Since 29 April, the European Union (EU) has imposed temporary
restrictions on Schengen short-term visas for Ethiopians. These include
prohibiting multiple entry visas, longer processing times, and
eliminating waivers for certain documentary requirements and visa fees.
The European Commission said the action was due
to a “lack of response from the Ethiopian authorities regarding
readmission requests,” and shortcomings in organising “voluntary and
non-voluntary return operations,” (the latter is how the EU describes
deportation).
The restrictions raise concerns about the efficiency and fairness of
the EU’s migration policies. Ethiopia’s Foreign Ministry Spokesperson
Nebiyu Tedla said
the developments were “incompatible with acceptable diplomatic
practices” and asked the EU Council to reconsider the “unfair”
restrictions.
In 2017, the EU and Ethiopia agreed on admission procedures for the
return of Ethiopians from EU countries. Although this agreement was
never made public, a leaked statement revealed that similar arrangements were later made between Ethiopia and Norway and Switzerland.
Since then, two EU-Ethiopia working group meetings and two technical
meetings organised by the EU Commission have taken place to facilitate
implementation of the 2017 procedures. In 2018, the EU and Ethiopia
reached a non-binding agreement on the readmission of Ethiopians without
visas or the legal right to remain in the EU.
In 2019, 1,395 Ethiopians staying illegally in EU member states were
issued return decisions, but only 215 travelled home — an average return
rate of 15%. Member states submitted 985 readmission requests to
Ethiopian authorities, who issued 41 travel documents — an issuance rate
of just 4%.
The overall return rates from the EU are low. Last year, over 83,000 people
were returned to countries outside the EU, which the European
Commission says is a return rate of 19% — not much higher than
Ethiopia’s return rate of 15% in 2019.
Most people residing unlawfully in the EU initially enter through
legal means via airports, but overstay their visas. These numbers far
exceed those who arrive by sea or land seeking asylum or other
opportunities. Only about one in three people ordered to leave the EU do.
Punitive perspectives
If the problem is overstaying, efforts should focus on finding
solutions to this legitimate concern. Instead, the EU’s new measures
unfairly target Ethiopians travelling for legitimate reasons, such as
education, family reunification, medical treatment or business.
Individuals shouldn’t be held accountable for their government’s
actions. Imposing additional hurdles on those who enter the EU legally
doesn’t address the root causes of irregular migration, but punishes
those following the law.
This punitive approach contradicts the principles of good migration
governance and contrasts with the EU’s New Pact on Migration and Asylum,
which advocates for accessible and efficient legal migration channels. Experts say for the New Pact to be effective, the EU must critically re-evaluate readmission agreements to return rejected asylum seekers to their home countries or safe third countries.
These agreements must respect international law, particularly the
non-refoulement principle, which prohibits returning individuals to a
country where they may face persecution, torture or serious harm.
Reintegration measures
The Ethiopian government needs to address the socio-economic costs of
reintegration and protect its emigrants. The country’s growing engagement
with its diaspora for economic and political reasons has influenced its
stance on admitting returnees from the EU. Ethiopia is willing to
repatriate its citizens detained in countries like Saudi Arabia, Yemen
or Libya, viewing their return from inhumane detention conditions as a
humanitarian protection measure.
However, Ethiopian officials don’t see rejected asylum seekers in the
EU who are awaiting deportation as being in similarly dire conditions,
so don’t prioritise
their return on humanitarian grounds. Ethiopian officials also feel the
EU hasn’t offered significant incentives, such as development funding,
as part of its return agenda, so they are less inclined to help with the
return of rejected asylum seekers or irregular migrants.
Cracks in partnership
Even so, why is the EU targeting Ethiopia with these latest restrictions? Past Institute for Security Studies analysis
has suggested that the stance of the African Union and most African
countries is not to accept forced returns. While the EU’s restrictions
could be a tactic to pressure Ethiopia into compliance, it also reflects
a history of significant EU investment in Ethiopia on migration
governance — with minimal results.
The longstanding EU–Ethiopia partnership, including the 2016
Migration Partnership Framework, raised expectations. However, the
framework failed to meet its goals despite substantial EU financial
support. The EU criticised Ethiopia for inadequate returns, while
Ethiopian officials felt the focus on migrant returns overshadowed
broader cooperation.
The new restrictions could indicate a worrying future trend. The EU’s
move is symbolic, demonstrating its resolve in handling non-compliant
countries and setting a precedent. If successful, it could be applied to
other African nations, increasing disparity and leading to a more
fragmented migration landscape.
The European Commission is apparently using visa rules to pressure
countries to cooperate with deportation procedures. This isn’t new —
agreements with Sahelian
countries such as Libya and Tunisia show that the EU rewards countries
that cooperate on migration governance, and penalises those that are
reluctant to comply.
Last July, a European delegation signed a memorandum of understanding
with Tunisia that included measures to combat irregular immigration in
exchange for increased immigration controls and facilitation of
voluntary returns. Between 2014 and 2020, the EU allocated over
€700-million to Libya for the same reasons.
The EU’s migration policies must be consistent, fair and effective.
Rather than resorting to punitive measures, it should engage in
constructive dialogue with Ethiopia to address concerns about irregular
migration and foster cooperation. By aligning its actions with its
stated goals, the EU can promote a balanced, humane migration system
that respects individuals’ rights and supports legal migration pathways.
DM