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A política europeia de asilo: mecanismos de ação conjunta e desafios de um sistema europeu integrado
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A Política Europeia de Asilo foi desenvolvida a partir de determinados momentos críticos que geraram diversos mecanismos de ação comum entre os Estados-Membros da UE. A presente dissertação foca-se no Gabinete Europeu de Apoio em matéria de Asilo (EASO), uma agência regulatória europeia dedicada ao reforço da cooperação prática entre administrações nacionais de asilo, à prestação de assistência a sistemas de asilo e de acolhimento sujeitos a pressões e à promoção de uma aplicação efetiva do acervo comunitário de asilo. Criado em maio de 2010, o EASO foi mandatado com o desenvolvimento de modelos e de ferramentas comuns para dar resposta a desafios de governança associados a falhas de implementação e a divergências procedimentais profundas entre os Estados-Membros, representando, ao mesmo tempo, um desafio para a estrutura institucional europeia em torno do asilo.
O estudo de caso realizado por esta dissertação possuiu três focos: apurar a influência adquirida pelo EASO sobre o regime regulatório europeu de asilo, ou seja, a forma como alterou os meios através dos quais os Estados-Membros atuam neste domínio; detetar possíveis efeitos produzidos pela atuação da agência, como novo instrumento de governança europeia, na harmonização dos procedimentos domésticos e das condições de acolhimento dos requerentes de proteção internacional; e examinar o impacto do EASO na melhoria da qualidade e da eficácia da implementação do acervo comunitário. No referente ao primeiro objetivo, a análise demonstra que o EASO foi bem sucedido em criar instrumentos especializados e um corpo comum de informação que impactam crescentemente na forma como os Estados-Membros lidam com os fenómenos de asilo, sucesso significativamente derivado de redes de cooperação prática, pelas quais a agência reúne peritos nacionais para o desenvolvimento das suas atividades e para a difusão de modelos comuns. No referente à harmonização procedimental, a análise evidenciou um processo gradual de convergência das práticas domésticas, principalmente entre os Estados-Membros que mais intensamente se relacionam com as estruturas cooperativas da agência, embora esteja num estado incompleto, dada a fraca participação demonstrada pelos Estados-Membros do leste e do sul europeus e à maior politização de certos conteúdos. No respeitante à promoção da implementação, os dados ainda não apontam para progressos nesse sentido, sendo improvável que o EASO tenha produzido um impacto concreto.
Fatores de natureza política, resistências estruturais e o caráter voluntário da participação nas atividades do EASO são os principais fatores subjacentes a esses
fracassos, estendendo-se ao impacto limitado da atuação da agência nos hotspots gregos e italianos ao abrigo do mecanismo de recolocação de emergência, criado em 2015 para aliviar as pressões migratórias enfrentadas pela Grécia e pela Itália. A dissertação destaca, no entanto, um elemento inovador de governança associado à intervenção do EASO – práticas de processamento conjunto de casos de asilo – as quais detêm potencialidades relativamente ao reforço da capacidade da agência em auxiliar sistemas sob pressão, ou revelando falhas estruturais graves, assim como para o desenvolvimento de futuras estratégias destinadas à resolução de situações de crise.
