COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS A dialogue for migration, mobility and security with the southern Mediterranean countries   COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS A dialogue for migration, mobility and security with the southern Mediterranean countries 
Date: 2011-05-24
Institutions: European Commission
Subjects: Mediterranean third countries, democracy, humanitarian aid, illegal migration, immigration, labour market, migratory movement

EUROPEAN COMMISSION 

Brussels, 24.5.2011 
COM(2011) 292 final 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

A dialogue for migration, mobility and security with the southern Mediterranean 
countries  

 
 
 
 
  
 
COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

A dialogue for migration, mobility and security with the Southern Mediterranean 
countries  

1. 

INTRODUCTION 

The historic events that have occurred in the Southern Mediterranean since the end of 2010 
have provided unique opportunities for the people of those  countries to express more freely 
their  wish  for  true  democracy,  respect  for  human  rights  and  fundamental  freedoms,  more 
impartial  and  better  functioning  state  institutions  and  a  fairer  use  of  public  resources.  They 
have  also  inspired  citizens  elsewhere  in  the  Arab  world  and  around  the  globe,  and 
strengthened their resolve to succeed in their democratic aspirations.  

The  EU  stands  ready  to  continue  supporting  all  its  Southern  neighbours  who  are  willing  to 
commit  to  democracy,  human  rights,  good  governance  and  rule  of  law,  and  to  enter  into 
Partnerships with those countries to achieve concrete progress for the people.  

Those historic events have also induced significant movements of people. 

The  eruption  of  the  conflict  in  Libya  as  of  mid-February,  provoked  the  displacement  of 
around 800,000 persons of many different nationalities towards the neighbouring countries, in 
particular Tunisia and Egypt. A number of them have fled towards Italy and Malta across the 
Mediterranean sea on vessels of fortune, sometimes losing their lives at sea as a result. As of 
mid-January some 35,000 migrants from Tunisia and Libya have arrived at the shores of the 
Italian island of Lampedusa and Malta. 

Some of the major factors behind the migratory pressures in the Southern Mediterranean, such 
as  the  high  levels  of  unemployment  among  a  very  young  population,  are  not  new.  They 
represent a long-term structural challenge for both the EU and the region 

The  EU  needs  to  give  clear  support  to  the  people  in  the  Southern  Mediterranean,  many  of 
whom  may  be  tempted  –  in  the  absence  of  a  perspective  for  better  life  at  home  –  to  seek 
opportunities  outside  their  countries  of  origin.  Active  management  of  migration  flows,  the 
strengthening  of  legal  migration  opportunities  together  with  measures  to  address  irregular 
migration have a positive impact on both the EU and its partner countries.  

As part of the EU’s wider engagement and offer of a “Partnership for Democracy and Shared 
Prosperity” and in the context of an enhanced European Neighbourhood Policy vis-à-vis the 
EU’s  southern  neighbours  and  their  new  democratic  aspirations,  this  Communication 
proposes to address the current challenges in the area of migration and mobility through the 
establishment  of  a  dialogue  for  migration,  mobility  and  security  between  the  EU  and  the 
Southern  Mediterranean  countries,  in  line  with  the  aims  of  the  EU’s  Global  Approach  to 
Migration.  

EN 

2 

   EN 

 
This  Communication  builds  upon  the  proposals  for  a  partnership  between  the  EU  and  the 
Southern Mediterranean countries in the area of migration, mobility and security made by the 
Commission  in  its  Communication  on  migration  adopted  on  4  May  2011.  It  is  adopted  in 
parallel with the Communication on the review of the EU Neighbourhood Policy.  

2. 

URGENT MEASURES UNDERTAKEN BY THE EUROPEAN UNION  

The  European  Union  has  responded  to  these  challenges  in  a  rapid  and  effective  manner, 
taking in particular the following concrete actions: 

•  To  manage  the  humanitarian  emergency  generated  by  the  sudden  inflows  of  migrants 
and  refugees  in  the  countries  neighbouring  Libya,  the  Commission  has  allocated 
40 M EUR, out of a total EU contribution – Commission and Member States combined – 
of 102 € M EUR to evacuate and repatriate thir d-country nationals and to assist those in 
need in Libya and neighbouring countries. This has also been made possible thanks to the 
laudable  work  carried  out  by  the  IOM,  UNHCR,  ICRC  and  other  international 
organisations.  The  intervention  of  the  EU  has  been  of  key  importance  in  reducing  the 
pressure exerted on the reception capacities of Tunisia and Egypt by the huge inflows of 
displaced persons they have received.  

