions 
focusing  on  Africa  and  the  Mediterranean,  European  Council,  Brussels,  15-16 
December 2005. 

•  EU Strategy for Africa, European Council, SEC 15961/07, 15-16 December 2005. 

•  A  Strategy  for  the  External  Dimension  of  JHA:  Global  Freedom,  Security  and 

Justice, 14366/3/05, 12 December 2005. 

•  Council  Conclusions  on  A  Common  Agenda  for  Integration,  14390/05,  1-2 

December 2005. 

OTHER DOCUMENTS 

•  Annual Report on Migration and Integration SEC(2006) 892. 

•  National Action Plans for Social Inclusion 2006-2008.  

•  European  Commission,  DG  Justice,  Freedom  and  Security,  Handbook  on 
integration  for  policy  makers  and  practitioners,  November  2004,  written  by  the 
Migration  Policy  Group,  Brussels.  The  handbook  can  be  downloaded  from  the 
following address: 
http://europa.eu.int/comm/justice_home/doc_centre/immigration/integration/doc/h
andbook_en.pdf 

•  Labour  Migration  Patterns  in  Europe:  Recent  Trends,  Future  Challenges, 
published in September 2006 in the series Economic Papers and available on the 
following website: 
http://ec.europa.eu/economy_finance/publications/economicpapers_en.htm). 

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ANNEX B 

OVERVIEW OF WORK CARRIED OUT ON EACH PRIORITY ACTION IN 2006 

The  following  gives  details  of  work  carried  out  on  the  priority  actions  during  the  course  of 
2006.  Its  purpose  is  to  give  an  idea  regarding  the  amount  and  type  of  work  that  has  taken 
place, but is not intended to be comprehensive.  

I. INCREASING OPERATIONAL COOPERATION BETWEEN MEMBER STATES 

The FRONTEX Agency has coordinated several important joint operations to assist southern 
Member States. These activities have been a first test for the Agency and a show of solidarity 
with  those  Member  States  most  affected  by  high  numbers  of  migrants  arriving  every  day. 
Among the important operations that have been carried out in the autumn are HERA II in the 
Canary  Islands  and  off  the  coast  of  North-western  Africa  and  NAUTILUS  in  the  central 
Mediterranean. The purpose of these operations, which have also involved the cooperation of 
neighbouring African States, has been to enforce the control of the external maritime borders 
of the European Union, thereby disrupting and preventing illegal immigration by sea, and at 
the same time contribute to saving the lives of illegal immigrants in distress at sea (search and 
rescue  operations).  Moreover,  FRONTEX  has  coordinated  the  detachment  of  experts  in 
nationality  identification  from  other  Member  States  to  Spain  and  Malta  to  assist  the 
authorities  of  these  two  Member  States  in  repatriating  third  country  nationals  who  cannot 
legally remain in their territories. 

Two important studies will inform future work. In July FRONTEX completed the feasibility 
study  on  a  Mediterranean  Coastal  Patrols  Network  (MEDSEA).  The  study  calls  for  the 
establishment of National Coordination Centres in the Member States, which would, twenty-
four  hours  a  day  and  seven  days  a  week,  coordinate  the  activities  of  the  different  national 
authorities  involved,  in  cooperation  with  the  national  coordination  centres  of  neighbouring 
Member States and third countries. FRONTEX is also carrying out the study on the technical 
feasibility of establishing a surveillance system covering the whole southern maritime borders 
of  the  EU  and  the  Mediterranean  Sea  (BORTEC).  This  study  will  comprise  an  overview  of 
the  existing  monitoring  and  surveillance  systems  in  use,  their  area  of  coverage  and  their 
technical  solutions,  as  well  as  the  needs  and  wishes  for  further  development  with  modern 
technology to cover the entire EU southern maritime borders. It is due to be completed by the 
end of 2006. 

The  development  of  Regional  Networks  of  Immigration  Liaison  Officers  (ILOs)  has 
progressed well as part of the overall Migration Routes Initiative. Four key migration routes 
from  Africa  to  Europe  were  identified,  and  the  presence  of  ILOs  along  these  routes  was 
determined. Reports on illegal immigration were drafted by these ILOs, which gave a picture 
of the situation in their respective countries and operational recommendations for stepping up 
cooperation along the routes. Meanwhile, Spain, France, Italy and the UK accepted leadership 
for  each  of  the  Regional  Networks,  and  preparatory  meetings  got  underway  quickly.  The 
Regional Networks will now work on developing an action plan for each route, consisting of 
concrete, operational projects that can be implemented to help combat illegal immigration. 

In  July  the  Commission  put  forward  a  proposal  for  the  establishment  of  Rapid  Border 
Intervention Teams to be managed by FRONTEX. Such teams would be made up of specially 
trained border guard officers of the national services of Member States who on short notice 

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can be deployed to a requesting Member State to provide technical and operational assistance. 
All  costs  associated  with  the  training  and  deployment  of  these  officers  by  FRONTEX  will 
according  to  the  proposal  be  covered  by  the  Community.  The  proposal  is  currently  being 
discussed  in  the  Council;  quick  adoption  would  mean  they  could  become  operational  in  the 
foreseeable future. 

The Commission has also been carrying out an analysis of the law of the sea from the point of 
view  of  the  fight  against  illegal  immigration.  The  study  examines  Member  State  control 
powers in the different maritime spaces, as well as third countries' obligations on the basis of 
international  sea  law  and  maritime  law  and  as  regards  the  fight  against  the  smuggling  of 
migrants.  The  possibility  for  an  institutionalised  regional  cooperation  mechanism  along  the 
lines of the one existing amongst the Baltic States is also explored. 

EU Member States and the Commission played an active role in preparations for the UN High 
Level  Dialogue  on  international  migration  and  development.  An  EU  Common  Position  was 
developed in the Council as a contribution to the Dialogue, supplemented by a Commission 
Communication.  It  set  out  the  EU's  approach  to  issues  being  covered  by  the  Dialogue.  The 
event itself was a success. High-level representatives from around the world joined together 
for  two  days  to  pledge  their  support  for  closer  cooperation  on  migration  and  development 
issues. Many States expressed their wish to continue the dialogue through a global, informal 
and  voluntary  Forum.  Belgium  has  offered  to  host  the  Global  Forum  on  migration  and 
development in July 2007. The aim will be to share expertise and best practice and enhance 
co-operation in the area of migration and development.  