The evolution of the European Asylum Policy was enabled by certain critical moments, which led to the creation of mechanisms for joint action between the EU Member-States. This master’s thesis focuses on the European Asylum Support Office (EASO), a European regulatory agency dedicated to reinforcing practical cooperation between national asylum administrations, to provide support to those subjected to migratory pressures, and to improve the implementation of the European asylum acquis. Created in May 2010, EASO was tasked with developing common models and tools to address governance challenges associated with incomplete implementation and deep procedural divergences between Member-States, posing at the same time a challenge to the institutional structure surrounding asylum in the EU. The case study carried out by this thesis had three objectives: measure EASO’s influence over the European asylum regulatory regime, i.e., in what way has it changed the means through which Member-States intervene when dealing with asylum matters; detect possible effects of EASO’s performance, as a new instrument of European governance, over the harmonization of domestic procedures and reception conditions of asylum-seekers; and assess EASO’s impact in bettering the quality and efficiency of the implementation of the European asylum acquis. Regarding the first element, EASO has been successful in creating specialized instruments and a common body of information which have obtained an increasing impact over how Member-States deal with asylum issues, in no small part due to practical cooperation networks, through which the agency gathers national experts to develop its activities and disseminate common models. In the field of procedural harmonization, the results point to a gradual convergence of domestic practices, mainly between those countries which interact more intensely with the agency’s cooperation structures. It is, nevertheless, an incomplete process, given the limited participation levels showed by certain eastern and southern Member-States and the more politicized nature of certain products. As far as the improvement of implementation is concerned, the data don’t signal an effective progress, being therefore unlikely that EASO has had any concrete impact. Political factors, as well as structural resistances and the voluntary nature of Member-State participation in EASO’s work are the main explanatory causes for such shortcomings, which also encompass EASO’s limited impact in the Greek and Italian hotspots, where an emergency relocation mechanism was created in 2015 to help alleviate the migratory pressures endured by Greece and Italy. However, the investigation highlights an innovative governance element associated with EASO’s intervention – practices of joint-processing of asylum cases – which hold potential regarding the reinforcement of the agency’s capacity to support asylum systems under pressure or displaying serious structural flaws, as well as to the development of future strategies to deal with crisis situations.
The evolution of the European Asylum Policy was enabled by certain critical moments, which led to the creation of mechanisms for joint action between the EU Member-States. This master’s thesis focuses on the European Asylum Support Office (EASO), a European regulatory agency dedicated to reinforcing practical cooperation between national asylum administrations, to provide support to those subjected to migratory pressures, and to improve the implementation of the European asylum acquis. Created in May 2010, EASO was tasked with developing common models and tools to address governance challenges associated with incomplete implementation and deep procedural divergences between Member-States, posing at the same time a challenge to the institutional structure surrounding asylum in the EU. The case study carried out by this thesis had three objectives: measure EASO’s influence over the European asylum regulatory regime, i.e., in what way has it changed the means through which Member-States intervene when dealing with asylum matters; detect possible effects of EASO’s performance, as a new instrument of European governance, over the harmonization of domestic procedures and reception conditions of asylum-seekers; and assess EASO’s impact in bettering the quality and efficiency of the implementation of the European asylum acquis. Regarding the first element, EASO has been successful in creating specialized instruments and a common body of information which have obtained an increasing impact over how Member-States deal with asylum issues, in no small part due to practical cooperation networks, through which the agency gathers national experts to develop its activities and disseminate common models. In the field of procedural harmonization, the results point to a gradual convergence of domestic practices, mainly between those countries which interact more intensely with the agency’s cooperation structures. It is, nevertheless, an incomplete process, given the limited participation levels showed by certain eastern and southern Member-States and the more politicized nature of certain products. As far as the improvement of implementation is concerned, the data don’t signal an effective progress, being therefore unlikely that EASO has had any concrete impact. Political factors, as well as structural resistances and the voluntary nature of Member-State participation in EASO’s work are the main explanatory causes for such shortcomings, which also encompass EASO’s limited impact in the Greek and Italian hotspots, where an emergency relocation mechanism was created in 2015 to help alleviate the migratory pressures endured by Greece and Italy. However, the investigation highlights an innovative governance element associated with EASO’s intervention – practices of joint-processing of asylum cases – which hold potential regarding the reinforcement of the agency’s capacity to support asylum systems under pressure or displaying serious structural flaws, as well as to the development of future strategies to deal with crisis situations.
Descrição
Palavras-chave
Política Europeia de Asilo SECA EASO Espaço regulatório europeu de asilo Harmonização legal e prática Implementação do acervo comunitário