Ulkoasiainministeriö, Sisäasiainministeriö E-KIRJE UM2011-00973 POL-40 Parppei Eira 19.05.2011 EDUSKUNTA Suuri valiokunta Viite Asia Komission konsultaatio muuttoliikettä koskevasta kokonaisvaltaisesta lähestymistavasta U/E-tunnus: EUTORI-numero: Ohessa lähetetään perustuslain 97 :n mukaisesti selvitys komission konsultaatiosta, joka käsittelee muuttoliikettä koskevaa kokonaisvaltaista lähestymistapaa, siihen liittyvää kyselyä ja Suomen vastausta kyselyyn. Sofie From-Emmesberger Yksikönpäällikkö Ulkoasiainministeriö Poliittinen osasto. Ihmisoikeuspolitiikan yksikkö LIITTEET 1. Perusmuistio UM2011-00965. 2. Kokonaisvaltaista maahanmuuttoa koskeva kyselylomake; Suomen vastaus
2(2) Asiasanat Hoitaa Tiedoksi maahanmuutto SM, UM EUE, OKM, OM, STM, TEM, VNEUS
Ulkoasiainministeriö, Sisäasiainministeriö PERUSMUISTIO UM2011-00965 POL-40 Parppei Eira 19.05.2011 Asia Komission konsultaatio muuttoliikettä koskevasta kokonaisvaltaisesta lähestymistavasta Kokous Liitteet Kokonaisvaltaista maahanmuuttoa koskeva kyselylomake; Suomen vastaus Viite Käsittelyn tarkoitus ja käsittelyvaihe: Asiakirjat: Käsittelijä(t): Suomen kanta: Komission konsultaatiolla kerätään tietoa laajapohjaisesti on-line -kyselynä. Päätarkoituksena on saada viiden vuoden pilottikokeilun jälkeen arviointi ja suunta, miten kokonaisvaltaisessa lähestymistavassa on tarkoituksenmukaista edetä. Tavoitteena on strategisempi, johdonmukaisempi ja globaalimpi lähestymistapa. Kyselyn ajanjakso on huhtikuun puolivälistä kesäkuun puoliväliin 2011. Tuloksia käytetään hyväksi loppuvuodesta annettavassa tiedonannossa. Suomen alustavat kannanotot konsultaatiokyselyyn UM, Eira Parppei UM, Jan Wahlberg SM, Tuomas Koljonen Suomen alustavat kannanotot konsultaatiokyselyyn: Kysymykset 1-3 - Suomi pitää EU.n maahanmuuttopolitiikan ulkoisen ulottuvuuden kehittämistä ajankohtaisena kysymyksenä, erityisesti ns. eteläisen naapuruston tapahtumien valossa. - Suomi tukee pyrkimystä strategisempaan ja järjestelmällisempään lähestymistapaan. Maahanmuuttoa koskevaa kokonaisvaltaista lähestymistapaa olisi hyvä kehittää siten, että se perustuisi nykyistä tarkemmin määriteltyihin tavoitteisiin ja prioriteetteihin. Kysymykset 4-5 - Suomi tukee pyrkimystä lisätä yleisesti EU:n ulkoisen toiminnan johdonmukaisuutta. On tärkeää pyrkiä lisäämään maahanmuuttopolitiikan johdonmukaisuutta muun muassa kehitys-, kauppa- ja
2(3) työllisyyspolitiikan kanssa. Ensisijaisen tärkeää on varmistaa EU:n maahanmuuttopolitiikan sisäisen ja ulkoisen ulottuvuuden välinen johdonmukaisuus. Ilmastonmuutoksen, muuttoliikkeen ja kehityksen välistä yhteyttä on hyvä tutkia lähemmin. Kysymykset 6-7 - Suomi pitää tervetulleena keskustelua prioriteettimaista/alueista. Suomi painottaa yhteistyön tiivistämistä Suomelle maahanmuuton kannalta tärkeiden maiden, kuten Venäjän, kanssa. Kysymykset 8-11 - Suomi kannattaa pyrkimystä parempaan temaattiseen tasapainoon maahanmuuton kokonaisvaltaisen lähestymistavan eri