•  In  order  to  promptly  respond  to  the  irregular  and  mixed  migration  flows  across  the 
central  Mediterranean  Sea,  FRONTEX,  with  the  assistance  of  several  Member  States, 
launched  the  Joint  Operation  EPN  Hermes  Extension  2011,  aimed  at  assisting  Italy  in 
controlling  vessels  carrying  migrants  and  refugees.  EUROPOL  also  deployed  a  team  of 
experts to Italy, with the aim of helping its law enforcement authorities to identify possible 
criminals among the persons intercepted.  

•  To ensure that, in the short term, those Member States most exposed to the growing flows 
of irregular migrants and refugees can cope with the financial consequences of the flows, 
the  Commission  has  allocated  an  additional  25  M  EUR  for  2011  under  the  External 
Borders Fund and the European Refugee Fund, which are available on the basis of concrete 
requests by the Member States.  

•  In order to respond to the new call for and struggle towards democracy of the population of 
several  Southern  Mediterranean  countries,  the  European  Commission  and  the  High 
Representative jointly presented on 8 March 2011 a Communication on "A partnership for 
democracy and shared prosperity for democracy and shared prosperity with the Southern 
Mediterranean". This Communication, whose key recommendations were endorsed by the 
European  Council  in  its  meetings  of  11  and  25  March  2011,  proposes  to  offer  to  the 
Southern Mediterranean countries the perspective of developing with them a dialogue on 
migration,  mobility  and  security,  aimed  at  enhancing  and  facilitating  the  regular 
channels for migration and mobility of the citizens between these countries and the EU.  

3. 

THE  SUSTAINABLE  DEVELOPMENT  OF  CAPACITIES  TO  MANAGE 
MIGRATION AND REFUGEE FLOWS 

The EU response to the emergency situation has been swift, comprehensive and effective. On 
the other hand it has also become clear that the crisis situation will not be resolved quickly, 
and  that  it  is  necessary  to  create  the  conditions  for  implementing  a  more  structured, 

EN 

3 

   EN 

 
sustainable  plan  which  could  cover  the  various  dimensions  of  the  phenomenon,  based  on 
solidarity between Member States and partnership with relevant third countries, in full 
respect  of  the  EU's  international  obligations.  Irregular  migration  flows  originating  from 
Tunisia might be followed by similar phenomena in other South Mediterranean countries, and 
especially  in  those  going  through  political  instability  and  social  crisis.  Organised  crime-
related  smuggling  networks  may  strentghen  their  activities  and  spread  their  geographical 
scope to other African countries than Tunisia. 

As the conflict in Libya continues, many more persons are expected to flee in the future, and, 
increasingly, nationals of various other third countries, notably Sub-Saharan African countries 
who used to live in Libya as migrants or refugees. It is also possible that Libya could again 
become a key transit country for the smuggling of irregular migrants directed from Africa to 
Europe.  

While in the initial phase of the crisis a large majority of the persons fleeing the conflict in 
Libya  were  repatriated  to  their  countries  of  origin  in  a  timely  manner,  in  the  course  of  the 
crisis persons not having a country to which they may be safely repatriated have increasingly 
been travelling from Libya to the neighbouring countries. The latter are either Libyans or third 
country nationals that used to reside in Libya and that had left their origin country in search of 
international  protection.  These  persons,  unless  resettled,  may  be  destined  to  remain  for  an 
extended  period  in  the  hosting  countries.  This  situation  is  placing  the  already  diminished 
reception  capacities  of  countries  like  Tunisia  and  Egypt  under  additional  strain,  and 
contributing to an increase in migratory and refugee flows towards the EU Member States. 

In view of this situation, and on the basis of a joint initiative of the European Commission and 
the High Representative, the European Council has requested the Council, on the basis of the 
impetus to be provided by the Commission, to take further immediate action and to present 
in  advance  to  the  June  European  Council  long-term  measures  for  the  development  of 
capacities to manage migration and refugee flows in the Mediterranean.  

4. 

