you make us do what we want! the usage of external actors and policy conditionality in the european...
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You Make Us Do What We Want!T U f Exl Ac d PlcyCdly E Nd
E Ad
N. 32 | N 2011
WORKING PAPER
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2 | KFGWorking Paper No. 32 | November 2011
KFG Working Paper Series
Edited by the Kolleg-Forschergruppe T Tmv Pw E
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All KFG W P ll KFG w www.f. c dd
Cy f : E Ad
Edl c d dc: F A, Ad Bc d C Bl
Ad, E 2011: Y M U D W W W! T U f Exl Ac d Plcy Cdly
E Nd, KFG W P S, N. 32, N 2011, Kll-Fc (KFG)
T Tf Pw f E, F U Bl.
ISSN 1868-6834 (P)
ISSN 1868-7601 (I)
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I. 26
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You Make Us Do What We Want | 3
You Make Us Do What We Want!
The Usage of External Actors and Policy Conditionality in the
European Neighborhood
E Amm
A
I cdc d lc d, xl c cdd l c-
ly d c c f d yc ddc. Hc, ddc
f E Nd C (ENC) w R dcd j c EU
l f. T c f lc, w, dd : d f -
ddc f ENC d R cld w clc w EU l, w lw d
f ddc cl w llw d lc clc. T d fc
c f R d EU l f E Nd Plcy (ENP)
ly dd lcy ld d f c c: d -
c w-d c f xl c c ly cc f y cl-
c cd, l w w dc c c ll xl y c
w d.
T A
E Amm PD cdd Bl Gd Scl f
Tl Sd (BTS) d c fllw Rc Cll
Tf Pw f E (KFG). S ld M d
Il Rl f F Uy f Bl, Hld
Uy d Uy f Pd d B.A. E Sd f
Uy f Oc. S dd Ell Scl f Il
A G W Uy W D.C. H ld
f EU xl l, E Nd Plcy,
Scy Gc d S Cc.
Cc: d@ld.
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4 | KFGWorking Paper No. 32 | November 2011
C
1. I 6
2. P D N F: I, R
ENP-Cm 7
2.1 External Governance and the Bleak Prospect of Neighborhood
Europeanizaon 7
2.2Interdependence,Regimes,andCompliancePaernsintheCNC 8
3. T M L: I W Y M 12
4. Cm Cm P S C 15
4.1FromEmergingtoFullCompliance:MigraonPoliciesinArmenia 16
4.2FromIneratoSelecveCompliance:MigraonPoliciesinGeorgia 22
5. C 26
B 28
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You Make Us Do What We Want | 5
Av
AENEAS P f cl d ccl c d c
f d yl
AP E Nd Plcy Ac Pl
CIS Cwl f Idd S
CNC Cc Nd C
DMR D f M d Rf
DRC D Rf Ccl
ENC E Nd C
ENP E Nd Plcy
ENPI E Nd d P I
ILO Il L Oz
IO Il (Gl) Oz
IOM Il Oz f M
JLS Sc Jc, Ly d Scy
NGO N-Gl Oz
NIS Nwly Idd S
OSCE Oz f Scy d C E
PCA P d C A
SIGMA S f I Gc d M
TACIS Tccl Ac Cwl f Idd S
TAIEX Tccl Ac d If Exc I
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6 | KFGWorking Paper No. 32 | November 2011
1. I
E c T Ccl 1999 d c f dl Sc , w
f d E U d l d ly EU cyd. Cc l ll , c d c-d c w wly d
l d f 2004, ld lly c f E Nd
Plcy (ENP). T ENP c f f lzd c w w
dcd ll ENP Ac Pl (AP). A , Cc Nd
C (CNC) d d lc dd l d cl f
w f EU. A wd f f c, EU d -
fcl d l -llz .
Dclly, w, w d l E Nd C
ld, clly d cly, R EU. T clly f CNC
ld d f d d S , jy -f l
Cwl f Idd S (CIS), c l f l R d dd
c w f .
Fllw c c EU xl c E d d l
f l (Ly/Wy 2006), c f clc w ENP S
Cc l l. Iddc w R dcd c fc f
c f EU l f (D/D 2009; Lx/Sclf 2009), wc ly
ddd l Ez f w d. I f
c w d lcy-cc clc CNC (Ad/Bzl 2012),
ly dd c . G zzl l, w
d d wc cd ddc w R dd c EU-l f E
d.
Bd w -d c d G d A, I c f ddc
w R clc w EU-l dd w cd: , f EU l
w fc f d d cd, lc f lcy cdly
y xl c. T d - c wd dy f l-f
d cd f ll ddc d d R c wy. T l
c fc f EU l, wll cl f clc dd w
c CNC . T dld fllw: c c
dc zzl c f clc w EU lc G d A d l
cl d c cl dc xl c d ddc
E Nd. Sc - lycl c lyd
f c d c f. T l c c f clc w dc ENP
l G d A. T l c z d f ly.
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You Make Us Do What We Want | 7
2. P D N F: I, R ENP-Cm
T ENP-l f CNC f lc ll -
c l wd ENP l f . Tclly, cdc l ld xc lc f c, w y df EU d d-
dc w R d clc w EU l. T fllw c dc zzl f
y ly l j cl d cl
d f CNC.
2.1 ExternalGovernanceandtheBleakProspectofNeighborhoodEuropeanizaon
Tclly, c f EU x f w w d l
l. T ENP, ld l dl w w 2004, w f
wly fl ddc w EU d d c (Lx 2004). T,
d f Ez c d c d f ddc w
E Nd C (ENC) cc c y, zd
c df EU w ENP l c. T l cdd
l f c d cdl lc f EU cdly, wc dd cy
dc dc c (Sclf/ Sdl 2004: 674). Cld w lc f
c f d c c f ccfl l f Cl
d E E cc c c l w d c f EU
c ENC (Klly 2006; Lx/Sclf 2009; Sclf 2009). Addlly,
CNC l dly d f w dc q d EU l ld dw
llly d ENP Ac Pl.