PART I: INCREASING OPERATIONAL COOPERATION BETWEEN MEMBER STATES 

1.  Call on FRONTEX to: 

1.1.implement  border  management  measures  in  the  Mediterranean  region,  in  particular  joint 
operations and pilot projects, as early as possible in 2006 

Several  joint  operations  and  pilot  projects  were  planned  and  implemented  during  2006.  The  UK 
negotiated a framework partnership agreement with FRONTEX to allow UK officials to participate in 
joint operations on a case-by-case basis. 

Project  proposals  were  also  submitted  by  Member  States  to  the  various  Community  programmes, 
including ARGO and AENEAS. These included the Spanish projects 'Seahorse', 'Atlantis' and 'Gate to 
Africa'. 

Actions and events: 

25 June-5 July 

Operation  Poseidon:  this  project  measured  the  effectiveness  of 
border control on the 'Balkan route'. Joint action was carried out to 
combat  illegal  immigration.  It  took  place  at  various  places  along 
the land border between Greece and Turkey, as well as in harbours 
in Greece and Italy. 

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15 July-15 September 

HERA 
October 

I:  17 

July-31 

HERA  II:  11  August  to 
date 

Operation AGIOS: a joint operation to tackle forged documents in 
Spain's Mediterranean ports. Deployment of EU officers started at 
the  beginning  of  August.  The  implementation  of  the  AGIOS-
Project  is  closely  linked  to  the  ARGO-funded  project  'Gate  of 
Africa'. 

Operation  HERA:  a  project  that  aimed  to  reduce  the  flow  of 
migrants  from  Senegal  and  Mauritania  towards  the  Canary 
Islands.  The  objective  was  reached  by  raising  the  number  of 
repatriations performed (HERA I – Identification and Return), as 
well  as  establishing  patrols  on  the  open  sea  near  Senegal  and 
Mauritania  to  reduce  the  departure  of  vessels  from  these  shores 
(HERA II - Patrolling). 

31 July-31 October 

Second  phase  is  foreseen 
from  mid-November 
to 
mid-December 

Operation  Migration  Flow  Malta:  the  main  objective  of  this  operation 
was  to  tackle  the  flow  of  illegal  immigrants  embarking  from  Libyan 
shores, to enhance knowledge and intelligence of the Maltese authorities 
and  to  increase  the  percentage  of  successfully  identified  illegal 
immigrants. 

5 October-15 October 

1-22 November 

Operation  NAUTILUS:  the  main  scope  of  this  joint  operation  was  to 
patrol  the  area  south  of  Sicily,  Lampedusa  and  Malta  in  the 
Mediterranean  Sea  to  reduce  the  immigration  flows  originating  mainly 
from Libya. The involvement of Libya in this project was sought. 

Operation  Amazon:  so-called  Focal  Point  Offices  were  established  in 
international airports in Spain, Portugal, UK, France, Italy, Netherlands 
and Germany, with the objective of preventing illegal immigration. The 
focus was on Latin American migration routes.  

Next steps: 

o  Continue carrying out joint operations 

1.2. Present a Risk Analysis report on Africa, building on recent studies, by May 2006 

FRONTEX  shared  its  analysis  report,  Brief  Assessment  of  Illegal  Immigration Flows  and  Routes  on 
the African Continent, in May. This report assisted in the identification of the main illegal immigration 
routes from Africa, and was used to support the work on setting up regional ILO networks. 

Actions and events: 

Spring 

April 

30 May 

EUROPOL issued a study on the eastern Mediterranean. 

FRONTEX  delivered  a  tailored  Risk  Analysis  report  on  Illegal 
Immigration 
illegal 
recently  used 
immigration routes from Western Africa that transit Mauritania. 

from  Mauritania, 

identifying 

FRONTEX delivered the Risk Analysis on illegal migration from Africa 
with special focus on Morocco and Libya and presented the results to its 
Management Board Meeting in Siofok. 

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22-23 May, Casablanca 

Interpol meeting on illegal migration in Africa 

7-9 June, Brdo, Slovenia 

Joint  ICMPD-EUROPOL  meeting  held  within  the  framework  of  the 
Dialogue  on  Mediterranean  Transit  Migration  (MTM), on  the  topic 
'Migration Flows and Trends in the Mediterranean'. 

13-14 November, Porto 

Next steps: 

Joint 
the 
ICMPD-EUROPOL-FRONTEX  meeting  held  within 
framework  of  the  Dialogue  on  MTM, on  the  topic  'Project  Towards 
Comprehensive Response to Mixed Migration Flows'. 

o  Risk analyses to be used in planning and preparation of further 

operations. 

1.3.  Launch  a  feasibility  study  on  reinforcing  monitoring  and  surveillance  of  the  southern  maritime 
border of the EU, namely in the Mediterranean Sea, and on a Mediterranean Coastal Patrols Network 
involving EU Member States and North African countries, as early as possible in 2006 

A  support  group  currently  consisting  of  14  Member  States  was  set  up  to  undertake  the  MEDSEA 
study,  which was  completed  in  July.  The  main  recommendation  of  the  study  is  to  establish  national 
coordination centres  in  all  Member  States,  which  should  on  a  24/7  basis  coordinate  the  activities  of 
Member States and third countries. 

Actions and events: 

1 March 

A  core  team  of  experts  from  SP,  IT,  FR  and  GR  started  work  in 
FRONTEX.  Participating  Member  States  submitted  answers  to  a 
questionnaire circulated by FRONTEX. 

6 April, Warsaw 

First meeting of MEDSEA Support Group. 

10 May, Warsaw 

Second meeting of MEDSEA Support Group. 

8 June, Helsinki  

Third meeting of MEDSEA Support Group. 

20 June, Warsaw  

Fourth meeting of MEDSEA Support Group. 

6 July, Warsaw 

Fifth meeting of MEDSEA Support Group. 

24 July 

Next steps: 

Study presented to the Council and the Commission. 

o  Recommendations  of  the  study  to  be  implemented  by  Member 
States  as  soon  as  possible,  where  necessary  with  support  from 
FRONTEX – timetable and costing to be put together 

o  Third countries to be contacted once the EU has a clear view on 
how  it  wants  to  reinforce  monitoring  and  surveillance  – 
sufficient  flexibility  for  modifying  the EU  approach  to be  kept 
to  allow  for  the  integration  of  the  wishes  and  views  of  third 
countries 

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2. Explore the technical feasibility of establishing a surveillance system covering the whole southern 
maritime border of the EU and the Mediterranean Sea by the end of 2006. Such a system would use 
modern technology with the aim of saving lives at sea and tackling illegal immigration 

Working arrangements for the 'BORTEC' study were transferred from the Commission to FRONTEX.  

Actions and events: 

Spring 

5 April 

2 June 

7 July 

Next steps: 

Expert  group  established  to  carry  out  the  study,  bringing  together  both 
technical and operational people, including those with expertise with the 
Galileo system. 