A PLAN OF MEASURES FOR THE SHORT AND MEDIUM TERM 

As  an  immediate  response  to  this  request,  the  Commission  has  presented  to  the  Justice  and 
Home Affairs Council on 11-12 April a first plan of measures to address the migration and 
refugee flows originating from the South Mediterranean in the short and medium term, with 
a view (1) to ensuring that the EU and the countries neighbouring Libya acquire the capacity 
to deal with the possibly continued and increased inflows of refugees from that country, and 
(2) to assist those EU Member States and North African countries which are in the front line, 
and taking primary responsibility for dealing with the migration and refugee flows. 

The plan includes the following actions:  

(1) 

(2) 

continuing to provide funds for the humanitarian assistance of those in need in Libya 
and  its  neighboring  countries  and  for  repatriation  of  the  persons  fleeing  from  the 
conflict in Libya, according to the identified needs;  

strengthening with additional technical resources made available by Member States 
for  the  Joint  Operation  EPN  HERMES  Extension  coordinated  by  FRONTEX,  while 
continuing  both  the  HERMES  and  the  POSEIDON  joint  operation  as  long  as 

EN 

4 

   EN 

 
necessary,  on  the  basis  of  an  increase  of  the  budget  available  to  FRONTEX  for  the 
Surveillance Patrolling network; 

rapidly  strengthening  the  competences  of  FRONTEX  and  putting  more  effective 
tools  at  its  disposal.  The  amended  Regulation  establishing  the  FRONTEX  agency 
should be adopted by the Council and the European Parliament as a matter of urgency; 

calling  on  FRONTEX 
to  conclude  working 
arrangements  with  the  competent  authorities  of  Egypt,  Morocco  and  Turkey,  for 
which it already has a mandate, and for it to be given a mandate as a matter of urgency 
to start negotiations for a similar working arrangement with Tunisia; 

the  negotiations 

to  speed  up 

launching  a  special  joint  EU-Tunisia  operational  project  as  part  of  a  wider  set  of 
measures  to  address  the  overall  situation  of  irregular  migration  in  the  Mediterranean 
region. This project is aimed at strengthening the capacity of the Tunisian authorities 
to control their borders, to fight against the smuggling of migrants and trafficking in 
human  beings,  to  facilitate  the  return  and  social  and  professional  reintegration  of 
returnees, to support access to legal migration channels and to treat migrants entering 
their territory in accordance with international standards, including by offering asylum 
to those in need of international protection. In parallel to this project, to also assist the 
local authorities of the EU Member States most concerned by this issue to address the 
immediate repercussions of the migratory flows originating from Tunisia on the local 
economy and infrastructure; 

ensuring that Member States make full use of the financial resources allocated to them 
under the External Borders, the Return and the European Refugee Funds, including, if 
needed, by modifying the programmed destination of the funding and if necessary to 
the  2010/2011  programmes,  
focus  on 
€  425  million  is  available  under  these  three  Funds  for  the  six  Member  States  most 
concerned, i.e. Cyprus, France, Greece, Italy, Malta and Spain); 

the  most  urgent  priorities 

(for 

providing  additional  resources  from  these  three  Funds  to  support  Member  States 
facing  emergency  situations  in  accordance  with  the  provisions  of  the  Financial 
Regulation; 

implementing a Regional Protection Programme (RPP) encompassing Egypt, Libya 
and  Tunisia,  aimed  at  enhancing  the  possibility  to  assist  refugees  stranded  in  these 
countries and to develop locally the legislation and the administrative capacity to treat 
them  in  line  with  international  standards.  Resettlement  is  also  an  important 
component of RPPs;  

planning  and  implementing  the  resettlement  of  as  many  persons  in  need  of 
international  protection  as  possible  from  the  territory  of  the  countries  neighbouring 
Libya towards the EU Member States and to other countries willing to accept them; 

rapidly reaching an agreement on the adoption of the proposal for the establishment of 
an  EU  joint  resettlement  programme,  with  a  view  to  facilitating  resettlement 
operations. 

(3) 

(4) 

(5) 

(6) 

(7) 

(8) 

(9) 

(10) 

As  mentioned  above,  a  big  concern  is  caused  by  the  possible  increase  of  flows  of  persons 
potentially in need of international protection coming from Libya territory at the moment, 

EN 

5 

   EN 

 
and in the future possibly from other countries in the region. The Commission acknowledges 
the great efforts made by UNHCR, ICRC, IOM and other international organisations and the 
support  given  by  the  EU  and  its  Member  States  in  providing  humanitarian  assistance  and 
other support to person displaced from Libya. In this context, it is important to ensure that an 
adequate  level  of  funds  remains  available  to  support  the  provision  of  humanitarian 
assistance, according to the identified needs.  