T l xl c d c x f l l d lc
yd (Lx/Sclf 2009: 791). Cclly, d f l
dc d l fc, c ccy, -ly, l cdc EU d f
c xl d clc c. Y, l cz xly w f -
ddc w ENC d xl c. T l cd f w-
d c. T c d cly w EU l d
ly dd EU d, ll, c d (Lx/
Sclf 2009: 792). I , ddc w R cdd c-
fc f - f EU l (D/D 2009). R xcd
ll c f CNC wd W d d c f
EU l f (B 2004; Bw/J 2008; Bj 2010; Pc 2005). T xc
w l lc c E Nd w
EU d R (Il 2011; Kc 2011). G ddc f CNC d R
f , y d f d cy lcy, j fw, c f ENP
l d d l lly ly ld.
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8 | KFGWorking Paper No. 32 | November 2011
Y, c f lc, clc cd f w CNC, ly A d G,
d cl xc. D l, cl, cl d cc -
ddc w R, A dly fll clc w ENP l.
G, w, lc l ddc w R, ly w f llw lc clc. I d zzl, fllw c d
d f ddc w w CNC, R d EU d c w c-
clc .
2.2 Interdependence,Regimes,andCompliancePaernsintheCNC
Iddc f cly w EU, R d CNC. T EU
d l fw dl w cc d cl ddc. R d
CNC, w, d f cc, cl d cl ddc, d
l w d yd Cwl f Idd S (CIS) d Cllc
Scy Ty Oz (CSTO).
Migratory Interdependence and Regimes with the EU
I fw f ENP EU d l c c w d-
dc l l d 2004. Y, ENP fw ccl
l ld y P d C A (PCA) c 1999.
T PCA fw cl c -ld lcl dl d
ccl f ll d . F, PCA cd C Ccl
f l d ly c d Tccl Ac Cwl f
Idd S (TACIS) fcd c c f -
S c. T ENP d d cczd lcy c wd CNC,
lcd TACIS w w E Nd d P I (ENPI) w fd
c d d cl cc d fcl wd f j f .
I 2009, E P d d l. I d f -
wd c d d d d c f d , l -f l
d w Ac A lc PCA c f lcy f d l
(Sc/Tldf 2009: 1). T d lcy f ld dw ll ENP AP. I ld
f lcy, , , dl f l c l,
c f dc cy d f d y CNC (E
C 2006, 2006).
I d l lc, EU l cdly, c d clz-
cl f EU l c (Klly 2006). T condionali-
esf fcl d llz ldy fld E
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You Make Us Do What We Want | 9
P . A d C Ac -fcl f 2005, Ccl f
EU l fcl (wc cd -f l) f EC-d
(Bfc l. 2008; T/K 2008:421). I dd, Ccl f E U dcld
TheECshouldtakeaccountofthefollowingfactorsinteraliaindecidingwhethertoopennegoa -
onsonvisafacilitaonwiththirdcountries:whetherareadmissionagreementisinplaceorunderac-
venegoaon;externalrelaonsobjecves;implementaonrecordofexisngbilateralagreements
andprogressonrelatedissuesintheareaofjusce,freedomandsecurity(e.g.bordermanagement,
documentsecurity,migraonandasylum,ghtagainstterrorism,();andsecurityconcerns,migra-
torymovementsandtheimpactofthevisafacilitaonagreement. (Ccl f E U
2005:3)
T c f fcl w f d wd CNC w C
Cc S ENP Dc 2006 d c f Mly P
w CNC d EU, wc w l f x f Gll Ac M
E Nd (E C 2006, 2007).
T cdl fassistance dd ENPI c, l, l d
c-d (E C 2006). I c f f ccl c (TAIEX,
Tw, SIGMA) d l (Nd I Fcly). T c
d yl (f AENEAS), cl f f lc. T d ,
socializaon, c ll EU c EU lc wll d d d
(Sclf 2009: 8). T lly lcl dl fw f l-
y d l C Ccl ld y PCA. T c
Jc, Ly d Scy (JLS) dl cclly w lc d cd c f
fcl (E C 2010).
D d l , cl, cl d cc ddc l dld
w EU d CNC. Hclly, w f CNC EU c ld
l d f A Fc d ll f G Gy d Gc
(My 2004: 3; Jdz/Ml 2009: 9). Y, d w EU d c -
l cl d cc ddc y d w R. T w, f G
d A w EU l 20 lw R (Pc/Wl 2009:
34), d c y ccdly. Nx l d cll d, dl ll
d cl f EU xl d Sc d EU (Pc/Wl
2009: 34). T c f d EU ly c, fcl f l
f d fllwd y fcl f d d, .. cl
EU l .
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10 | KFGWorking Paper No. 32 | November 2011
Migratory Interdependence and Regimes with Russia
T f R d CNC dly lzd, d fdly w
G d A. T ly d G f CIS 2009. Iddc wR cc d cl , w, CNC.
T fd f CIS lz c CIS
. Acl f j c ld f lc (Sw/W 1999) d
B A f 1992 ld -f l w CIS . Hw,
w fllwd y d ll d lll l dd
d CIS c (Il C f M Plcy Dl 2005: 27). T CIS -f
l A, w R llly dcd q f G 2001
d lcl w c. Ul R, G dlly d
c 2005 d llly ld -q f cc c cld R (V Sl 2005).
Lly, l Cllc Scy Ty Oz d w lll d
d f cy fc w wd (G 2008;
M/Mzl 2007).
Sc 1990, f CNC cz d -
l cl d lc f S (Il L Oz 2008: 15).
I dd, l-c fl d ll l d R l w.
