THE EUROPEAN UNION'S BORDER CONTROL INITIATIVES

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TAGS: CVIS EU PTEL
SUBJECT: THE EUROPEAN UNION'S BORDER CONTROL INITIATIVES


1. (U) SUMMARY: As the border of the European Union continues
to expand, concern about illegal immigration continues to
increase, and the threat of terrorism remains, the EU is
considering a number of measures to manage and reinforce
their border and its security. Most measures being
considered are contained in DG JLS Commissioner Franco
Frattini's Border Package. Some measures are likely to be
implmented while others may be less likely given Frattini's
May 2008 departure. END SUMMARY


2. (U) European expansion has been ongoing since its
creation, with countries joining the EU on a semi-regular
basis since the first major accession in 1973. The largest of
these expansions was in May 2004 when 10 Eastern European
countries aceded to the Union. Two more, Romania and
Bulgaria, went on to join in January 2007. This level of
growth has resulted in a considerably larger border area,
often in regions that had not maintained the same border
control standards prescribed by the EU.


3. (U) As EU Commissioner for Justice, Freedom and Security,
Franco Frattini put forth a number of proposals designed to
increase security at Europe's new borders. These proposals
were articulated in the February 13, 2008 Commission
Communication on new tools for an integrated European Border
Management Strategy. While Frattini has since departed and
has been replaced by French Commissioner Jacques Barrot, many
of the package's reforms are still under active
consideration. Some of the major tenets of the Frattini
package include:

-- Comprehensive electronic register of travelers' biometric
data
-- Requirements of biometric tests to obtain a visa
-- Implementation of Eurosur, a surveillance system that you
use state of the art technology, including high-resolution
satellites and unmanned aircraft, to monitor remote areas for
movements of migrants
-- Expanded operations involving Frontex
-- A registered Traveler Program for EU citizens

These reforms are expected to be introduced between 2010 and

2015.

Biometric Initiatives


4. (U) In the same February 13 communication, the Commission
articulates the use of biometrics in border control. This is
most evident in the use of biometric passports. These
passports now only use facial recognition technology, but
beginning in 2009 fingerprint information will also be
included in issued passports.


5. (U) Portugal has implemented the RAPID System, which is
the first automated border crossing system and utilizes
facial recognition technology. It is a national system,
currently only available for EU nationals at Portuguese
airports, but there are discussions of expanding the program
beyond Portugal. The program does not require pre-enrollment
and has high levels of interoperability, thus making it an
attractive option for EU-wide implementation.

6. (U) The February 13th communication also anticipates the
implementation of an entry/exit system that records the
fingerprints of traveling third country nationals. Another
biometric initiative that may be used to address this
entry/exit system requirement is the BIO DEV II pilot
project. BIO DEV II is a short term biometric pilot program
being implemented by eight member states. These
participating countries are Austria, Belgium, France,
Germany, Luxembourg, Portugal, Spain and the UK. The primary
objectives of the BIO DEV II pilot project are:
-- To acquire experience in capturing and controlling
biometric data with particular attention to the organization
of diplomatic and border posts.
-- To ensure the interoperability of software and hardware.
-- To ensure the quality of international standards imposed
by the implementation of the EU's Visa Information System
(VIS).
-- To reinforce consular cooperation between the partner
countries through the sharing of means (such as premises,
staff and equipment) at consular posts to capture biometric
data.
BIO DEV II began in early 2007 and will end in July 2008.
However, almost all BIO DEV II countries have decided to
continue their programs after the end of the official pilot
period.

Eurosur

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6. (U) Eurosur, a proposed European border surveillance
system, was outlined in the February 13 communication. Its
main purpose is "preventing unauthorized border crossings,
reducing the number of illegal immigrants losing their life
at sea and increasing the internal security of the EU by
contributing to the prevention of cross-border crime."
Ideally, the system will connect all EU member states and
provide them with the information needed to intercept people
trying to enter Europe who are bypassing regular border
checks.

Frontex


7. (U) Created by EU Council Regulation No 2007/2004 on
October 26, 2004, Frontex is the European agency for the
management of the operational cooperation at the external
borders of the member states of the European Union.
Essentially, this means that Frontex is responsible for
coordinating border control activities between EU Member
States. More specifically, this requires that Frontex:
-- Carry out risk analyses
-- Coordinate operational cooperation
-- Assist member states with border guard training
-- Follow up on developments in border and surveillance
technology research


8. (U) Frontex does not implement border control, but rather
serves as a coordinator and facilitator for EU member states.
The February 13 communication envisions a stronger role for
Frontex, in particular through joint operations with member
states at sea borders.

Registered Traveler Programs


9. (U) Frattini's proposals also included a specific
registered traveler program. The EU is currently exploring a
number of options in this area. Future plans for the
programs are nascent, but the intention to begin exploration
and development of such a program was articulated in the
February 13 communication. However, there are already
instances of bilateral agreements.


10. (U) At a working group meeting, a Frontex representative
cited a number of implementation concerns regarding
Registered Traveler programs. Currently such programs are
limited to EU nationals, and there are a number of necessary
steps before such systems can be expanded to third country
nationals, including a harmonization of requirements,
harmonization of system and the centralization of background
checks for third country nationals.



11. (SBU) COMMENT: Certain EU sources suggest that while the
basic thrust of this border package will continue, the
replacement of Frattini, a relatively law and order force in
the commission, with Barrot, a liberal progressive wary of
the notion of "Fortress Europe," may potentially augur a
slowdown in its implementation.END COMMENT

SILVERBERG
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