osa-alueiden välillä. Tässä yhteydessä Suomi pitää tärkeänä kolmansien maiden suojeluvalmiuksien kehittämistä ja yleisesti vuoropuhelun tiivistämistä kumppanimaiden kanssa kansainväliseen suojeluun liittyvissä kysymyksissä. Kysymykset 12-14 - EU:n on hyvä pyrkiä järjestelmällisemmin hyödyntämään kaikkia sen käytössä olevia välineitä politiikkatavoitteidensa saavuttamiseksi. Kysymykset 15-22 - Maahanmuuton kokonaisvaltaisen lähestymistavan välineistön toimivuutta ja kehittämistarpeita on arvioinnin yhteydessä hyvä tarkastella, hyödyntäen välineiden käytöstä tähän saakka saatuja kokemuksia. Suomella on rajoitetusti kansallista kokemusta eri välineiden toimivuudesta, sillä Suomi ei ole osallistunut esimerkiksi liikkuvuuskumppanuuksiin, joita EU:lla tällä hetkellä on Kap Verden, Moldovan ja Georgian kanssa. Yleisesti tiedossa olevien kokemusten perusteella kokonaisvaltaisen lähestymistavan välineiden toimivuutta voitaneen parantaa ainakin parantamalla koordinaatiota EU:n sisällä ja suhteessa kumppanimaahan sekä kehittämällä edelleen EU:n sisäisiä valmistelu- ja seurantaprosesseja. Tiedonvaihdon ja koordinaation lisääminen EU:n tavoitteiden toteutumisen varmistamiseksi esimerkiksi parantamalla EU:n sisäistä paikallista koordinaatiota kolmansissa maissa on kannatettavaa. EU:n maahanmuuttopolitiikan keskeisiä virasto-toimijoita, Fronteia ja EASOa, tulee hyödyntää EU:n maahanmuuttopolitiikan ulkoisen ulottuvuuden politiikkatavoitteiden toteuttamisessa. Pääasiallinen sisältö: Eurooppa-neuvosto hyväksyi v. 2005 puitteet maahanmuuttoa koskevalle kokonaisvaltaiselle lähestymistavalle (Global Approach to Migration). Sen mukaisesti EU:n on vahvistettava maahanmuuttoa koskevia linjauksiaan ulkosuhteiden alalla. Lähestymistavan keskeiset teemat ovat laillinen muuttoliike ja liikkuvuus, laittoman maahanmuuton torjunta sekä muuttoliikkeen ja kehityksen vuorovaikutus. Tavoitteena on muuttoliikkeen kaikkien osatekijöiden parempi ymmärtäminen, muuttovirtojen hallintaan liittyvien toimenpiteiden tehostaminen, muuttoliikkeen ja liikkuvuuden hyödyntäminen kehityksessä sekä ihmisarvoisen työn periaatteiden huomioiminen politiikoissa, joilla pyritään paremmin hallitsemaan taloudellisista syistä tapahtuvaa muuttoliikettä. Muuttoliikettä koskevan kokonaisvaltaisen lähestymistavan välineisiin kuuluvat muuttoliikeprofiilit, valtuuskunnat, liikkuvuuskumppanuudet sekä yhteistyöfoorumit. Välineet ovat osoittautuneet hyödyllisiksi, mutta tavoitteena on tehostaa niiden soveltamista järjestelmällisemmin koordinoidun toiminnan ja johdonmukaisen politiikan varmistamiseksi. Kokonaisvaltaisessa lähestymistavassa keskityttiin alkuaan Afrikkaan ja erityisesti Saharan eteläpuoliseen Afrikkaan, ottaen huomioon kaikki ne maat, jotka sijaitsevat Euroopan unioniin johtavan eteläisen muuttoreitin varrella. Lähestymistapaa laajennettiin v. 2007 Euroopan unionin itäisiin ja kaakkoisiin naapurialueisiin ja jossakin määrin myös Lähi-Itään ja Aasiaan.