Coordination  meeting  between  Commission  and  FRONTEX  to  enable 
transfer and continuation of the work. 

Project template approved. 

First meeting of the Support Group. 

o  Study due in December 

3. Establish regional networks of Immigration Liaison Officers (ILOs) involving priority countries or 
regions as early as possible in 2006, and present reports on illegal immigration and trafficking, with 
the assistance where appropriate of ILOs in key countries, by May 2006 

The work to set up regional networks of ILOs has been closely linked to the migration routes initiative 
and the EU-Africa Ministerial Regional Conference held in Rabat. On the basis of existing data and 
statistics,  four  key  migration  routes  from  the  African  continent  towards  Europe  were  identified  and 
selected for detailed work. For each of these routes the presence of ILOs in the relevant countries was 
determined.  The  ILOs  were  approached  to  draft  targeted  illegal  immigration  reports  and  to  submit 
concrete, operational recommendations for stepping up cooperation along the routes. EC Delegations 
in  the  relevant  third  countries  identified  immigration  contact  persons  who  supported  the  reporting 
activity. The ICONet system was adapted for specific use by the ILO Networks. In addition, for each 
key  route  a  lead  Member  State  was  identified:  SP,  FR,  IT  and  UK  for  regional  networks  1  to  4 
respectively.  Leading  Member  States  were  requested  to  draft  a  six-month  calendar  of  activities, 
including start-up regional meetings, with the final objective of developing an operational action plan 
for each route. 

Actions and events: 

May-June 

Illegal immigration reports drafted by ILOs.  

14 June, Madrid 

Joint preparatory meeting for ILO regional networks 1 and 2, organised 
by SP and FR.  

6  July,  Las  Palmas  de 
Gran Canarias 

Joint start up meeting for ILO regional networks 1 and 2 organised by 
SP and FR, bringing together ILOs along both routes. 

6 October, London  

Joint preparatory meeting for ILO regional networks 3 and 4 organised 
by IT and UK. 

14-15 November, Rome 

Joint  start  up  meeting  for  ILO  regional  networks  3  and  4,  bringing 

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together ILOs along both routes. 

Next steps: 

o  Local meetings of ILO regional networks to be held regularly 
o  Operational action plans to be drafted 

4. Bring forward a proposal for the creation of rapid reaction teams made up of national experts able to 
provide rapid technical and operational assistance at times of high influxes of migrants, in accordance 
with the Hague Programme, by Spring 2006 

In  July  the  Commission  put  forward  a  proposal  for  the  establishment  of  Rapid  Border  Intervention 
Teams to be managed by FRONTEX. Such teams would be made up of specially trained border guard 
officers of the national services of Member States who on short notice can be deployed to a requesting 
Member  State  to  provide  technical  and  operational  assistance.  All  costs  associated  with  the  training 
and  deployment  of  these  officers  by  FRONTEX  will,  according  to  the  proposal,  be  covered  by  the 
Community.  

Actions and events: 

April 

19 July 

Next steps: 

Study on legal competences of border guards completed. 

Proposal  for  a  Regulation  on  the  setting  up  of  a  mechanism  for  the 
creation  of  Rapid  Border  Intervention  Teams  (RABITs)  submitted  by 
the Commission to the European Parliament and the Council. 

o  Council  discussion  of  proposal,  followed  by  adoption  of  the 

Regulation 

o  Continued  work  by  Commission  on  a  proposal  for  expert 

intervention teams in the asylum context 

5. Ensure a substantial follow-up to the report of the Global Commission on International Migration, 
and prepare for the UN High Level Dialogue on Migration and Development that will be launched in 
September 2006 

Several  preparatory  events  were  organised  in  the  lead-up  to  the  HLD,  and  the  Commission  and 
Member  States  took  an  active  part  in  all  of  them.  A  Commission  Memorandum  on  EU  policies,  a 
Communication and an EU Common Position were all submitted as contributions to the preparations. 
The HLD itself was a success. High-level representatives from around the world committed to closer 
co-operation on migration and development issues and agreed to continue dialogue through a global 
forum. 

Actions and events: 

4-7 April, New York 

39th Session of the Commission on Population and Development.  

May 

Commission  Memorandum  on  EU  policies  sent  to  the  UN  Secretary-
General by President Barroso. 

12 June, Brussels 

BE organised a seminar to discuss follow up to the HLD. 

28-30 June, Turin 

International  Symposium  on  Migration  and  Development  organised  by 
DESA – Commission organised a session on EU policies on migration 
and development, including as a speaker a representative from the ACP 
Secretariat. 

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14 July 

Commission Communication issued. 

17 July, Brussels 

EU  Common  Position  adopted  by  the  General  Affairs  and  External 
Relations Council. 

14-15  September,  New 
York 

Next steps: 

UN High Level Dialogue on International Migration and Development. 

o  Participation in and support to the Global forum to be hosted by 

BE in July 2007 

6. Present an analysis of the existing international instruments on the law of the sea, including relevant 
aspects of refugee law, by March 2006 

The Commission has been carrying out this study with a particular focus on the Mediterranean. The 
study is essentially a gaps analysis identifying the issues that could be further explored. It is due to be 
published shortly. 

Actions and events: 

23-24 May, Madrid 

Meeting  on  Rescue  at  Sea  and  Maritime  Interception 
the 
Mediterranean,  organised  by  UNHCR,  attended  by  maritime  and 
immigration  representatives  of  almost  all  states  bordering 
the 
Mediterranean,  as  well  as  other  interested  countries.  The  meeting 
illustrated  the  need  for  a  concerted  and  complementary  approach  that 
involves  all  state  actors,  not  only  those  engaged  in  rescue  at  sea  and 
interception activities.  

in 

issues 

including  rescue  at  sea, 

Three  specific  recommendations  to  come  out  of  the  meeting  were: 
discussion  on 
interception  and 
disembarkation needs to continue; IMO Member States have a collective 
responsibility to comply with the SAR and SOLAS Conventions and the 
IMO  guidelines;  and  with  improved  data  collection  and  strengthened 
cooperation,  states  can  continue  to  draw  lessons  from  good  practices 
identified  elsewhere  and  seek  to  benefit  from  the  complementary  roles 
that  may  be  played  by  IGOs  in  the  area  of  reception,  screening  and 
assistance in finding solutions for the various categories of people. 

Next steps: 

o  Commission to present report 
o  Discussion of the analysis, and development of an EU common 

position on the open legal questions 

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II. DIALOGUE AND COOPERATION WITH AFRICA 

This  first  year  has  very  much  been  a  year  of  agenda-setting.  With  the  recognition  of  the 
necessity to work in partnership with African and Mediterranean countries and to address the 
needs and concerns of all concerned, 2006 has acted as a preparatory year, paving the way for 
engagement with African states on the range of migration issues. 