I lll d d cd f cd Cc d -
cd Cc cc, R d lw d cd ly 2000 (T
l. 2005: 23). Id f l c, d lll c,
f f CIS c, w w ll ll f -f l (Iy 2009: 41). Oly
cly, dc , R d cly .
Ecc ddc w R c d cd dd f c w
fc d cc c f c. Rc w f
c f cly c CNC GDP d fc cl lz
f cc (Bl Tf Idx 2007: 17; T l. 2005: 29). T -
f c w d f GDP d c c d l
f lll , ll d d . Y, f c c
c GDP f c CNC lly l 10 c (T l. 2005: 28). Fllw
Wld B , c f R G d 491 ll US dll 2010,
wl A cd 436 ll US dll, wc cd xly f c f
c GDP 2010 (Wld B 2010). A l, c f c w, clly
f R, A d G GDP c cdd l (My l. 2007: 31;
T Ec Illc U 2007: 27).
Y, ddc w G d R lw l d G ll
c f llz w R. O d, A wld ll d y -
dc f w lly. Fllw f w-d xl,
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You Make Us Do What We Want | 11
clc w EU wld, f ll, lly cc G A. Oll,
w, A w clc w ENP l, w G l d d
ly cly d cc lcly.
CompliancePaernsinGeorgiaandArmenia
Clc, l d d lc l f d cl
, y f d f lcy cycl. T dc w lcy d-
d l d y xl c l (Lx/Sclf
2009: 800f) lfl d d d f clc. Wl lcy d lly l
clc c f d lc f
l l (E 1957), l f c clc, c d fc -
lc f l. I d d d cclz clc , I wll f fll clc
c wc lcy d d l cc. E clc c
f fll lcy d d c d f lc. Sllw clc d lc lcy
d w l, wl c w .
Cc ENP l, A w c f d fll clc, d-
d f ddc w R. A d Cc P f
l d l c l fw f -l w (Gy
2011; M Acy f RA My f Tl Ad 2010). Slly, cy c-
l w ccl dc f c (PA. 2011) d d
d ld ll d w l f EU d -EU c c
2003.
G dly f l l 2009 d cl ly lcly w -ld
ENP-l d cy , lc d f l ddc
w R. W d d , G d ll lly d
w f ll w EU Sc A (see Figure 1).
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Figure1:NumberofReadmissionAgreementswithEU-MSorMemberstotheSchengenAgreement
1
2
3
4
1
3
4
5
6
7
10
12
2002 2003 2004 2005 2006 2007 2008 2009 2010
Number of Bilateral Readmission
Agreements of Georgia
Number of Bilateral Readmission
Agreements of Armenia
Source: Ministry of Foreign Affairs Georgia (2011); Ministry of Foreign Affai rs
Armenia (2011); Dutch Ministry of Foreign Affairs (2011)
I dd, l c l dd w l f Il Oz f
M (IOM) 2008 d y . T E C lly
xd dfc w G lcy f 2008 ccz
lc f w lcy dc d xly ll f w lcy
(E C 2008: 8). T d clc G cd
ly cly. G d dly f lc clc c l 2009. T ll
EC d w d 2010 d c 2011 (Cl G 2011; RAPID 2010)
d c d c 2011 (My f Jc f G 2010). Y, f
l c l f d.
T cl f clc d ddc w R zzl. T d d f
ddc w R c flly cc f clc c f
lc. I d d l cd d wc ddc w R ,
fllw c dc - c dy f EU l f cd f
ll ddc qly ld c f A d G.
3. T M L: I W Y M I
I f ddc d w-d c lc x f
d dc. Y, c f ENP l f d cd f xl c
ld, ddc d w lly cly ld dc c
d fc f dc . T fllw c dc f w d-
dl fc ly f l f c d cd f ll ddc:
fl f d f dc w ENP d lcy cdly dd
y xl c.
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T l Ez d dc c c f xl c ly
d l ddc d d f Ez c
(Kll/Ll 2000: 24; Lx/Sclf 2009: 805). I d cc , lcy,
ly lc dd c wdw f y f ly d , wc y lly ly f c d Ez (R/Bzl 2000). I
c f CNC, , lly qd w f-c w, cl cy
w d . T f ly d x c
c f EU dccy , c cc ld xcd c
w w (Sclf 2009: 16f). Y, w d cy lc, c l,
cly -q d d c-. Ty l ld
fc f EU lc l cc l
f ly ld d. P fc f wd EU l cd y
f fl (Ad/Bzl 2012). I dd f fc c, wc
, l fc , x c w xl c
lc (Fd 1999). T fc c ddcd f c f c-
y w d l l f dc d l
cc.
I , EU lly c CNC, dl f q, f EU lcy
lcl d f dc (lly cc) d d w
, lcy ccy. T f R: If R f lcy d ddl
l cc f lz f c fc, d lly
f . T c f dd ccl f Ez M
S wll Cl E Acc C (B 2005; Jcq/Wll 2003; Mdz
l. 2006; Wll/Jcq 2010). Nd c d y ll xl c
lly ly xlly d f c l
c c (Pc/ Wl 2009) c d c xlly d l c f
dc cc.
Y, f ycl ddc dd xl lcy f EU (Lx
2008), EU l cd c f cc, fcl llz (T/
K 2008). R l fqly d d ld f c N
Ad y lcl cly w R f lcy d (Hd/L 2007;
Pc 2005). Wl w c xc c c d c xl lc wc c w c-
dl y c, c c, c f xlly d l,
wc xl c l l c .
F cdl y c, fll clc w EU lcy xcd c f f-
l w EU l, c lly EU c d lc R c, f
l d EU lcy c (l c). E d f
fll clc ll cc f ccy ld dd y l c d c y
l c. Ic lly f EU d R
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c f y l l ly ld d (ccd c). I, w,
xcd c f fl , dc c f lc xl y
c wc d cd d. T y d Table 1.
