Externalisation of the EU Migration Policies: The Case of Cooperation in the Returns of Georgian Citizens
Graffiti expressing pro-EU aspirations in Tbilisi. Source: Mateusz Krępa
by: Mateusz Krępa, Marta Pachocka, Anna Trylińska, Tomasz Sieniow | University of Warsaw
Introduction
The EU’s policy on migration is focused on efforts to effectively return migrants ordered to leave and this policy remains a priority for the Member States’ practices regarding migratory issues. However, the number of migrants returned is much lower than the figures of those ordered to leave. In the years 2021-2022, in the EU, the former did not exceed a quarter of the latter. Interestingly, the figures of migrants ordered to leave and those returned vary in terms of nationalities (and returning countries). While the citizens of Georgia are not within the top five of those ordered to leave, they occupy the second place among the returnees. Moreover, while the top five nationalities of those ordered to leave are from non-European countries, including three EU candidates: besides Georgia, there is also Albania and Turkey. This leads to the questions of how the potential accession to the EU may impact the cooperation in the return of migrants and what it means for the EU migration policy of externalisation.
The analysis of the mechanism of cooperation between the EU and Georgia allows us to broaden our understanding of the selected aspects of the EU’s externalisation of migration policies. For this purpose, we draw on data collected during a field study conducted from February to May 2024 in Georgia (including in Tbilisi) and Poland, mainly in the form of 25 in-depth interviews with representatives of international organisations, public institutions, non-governmental entities and other experts who are knowledgeable about returns to Georgia and the reintegration of Georgian citizens. This work was supplemented with desk research regarding the topics of the legal framework and return infrastructure in Poland and Georgia and the reintegration framework in the latter.
Background: A Brief Overview of the Emigration from and Returns to Georgia
Georgia is an emigration country. After regaining independence in 1991, high unemployment, poverty, and low salaries led many Georgian citizens to seek better opportunities abroad. As the official data show, in 2019, the main destination for Georgian migrants was Russia, followed by Greece and Ukraine.
The main EU destinations for Georgians are – besides Greece as mentioned – Germany, Cyprus, and Italy. The number of asylum applications from Georgians in the EU/Schengen countries has increased since the introduction of visa-free travel to this area for Georgian citizens; however, the vast majority of these applications have been rejected. At the same time, there was also an increase in the number of Georgians being refused entry to the EU/Schengen states.
It is important to emphasise that return migration constitutes an important element of the Georgian migratory landscape. The increase in the number of returns contributed to the increase in the number of beneficiaries of reintegration programs. However, not all returnees participate in these programs. A majority of reintegration beneficiaries are returnees from EU states. The Georgian government made reintegration of returnees the key priority. The most common form of reintegration assistance is a business grant.
Externalisation of EU Migration Policies – the Case of Returns to Georgia
The cooperation between Georgia and the EU is shaped by different arrangements: on the EU-Georgia level as well as within both bilateral and multilateral agreements between the Georgian government and various EU Member States. Since November 2009, Georgia has cooperated with 16 EU Member States within a Joint Declaration on cooperation in the framework of EU’s Partnership for Mobility. This initiative focuses on fighting against illegal migration and the promotion of legal migration paths. Readmission and reintegration are important elements of this cooperation.
In the case of Georgia, an effective policy on returns is a condition for such incentives as visa regime liberalisation. This agreement was signed together with the one on readmission, and it was decided that it shall only enter into force on the date of the entry into force of the agreement on readmission. The full implementation of the readmission agreement was also included in the EU-Georgia Association Agreement. Therefore, the effective returns remain an expectation from Georgia in the case of the general integration process with the EU, and the EU praised Georgia for the implementation of readmission procedures.
Apart from the cooperation on the EU level, also bilateral agreements are an essential part of the externalisation of the migration policies by the EU Member States. Germany plays an important role in this regard, having an agreement with Georgia regarding seasonal workers and an agreement to facilitate the returns of rejected asylum applicants. Importantly, the agreement facilitating returns offers academic exchange programs for Georgians. This is in line with the policy of offering incentives in exchange of readmission enhancements. Some projects in the field of returns are co-funded by the EU and a sending Member State.
The border police headquarters in Tbilisi, Source: Tomasz Sieniow
Reintegration assistance after return to Georgia is also an important element of Georgian migration policy. The State Programme for Supporting Reintegration of Returned Georgian Migrants offers to Georgians irregularly residing abroad for more than one year as well as rejected or accepted asylum applicants assistance such as: medical services, social projects, vocational education, and temporary livelihood.
Since 2003, IOM has implemented a separate EU-funded program for those who have been unlawfully staying abroad or for rejected asylum applicants. The IOM program offers consulting, temporary accommodation provision, necessary medication purchase, training and job placement, and assistance in income-generating activities (together with funding). There are also other programmes for returnees. Frontex supports EU Member States and Schengen Associated Countries in providing reintegration assistance both during the first days following the arrival in the country of origin (post-arrival assistance), as well as longer-term (post-return) assistance for up to 12 months. In the case of Georgia, Frontex works in formal partnership with Caritas International Belgium, which cooperates with Caritas Georgia. Important programs were also developed by the German and French governments.
The biggest gaps identified within the study pertain to problems with the effectiveness of the reintegration programs which make returnees emigrate again to the EU. As the official data of Georgian migration institutions show, some returnees do not know about the reintegration programs available in Georgia. Moreover, one of the most problematic issues is the recognition of education certificates and the need for retraining to meet the market demands. Our interviewees confirmed these findings. Furthermore, in their opinions the social attitude towards returnees impacts the psychological state of non-quite-successful returnees and encourages them to re-emigrate.
Conclusions
Following Russia’s full-scale aggression against Ukraine and the relative ban on the return of Ukrainian citizens to their country of origin from 2022 onwards, Georgians became one of the five dominant groups of foreigners against whom return decisions are issued in EU/Schengen countries. Georgia’s cooperation with the EU allows for the smooth implementation of return decisions and the participation of returnees in Georgian services, relieving Frontex from this role. Readmission programmes offered to Georgian citizens on return decisions are not always sufficient to convince Georgian citizens to return. They are also not complete enough to convince returnees to persist in their resolve to return. It is worth considering extending the reintegration package and coordinating the amount of support of the various reintegration programmes, which currently vary widely across institutions.
Contact:
Mateusz Krępa | University of Warsaw | mateusz.krepa@uw.edu.pl
Marta Pachocka | University of Warsaw | m.pachocka@uw.edu.pl