3(3) Asiasanat Hoitaa Tiedoksi maahanmuutto SM, UM EUE, OKM, OM, STM, TEM, VNEUS
Consultation on the Global Approach to Migration Questionnaire A. CATEGORY OF RESPONDENT A.1. Which country do you represent? Finland A.2. Which ministries and agencies have you consulted in preparing your response to this questionnaire? (to make best use of this consultation, responses from each country should ideally be well coordinated and represent the views of all relevant government offices and implementing authorities and agencies). Yes Ministry responsible for migration issues Ministry of the Interior Ministry of Justice Ministry of Foreign Affairs Ministry/agency responsible for Overseas Development Ministry of Labour/Employment Ministry of Education Ministry of Environment/Climate change Ministry of Trade Responsible national authorities and agencies Relevant embassies A.3. Which of these ministries or administrative entities had the role of coordinating your country's response to the questionnaire? Ministry of the Interior 2011-05-26 1
I. ROLE IN EU ETERNAL RELATIONS 1. Action in the eternal dimension of EU migration policy has added value because it is important the EU acts in a balanced way in relation to various source and transit countries/regions. action by the whole of the EU or jointly by several EU countries can be more effective than action by a single country. joint action can save resources for EU countries and the EU as a whole. lack of EU action would have negative consequences for EU countries. Strongly agree Agree Disagree Strongly 2. The Global Approach should be based on clearly defined goals regarding priority countries/regions outside the EU. It should therefore become a more strategic, long-term policy framework for the EU's internal and eternal priorities, including how migration. can boost economic growth and help Europe address demographic change and labour market shortages (Europe 2020 strategy). affects trade relations and capital/investment flows. can improve relations between different cultures. helps the transfer of skills and innovation. can drive growth in developing countries. can be managed as part of broader security policy. can be managed where it is Strongl y agree Agree Disagre e Strongl y disagre e 2011-05-26 2
generated by natural disasters and land degradation, including effects of climate change. 3. Action under the Global Approach should become more strategic and systematic by introducing an overall planning framework based on regional and thematic priorities. strategic targets (e.g. specifying the number and type of dialogue processes and tools in place by a specific year). indicators for assessing how strategic targets are being met. Strongl y agree Agree Disagre e Strongl y disagre e A planning framework with priority goals, clear targets and indicators would provide the basis for a results/outcome-based monitoring system and evidence for policy improvements. It would be important to define objectives and targets at two levels: strategic level goals describing the desired impact of the GAM (e.g. issues related to priority goals in question 2. above); and operational output targets (e.g. dialogue processes, new tools). The framework would transform the GAM from a political statement to a strategic management tool. 4. The Global Approach should be better integrated into and linked with related EU policy areas, notably: foreign policy development cooperation trade internal EU immigration and integration employment education and vocational training Strongly agree Agree Disagree Strongly 2011-05-26 3
crisis management and security environment and climate change 5. Should EU countries adopt specific measures (policy, legislation, research, financial assistance, etc.) to address environmentally induced migration? policy legislation research assistance to non-eu countries Strongly agree Agree Disagree Strongly II. GEOGRAPHIC BALANCE AND PRIORITIES 6. Which of the following regional frameworks for dialogue and cooperation on migration has contributed most to the implementation of the Global Approach? Please rank the alternatives in the list below (1 = "very important", 5 = "unimportant") 5+5 Dialogue on Migration in the Western Mediterranean ASEM (Asia-Europe meeting on migration) Budapest process Brdo-process EU-ACP dialogue on migration, in the framework of the Art 13 Cotonou Agreement EU-Africa Partnership on Migration, Mobility and Employment (MME) EU-LAC structured dialogue on migration European Neighbourhood Policy (ENP) Eastern Partnership Mediterranean Transit Migration Dialogue (MTM) Prague process (Building Migration Partnerships) Rabat/Paris-process Söderköping process Union for the Mediterranean 1 2 3 4 5 2011-05-26 4