The amount of agenda space given to migration in regional fora this year has to some extent 
been  surprising.  An  EU-Africa  Ministerial  Conference  on  Migration  and  Development  was 
held  in  Tripoli  on  22-23  November,  which  adopted  a  Joint  Declaration.  This  was  a  highly 
significant event, with the EU and the whole of Africa coming together for the first time to 
make  a  political  commitment  to  working  together  on  migration.  Similarly,  other  regional 
bodies gave their attention to migration – the ACP states held their first meeting of ministers 
responsible  for  asylum  and  migration,  which  resulted  in  a  declaration  and  plan  of  action; 
migration  was  discussed  and  featured  prominently  in  the  conclusions  of  the  EU-ECOWAS 
Troika; and for the first time migration was on the agenda as a discussion point at the ACP-
EU Council. 

The ministerial conference held in Rabat in July was a successful and important event. A joint 
initiative  between  Morocco,  Spain  and  France  and  co-financed  by  the  Commission,  the 
conference brought together West, Central and North African states with EU Member States 
to  discuss  common  responses  to  migratory  flows  along  the  West  African  route.  States 
committed themselves to developing a close partnership "to work together, in the framework 
of a global, balanced, pragmatic and operational approach, with respect for the fundamental 
rights  and  dignity  of  migrants  and  refugees,  on  the  phenomenon  of  migratory  routes".  The 
conference  agreed  that  this  framework  must  involve  countries  of  origin,  transit  and 
destination, and that central to this partnership is the fight against poverty and the promotion 
of sustainable development in African states. It will now be important to implement initiatives 
contained  in  the  Action  Plan,  so  as  "to  respond  to  the  urgency  of  the  situation  and  give 
visibility  and  credibility  to  the  new  dynamic  brought  about  by  the  conference".  The  Rabat 
Declaration  called  for  a  second,  follow  up  ministerial  conference  in  two  years'  time  at  the 
latest. 

Dialogue on the basis of article 13 of the Cotonou Agreement has been initiated with certain 
key  Sub-Saharan  African  states.  Meetings  with  the  authorities  in  Mauritania,  Senegal  and 
Mali were extremely positive and productive, and discussion on migration now continues as 
part of the political dialogue led by Heads of Missions. Linked to this, migration is currently 
being incorporated into the programming exercise for the 10th European Development  Fund 
(EDF).  Where  relevant,  every  Country  Strategy  Paper  for  ACP  countries  should  contain  a 
migration profile, and discussions between delegations, Member States and the third countries 
concerned should result in the identification of priorities for the funding of migration-related 
activities  and  projects  for  the  next  five  years.  Given  the  importance  of  assisting  developing 
countries  in  managing  migration,  an  intra-ACP  migration  facility  of  €25  million  has  been 
developed and programming work is underway. It will focus in particular on the management 
of south-south migration. 

Mention  should  also  be  made  of  other  ongoing  work  on  the  migration  and  development 
agenda.  In  March  Belgium  and  the  IOM,  with  the  support  of  the  World  Bank  and  the 
Commission, organised a conference on migration and development. It successfully brought 
together  high  level  representatives  from  across  continents,  to  discuss  achieving  greater 

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coherence  between  migration  and  development  policies,  forming  partnerships  among 
countries  of  origin,  transit  and  destination,  and  involving  migrant  communities  in  the 
development  of  their  home  countries.  In  June  the  Commission  hosted  an  expert  meeting  on 
migration  and  development.  This  was  a  good  opportunity  to  share  experiences  and 
information  on  current  projects,  in  particular  regarding  the  four  main  topics:  remittances, 
working  with  the  diaspora,  temporary  and  circular  migration  and  brain  drain.  Participants 
agreed  on  the  need  to  share  information  better  and  improve  coordination  in  this  field.  Of 
course,  this  agenda  links  in  with  the  UN  High  Level  Dialogue,  and  it  also  needs  to  be 
reflected in EU assistance to interested countries in Africa. 

With much of the political agenda-setting now in place, it will be important to move quickly 
to implement the commitments taken between Africa and the EU in the course of 2007 and 
beyond. 

PART II: DIALOGUE AND COOPERATION WITH AFRICA 

7.  Work  to  make  migration  a  shared  priority  for  political  dialogue  between  the  EU  and  the  African 
Union, including through regular senior officials' meetings to prepare for EU-Africa Ministerial Troika 
discussions 

Migration has featured prominently on the agenda of the AU and joint meetings between the AU and 
EU this year, with senior officials' meetings to prepare them as appropriate. Dialogue culminated in an 
EU-Africa Ministerial Conference on Migration and Development in Tripoli in November 2006. 

Actions and events: 

1 March, Addis Ababa 

AU  Commission  and  EU  Commission  Task  Force  –  included 
discussion of the possibilities for a dialogue on migration.  

3-5 April, Algiers  

AU expert meeting – defined a draft common position on migration and 
development. 

8 May, Vienna 

1-2 July, Banjul 

EU-Africa Ministerial Troika, preceded by a senior officials' meeting – 
discussion included the EU-pan African conference on migration 

AU common position on migration and development formally adopted 
at AU Summit. 

11-12 September, Brussels 

EU-AU  Commissions  Joint  Task  Force  –  discussion  focused  on 
exchange of information and preparation of the Tripoli conference. 

2 October, Addis Ababa 

Commission  to  Commission  meeting  involving  many  Commissioners 
from both sides – migration was high on the agenda and the principle of 
the Tripoli conference was endorsed. 

9 October, Brazzaville 

EU-Africa  Ministerial  Troika  –  concluded 
the  ministerial 
conference on migration and development will take place in Tripoli on 
22-23 November. 

that 

22-23 November, Libya 

EU-Africa  Ministerial  Conference  on  Migration  and  Development  – 

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joint declaration and trafficking action plan adopted. Preparations took 
place in the High Level Working Group on Asylum and Migration; an 
extended  Troika  meeting  hosted  by  Malta;  and  a  senior  official's 
meeting held in Tripoli on 21 November. 

o  Follow-up to the Joint Declaration of the ministerial conference 

Next steps: 

8. Work in partnership with African countries and regional organisations, such as ECOWAS, through 
a  range  of  fora,  initiatives  and  regional  meetings,  including  an  EU-Africa  Ministerial  Conference  in 
Morocco in 2006 and a conference on migration and development in Brussels in March 2006 

Some successful high profile events have acted to keep migration firmly on the international agenda 
this year and the subject of much political debate. 