The  financial  support  should  also  address  the  immediate  repercussions  of  migratory  and 
refugees  flows  on  the  local  economic  and  social  situation,  as  well  as  on  the  local 
infrastructures, of certain peripheral regions of EU Member States, such as has been the case 
in  the  course  of  the  last  years,  for  instance,  for  some  of  the  Canary  islands,  the  Sicilian 
islands, Malta, Cyprus, and some of the Aegean islands of Greece. The Commission intends 
to examine how allocations under the EU structural funds could contribute to deal with these 
situations.  

The  support  to  the  most  exposed  Member  States  should  go  beyond  financial  assistance  and 
make  it  possible  to  share  the  actual  responsibility  for  management  of  the  migrants  and 
refugees.  The  Commission  has  already  proposed  a  number  of  measures,  including  in  the 
context  of  the  Ministerial  Conference  on  relocation  and  resetllement  which  took  place  in 
Brussels  on  12  May  2011, that need to be considered  carefully  and urgently to achieve  this 
goal.  Amongst  these  measures,  it  is  important  to  signal  the  possibility  to  deploy  EASO 
support teams to the most concerned Member States, at their request, with a view to helping 
the  authorities  to  screen  the  asylum  seekers  and  offer  initial  aid.  The  current  EASO  budget 
would  already  enable  the  deployment  of  such  teams  to  be  financed.  Member  States  should 
show their solidarity and make available asylum experts to join the EASO teams, as well as 
accepting  the  relocation  to  their  territories  of  some  of  the  beneficiaries  of  international 
protection. The Commission is ready to support these efforts through the European Refugee 
Fund, in the extension of the Malta Pilot Project started in 2009. 

The  proposed  plan  of  measures  is  possible  only  if  adequate  EU  financial  resources  are 
mobilised. The Commission will examine, on the basis of the available financial respources, 
how to ensure appropriate financing to address the scope of the challenges that the EU faces 
in  this  emergency  situation.  Moreover,  the  Commission  will  promote  the  adequate 
coordination  among  the  different  internal  and  external  financial  instruments  to  ensure  in 
particular  the  support  for  the  cooperation  between  Member  States  and  third  countries  on 
concrete projects related to border management, migration and asylum. 

5. 

A  PLAN  OF  MEASURES  FOR  THE  LONGER  TERM:  ENHANCED 
COOPERATION WITH THE SOUTHERN MEDITERRANEAN COUNTRIES 

The plan of measures proposed by the Commission (described above) was largely endorsed 
by the Justice and Home Affairs Council of 11-12 April. Such measures, which are essentially 
of a short-term nature, are now being implemented.  

However the Commission believes that additional measures are required in the longer-term. 
These  measures  should  first  of  all  aim  at  addressing  the  root  causes  of  migration  at  a 
structural level. Cooperation with the Southern Mediterranian countries should be enhanced to 
effectively  address  the  challenge  of  creating  jobs  and  improving  living  conditions 
throughout  the  region.  Cooperation  should  particularly  target  the  specific  regions  and 

EN 

6 

   EN 

 
categories of persons that are the most affected by the lack of employment opportunities (e.g. 
young people as a priority target). 

In  order  to  respond  to  these  challenges,  the  European  Commission  and  the  High 
Representative have proposed in the joint Communication on 8 March 2011 to develop a long 
term partnership for democracy and shared prosperity with the Southern Mediterranean 
countries, based on a threefold approach, one of them being sustainable and inclusive growth 
and economic development with a strong emphasis on employment and social issues. 

Longer term measures are also required to ensure that migration and mobility between the EU 
and  the  South  Mediterranean  countries  are  channelled  through  regular  processes  and  take 
place in an orderly and efficient manner. This would imply efforts to help job seekers from 
these countries finding work opportunities abroad, in the shared interest of the countries and 
people concerned, as well as of the EU and its Member States. This latter challenge should be 
seen in the broader context of the evolution of the EU's demographic situation, as well as the 
labour shortages it is confronted with. The EU's needs for targeted labour migration will have 
to  be  duly  monitored  and  reviewed  so  as  to  make  precise  evidence  based  proposals  on  the 
basis of real labour demands. In this context the substantial contribution of immigrants, of all 
origins combined, to the EU economies must be acknowledged. They help to meet the need 
for highly skilled workers in the expanding sectors of the EU's economy but also help to fill 
many jobs requiring a mix of lower skills.  