Table1:AssistanceandExpectedCompliancePaerns
A C A Rv A
F w EU- Fll Clc Fll/E Clc
M w EU- I I
If lcy f ld lcy cdly, f f ( cdly)
lc ( cdly) f l y c, ll lly w lcy f
dd w fc f dc . Plcy cdly d cly
c dly fc f c, c -
wd c l (Fd 1999). W y c CNC d, wl d fc
lc f l d cc (llw clc). Hw, c wc xl c
ly lcy cdly, cdly dl c w c
l (ccd lcy cdly) d l ld f
q f xl c (l lcy cdly). Ud cd f ll d-
dc c lly c d c cdly dc d. Wl y
c dly ld f ccd cdly, y lly d c f l cdly,
cly w l cl w dc d, wc w Sclf
d Sdl (2004) c c-cdly (see Table 2). A l cdly l d
l l f EU l x, clc d f fll clc c
xcd.
Table2:CondionalityandExpectedCompliancePaerns
C C C Rv C
F w EU- Fll Clc Fll/E Clc
M w E- Sllw/Slc Clc I
C-clz d c-cdly c, wc ldy dcd l
(Sclf/Sdl 2004: 674) cly l f yc cl
ddc -EU xl c. W lc ldy f ll
l y c d y -EU c c EU l f, fc w -
cl d lycl l E Nd. F, c ly d-
c, wc d l f c EU US d cl, lcly
ll c f cc cdd ENP Ac Pl. Scd, c
cd c-cdly c, c d y -EU d c xcd
dd y EU. T l f c f dc c, w, ly dd
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You Make Us Do What We Want | 15
dc cc d lcl d c w . Ty
c dd f c c c ly. E d cd f EU-R
dc d f l c c, CNC ll c EU l d-
, f EU-d l f lc f c d c d f wdc . Hc, fwd d ly w c,
c c wd lycl fc dc w cll
f d xly l f w-d c xl c.
I c dld , c f ddc w R EU-lcy f
lly ld y w ly: fl f l d, wc ld
c f l d l c d lc f lcy cd-
ly y xl c. T x wc w fc c cc f lcy c f
G d A lyzd x c.
4. Cm Cm P S C
T c f lcy f S Cc c f G d A lcd
f c d c ll c d cl ccc d d-
dc w R d EU . I dd, y cl w d lcy
lc d cy . B G d A lcd l c l
d yl d c f ENP (E C
2005, 2005). Ty l fll f ll EC wd d , wc w ddd
PCA d ENP Ac Pl (E U 1999). I dd, c d ly
f y Fd H Idx 2006 w xc jy f-c w d -
wc fl d f lcl l (Fd H 2006; 2006). Ty l dly
cl ll f ccy (Bl Tf Idx 2006)1 d jc
d f c lyd y EU fw f ENP. I dd, llz d
cdc f d EU l ENP Ac Pl cl, lc c
l Ac Pl f G d A (E C 2006c, 2006d).
Y, c l d l fc dc d f
lcy d ld d l R, wc lly ld dc -
f c c.
S f zzl clc , cl ly c c c
ld clc c f lcy A. I d l -
cl cd G cx 2009 d wc d cy dly lc-
clc wd. T c fc fl f w CNC d
ly w c c f EU d R. Plcy cdly
1 A c cly dx, wc w d G lc f ly
f fc d fc lc. T ll llw f c f c w d
ccy f cl f f y cl.
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16 | KFGWorking Paper No. 32 | November 2011
dd cdl f lcy-cc, - c f f -
d ll d c d c c y xl c. Pfl () d
cc f fc c f EU d dc c ccd w
lc f EU-d l () d () c w ,
wc d c ly. T cl ly ld cdy l, f, l z (IO) d -l z (NGO), d l
d xly 40 w w cdcd d c A d G.
4.1 FromEmergingtoFullCompliance:MigraonPoliciesinArmenia
I A, lc d cl lc c d f 1990 d
Pd R Kc d l cl. B cdd c f cy,
l f lzd d l. A , wd
d c w lz dc lcl , y c f c
f d l f l d f dl-d w f
A cy. A cd, d c y c f
EU d R dd A w ddl c f l f lc wc
ld fy l d l, wl
cc d lcl fcld ll .
GovernmentPreferencesinArmenia
B Pd f dd A, L T-P, wll cc d
d l lcy f A l l cc w Azj
N-K - A cl w Azj l d - d cc w
Ty c f A cd f 1915. Wl T-P d ld K
l l S , w d c -
c Ty d Azj. R Kc ccflly clld T-P jy
f l f A d d l A lld d
dl l (Hf 2009; My 2007).
Kc, wll fd cc S Sy, w c 2008, ly ld
lcl f Rlc Py, l y A Rly Fd-
Dy (ARF-D) d d-d z c R-Az d
O E (F/S 2007). I dd, Kc d Sy w cly d
c f lcc cc l l d ly w wly fdd
y P A lc 2007 (Bl Tf Idx 2010). I f
c fl cc c f cy, A lc dld
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You Make Us Do What We Want | 17
w d, cd dl lc c d dly ld
(Dly 2006).
B Kc d Sy d dcld f cl lc,
wc cd cl l d wll lly c f -.Hl d A d cy ly cdd
A d fhaydatandArarasm2, wc l d dd
T-P (Hf 2009). T c f f A w d y
l l, lly d cl xc f d fcd xl
c f cy-l l A Hld (Sd 2011, 218). I 1999,
Kc ld D f M d Rf (DMR) d -
l 1990 cd y l f f f w w Azj
d d q (UNDP 2001). F 1990 2000, d 900,000 A d
f A, wc c d d f c A l (Py 2011:
42). M w qly fd f y c cy, wc w
cd l d d j lc c (G f A 2000;
Kc 2003). E l d f lc d w d S Sy,
w Rlc Py d d A f ll wld N cy
(Rlc Py f A 2011) j l. M w dcld j cc f -
2008 d dc [] l cy (G f A 2007, 2008).