Actions and events: 

6-8 February, Kenya 

IOM  workshop  on  'International  Travel  Documents  and  Issuance 
Systems:  Technical  review  of  standards  and  systems  for  East  and 
Central  African  Governments,  and  participating  West  African 
Governments. 

15-16 March, Brussels 

Migration  and  Development  Conference  organised  by  BE  and  IOM, 
with the support of the World Bank and the Commission 

4-6 April, Brussels 

African-European  Inter-regional  Dialogue  on  Managing  Labour 
Migration  for  Integration  and  Development,  organised  by  ILO  with 
financial support from the EU. 

13 April, Brussels 

First  meeting  of  ACP  Ministers  in  charge  of  Asylum,  Migration  and 
Mobility – declaration and plan of action adopted. 

22-23 May, Vienna 

6 June, Lisbon 

EU-ECOWAS  Troika  –  migration  was  on  the  agenda  and  figured 
prominently  in  the  conclusions;  agreement  to  set  up  a  joint  working 
group on migration. 

IOM  seminar  on  "Migration  and  development  within  the  Portuguese 
Speaking  Countries  Community  –  engaging  diasporas  as  agents  for 
development". 

6 June, Papua New Guinea  ACP-EU  Council  –  migration  was  on  the  agenda  as  a  'C'  point 

(discussion) for the first time 

28-29 June, Niamey 

Technical seminar, funded by the AENEAS 2004 Across Sahara project 
–  focused  on  the  situation  in  Libya  and  Niger  concerning  a  range  of 
to 
issues  such  as 
readmission and return, asylum and statistics, and included an analysis 
report drawn up on the basis of questionnaire replies from the Nigerian 
and Libyan authorities 

transit  migration,  visas, 

immigration, 

illegal 

10-11 July, Rabat 

Euro-Africa  ministerial  conference  on  migration  and  development  – 
declaration  and  action  plan  adopted,  with  the  commitment  to  hold  a 
next  ministerial  within  two  years  to  assess  progress.  Preparation  took 
place  in  steering  committee  meetings,  senior  officials'  meetings 
(including  one  hosted  by  Senegal),  and  in  the  High  Level  Working 

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Group  on  Asylum  and  Migration  with  the  participation  of  the 
Ambassador of Morocco.  

26-27 October, Niamey 

EU-ECOWAS Troika – migration was once again high on the agenda 
and in the conclusions. 

Next steps: 

o  Ongoing follow-up and implementation of initiatives contained 

in the Rabat action plan 

o  Develop East Africa migration route initiative 
o  Rapidly set up EU-ECOWAS joint working group on migration 

and initiate its work 

9. Explore the feasibility of a migration routes initiative for operational cooperation between countries 
of origin, transit and destination, with a view to developing a concrete initiative in 2006 

Development of the migration route concept has made good headway, with several steps being taken 
to bring together countries of origin, transit and destination along the same migratory route. Four key 
migration routes on the African continent towards Europe were identified, as set out in action 3 above.  

Other  related  initiatives  include  a  General  Action  Plan  prepared  by  EUROPOL  concerning 
cooperation  with  third  countries  for  the  purposes  of  Police  Chiefs  Task  Force;  and  a  pilot  project 
proposal  submitted  by  BE  to  Morocco  on  return  and  reintegration  of  Malians,  as  well  as  a  regional 
initiative to help Mali dismantle smuggling networks. 

Actions and events: 

10-11 July, Rabat 

Euro-Africa  ministerial  conference  on  migration  and  development, 
which  aimed  at  identifying  operational  action  along  the  West  Africa 
migration routes. 

7-10 
Palmas 

July 

November, 

Las 

SP hosted a police conference in the framework of the Seahorse project, 
which was attended by Member States, FRONTEX and EUROPOL. 

UK presented proposals for an East Africa Migration Routes Initiative 
to  the  High  Level  Working  Group  on  Asylum  and  Migration.  This 
includes  a  stock-take  of  Member  States'  activities  in  the  region;  an 
analysis of the gaps in relevant transit countries and the requirements; 
and the ILO regional network developments with Italy. 

Next steps: 

o  A  global  approach  action  plan  for  each  of  the  routes  will  be 
developed, using a variety of sources including the ILO reports 

10. Enhance dialogue by spring 2006 with key sub-Saharan African states on the basis of Article 13 of 
the Cotonou Agreement, covering a broad range of issues from institution and capacity building and 
effective  integration  of  legal  migrants  to  return  and  the  effective  implementation  of  readmission 
obligations, in order to establish a mutually beneficial cooperation in this field 

The Commission proposed launching bilateral dialogue on migration on the basis of article 13 of the 
Cotonou Agreement between the EU and Senegal, Mali, Cameroon, Ghana, Nigeria, Mauritania and 
Niger. This has so far proceeded with Mauritania, Senegal and Mali. Three other countries had to be 
removed from the list due to varying political circumstances. Seven Member States proposed adding 
Ethiopia,  Sudan,  Eritrea  and  Somalia  to  this  initial  list  of  countries;  BE  proposed  adding  Guinea 
(Conakry) and Rwanda; and DE proposed adding Burkina Faso. 

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At the same time migration is being integrated into the Country Strategy Papers for ACP countries, as 
part  of  the  programming  exercise  for  the  10th  European  Development  Fund  (EDF).  Once  drafted  by 
Delegations  and  ACP  countries,  with  the  participation  of  Member  States,  they  will  be  formally 
adopted by the EDF-Committee.  

Actions and events: 

January  

April-June 

5-6 June, Dakar 

23-25 May 

Commission delegations in selected countries were contacted to explore 
the possibilities of article 13 Cotonou dialogue. 

Technical mission Mauritania in the framework of the Rapid Reaction 
Mechanism; the final decision on financial support was taken in June to 
a total of 2.45 million euro. 

Informal  contacts  were  made  with  several  African  countries  in  the 
margins  of  the  meeting  in  Dakar  that  prepared  the  Rabat  Ministerial 
Conference on migration and development. 

Commission  mission  to  Mauritania  and  Senegal  to  initiate  article  13 
dialogue, so that it can continue at Head of Mission level in the context 
of the regular political dialogue (article 8 Cotonou). 

25-28 September 

Commission mission to Mali in context of article 13. 

September-November 

Technical  mission to Senegal in the framework of the Rapid Reaction 
Mechanism; the financial decision will be taken shortly. 

18-20 October, Brussels 

Training  workshop  for  EC  delegations  on  migration  in  EC  external 
assistance. 