In  the  joint  Communication  on  8  March  2011,  the  European  Commission  and  the  High 
Representative  have  also  proposed  to  develop  a  partnership  on  migration,  mobility  and 
security with the Southern Mediterranean countries.  

The  Commission  believes  that  the  launching  of  Mobility  Partnerships  with  the  Southern 
Mediterranean countries is a crucial tool, beneficial for both sides to ensure better and more 
effectively managed migration and mobility, not only of the citizens of the partner countries 
but also of the nationals of other countries, in particular those of Sub-Saharan Africa and of 
the  Middle  East,  who  increasingly  reside  on  or  transit  through  the  territory  of  the  Southern 
Mediterranean  countries.  The  launch  of  such  partnerships  would  foster  people-to-people 
contacts and further promote mutual understanding as well as business and employment. This 
would  benefit  the  economic  and  social  development  of  the  entire  Mediterranean  region  and 
the integration of migrants in the EU and in other countries of destination. 

The proposed partnerships will be translated into reality by adopting a tailor-made, country-
by-country  approach,  and  on  the  basis  of  a  commitment  by  each  country  to  meet  certain 
conditions,  and  taking  into  account  the  overall  relationship  with  the  partner  country 
concerned.  Similarly,  in  line  with  the  directions  given  by  the  European  Council,  it  is 
important  that  the  partnerships  encompass,  in  parallel,  all  the  different  aspects  of  such 
cooperation,  and  that  it  should  ensure  that  the  progressive  facilitation  of  the  movement  of 
persons  goes  hand  in  hand  with  the  implementation  of  measures  that  would  make  such 
movement secure.  

6. 

THE  DIALOGUE  FOR  MIGRATION,  MOBILITY  AND  SECURITY  WITH 
THE SOUTHERN MEDITERRANEAN COUNTRIES 

The overall aim of the Dialogue on migration, mobility and security will be to support and 
encourage  reforms  -aimed  at  improving  security-  that  the  partner  countries  may  engage  in, 

EN 

7 

   EN 

 
giving their citizens a possibility of enhanced mobility towards the EU Member States, whilst 
addressing  the  root  causes  of  migratory  flows.  This  Dialogue  will  be  part  of  a  much  wider 
engagement  with  and  assistance  for  the  countries  of  North-Africa  in  the  framework  of  the 
renewed European Neighbourhood Policy. This thematic and specific dialogue will be carried 
out as part of the broader frameworks for bilateral relations and dialogue, taking into account, 
at the regional level, the Joint Africa-EU Strategy and the Africa-EU Mobility, Migration and 
Employment Partnership.  

In  order  to  achieve  this  important  goal,  as  requested  by  the  European  Council,  the 
Commission intends to make full use of the existing tool available as part of the EU Global 
Approach to Migration, the Mobility Partnership, which has proved to be an effective tool 
for furthering dialogue and operational cooperation with third countries. Mobility Partnerships 
will be appropriately tailored to the specific situation, as well as to the needs, of the Southern 
Mediterranean countries in question.  

The following principles will apply: 

1. 

2. 

3. 

4. 

Differentiation: the Dialogue will be offered and developed based on the individual 
merit of the respective partner country (country-by-country approach), and take into 
account the extent to which progress is made and reflected in national practices and 
policy implementation. 

Bilateralism:  the  Dialogue  will  be  agreed  between  the  EU  and  its  Member  States 
and each partner country separately. 

Conditionality: the expected outcomes of the Dialogue would depend on the efforts 
and progress made in all areas (migration, mobility and security), and will take into 
account also progress made in governance-related areas. 

Monitoring:  the  partners  would  agree  to  establish  an  efficient  mechanism  for 
monitoring the concrete implementation of the Partnership. EU and Member States' 
experts would be associated to such a mechanism. 

This layered approach will enable the EU to extend the benefits of mobility proposed in the 
Partnership  to  those  who  demonstrate  their  willingness  and  capability  to  make  progress 
especially in those areas that are of importance to the EU.  