M w l clly ld cc w Azj, wc l d l y
A dc dcl.
TheDiverseUseofExternalOpportunityStructuresComplyingwiththeENP
T A d EU d l x R c l
d jfy w lc dcd l d l w f A, wll
fcl ll ly f c-lcl d c l f lcl
l.
F, M Sc w My f F A d ccl f bi-
lateral readmission agreements. Bll d flzd f A d
d cy l w lllly d d d d d cy f d
A. A ly d flz f ll d w EU d
f c f fcl w xlcly d w Strengtheningofthe
ENP 2007 (Bfc l. 2008: 4). Cly, A d 12 ll d
w EU d Sc c, wc f ll CIS c d G.3
2 A w Z, [A] f cy f wldwd d, wc
q cq d ll f l, c d cl (Hf 2009).
3 A d d w L (2002), L (2003), D (2003), Swzld
(2005), Gy (2006), Bl (2007), Swd (2008), Bl (2009), Nld (2009), Lx
(2009), Czc Rlc (2010) d Nwy (2010)(Dc My f F A 2011; My f F
A f Rlc f A 2011).
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18 | KFGWorking Paper No. 32 | November 2011
T ccl f ll d w cl w d lcy f
c A cy, wc cdd l d f d
Rlc Py (Rlc Py f A 2011) wll ARF-D d cd cl
f l c cy (Hf 2009). A d- w lly ld c f c f d,
M Acy f Rlc f A (f DMR) cdd ccl f d
j y f c , wl w
d E l c .4 Illy, M Acy
d ccl f d 2003 lz f
f A cz, ld A c.5 R c
w cdd j y d d f l cl
A Nl Aly l 6 d l lc f f f
l , f cd , d .7
I d l d d f d A, A
cly d cl d ccl c f EU d R. T My f
D d f TAIEX jc 2010 lw l w EU c-
q (E C 2011). T l f d w l d
y EU c d yl 2009 w EC c f xly
700,000 E (A UN Ac 2009). A f EU, A l d
l f R d d d A. A d R d ll
d d xc cl l 2010 (Pd f Rlc
f A 2010). T Plc f Rlc f A ld w- c
2005 d 2006 w jly dld w y f R Fd A d
R Fdl Sc f M. I d f A cz
R (Zf l. 2008: 28f), dly d w f A d
lll . A cl EU lcy cdly ld fcl, wc w ly
l 2006, w dd A cly w q
d , lcy d w dc fc.
T dl cl w d dc f c A,
wc ly d cy clly ld d, A Plc, l
lcy fc ld c 2004. T ccy ld dd y EU d xl
d qd lc w ly lz -x d. T d
d f A lc ly d q f EU l c
4 Iw w cl f S M Sc f Rlc f A (RA) Y, A,
Oc 2010.
5 Iw w f S M Sc f RA Y, A, Oc 2010.
6 Iw w M f Nl Aly f RA (P A) Y, A, Oc
2010.
7 Iw w cl f S M Sc f RA Y, A, Oc 2010; Iw w
M f Nl Aly f RA (P A) Y, Oc 2010.
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You Make Us Do What We Want | 19
d ly 2012, fllw dl dc f 2008 (G f
Rlc f A: 2008).8 T f cdd lcy dl cy,
A d ldy d w c f dc cy 2006. 9 T
f EC cwld A d dc d cy dd 2007 (E C 2008: 12), d cl f E C
dld dc wld ldy cd llw f fcl,
llz w EU.10 T d dc c d, w, w A
2004 cl f My f F A, w cd OSCE cfc, w
ld d d dd f c d.11 H ccflly ld
d d f A lc f dc12 cqly ld
f TAIEX jc xc w w E M S xc w c
d 2007 (PAO A 2007). T l f ccy-ld l
jc w ll f j jc f IOM d OSCE cld , cl
d lcy dc (Il Oz f M 2010). Ccy ld f f cl
y f q ly w d A, l G. T dly f
dc f 2011 ly 2012 w ly ld lc f ccy w A
lc d ly c d cd f ly q w
l c (Nw. 2011).
T ll l f ENP q w l cly fcld y c-
c w d f S M Sc d ENP Ac Pl. W d
l f l c l , S M Sc cly -
f EU d c cy f EU ccy-ld
ld. I ld f TAIEX jc c l c l f 2008 d 2010 (E
C 2011; , 2011), d cly ld f Tw c , , -
d f l f l c l (E C 2011).13
Bd c, w, w j cc w lc d M
Acy cd fc .14 T lc, w cl dl
d cy-ld d, w cly d cl f A -
cy fc d dl lc 2008. A dl dc w d
ccd y -ld cy w lc, d f cl
8 Iw w cl f My f Ecy f RA Y, A, Oc 2010.
9 Iw w cl f P d V d f Plc f RA Y, A, Oc
2010.
10 Iw w cl f E C, DG H A, Bl, A 2011.
11 Iw w cl f Cl D/ My f F A f RA Y, A,
Oc 2010.
12 Iw w cl f Cl D f My f F A f RA Y, A,
Oc 2010.
13 Iw w cl f S M Sc f RA Y, A, 10/2010.
14 Iw w cl f Cl D/ My f F A f RA Y, A,
10/2010.
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20 | KFGWorking Paper No. 32 | November 2011
cc, dl w y ly cl y. 15 T, wl M
Acy cly f EU, w l cl lcy . I w ly
l d cc f xl d, c UN Rf Acy
UNHCR, A w dd ld f S MSc (H 2011: 10).16 A l f w f S M Sc, cc
w d 2010 d Nl Ac Pl w d fw f w
c l l c ld f (M Acy f
RA My f Tl Ad 2010). T d d wd
c l f lc l d -ld cc
y . W w d f 2011 d lld
cl l f , fqly fd Nl Ac Pl
(A Nw 2011; PA. 2011).