Next steps: 

o  Heads  of  Mission  in  Ethiopia,  Sudan,  Eritrea  and  Somalia  to 
assess the feasibility of launching dialogue with these countries 
o  Article  13  dialogue  to  be  initiated  with  further  key  countries, 
with  regular  reporting  back  to  Member  States,  and  to  be 
actively continued with all relevant countries 

11.  Establish  and  implement  a  pilot  Regional  Protection  Programme  (RPP)  involving  Tanzania  as 
early as possible in 2006, with a steering group to oversee the programme. Based on findings from the 
pilot, develop plans for further programmes in Africa 

Following  the  Council  Conclusions  on  Regional  Protection  Programmes  in  November  2005,  several 
proposals  for  projects  to  initiate  the  pilot  RPPs  were  submitted  under  the  2005  AENEAS  call  for 
proposals.  One  of  these  was  submitted  by  UNHCR  and  focused  specifically  on  Tanzania  and  the 
surrounding  region.  The  proposal  was  selected  by  the  AENEAS  Management  Committee,  and  is 
expected  to  get  underway  in  2007.  The  project  will  include  strengthening  the  capacity  of  national 
authorities  to  protect  refugees,  improving  security  in  refugee  camps,  promoting  voluntary  return  of 
Burundian refugees, enhancing access to resettlement, and registration of refugees. 

Actions and events: 

14 February, Brussels 

Expert meeting with Member States convened by the Commission. 

July 

AENEAS project proposal for Tanzania accepted. 

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Next steps: 

Initiate projects as soon as contracts signed 
Initiate UNHCR-run project for North Africa  

o 
o 
o  Develop further protection-oriented projects with UNHCR 

12. Carry out a study to improve understanding of the root causes of migration to underpin the long-
term approach 

The Joint Research Centre is currently carrying out a case study focusing on Senegal and Mali. It will 
analyse the root causes of migration in these two countries and their policy implications.  

Actions and events: 

July 

Next steps: 

Drafting  commenced  and  Member  States  were  invited  to  provide 
information on existing studies on root causes. 

o  Study expected in November 2006 
o  Study should be discussed and used as part of the long-term EU 

approach 

13.  Develop  regular  dialogue  with  UNHCR  as  early  as  possible  in  2006,  to  share  experience  and 
expertise on working with countries in Africa 

Dialogue with UNHCR on the implementation continued via regular meetings. 

Next steps: 

o  A  high-level  meeting  will  be  organised  between 

the 
Commission  and  UNHCR  in  early  January  in  order  to 
operationalise  the  UNHCR  10-Point  Plan  of  Action  presented 
at  the  Rabat  conference;  the  feasibility  of  holding  such 
meetings  regularly  to  update  on  the  situation  in  different 
countries will be examined 

14. Launch initiatives in early 2006 to promote cheaper and more easily available remittance services, 
and  support  ongoing  efforts  by  international  organisations  to  improve  data  on  remittance  flows; 
consider supporting efforts of African states to facilitate  members of diasporas to contribute to their 
home countries, including through co-development actions, and explore options to mitigate the impact 
of skill losses in vulnerable sectors 

This wide agenda was the subject of much discussion during the year. An expert meeting organised by 
the  Commission  in  June  was  a  useful  opportunity  to  share  experiences  and  best  practice,  while 
productive discussion took place in the  UN High Level Dialogue on Migration and Development in 
New York and the Africa-EU Ministerial Conference on Migration and Development in Libya. 

Actions and events: 

15-16 March, Brussels 

20 June, Brussels 

Migration  and  Development  Conference  organised  by  BE  and  IOM, 
with the support of the World Bank and the Commission. 

Member  State  expert  meeting  on  the  main  subjects  covered  by  the 
September  2005  Migration  and  Development  Communication 
convened by the Commission. 

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10-11 July, Rabat 

Euro-Africa ministerial conference on migration and development. 

14-15  September,  New 
York 

13-14 November, London 

UN High Level Dialogue on Migration and Development. 

UK-World Bank Conference on Remittances – UK also made available 
its publication on the UK remittances market. 

22-23 November, Tripoli 

EU-Africa Ministerial Conference on Migration and Development 

Next steps: 

o  Establish 'virtual' working groups on each of the main topics on 
the  migration  and  development  agenda,  involving  Member 
States,  international  organisations,  Commission  services  and 
other experts as appropriate 

o  Support  projects  on  migration  and  development  in  interested 
African  countries  as  part  of  EU  financial  assistance  under  the 
EDF,  the  MEDA  programme,  Aeneas  or  the  future  thematic 
programme on migration 

15. Establish information campaigns targeting potential migrants to highlight the risks associated with 
illegal migration and raise awareness about legal channels for migration  

IOM carried out information campaign work with Senegal during the summer. 

Portugal  has  also  organised  information  campaigns  in  embarkation/disembarkation  bulletins 
disseminated at airports of origin and destination and travel agencies, with information concerning the 
requirements  for  legal  entry  in  Portugal  and  raising  awareness  of  the  risks  of  illegal  migration  and 
networks of trafficking in human beings. 

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III. WORK WITH NEIGHBOURING COUNTRIES 

Although  progress  in  the  EuroMed  framework  has  not  developed  as  quickly  as  was  hoped, 
important  and  productive  senior  officials'  meetings  were  held  in  June  and  October.  These 
renewed  motivation  and  optimism  for  furthering  cooperation  on  migration,  which  has  been 
given concrete expression through the preparation of a working document detailing projects 
and best practices of each of the EuroMed partners relating to legal migration, migration and 
development  and  the  fight  against  illegal  migration,  and  a  more  detailed  action  programme 
with  recommendations  for  future  cooperation.  Portugal  has  also  offered  to  host  a  EuroMed 
Ministerial meeting on migration in 2007. 

Meanwhile,  work  with  individual  North  African  countries  has  made  good  headway.  The 
dialogue  and  cooperation  with  Morocco  has  intensified  and  the  EU  has  decided  to  grant 
political  and  considerable  financial  support  to  Morocco  (up  to  €90  million)  to  assist  this 
country  in  its  efforts  to  better  manage  migration.  A  major  step  forward  was  taken  with  a 
twinning  project  on  the  fight  against  illegal  migration,  as  well  as  budgetary  support  for 
purchasing  border  control  equipment.  Negotiations  on  an  EC  Readmission  agreement  have 
also continued, and are expected to be launched with Algeria soon. An important programme 
of  support  (€10  million)  to  the  Algerian  border  police,  approved  in  2005,  is  ongoing. 
Discussions  with  Libya  on  issues  concerning  migration  have  also  continued  and  Libya  has 
invited  a  team  of  EU  experts  to  carry  out  a  mission  to  its  southern  borders.  All  in  all, 
cooperation with the Mediterranean countries is set to develop strongly in the future, on the 
basis of the relevant Association Agreements and Neighbourhood Policy Action Plans. 