The  Mobility  Partnerships  will  be  agreed  at  the  political  level  between  the  EU  and  its 
Member  States  and  the  partner  country  concerned,  and  will  encompass,  as  requested  and 
agreed  by  both  parties,  all  measures  (be  they  legislative  or  practical),  to  ensure  that  the 
movement of persons between the EU and the partner country concerned is well-managed 
and takes place in a secure environment. This would thus bring together all relevant measures 
in a systematic and comprehensive manner. 

These measures should contribute to enhancing the capacity for management of the migration 
and mobility of persons within the South Mediterranean countries and in its relations with the 
EU  in  all  the  areas  of  the  EU  Global  Approach  to  Migration,  which  aims  at  (1)  better 
organising  legal  migration,  (2)  maximising  the  positive  impact  of  migration  on 
development,  and  (3) effectively  combating  irregular  migration.  In  addition  to  that,  the 
Partnership  would  also  include  a  set  of  measures  aimed  at  ensuring  (4)  the  promotion  and 

EN 

8 

   EN 

 
respect  of  migrants'  rights,  both  of  nationals  of  the  partner  countries  and  of  third-country 
nationals transiting through their territories.  

In  the  field  of  asylum,  the  Mobility  Partnership  would  aim  at  increasing  possibilities  for 
international protection in the partner country. Promotion of initiatives on integration in EU 
Member  States  that  also  benefit  the  countries  of  origin  should  be  part  of  Mobility 
Partnerships. Successful integration in countries of destination creates better conditions both 
for contributing to development in countries of origin and for the successful re-integration of 
those who return to their countries of origin. 

The Mobility Partnership should also include a package of capacity building measures to be 
implemented in the partner countries, to be identified on the basis of a tailor-made analysis of 
the South Mediterranean countries concerned, and of the proposals and requests made by the 
latter as well as by the EU and its Member States, which will fully and actively participate in 
its  implementation.  Capacity  building  measures  in  the  area  of  migration,  mobility  and 
integration  contributing  to  achieving  these  goals  can  be  listed  (in  a  non-exhaustive  way)  as 
follows:  

•  increasing and facilitating the access to legal migration channels for potential migrants on 
the  basis  of  clearly  identified  labour  demand  needs  in  the  EU  and  other  destination 
countries; 

•  regular exchanges of expertise and best practice among Public Employment Services so as 
to help deliver successful active labour market policy programs in sending countries, thus 
raising the employability levels and prospects of third country nationals; 

•  building  up  the  capacities  of  the  partner  country  to  assist  in  the  efficient  and  effective 
organisation  of  legal  migration,  including  recruitment,  skills  recognition,  return  and 
reintegration of migrants; 

•  supporting the delopment and implementation in the partner country of policies promoting 
inclusive growth with employment, employability and all aspects of decent work. This also 
with a view to mitigating brain drain;  

•  maximising  the  impact  of  migration  on  development,  including  through  facilitating  low-
cost remittances and the channelling of these towards sustainable investments, reinforced 
work  with  diaspora  associations  and  measures  aimed  at  counteracting  brain  drain,  while 
taking into account the social aspects of migration; 

•  enhancing  the  quality  of  civil  status  registers  in  the  partner  country,  and  of  identity  and 

travel documents which it issues;  

•  respecting  the  fundamental  rights  of  any  migrants,  including  those  that  are  nationals  of 

third countries;  

•  supporting  effective  integration  in  the  receiving  community  and  a  non-discriminatory 

treatment of regular migrants;  

•  offering specific assistance to migrants belonging to vulnerable categories of persons such 

as unaccompanied minors, victims of trafficking and others,; 

EN 

9 

   EN 

 
•  providing  advice  in  view  of  building  up  the  capacity  to  respond  to  migrants  in  need  of 
specific  social,  psychological  or  medical  assistance,  also  in  view  of  cooperating  in  the 
prevention of the dissemination of communicable diseases;  

•  ensuring the application of the principle of non refoulement and offering durable protection 

solutions to those in need of international protection; 

•  developing  and  implementing  asylum  legislation  in  the  partner  country,  in  line  with 

international standards, including through cooperation with UNHCR; 

•  facilitating the social and professional reintegration of the nationals of the partner country 

returning to their country; 

•  providing  assistance  for  the  voluntary  return  of  third  country  nationals  apprehended  as 

irregular migrants on the territory of the partner State. 

