611 Ricard Zapata-Barrero The external dimension of migration policy in the Mediterranean region: premises for normative debate One of the factors that directly affects the externalisation of migration policy is the realisation of the four fundamental freedoms of the common market (the free movement of goods, services, capital and people). The step towards a more integrated Europe began very early, in 1985, when the Schengen area without internal borders was agreed between a number of Central European States. The Schengen package and the resulting secondary legislation have become an integral part of the EU treaties, and its successive enlargements. The free movement of people within the EU abolished interior borders and made the nation states more vulnerable to the consequences and effects of migration. This raises security concerns for governments, as they no longer control the internal borders of the EU and, to make up for it, additional security measures have been implemented in the EU’s external borders.88 At the same time, a “spatial shift” has taken place in the EU with the emergence of new borders and spaces due to EU enlargement. In terms of the level of development, the relationship with some of the new neighbouring countries is very asymmetric, and this also contributes to the focus on security and the creation of new types of borders between “them” and “us”. Furthermore, in the context of Europeanisation, it is becoming increasingly important for more and more Member States and the EU itself to maintain good relations with the countries of origin. As we have seen, the European Neighbourhood Policy (ENP), in operation since 2004, could serve as an example for the promotion of good relations with neighbouring countries. The idea that “Europe Strengthens” illustrates the other side of the coin, that is, the fear of large-scale unchecked migration. This fear is strongly related to the negative impact that uncontrolled migration would have on the social cohesion of the Member States and the EU as a whole. This climate of fear and uncertainty could affect policies aimed at controlling immigration and take them to the more restrictive end of the spectrum.89 However, even before the accession of the new Member States, the EU had already expanded its security regime in order to reduce the import of certain internal security risks (such as organised crime and uncontrolled population movements). This way of dealing with the issue of migration is exacerbating the democratic deficit of the EU. On the other hand, the EU is keen to maintain good relations with other states in order to promote adaptation to a liberal democratic political and social culture. This is particularly true in the case of countries involved in accession negotiations with the EU and whom it is hoped will adopt the community acquis (initially the Schengen 88 MISILEGAS, Valsamis , “The borders paradox: the surveillance of movement in a Union without internal frontiers”, in H.. Lindahl (ed.) A Right to Inclusion or Exclusion? Normative Fault Lines of the EU’s Area of Freedom, Security and Justice, Oxford, Hart Publishing, 2009, pp. 33-64 89 GEDDES, Andrew, Immigration and European Integration: Towards a Fortress Europe? Manchester University Press, Manchester, 2000.
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