The article accounts for the emergence of an external dimension of EU internal policies and focuses on the migration, asylum and border management domains. Building on Bretherton & Vogler (2006), it assesses and explains the forms and extent of EU’s external engagement. Firstly, it assesses the degree of EU actorness – that is, the extent to which the Union has become an actor in global politics - in the researched fields in terms of opportunity, presence and capabilities. Secondly, it attempts to explain the emergence of such EU external engagement. While the article defends that the treaty objective of creating an European Area of Freedom, Security and Justice (article 3 TEU) makes EU external action in the migration, asylum and border control domains necessary, it also acknowledges the role of external triggers, such as the so-called 2015 ‘migration and refugee crisis’. On the one hand, external events can provide scope conditions accelerating the pace by which EU external action is pursued. On the other hand, they can also trigger the comeback of hard security concerns linked to claims for ‘more national sovereignty’, thus constraining the development of EU (external) action. The analysis carried out shows that the degree of EU actorness varies considerably across the three domains researched. On one extreme of the continuum, neo-realist understandings of increased arrivals of foreign citizens as hard security challenges to member states account for the enhanced interest in cooperation at the intergovernmental level. Such interpretations explain why the most established domain for EU external engagement is the cooperation with third countries on border management, as it is shown by the expansion of the mandate of EU agencies such as Europol and Frontex, or by negotiation by the European Commission of international agreements containing clauses on readmission of third country citizens irregularly residing in the EU to their countries of origin (the Mobility Partnerships). Less developed, yet quickly evolving, is the EU external dimension of migration policies. Functional concerns related to the need to acquire highly specialized (and relatively cheap) workforce towards an efficient functioning of the single market have prompted a remarkable the law-making in this area, as shown by the EC directives and regulations aimed at third country students, unpaid trainees, voluntary workers and big corporations’ staff. While the neo-functionalist logic explains the emergence of the external dimension of EU migration policies, it may also explain this development is currently limited to certain areas within the policy area. A comprehensive approach to migration policy has not proved possible to achieve so far, due to institutional and bureaucratic limitations, as well as the different agenda of national policymakers. On the other extreme of the continuum, liberal theories and constructivism account for the constraints currently limiting the full development of EU actorness in asylum policies. Several member states’ civil societies do not perceive prospects for absolute gains deriving from cooperation at the EU level. Constraints to the establishment of international institutions regulating asylum policies are thus understood through the lack of strong societal pressures at the member states level. Therefore, while the article puts forward a combination of neo-functionalist, neo-realist, liberal intergovernamentalist and constructivist explanations to account for the emergence of an external dimension of migration asylum and border management policies, as wells as for the obstacles opposing that process, it also provides evidence that external triggers such as increased migratory pressure lead to internal policy dynamics with positive or negative impacts on the shift of actorness from EU member states to the EU itself. DOI: http://dx.doi.org/10.5755/j01.eis.0.11.18956

中文翻译：

---

E PLURIBUS UNUM？危机时期的欧盟移民，避难和边境管理政策的沟通

这篇文章解释了欧盟内部政策外部维度的出现，并着重于移民，庇护和边境管理领域。它以布雷瑟顿和沃格勒（Bretherton＆Vogler，2006）为基础，评估并解释了欧盟对外参与的形式和程度。首先，它从机会，存在和能力等方面评估了欧盟在研究领域中的行动者程度，即欧盟在全球政治中的作用程度。其次，它试图解释这种欧盟外部参与的出现。该条款辩称，建立欧洲自由，安全与司法区的条约目标（第3条TEU）使欧盟在移民，庇护和边境控制领域中必须采取外部行动，但也承认外部触发因素的作用，例如所谓的2015年“移民与难民危机”。一方面，外部事件可以提供范围条件，加快欧盟采取外部行动的步伐。另一方面，它们也可能引发与“更多国家主权”主张相关的坚决安全关切的卷土重来，从而限制了欧盟（外部）行动的发展。进行的分析表明，欧盟行为的程度在所研究的三个领域中差异很大。在一个连续的极端中，新现实主义对外国公民的到来日益增加的理解是对成员国的严峻安全挑战，这说明了政府间一级对合作的浓厚兴趣。这样的解释解释了为什么欧盟对外参与最成熟的领域是与第三方国家在边境管理方面的合作，正如扩大欧洲刑警组织和Frontex之类的欧盟机构的职权范围，或通过欧洲国际委员会的谈判所表明的那样。协议，其中载有关于非常规居留在欧盟的第三国公民回其原籍国的条款（流动伙伴关系）。欧盟移民政策的外部因素是欠发达，但发展迅速。与需要获得高度专业化（且相对便宜）的劳动力以实现单一市场有效运作有关的功能性顾虑，促使该领域的立法显着，如针对第三国学生的EC指令和法规所示，无薪实习生，志愿人员和大公司员工。新功能主义的逻辑解释了欧盟移民政策外部维度的出现，也可能解释了这种发展目前仅限于政策领域内的某些领域。由于体制和官僚主义的限制，以及国家政策制定者的不同议程，迄今为止，证明对移民政策采取全面方法是不可能的。另一方面，自由主义理论和建构主义是当前限制欧盟庇护政策全面发展的制约因素。几个成员国的公民社会并不认为从欧盟一级的合作中获得绝对收益的前景。因此，通过在成员国一级缺乏强大的社会压力，可以理解建立限制庇护政策的国际机构的障碍。因此，尽管该文章提出了新功能主义，新现实主义，自由主义政府主义和建构主义的结合，以解释移民庇护和边界管理政策的外部层面的出现，以及反对该进程的障碍，它还提供了证据，表明外部因素（例如移民压力的增加）会导致内部政策动态变化，从而对行为体从欧盟成员国向欧盟本身的转变产生积极或消极影响。DOI：http：//dx.doi.org/10.5755/j01.eis.0.11.18956 自由主义的政府主义者和建构主义的解释，说明了移民庇护和边境管理政策的外部层面的出现，以及反对这一进程的障碍，它还提供了证据，表明外部因素，例如移民压力的增加导致内部政策的动态化。对从欧盟成员国到欧盟本身的行动转变的正面或负面影响。DOI：http：//dx.doi.org/10.5755/j01.eis.0.11.18956 自由主义的政府主义者和建构主义的解释，说明了移民庇护和边境管理政策的外部层面的出现，以及反对这一进程的障碍，它还提供了证据，表明外部因素，例如移民压力的增加导致内部政策的动态化。对从欧盟成员国到欧盟本身的行动转变的正面或负面影响。DOI：http：//dx.doi.org/10.5755/j01.eis.0.11.18956