7. EU migration dialogue, cooperation or project activities are ongoing or planned with a number of countries. Please list the top 10 non-eu countries you think should be given priority (1 = "most important") 1 Russia 2 Turkey 3 China 4 Afghanistan 5 Georgia 6 Tunisia 7 Moldova 8 India 9 Serbia 10 Libya Country III. THEMATIC BALANCE AND PRIORITIES 8. How important is EU action in non-eu countries in the following areas covered by the Global Approach? Please rank each action (1 = "very important" and 5 = "unimportant"): Organising legal migration more effectively Preventing and addressing irregular immigration Improving synergies between migration and development Supporting international protection and the eternal dimension of asylum (including Regional Protection Programmes) Protecting the rights of migrants 1 2 3 4 5 - As mentioned in the background document, strengthening international protection systems and the eternal dimension of asylum has been to some etent regarded as a cross-cutting issue of the GAM policy framework. Finland is of the that this theme should receive more attention within the implementation of GAM. We feel that issues related to international protection and strengthening of the protection systems of the GAM partner should be viewed as the fourth strand of GAM in addition to current main themes. This would be in line of the relative importance of the issue in reality (as the recent events in the 2011-05-26 5
Southern Neighbourhood have also shown) and also in line with the spirit of the European Pact in Immigration and Asylum and the Stockholm programme, where the eternal dimension of the asylum policy was emphasised. 9. Regarding legal migration, how important is EU action in non-eu countries on the following issues? Please rank each action (1 = "very important" and 5 = "unimportant"): Information for potential migrants on legal migration opportunities (including rights and obligations on EU labour markets, access to employment, social services and social security benefits) in the EU Recruitment and cooperation between labour market agencies in the EU and selected non-eu countries Recognition of foreign qualifications and skills (to counteract brain waste ) Pre-departure skills upgrading and language training Protection of the rights of migrants Preparation of return and labour market reintegration 1 2 3 4 5 Issues to be taken into account when planning future EU action on legal migration: - The principle of subsidiarity; - Along with efforts to promote labour migration into the EU, employing immigrants already residing in the Member States should be prioritized. This should be done in the framework of The European Employment strategy. - The relevant employment and education authorities should be consulted, particularly on the use of EU funds for employment -related objectives in the framework of GAM, since there are issues that need further discussions, such as the feasibility of using EU funds to promote the employment of immigrant already residing in the EU or training of potential labour migrants in the countries of origin.) - Common action in the framework of GAM can bring added value to the EU s efforts to protect migrants rights from abuse, such as overly high recruitment fees charged by some intermediaries. - Promoting information for potential migrants on legal migration opportunities and activities concerning recruitment should be linked to eisting/ongoing work in the EU, such as EURES. 10. Regarding irregular immigration, how important is EU action in non-eu countries on the following issues? Please rank each action (1 = "very important" and 5 = "unimportant): Return and readmission 1 2 3 4 5 2011-05-26 6
Border management Fight against trafficking in human beings Fight against smuggling of migrants Document security and biometrics Networks of immigration liaison officers in EU countries' embassies Protection of the rights of migrants 11. Regarding migration and development, how important is EU action in non-eu countries on the following issues? Please rank each action (1 = "very important" and 5 = "unimportant"): Remittances (cutting costs, informing about options, making them more productive) Reducing brain drain/waste and facilitating brain circulation Facilitating initiatives by diaspora associations to promote source-country development Circular migration (legal frameworks and/or projects that facilitate it) Social aspects of migration and development (reducing social costs) Protection of the rights of migrants (in the EU and source countries) Facilitating transfer of pension rights Facilitating transfer of social security benefits (e.g. health) Coherence between migration policy and development/eternal cooperation Adapting to climate change 1 2 3 4 5 IV. EFFICIENCY AND FLEIBILITY 12. Should the EU use its available leverage with non-eu countries (e.g. offering benefits through visa policy, opportunities for mobility, or funding for capacity building) more systematically to achieve its policy goals? 2011-05-26 7