D ly l d d f l d dl l
, A w qcly fcl w EU (E.
2010). Wl EU ll fll f d cy d C,
R w ldy fcl f A, yd -f l ld
CIS. I 2009, R C dd ll w f A w-
R. T C d ly d f -
fc A, cd f S w dd f
A (Aw 2011; E. 2010, 2011, 2011). Fllw c cc f
2011, dcld d cc d d dc w
R (Mdx 2011). T lcc d 2011, wll
y l cl d cc dc, w, l d
A f c-cc w cy. T c dd
fc dl-d w A d ld , d c f
cl c. A fllw d dc, A w cly w y cc
dw 2009 G (see Figure 2).
15 Iw w cl f S M Sc f RA Y, A, Oc 2010.
16 Iw w cl f S M Sc f RA Y, A, Oc 2010.
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You Make Us Do What We Want | 21
F 2: Rl GDP Gw R
Lw, c y cly dcd 2009 (Wld B 2011), ll cc
c l dcd w f A d. Wl w d clly
d ll d wly l A d cd c w c, d
70 c f A l d ld c c y -
cl c (Bl Tf Idx 2008; Il L Oz 2008; T l.
2005). T dc c y 2009 c cd cc d cl f
cy. T C , f wc A cly ld c
y 2009, w cdd cc d cl f A
(Gy 2011). S f cl l ld ll lcl
f c l. P M T Sy lcly jcd cc -
fld , : W c w d, w ld d y l w
, ccl d l ? (E. 2011).
T , c dd y EU d R f d d w f
ld A l d f ly c A, wl
w Nl Ac Pl ld cc f
c f . A , f A R
C P d c ll cc d lcl
l f ll f y, clly cl c. T, ddc w
R dd c EU l f, c d f A dlyd
ll w ENP c d R dd f ddl c f l.
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22 | KFGWorking Paper No. 32 | November 2011
4.2 FromIneratoSelecveCompliance:MigraonPoliciesinGeorgia
Ul 2008, d Pd Ml Sl wd ll f -
-ld lc G. I l w ll ll d, S dl f xl dl f cd l f w, w d
y A . A d l , ly w f f G
d d dy w f c y d c. Clc
c w ENP lc ly d A 2008, w EU clly ld lcy
cdly f fcl , wc w fcd y dc ddl
cdly f R.
Government preferences in Georgia
T R Rl 2003 w f y f ld y f Jc M
Ml Sl d Pl N Bjdz d cflly d f Pd
Edd Sddz, w y ccd f wdd c. I 2004, Ml Sl,
y w-dcd lc w w Pd, ld cl cy f c,
ll l y d cy E-Alc c (Cj 2010:
24). Sl Ud Nl M cqd ld Pl d ly c-d
l f cl cy wly fd d, l cy w w-
fl . I dd, Sl ccflly dcd d G c
Pl f xd dl w. W fllwd w qc f
fly f Adj d ccfl ccdw f y c, wl S O
d Az d d fc dd lc l d f G d l
c d wdd. W l f K Bddz, c G d R
lc, -ll f c w ld w Sl d f 2004
wd. T dl f w ll c dl d cc w,
dld Sl dcl -c d d w d ly wy cld
d G (E Sly I 2010: 9). A ly 2006, Bddz
f wdd G w ll f D B Idx f Wld B
(Wld B 2006). I l R d wd cdly l
cc dl w f 2005 d 2006, d f c G dc
d y c (Hd/L 2007). A l, Bddz z d w d
c f lzd G , cl w ll c f G
cy R (P 2006). A cd l cc f Sl f 2008, ly
dl lc Jy d w w R A y, Bddz w d.
Ud wly fd d Ml Sl d Ud Nl M l-
c ld w f cl lc. T w f ll d
w f G ly Sl ccfl l d cly
lc A. Y, G d l xly 20 c f l f
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24 | KFGWorking Paper No. 32 | November 2011
Ul l 2009, ll w d cly w ENP lc G. P
ll EC readmission agreement G d N 2009 fw ll d -
w ddl w d. F w lc w Swzld,
U, Bl, Ily d Gy (Il Oz f M 2008: 12), wl - w Ily w ld (G f G 2009). I dd, G dd d
l c l d yl. T My c f cd f
lc, My f Rf d Accd 2008, lly wd d c l,
wc w l cd y IOM. Hw, d w cdd y d
dd l l.17 Fllw f IO d l x, d lc
f w cdd , lcd wfl dc
d w l d.18 Sld l d lc f lcy d
f ll dlf l l w G
d cy (Cl G 2010; E Sly I 2010). O cl cy l
d w ly cld G, d EU fc
l ll.19 T My f Rf d Accd d c
w G d ly ll EU . I ld f TAIEX jc l
(E C 2011), wc f IOM G lly clld
w f y.20 Cc c f dc cy, G d ll
l 2008. Wl A d ldy dd l dc cy d cld w c-
l dd, G fld d f 2008. I ll, ld w d
lcy f, c ly lc f f G d d d-
c f G w d ly .
Y, G d cly d d f ly fcl w EU, -
w l w ll d f ly d E-Alc f
. A fc cly d G dd f fcl d
f fc EU d R d ldy fcd ll fcl 2007.
A R dd l G -wy , G
cdd EU-R dc c f y
fcld l EU f cc R z (Gl 2008). Hc,
c f R fcd ddl c f lcy cdly. V fcl-
w dd d w l c l y ll
17 Iw cdcd w EU cl E Dl G Tl, G, Oc 2010;
Iw cdcd w f G c f Il Oz f M
Tl, G, Oc 2010.
18 Iw cdcd w f G c f Il Oz f M
Tl, G, 10/2010; Iw cdcd w cl Oc f S M f E-
Alc I f Rlc f G Tl, G, Oc 2010.
