THE STATE OF THE EUROPEAN UNION REPORT. Europe in a period of transition

THE STATE OF THE EUROPEAN UNION 106 However, solidarity will be based on relocation or on “return partnerships”, and economic and technical con- tributions designed to strengthen capacities and provide operational support for migration management will be applied under specific circumstances.Through the “return partnerships” Member states will collaborate by provid- ing the technical or economic support required to ensure that returns are effective. The Commission has defended this framework of solidarity and shared responsibility in terms of the exist- ence and need for shared trust through solid governance and monitoring of implementation. However, it should be noted that since 2016 the Commission has advocat- ed, as an objective of reform of the Common European Asylum System, moving “towards a fully efficient, fair and humane asylum policy – one which can function effectively both in times of normal and in times of high migratory pressure”. The European Commissioner for Immigration at the time (Avramopoulos) argued that the objective was “to have a common system which is quick, efficient and based on harmonised rules and mutual trust between Member states.” None of the documents proposed by the Commission in its Agenda on migration in 2015 and 2016 were approved during the preceding legislature. The reform of the Regulation on a European Border and Coast Guard (Frontex), adopted by the Council in Novem- ber 2019, is the only measure that has been subject to final agreement between the European Parliament and the Council. The Commission views the new rules on asylum and return as an opportunity to strengthen guarantees and the protection of children, and states that the needs of children will be taken into account at every stage, provid- ing alternatives to detention, promoting speedy family re- unification, and ensuring the right to be heard. They will be granted rapid access to education and integration ser- vices. Early identification of victims of trafficking, which particularly affects women and girls, will be a priority. However, we believe that this common framework for the management of migration and asylum starts from the wrong place, based as it is on the establishment of an effective shared system of returns, building on the pro- posed 2018 reform of the Returns Directive.The proposal is to construct a shared European returns system which combines structures within the EU with greater cooper- ation with countries of origin and transit with respect to returns and readmission, in which Frontex will maintain a leading role in the issue of returns. Voluntary return is also a strategic objective. 2. A solid, robust system to prepare for and respond to crises The Pact proposes a Migration Preparedness and Crisis Blueprint based on providing a coordinated preventive rather than reactive response, which will establish tem- porary, extraordinary measures for crises. It will enable Member states to respond to situations of crisis and force majeure, and will establish a mechanism to provide im- mediate protection and to strengthen solidarity on the basis of the new Regulation on Asylum and Migration Management. The Temporary Protection Directive will be repealed and a new regulation approved, establishing new mechanisms to grant immediate international pro- tection in crisis situations. 3. Integrated border management The Pact advocates making management of the EU’s ex- ternal borders more efficient: a document will be establis- hed for a pluri-annual political strategy framework and implementation cycle for the first half of 2021, setting out a strategic framework for all the main stakeholders at European and national level in the management of borders and returns. With respect to search and rescue operations, it advocates a more predictable solidarity sys- tem for disembarkation, more support from Frontex, and cooperation and coordination between Member states. At the same time, the Commission will present a strategy