The above mentioned capacity building measures would facilitate circulation of persons from 
the  Southern  Mediterranean  countries  towards  the  EU.  Such  enhanced  circulation  will  be 
further ensured through the mobilisation of the following key tools: 

•  The EU will offer to partner countries the conclusion of a visa facilitation agreement. The 
contents of the agreement however would be different from one partner to the other. These 
will be agreed on a case by case basis, but would at least support the mobility of students, 
researchers and business people.  

•  Depending  on  the  actual  possibilities  and  needs  of  the  EU  Member  States  interested  in 
actively participating in the Mobility  Partnerships and of their respective labour markets, 
and  taking  into  account  their  right  to  determine  the  volumes  of  economic  migrants  to  be 
admitted, the Mobility Partnerships could also encompass specific schemes for facilitating 
labour  migration  between  interested  Member  States  and  the  Southern  Mediterranean 
countries.  Such  schemes  could  enable  (1)  specific  programmes  and/or  facilitated  legal 
frameworks  for  circular  migration  (including  also  in  the  seasonal  sector),  (2)  capacity 
building to manage remittances towards enhancing their development impact, (3) capacity 
building  for  efficient  matching  between  labour  supply  and  demand  and  for  managing 
return  and  reintegration,  (4)  recognition  of  professional  and  academic  skills  and 
qualifications,  (5)  development  and  implementation  of  legal  frameworks  for  a  better 
portability  of  social  rights,  (6)  enhanced  access  to  information  on  the  job  vacancies 
available in the EU Member States' labour markets, (7) identification of measures designed 
to improve co-operation and co-ordination between South Mediterranean countries and EU 
Member  States  on  matters  related  to  skills  and  how  to  better  match  labour  supply  and 
demand,  building  upon  the  work  already  done  by  the  European  Training  Foundation 
(ETF). 
Within  the  framework  of  a  Mobility  Partnership,  interested  Member  States,  in  line  with 
their  legislation,  may  also  decide  to  take  other  specific  initiatives  aimed  at  facilitating 
access to their labour markets for migrants from the partner country.  

The  increased  mobility  as  outlined  above  will  depend  on  the  prior  fulfilment  of  a  certain 
number of conditions, aimed at contributing to the creation of a secure environment in which 
the  circulation  of  the  persons  would  take  place  through  regular  channels  and  in  accordance 
with  the  agreed  modalities.  The  specific  conditions  to  be  met  by  each  country  would  vary, 
depending  on  an  assessment  regarding  the  fulfillment  of  the  objectives  agreed  through  the 

EN 

10 

   EN 

 
Dialogue with each partner country, as well as by the level of cooperation developed by the 
latter with the EU.  

Specific measures to be implemented can be listed (in a non-exhaustive way) as follows:  

•  putting in place voluntary return arrangements;  

•  concluding readmission agreements with the EU, encompassing provisions related to the 
readmission  of  their  own  as  well  as  third  country  nationals,  while  ensuring  the  full 
implementation of their existing readmission obligations; 

•  concluding a working arrangement with FRONTEX; 

•  building capacity in the area of integrated border management, document security and 
the fight against organised crime, including trafficking in human beings and smuggling of 
migrants; 

•  cooperating in the joint surveillance in the Mediterranean sea, inclduing through possible 

cooperation in the framework of the EUROSUR project, once established; 

•  demonstrating a willingness to cooperate with the EU in the identification of its nationals 
and residents, in particular in the case of police and judicial cooperation, as well as for the 
purposes of readmission and extradition;  

•  ratification and implementation of the UN Convention on Transnational Organised Crime 

(TOC) and its protocols on trafficking in human beings and smuggling of migrants. 

A Mobility Partnership is conceived as a long term framework based on political dialogue 
and operational cooperation, which will be developed further within the general context of 
the relations between the EU and the partner country concerned, and will evolve over time. 

To  prepare  for  the  conclusion  of  the  Mobility  Partnership  between  the  EU  and  the  partner 
country concerned, a dialogue at senior officials' level between the EU and the countries 
concerned  will  be  set  up,  with  the  full  participation  of  Member  States,  which  would  allow 
both  parties  to  exchange  views,  clarify  expectations  and  needs  and  identify  areas  of 
cooperation. This would allow the preparation of political decisions to be jointly taken at the 
political level. Such a dialogue would serve both the purposes of preparing the launching of 
the Mobility Partnership and of monitoring its implementation. 