19 A xl, w d y E U ll l-
d wy. () T , w w w. (Iw w f Cc
I f Dl Tl, G, Oc 2010).
20 Iw cdcd w f G c f Il Oz f M
Tl, G, Oc 2010.
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You Make Us Do What We Want | 25
G l y. R ld c f fcl d f
l y d ddd lc ll c f fcl. Wl G -
fqly d d , y ll cd lc l
f dc cy d ll l 2008 (EC 2008), c c f fcl f EU w cd y cc -
d f E C .
T cd w w R A 2008. Fllw c- , EU
dd wdd G w d fcl. T d w xlcly
l f cc d d d qly R d G cz, ccl-
f Exdy E Ccl 2008 dcd (RAPID 2008). T EU clly ld
fcl f EC d d dc f c
-l c f fcl.21 I 2008, Fc F, EU-C
f Jc, Fd d Scy clld f dc f c G 2009
f fcl (Il Oz f M 2008), wl c c
f EC d d fcl d lzd f l (T/
K 2008).
G qly d w d document security. T cy cd w l-
, Cl Ry Acy f G, d dc Al 2010 d
y cl c f EU d ENPI ll (Cl Ry Acy G 2011;
Kzl 2010). R f Cl Ry Acy d dc f c
w d cdly EU d fcl c.22 Hw, EC
readmissionnegoaons, wc w d fcl , ll
fcd dc cl G ly ll lcy. T EC d l
fw ll d cy l d dd c G, f dc wd
y d G f. A d y f G d EU -
, l d cc f G d, ll f G
cd ly f d l d ly d cy f .23
T cld wd dw y G l dc ly ld
d cy l w ld ld ly dd f G dd
c.24 T w ccflly d 17 J 2010, w fcl
w d (RAPID 2010). Clc d lc, d fc G dd -
d dc c , d wd-dw d d f
fld l c l .
21 Iw w cl f EU d My f F A f G Tl, G, Oc
2010.
22 Iw w cl f Cl Ry Acy f My f Jc f G Tl, Oc
2010.
23 Iw w cl Oc f S M f E-Alc I Tl, G, Oc
2010; Iw w cl f E C, DG H A, Bl, Bl, A 2011.
24 Iw w cl f Oc f S M f E-Alc I Tl, G, Oc
2010.
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26 | KFGWorking Paper No. 32 | November 2011
R, d f dc ddl cdly fcl c, w
ll d y G fc ly f qc EU . T G
d EU ly ld EU lcy d G [c!] c -
EU lcy l d d cd (Sdl 2007) d clld f d f EU-G fcl. T ccd w d
llz. T S M f E-Alc dcly ccd EU f d G
y y llz G R:
We are not complaining. But we are warning our friends that it would be very unwise to give Russia
visaliberalisaonbeforeus-notbecauseweareagainstitinprinciple,butbecauseofRussiasillegal
passporsaon.ItwouldbeverydamagingforEUspoliciesinsupportofGeorgiasterritorialintegrity
andsovereignty(G Bdz cd : P 2011).
T c dd G w R z dd ly dd l-
cdly f EU w 2008. I l f d f -
cl f l y y EU, c dd y R z l
qd G w ccflly EU . T ly f
c f fcl G w l ld cl d d -
w d c, lcl cc. I ll, cf w
G d R ld d f ddl cdly c cly f
ENP d G d, wl cld d y G c-
cflly EU f qc f G.
5. C
T d q d wc cd ddc w R (d ) c
c f EU l f E Nd. I d dl c f d-
dc w R clc w EU lc G d A dd w
dc cd: fl f dc l d d ENP l, wll
c f lcy cdly y xl c.
I c d cy , d d l f ENP l w fcld y
d c c dd y R d ddd fl f
ENP l d dc . A d c w R ddl -
y l lcy d w cl w ENP c,
wl d A l dc dc cc d lcl
cl c 2009. I G, w, l EU lc w dd w ly
ll c f . Hc, G ld EU l ly
c c f R lc G c -
lc, wc dd f ddl cdly EU dd. Slc clc w -
l lc fcl c w EU w dly d
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d w c f dc lcy cdly f R d l
d l l y. M ly, c f G w ENC c l
l xl c d c EU ccl
c, wc d ccfl c f fcl w EU.
Wl d d cll ll fwd y l xl
c, y c c: c f l d y EU ly
ly d y lzd d f c f EU f lcy
ld y R; f c cly c d c w d lcy
l w w d. I c f c ld, c-cdly d
c-clz c c cc. T d f y y d dd
ddc cl f d f c c, ddd
l y f dc c l cc. T d f -
- c w-d c f xl c c l
dd wy l l d cd f ll ddc, wl d .
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B
Ademmer, Esther/ Brzel, TanjaA.2012: M, Ey d Gd Gc EU E
Nd, : E-A Sd (fc).
Armenian News 2011: A G Ccd M, : ://w.//w/49439:l; ccd Jly 28, 2011.
ArmenianUNAssociaon2009: Rfc f M f My Flw A. Pjc
M, : ./dx.?=c_c&w=cl&d=34&Id=44&l=
; ccd Al 16, 2011.
Armtown2011: H M P G M Plcy, : ://www.-
w.c/w//q/20110318/201103181/; ccd A 22, 2011.
Badurashvili, Irina 2011: O-M f G Mcw d D, : G,Nl/
Sd, T (d.): Tdy M P-S Sc. T C C
Sd, Ff M, 79-122.
Baev, Pavel K. 2004: A R Cd. T Py G Cl A, : Cd Rw fIl A 17/2, 269-283.
BertelsmannTransformaonIndex2008: Wld Dl A Cy R, Gl.
BertelsmannTransformaonIndex2010: A Cy R, Gl.
BertelsmannTransformaonIndex2006: Dld R 2006, Gl.