PART III: WORK WITH NEIGHBOURING COUNTRIES 

16. Hold a EuroMed Ministerial meeting on migration in 2006 

At  a  positive  senior  officials'  meeting,  it  was  agreed  to  collect  information  on  projects  and  best 
practice  in  areas  identified  by  the  Barcelona  Summit  in  November  2005:  legal  migration,  migration 
and  development  and  illegal  migration,  trafficking  and  return  issues.  With  contributions  from  all  35 
delegations,  the  Commission  undertook  to  prepare  a  background  document  with  all  the  information 
provided,  as  well  as  a  more  detailed  action  programme  containing  recommendations  for  future 
cooperation. 

Actions and events: 

20 June, Brussels 

Senior  officials'  meeting  to  discuss  further  cooperation  and  to  prepare 
the Ministerial meeting. 

20 October, Brussels 

Second  senior  officials'  meeting,  which  discussed  the  draft  action 
programme. 

Next steps: 

o  Continue developing ideas for concrete joint projects 
o  Continue preparations for the EuroMed Ministerial, planned to 

take place during the Portuguese Presidency in 2007 

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17. Engage Mediterranean third countries in the feasibility study of a Mediterranean Coastal Patrols 
Network, Mediterranean surveillance system and related pilot projects, where appropriate 

 See priority action 1.3. 

18. Make available experiences and best practices where appropriate from other regional cooperation 
structures, including those relating to the Baltic Sea 

9 June, Helsinki  

Finland hosted a Member State expert visit to the Helsinki Headquarters 
of  the  Border  Guards  to  assess  the  Baltic  experience  in  dealing  with 
Border  security  management,  comprising 
legal 
framework, regional cooperation and operational activities 

technical  means, 

19.  Use  all  available  frameworks  for  cooperation  with  Mediterranean  partners,  including  those 
mentioned  below,  to  prevent  and  combat  illegal  migration  and  trafficking  in  human  beings,  build 
capacity to better manage migration, and explore how best to share information on legal migration and 
labour market opportunities, for example through the development of migration profiles and through 
strengthening sub-regional fora 

The possibilities of implementing the priority actions in the framework of the 5+5 cooperation were 
explored in the 5+5 group under the Chair of France and then Spain. For example, France, Spain and 
Morocco are working on a joint project that aims to promote the institutional capacity between these 
countries on labour migration, so as to connect labour demand and offer between them.  The project 
started in December 2005 and will finish in November 2008. 

Meanwhile,  the  concept  of  the  Migration  Profile  has  been  developed.  The  IOM  and  the  JRC  both 
drafted initial proposals for how the tool could work. The idea was then formally presented at the UN 
High Level Dialogue in New York on 14-15 September. Funding has been earmarked in the AENEAS 
2006 call for proposals to further develop Migration Profiles for key countries. 

Actions and events: 

12 May, Nice 

29-30 June, Paris 

Next steps: 

5+5  Interior  Ministers  –  Commission  was  invited  to  take  part  in  the 
lunch. 

Follow-up  meeting  to  the  ministerial  conference  on  migration  held  in 
Paris  in  November  2005,  with  discussion  including  migration  and 
development,  labour  migration  and  reception  and  integration  of 
migrants. 

o  Continue using all relevant fora to further work on the Global 

Approach 

o  Continue  developing 

the  Migration  Profile  concept, 

in 

particular using AENEAS funding 

20. Undertake priority work with the following three countries: 

20.1  Morocco  –  implement  projects  to  combat  trafficking  and  conclude  negotiations  of  the  EC-
Morocco readmission agreement as early as possible 

Implementation  of  various  projects  using  MEDA  and  AENEAS  funding  has  been  promoted,  and 
negotiations on  an  EC  Readmission  agreement  have  continued. Morocco  was  also  host  of the  Euro-
Africa ministerial conference on migration and development, held in Rabat in July. 

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Actions and events: 

18 May 

EU-Morocco subcommittee on JHA.  

10-11 July, Rabat 

Euro-Africa ministerial conference on migration and development. 

22 November, Rabat 

Meeting  of  the  EU-Morocco  subcommittee  on  migration  and  social 
affairs and readmission discussions. 

November, Rabat 

EU-Morocco Working Group on migration and social affairs. 

Next steps: 

o  Continuation  of  the  negotiations  on  an  EC  Readmission 

agreement 

o  Effective implementation of cooperation projects and continued 

dialogue on migration-related issues 

20.2  Algeria  –  hold  a  first  meeting  in  early  2006  to  take  forward  cooperation  on  the  basis  of  the 
migration  provisions  of  the  EC-Algeria  Association  Agreement  and  begin  the  negotiation  of  the 
readmission agreement as quickly as possible on the basis of the mandate given to the Commission 

Algeria hosted an AU expert meeting on migration and development in April. Negotiations on the EC 
readmission agreement are expected to be launched in early 2007. 

Actions and events: 

16 May 

Next steps: 

First EU-Algeria Association Council meeting. 

o  First  meeting  of  the  EU-Algeria  subcommittee  on  migration 

and social affairs, 5-6 December, Algiers 

o  Effective  start  of  negotiations  on  an  EU-Algeria  readmission 

agreement 

o  Effective dialogue on migration-related issues 

20.3 Libya – conclude the work to agree the EU-Libya Action Plan on migration as early as possible 
in  2006,  in  accordance  with  the  Council  Conclusions  of  3 June 2005  on  initiating  dialogue  and 
cooperation with Libya on migration issues, and implement projects as soon as possible thereafter 

The Commission has been doing its utmost to work bilaterally with Libya in addressing the issue of 
illegal migration, and there have been various missions to discuss cooperation. Libya hosted the EU-
Africa  Ministerial  Conference  on  Migration  and  Development  in  November.  The  AENEAS-funded 
IOM  Programme  for  the  Enhancement  of  Transit  and  Irregular  Migration  Management  in  Libya 
(TRIM) has continued. 

Actions and events: 

February 

21-22 May 

Commission  visited  Tripoli  and  presented  proposals  for  concrete 
cooperation and dialogue on migration issues to the Libyan side 

Commission  visited  Tripoli.  Libya  confirmed  interest  in  developing 
dialogue and cooperation with the EU, although not in the framework 
of the Barcelona process. 