During  the  preparatory  phase,  the  Southern  Mediterranean  countries  would  be  requested  to 
make  progress  towards  building  capacity  for  the  efficient  management  of  migration  and  to 
contribute towards establishing a secure  environment for mobility, as conditions for the fair 
and  sustainable  implementation  of  the  Mobility  Partnership.  The  EU  will  support,  both 
technically and financially, the efforts made by the partner country, including through the EU 
Agencies (FRONTEX, EASO and EUROPOL). 

The  EU  will  also  need  reinforced  financial  resources  to  support  the  progress  of  the  South 
Mediterranean countries willing to build up their capacities to manage migration, mobility and 
security, and to engage in long-term cooperation on this endeavour. 

EN 

11 

   EN 

 
The  EU  and  the  partner  countries  in  the  Dialogue  will  have  therefore  to  consider  best 
solutions  to  ensure  adequate  financing,  within  the  exisiting  allocations,  to  actions  aimed  at 
supporting  capacity  building  and  cooperation  in  these  areas.  Similar  considerations  would 
apply 
the  cooperation  with  Southern 
Mediterranean countries under the next EU financial framework.  

instrument  supporting 

the  new  financial 

to 

Alongside  the  development  of  the  Mobility  Partnership,  the  EU  Member  States  should 
consider, on a case-by-case basis, improving their consular coverage in the region, including 
through  the  establishment  of  Common  Visa  Application  Centres  supported  by  the  EU. 
Moreover, cooperation under Local Schengen Cooperation should be reinforced and full use 
should  be  made  of  practical  improvements  and  flexibility  provided  by  the  EU  Visa  Code, 
including  reducing  or  waiving  visa  fees  and  issuing  of  multiple  entry  visas  to  bona  fide 
travellers  and  specific  categories  of  people  (such  as  students,  researches,  and  business 
people).  

In  the  long-term,  provided  that  visa  facilitation  and  readmission  agreements  are  effectively 
implemented, gradual steps towards visa liberalisation for individual partner countries could 
be  considered  on  a  case-by-case  basis,  taking  into  account  the  overall  relationship  with  the 
partner country concerned and provided that conditions for well-managed and secure mobility 
are in place. 

The  Dialogue  for  migration,  mobility  and  security  will  be  launched  progressively  with  the 
Southern  Mediterranean  Countries,  including  through  the  development  of  Mobility 
Partnerships, and taking into account (1) the overall relationship that the EU maintains with 
each  partner  country,  (2)  the  current  level  of  capacity  in  the  partner  country  to  manage 
migration flows, and (3) the willingness of the latter to engage in a constructive and effective 
dialogue  aimed  at  establishing  the  Partnership.  On  this  basis,  the  Commission  proposes  to 
start dialogues with Tunisia, Morocco and Egypt. 

7. 

CONCLUSIONS  

The  measures  proposed  in  the  present  Communication represent the Commission's response 
to the call made by the European Council at its meeting on 24 March 2011 to present a "plan 
for  the  development  of  capacities  to  manage  migration  and  refugee  flows  in  the 
Mediterranean flows in advance of the June European Council".   

The  proposals  in  this  Communication  come  in  addition  to  the  initiatives  proposed  by  the 
Commission  on  4  May  towards  a  more  structured,  comprehensive,  rapid-response  approach 
from the EU to the challenges and opportunities of migration, including strengthened border 
control and Schengen governance, completion of the Common European Asylum System, and 
a more targeted legal migration. 

The Commission stands ready to further contribute to the elaboration of this Plan, and to its 
implementation,  on  the  basis  of  the  indications  that  the  European  Council  will  give  at  its 
forthcoming meeting on 24 June 2011.  

The Commission is confident that the proposed set of measures will allow the EU to face up 
to its responsibilities. The Commission is also convinced that the EU must give a genuinely 
European response to those challenges. Such a response will be truly effective only if based 
on  an  expression  of  concrete  solidarity  between  Member  States  and  in  partnership  with  the 

EN 

12 

   EN 

 
countries  on  the  opposite  shore  of  the  Mediterranean,  and  if  all  the  available  means  and 
instruments are mobilised. 

EN 

13 

   EN