Strongly agree Agree Disagree Strongly 13. Current EU financial assistance for the Global Approach is provided through a range of eternal instruments, both geographic and thematic, with different programming and management cycles. These funds are intended to help non-eu countries manage migratory flows and tackle the root causes of migration. Do you think the Global Approach can be adequately implemented through these eisting instruments? Strongly agree Agree Disagree Strongly 14. The Global Approach could be better adapted to the specific relationships with and conditions in various non-eu countries and regions by inviting non-eu countries at an early stage to identify their concerns and interests as part of dialogue and cooperation. differentiating more clearly between various types of partnerships, ranging from basic dialogue to more advanced and committed cooperation. setting up a solidarity mechanism for coordinating and pooling the resources of interested EU countries in relation to priority non-eu countries. designing a transparent procedure for priority partner countries, offering increasing levels of cooperation with correspondingly increased access to visa Strongl y agree Agree Disagre e Strongl y disagre e 2011-05-26 8
facilitation/liberalisation, mobility and funding opportunities as EU objectives are met. V. TOOLS FOR THE GLOBAL APPROACH 15. How important for the Global Approach are the following tools and support for capacity building in non-eu countries? Please rank each action (1 = "very important", 5 = "unimportant"): Migration profiles Migration missions Cooperation platforms Mobility partnerships Building capacity for migration governance 1 2 3 4 5 16. The main tools of the Global Approach (migration profiles, migration missions, cooperation platforms, mobility partnerships) should be improved in the following areas (tick the boes where you agree: more than one option is possible): Migration profiles Migration missions Cooperation platforms Mobility partnerships Coordinatio n within the EU Interaction with the partner country Preparation Implementatio n Followup Please give more information - your own assessment and suggestions for improving these tools under the Global Approach: 17. Mobility partnerships are intended to be a sophisticated and elaborate tool for migration cooperation between the EU and non-eu countries. They can be made more efficient by 2011-05-26 9
setting up a list of priority countries. defining criteria for initiating negotiations with non-eu countries (e.g. number of interested EU countries, interest epressed by the non-eu country). setting a target of the number of new mobility partnerships per year. the EU / EU countries making more substantial offers (e.g. projects or other initiatives to facilitate legal migration, address irregular immigration or improve synergies between migration and development). Strongly agree Agree Disagree Strongly 18. The EU is developing systematic cooperation with a group of non-eu countries within the Eastern Partnership. This framework offers a broader perspective, linking prospects of mobility, visa facilitation and visa liberalisation with readmission agreements and progress concerning security, and addressing irregular immigration, as well as improved conditions in the area of good governance, democracy and human rights. Should the Global Approach use a similar strategic framework for cooperation with priority non-eu countries and regions? Strongly agree Agree Disagree Strongly VI. INFORMATION ECHANGE AND COORDINATION 19. Regular information echange between EU countries, the European Eternal Action Service (EEAS) and the European Commission on bilateral eternal cooperation and EU action should be improved by. 2011-05-26 10
establishing focal points in EU countries, EEAS, Commission, EU delegations and EU countries' embassies. the systematic use of an internal, secure EU-website so upto-date information can be shared quickly. Strongly agree Agree Disagree Strongly 20. Should local coordination involving EU delegations and EU countries' embassies in non- EU countries be improved, to ensure implementation of the Global Approach? Strongly agree Agree Disagree Strongly 21. Is the involvement of these EU agencies increasingly important for the consistent implementation of the Global Approach? European Agency for the Management of Eternal Borders (Fronte) European Asylum Support Office (EASO) European Training Foundation (ETF) Strongl y agree Agree Disagre e Strongl y disagre e 22. Would it be useful to set up a network / support mechanism (with due recognition of EU countries' competences) to help EU countries share information and best practice on cooperation with non-eu countries on the issues of recruitment, matching supply and demand on national labour markets and skills upgrading? Strongly agree Agree Disagree Strongly 2011-05-26 11
VII. ANY OTHER COMMENT 23. We would welcome any other comment you may have about the Global Approach to Migration. You can either enter your comments below or attach/upload a document. 2011-05-26 12