May 

Response received from Libya, expressing willingness to host the AU-

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4-6 July 

Next steps: 

EU conference and inviting an expert mission to the southern border 

Commission  visited  Libya  to  discuss  enhanced  cooperation  in  several 
areas including migration 

o  Organise expert mission to Libya's southern borders as a matter 

of priority 

o  Explore  possibilities  for  developing  an  EU-Libya  joint  risk 

analysis 

o  Examine the possibility of establishing direct contacts between 
FRONTEX  and  Libya  to  explore  areas  for  joint  cooperation, 
for  instance  in  carrying  out  joint  risks  assessment  and  joint 
patrolling 

21. Intensify research to improve understanding and management of migratory flows, building on the 
migration component of the regional JHA I MEDA programme 

Activities  launched  by  the  Consortium  for  Applied  Research  on  International  Migration  in  the 
Mediterranean region (CARIM), hosted by the European University Institute in Florence, Italy, were 
continued throughout the year. 

Actions and events: 

May 

Financed by AENEAS 2004, a new website, Migration de retour 
vers le Maghreb (MIREM), was opened at http://www.mirem.eu. It 
is hosted by the European University Institute as part of CARIM. 
The  MIREM  project  aims  to  examine  the  current  challenges 
linked  to  return  migration  and  its  impact  on  development  in 
Maghreb countries. The website includes data and information on 
the  premises  and  implications  of  the  EU  common  return  policy; 
patterns of cooperation on readmission and their challenges; and the 
bilateral  agreements  linked  to  readmission  involving  the  Maghreb 
countries  and  EU  Member  States.  There  is  also  an  annotated 
inventory  of  the  statistical  data  on  return  migration  to  the  Maghreb 
countries,  including  various  typologies  of  returnees,  and  studies 
related to the return mechanisms that have been implemented in the 
Maghreb. 

20 June, Brussels 

Commission's  proposals  for  JHA  MEDA  II  were  presented  to  the 
EuroMed partners at the senior officials' meeting on migration. 

Next steps: 

o  CARIM will continue its research on migration in the Maghreb 

o 

region 
Inspired  by  the  success  of  the  academic  network  (CARIM) 
linking  migration  research  institutes  of  all  the  Mediterranean 
countries and funded by the MEDA programme, the EU should 
facilitate an academic conference in view of the establishment 
of  a  pan-African  network  of  migration  'observatories'  and/or 
migration research institutes 

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22. Help strengthen links between North and sub-Saharan African countries in the framework of the 
possible migration routes initiative 

See priority action 9. 

23. Continue dialogue and cooperation with UNHCR in helping third countries develop capacity for 
refugee protection 

The Commission has financed a UNHCR project aimed at building asylum capacity in North Africa. 
The results of the project have been just transmitted to the Commission.  

In  order  to  ensure  continuity  and  build  on  this  first  experience,  the  Commission  intends  to  finance 
under AENEAS 2006 another UNHCR project for protection actions in all the Southern and Eastern 
Mediterranean countries, from Morocco to Syria. 

24. Hold a conference on The role of internal security in relations between the EU and its neighbours 
in Vienna in May 2006 

Following adoption by the Council of the Strategy for the External Dimension of the Area of Freedom, 
Security and Justice in December 2005, the Vienna Ministerial Conference was held on 4-5 May. The 
'Vienna  Declaration  on  Security  Partnership'  was  adopted,  and  then  welcomed  by  the  European 
Council of 15-16 June. 

Actions and events: 

4-5 May, Vienna 

Conference took place. 

Next steps: 

o  The  Commission  will  continue  to  monitor  progress  of  the 

Strategy and will report to the Council every 18 months  

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Annex C  

FINANCING 

In the context of its December 2005 Conclusions on priority actions focusing on Africa and 
the  Mediterranean,  the  European  Council  welcomed  the  increased  priority  being  given  to 
migration  and  the  Commission’s  intention  to  intensify  its  financial  assistance  in  areas 
concerning or related to migration in respect of its relations with third countries, including by 
an  allocation  of  up  to  3%  of  the  ENPI,  and  comparable  efforts  in  respect  of  other  relevant 
financial instruments. It also called for equivalent efforts in particular in Sub-Saharan Africa, 
with a view to tackling the root causes of migration. 

As  stated  in  section  4.1.  of  this  Communication,  funding  will  be  channelled  through  the 
geographic programmes established under the relevant external assistance instruments and the 
Thematic programme on migration and asylum.  

As regards the European neighbourhood countries, the 3% commitment represents an amount 
of about €50 million a year, of which €30 million will be brought by the ENPI contribution to 
the Thematic programme on migration and asylum. The remaining part will be financed under 
the national, regional and cross-border geographic programmes established within the ENPI.  

In  addition  to  the  initiatives  on  migration  and  asylum  financed  under  the  geographic 
programmes of the DCI, the DCI will contribute for about €25 million a year to the Thematic 
programme  on  migration  and  asylum,  for  funding  projects  in  developing  countries  located 
outside of the European Neighbourhood. 

As  regards  the  ACP  countries,  and  within  the  framework  of  the  9th  EDF,  an  overall  €40 
million has been set aside for the EU Programme on Migration and Development in Africa, 
including the €25 million intra-ACP migration facility, whose specific destination is currently 
in  an  identification  phase.  Concerning  the  10th  EDF,  which  covers  the  period  2008-13, 
migration is being fully incorporated into the programming of Country and Regional Strategy 
Papers. Through the EU Governance Initiative and its 'incentive tranche', ACP countries will 
be  able  to  obtain  substantial  additional  financial  support  to  develop  and  implement 
governance  reforms.  Access  to  these  10th  EDF  incentive  resources  will  depend  on  the 
outcome  of  a  dialogue  between  the  Commission  and  the  partner  country  on  the  past 
performance and future commitments in the area of governance, including on migration. 

Finally,  it  should  not  be  overlooked  that  further  to  the  geographic  programmes  and  to  the 
thematic  programme  on  asylum  and  migration,  ,  other  thematic  programmes  /  instruments 
such as the European Instrument for Democracy and Human Rights (EIDHR), the Thematic 
programme  for  cooperation  with  non-state  actors  and  local  authorities  or  the  Thematic 
programme  "investing  in  people"  can  also  occasionally  provide  funds  on  specific  migration 
relevant  issues  such  as  trafficking  in  human  beings  or  on  aspects  of  the  migration  and 
development debate. The new Structural Funds' regulations make possible that in the context 
of  cross-border,  transnational  and  interregional  cooperation,  the  ERDF  may  finance 
expenditure  incurred  in  implementing  operations  or  parts  of  operations  on  the  territory  of 
countries  outside  the  European  Community  (up  to  a  limit  of  10%  of  the  amount  of  its 
contribution to the operational programme concerned). 

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