Boniface,Jrme/Wesseling,Mara/OConnell,Kevin/Ripoll-Servent,Ariadna2008: V Fcl
T f Cl - Ky Ac f ENP, E Pl.
Browning,Christopher/Joenniemi,Per 2008: G f E Nd Plcy, :
E Jl f Il Rl 14/3, 519-551.
Brusis,Marn2005. T Il U f E U Cdly. Rlz Czc
Rlc d Sl, : E E Plc & Sc 19/2, 291-316.
Bugajski,Janusz2010: R Pc Rlz, : Cc Rw f Il A
4/1, 3-19.
Civil Georgia 2011: EU-G V E, Rd T E Fc Mc, : ://
www.cl.//cl.?d=23058; ccd Al 11, 2011.
Civil Georgia 2010: Sl: G Swzld w El f S, : ://www.cl./
/_.?d=22064; ccd Al 16, 2011.
CivilRegistryAgencyGeorgia2011: T F Bc P w d G, : ://www.c.
./dx.?l_d=ENG&c_d=49&f_d=1245; ccd Mc 8, 2011.
Companjen,FrancoiseJ2010: G, : Bc, Dc A/ Pl, Al (d.): T Cl Rl-
F S Rlc Scc d Fl, Ld d Nw Y: Rld,
13-29.
Council of the European Union 2005: 16030/05 N f P R C
Dl C Ac V Fcl, Bl.
Danielyan, Emil2006: A Olc M Bd f Pw w Nw Plcl Py, : E Dly
M 3/9.
Dimitrova,Antoaneta/Dragneva,Rilka 2009: C Exl Gc. Iddc w
R d CIS L EU Rl Tf U, : Jl f E Plc
Plcy 16/6, 853-872.
DutchMinistryofForeignAairs2011: Ty D, : www.z.l//Ky-c/T; c-
cd S 2, 2011.
Easton, David1957: A Ac Aly f Plcl Sy, : Wld Plc 9/3, 383-400.
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7/27/2019 You Make Us Do What We Want! The Usage of External Actors and Policy Conditionality in the European Neighbor
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You Make Us Do What We Want | 29
Epress.am2010: A S f V Fcl Tl w EU, : ://www..//2010/11/27/
--f--fcl-l-w-.l; ccd A 22, 2011.
Epress.am 2010: Ex D Udd W D My I U , : ://www..
//2010/09/30/x-d-dd-w-d-y---.l; ccd
A 22, 2011.
Epress.am 2011: E w Ex f A Cz Fc S, : ://www.
.//2011/01/14/xc--w-x-f--cz--c-
--y-.l; ccd A 22, 2011.
Epress.am 2011: S T Ccl M R H d Rl H? A PM E-
, : ://www..//2011/06/28/--ccl----d-l-
-----.l; ccd A 22, 2011.
Epress.am 2011c: S Ocl Ecd Fd W Ad, : ://www../
/2011/03/18/--cl-cd--d-w-d.l; ccd A-
22, 2011.
European Commission 2005: E Nd Plcy. Cy R A, Bl.
European Commission 2005: E Nd Plcy. Cy R G. Bl.
European Commission 2006: Cc f C Ccl d E
Pl S E Nd Plcy, Bl.
European Commission 2006: Cc f C E Pl d
Ccl. Tc P f C w Td C A f M
d Ayl, Bl.
European Commission 2006c: EU/ G Ac Pl, : ://c..//l/df/
_c_l_.df.; ccd A 22, 2011.
European Commission 2006d: EU/A Ac Pl, : ://c../wld//df/c_
l/___l_.df.; ccd A 22, 2011.
European Commission 2007: Cc f C E Pl, T C-
cl, T E Ecc d Scl C d C f R. O Ccl
M d Mly P w E U d Td C. Bl.
European Commission 2008: Cc f C Ccl d E
Pl. Il f E Nd Plcy 2007 P R A-
, Bl.
European Commission 2008: Cc f C Ccl d E P-
l. Il f E Nd Plcy 2007 P R G,
Bl.
European Commission 2010: S Cc - Gl Cx, : ://c../jc/l-
c/xl/xl_d_cc_.; ccd A 7, 2011.
European Commission 2011: Ow f TAIEX Pjc A 2010, : ://c../-
l/x/dy/x-/dx_.j; ccd Mc 7, 2011.
European Commission 2011: Ow f TAIEX Pjc G 2006, : ://c../-
l/x/dy/x-/dx_.j; ccd Mc 7, 2011.
European Commission 2011c: Tw Nw 22. B C- Tw, : ://
c../d/w/d/w/w_.; ccd Mc 8,
2011.
EuropeanStabilityIniave2010: G L Rl P T. Jc Tl, Bl,
Bl, Il.
EuropeanStabilityIniave2010: Oc G L Rl P . G dl,Bl, Bl, Il.
European Union 1999: P d C A w E C
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30 | KFGWorking Paper No. 32 | November 2011
d M S, f O P, d A, f O P, Bl.
European Union 1999: P d C A w E C
d M S, f O P, d G, f O P, Bl.
Freedom House 2006. N T. Cy R A, : ://www.fd./
l.cf?=47&=388&y=2006, ccd Jly 7, 2011.
Freedom House 2006. N T. Cy R G, : ://www.fd./
l.cf?=47&=402&y=2006, ccd Jly 7, 2011.
Freire,MariaRaquel/Simo,Licnia 2007: T A Rd Dccy. D f T
Pc, : C f E Plcy Sd, CEPS W Dc N. 267.
Frieden,Jery1999: Ac d Pfc Il Rl, : L, Dd A./Pwll, R
(d): Sc Cc d Il Rl, Nw Jy, 39-76.
Gevorgyan, Vardan 2008: P 1 - Plcy f C Il M Rlc f A, :
Zf, L/ Kl, Wfd/ Gy, Vd/ Kd, Tz/ Iy, I (d):
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