Transferring Asylum Norms to EU Neighbours: Multi-Scalar Policies and Practices in Ukraine

Preface
Acknowledgements
Contents
List of Figures
List of Tables
1 Introduction
Asylum Norms and Policies
Fundamental Asylum Norms
The European Production of Asylum Norms and Policies
How Asylum Came to Ukraine Without Asylum Seekers
The Political Context in Ukraine and the European Neighbourhood Policy
Transfer of Norms and Policies
Transfer as Multi-Actor Translation and Resistance
Transfer as (Power) Relations and Practices
Multi-Scalar Transfer Practices
Multiple Perspectives and Sources to Grasp the Complexity of Transfer
Written Sources for Macro and Meso Perspectives
Multi-Sited Fieldwork for Micro and Meso Perspectives
Structure of the Book
References
Part I The Legislative Adoption of Asylum Norms in Ukraine: A Process Driven by International Actors
2 An Unfavourable Domestic Context for Asylum Policies
Unwelcoming Treatment of “Non-Traditional” Immigrants: From Soviet Immigration Control to Restrictive Contemporary Ukrainian Immigration Policies
The Soviet Legacy of Xenophobia in Post-Soviet Ukraine
Building up a Ukrainian State and Establishing Selective Immigration Policies
The Low Domestic Prioritisation of Asylum: From Weak Soviet Heritage to Competing Political Priorities in Contemporary Ukraine
Sparse International Asylum Norms Under Soviet Rule
No Public Interest in Asylum
Conclusion
References
3 Norm Transfer into Law: Delaying, Selecting, Translating
Resistance to Norms that Limit the State’s Control Over Its Territory
Prohibition of Refoulement: Shallow and Selective Adoption of a Strong International Norm
The Right to Breach Immigration Laws to Seek Asylum: No Adoption of a Weak International Norm
Narrow, Shallow, and Slow Adoption of Norms Entailing Budgetary Costs
The Right to Social Benefits: Narrow, Shallow, and Slow Adoption
The Right to Work: Early Adoption
Imitation and Translation of Foreign Norms that Fit Domestic Political Interests
The Broad Safe Third Country Provision: Early Imitation
Filing Deadlines: Imitation of Restrictive Instruments from Abroad
The Prohibition of “Impersonation”: Import and Restrictive Interpretation of a European Instrument
Late but Full Adoption of EU Protection Statuses
Conclusion
References
4 Why Adopt International Norms? Legislators Between Contestation and Submission to International Organisations
Norm Promotion by International Organisations in a Context of Lack of Domestic Political Interest in Asylum (1993–2010)
Introducing International Asylum Norms for Their Symbolic Value
Elaborating a First Law on Refugees as a Response to a Public Policy Problem?
The Lack of Legitimacy of the Asylum Norms’ Content in the Verkhovna Rada
The Symbolic Value of International Asylum Norms in the Parliamentary Debates
International Organisations’ Transfer Attempts Between Persuasion, Exchange of Favours, and Monitoring Without Incentives
The Council of Europe Pre-Accession Conditionality and Interactions: Legitimacy Despite Limited Official Focus on Asylum
The Importance of UNHCR Lobbying and Exchange of Favours on the Ground
The Weak Legitimacy of EU Monitoring and Criticism
Deep Adoption of International Asylum Norms: EU Sector-Specific Conditionality (2010–2016)
The Power of EU Sector-Specific Conditionality from 2010 Onwards
The Introduction of an Attractive Incentive into EU-Ukraine Relations
The Increase of the Power of the EU Sector-Specific Conditionality After the Maidan Protests
Power in Practice: Interactions Between EU and Ukrainian Officials
Monitoring to Counter Suspected Resistance
Transmitting the Pressure to Fulfil EU Demands
The Interrelatedness of UNHCR and EU Power
The EU’s Reliance on UNHCR Knowledge Production
UNHCR’s Limited Power on Its Own
UNHCR’s Increase in Power through the Alliance with Other International Organisations
Conclusion
Conclusion to the First Part
References
Part II Transforming State Practices: Norm Promoters’ Multi-Scalar Adaptation to Obstacles
5 Policy Implementation in Practice: Political Power Struggles, Lack of Money, and Street-Level Bureaucrats
Introduction
No Implementation Without State Institutions: Political Power Struggles and Low Political Prioritisation
Migration Officers Between Inaction and Improvisation
Coping with Legal Obstacles and Lack of Information
Coping with the Lack of Resources
Attempts to Control Policy Implementation
EU Conditionality as a Motor for Policy Implementation
Central State Bodies’ Attempts to Control and Standardise Regional State Practices
Street-Level Bureaucrats’ Discretionary Use of the Law: Social Norms, Personal Interests, Moral Judgments, and Emotions
Conclusion
References
6 A Multi-Scalar Transfer Chain: Capital, Control, and Contacts of Norm Promoters
Introduction
Creating and Controlling Domestic NGO Norm Promoters
Seminars as a Vehicle to Spread International Asylum Norms’ Legitimacy
Regular, Personalised Interactions and Their Influence on State Practices
A Heterogeneous, Unstable Transfer Approach
Turning Officials into Horizontal or Top-Down Norm Brokers
From Informal to Formal Influence
An Unsurprising Absence of Bottom-Up Influences
Achieving Formalised Change Through Personal Contacts
Conclusion
References
7 Contentious Approaches to Counter Resistance to Transfer: Multi-Scalar Complaints
Introduction
Complaining to State Brokers at Strategic Positions
Denouncing State Practices Across Scales
Litigation
Causing International Pressure
Conclusion
Conclusion to the Second Part
References
8 Conclusion
Asylum Norms in Ukraine: Which Case of Transfer?
Norm Transfer Despite Disinterest and Resistance Among State Actors
The Absence of “Empowerment” of Domestic NGOs
Smooth Circulation of Norms That Fit Domestic Interests and Beliefs
Studying the Role and Leeway of All Actors Involved in Transfer
Multi-Scalar Analysis of Transfer Processes
Instability, Contingency, and Heterogeneity of Transfer
Asylum Regimes in Western Europe and Ukraine
References
Glossary
Index