The article was written by the Scientific Group on International Relations, based at the Catholic University of Lublin

Introduction 

At the beginning of the second decade of 21^st century, the geopolitical situation in Europe has changed. The eastern borders of the European Union (EU) countries have been affected by the instrumentalisation of migration, which is an element of hybrid warfare. Migrants are used as a foreign policy instrument to influence EU member states. Countries practicing similar actions are Russia and Belarus. The large-scale taken actions have affected the perception of security and the migration situation in Europe in present century. In order to adapt for new challenges, the EU has begun to change its migration and foreign policy. Also, was decided to detect the leading threats at external and internal borders since the intrumentalised migration began. Events on the Polish-Belarusian border after 2020, also the effects of the war in Ukraine from 2022, and the instrumentalisation of migrants on the Finnish-Russian border from 2023 have shaped the current meaning of migration. For the states practising similar actions which are Russia and Belarus the aim is to undermine stability within the European Union and North Atlantic Treaty Organisation (NATO). The aim of this article is to present key moments in the emergence of instrumentalised migration and its impact on EU policy in the 21st century.

The concept of migrant instrumentalisation derives from the use of migrants (persons) as an instrument of foreign policy. Following K. M. Greenhill, the instrumentalisation of migrants at the state level involves several goals, including the strategic use of migrants, asylum seekers to forcibly cross the borders illegal way. For the reason, to influence the geopolitical situation as well as foreign policy. The instrumentalisation of migrants has been recognised as part of hybrid warfare elements often used for the destabilisation of the state. Illegal migration with its given support to migrants creates instrumentalised migration. All kind of support by all means provides the possibilities for illegal border crossing forms. It is seen as a threat to state borders. Artificially created migration influences political decisions, social opinion, security, the economy and the economic aspect of the destination state. The problem of the instrumentalisation of migrants has its roots in the 1950s. At that time, migration was directed towards the United States and created by the bordering countries migration policy (e.g. Cuba, Nicaragua). Which means supporting migrants by regulating them to stay in their territory and to cross the borders. As the Author points out, since the ratification of the Refugee Convention (1951), states and non-state actors have acted on the defining the migrants instrumentalization as a foreign policy instrument around 81 times. However, still the concept and the term of instrumentalization of the migrants was not defined.  It was only in 2015, as a consequence of the Arab Spring, that the migration crisis influenced the perception of migration as a foreign policy instrument. Turkey’s actions are a case at this point. At that time, the EU decided on financial support to stop migration. The Turkish side sought more support than the EU’s allocation. Hence, a joint EU-Turkish action plan was negotiated as a result. Turkey’s position in the international arena at the time needed to obtain more influence once again, due to its fading position in international politics. The migration crisis created an opportunity for the Turkish side in using migration as a foreign policy instrument, although the term instrumentalisation of migrants was not yet used explicitly. The EU’s taken actions to the migration crisis in 2015 was to reform the field of border protection, the qualification of migrants and their relocation within the EU, and a new migration and asylum policy. The basis for the new policy towards the migration crisis was primarily new regulations on legalisation, the reduction of incentives for migrants and effective management of the humanitarian situation. In November 2015, a political declaration was signed at the Valletta Summit on cooperation with the countries where the migratory factor originally occurred. The theme of the summit was related on increasing security in the Mediterranean region. For the enhancement of security in the region, the Frontex Agency and Europol were dedicated. And it was agreed to increase patrolling of the Mediterranean waters of the Turkish coast and the Greek-Turkish border.

Once again, the migration crisis in the EU appeared at the Polish-Belarusian border in 2021. When irregular migration appeared on the eastern borders of the European Union in autumn 2021, it was defined as an instrumentalisation of migrants. The term was used for the first time by Ylva Johansson member of the European Commission. At the same time, Lithuanian Foreign Minister Gabrielius Landsbergis also used the term as the concept new element of hybrid threats. Illegal migration was mainly supported by Belarus, as proven by the Polish Border Guard (Polska Straż Graniczna). The documents disclosed concerned the involvement and activities of Belarusian authorities and travel agencies. Documents were found confirming the stay of foreigners mainly from the Middle East and the African continent. The re-elected President of Belarus, Aleksandr Lukashenko, has not been legitimised by the EU. Internal changes within the state, repression and demonstrations were the reason for the EU to act on this issue. Consequently, sanctions were imposed on President Lukashenko and his son, the propaganda media and the Belarusian authorities. Sanctions also were including trade, travel bans on individuals and the freezing of Belarusian assets and transactions. As a consequence, the Belarusian authorities began using migrants mainly from Iraq, Syria and Afghanistan to undermine the stability of the EU’s eastern borders. By opening the migration route to the EU, the Belarusian authorities encouraged migrants to illegally cross the Belarusian border into Poland, Lithuania and Latvia. The possibility of crossing the internal borders of the EU has consistently emerged, encouraging the expansion of migration to further Member States. The eastern borders of the EU become mainly a transit stage for migrants on their way to their destination, western EU countries, especially Germany. Due to the situation at the Belarus-Poland border in 2021, Poland decided to build a fence on the border with Belarus. The fence on the border supposed to increase the level of border protection and security.

After 24 February 2022, when Russia attacked Ukraine on a large scale, the perception of security in Europe has reshaped. The European Union supported Ukraine, including Poland being the first country to start humanitarian aid and to open its borders for refugees from Ukraine. The strong policy of support for Ukraine, and its manifestations after 2014, were perceived negatively by the Russian Federation. That was the reason for The Russian side to use the elements of hybrid warfare. These elements including disinformation, propaganda and formulated open public statements against the EU and Member States. As a result, there was an instrumentalisation of migrants artificially created by the Russian Federation on the Finnish-Russian border in 2023. The length of the border, which is approximately 1340 km has the hard geographic location, harsh climate and terrain. For this reason, it caused several challenges for refugees and border guards. The reason for the use of hybrid warfare elements is the entry of Finland and Sweden into NATO and the ongoing policy of support for Ukraine. According to the Russian Federation, the expansion of the alliance to include the eastern borders in the north has a strictly negative impact on its security. As a Russian side expresses that Finland’s membership of the EU and NATO causes a security threat in the region for Russia and its allies. However, the Russian side denies the activity of instrumentalising migrants, which contradicts its foreign policy and public rhetoric.

Confirmation of the aforementioned is provided by photos published in 2023 on online portals of migrants crossing the Russian-Finnish border on bicycles. The vehicles (bicycles) were sold to migrants at the Russian border in order to cross the border by transport rather than on foot. As a legislation defined the legal border crossing only if on the vehicle. In 2015, migrants also used bicycles to cross the Russian-Finnish border and later abandoned them outside the border. Therefore, Finnish Border Guard started humanitarian assistance. Due to climatic conditions, there was a need for medical assistance. It was discovered by the Border Guard revealed information about migrants. According to provided information migrants who been involved in trials and had been prosecuted were crossing the border illegally. Furthermore, they were forcibly transported to the destination country for illegal migration. The Finnish authorities took actions to stabilize the situation in the border region by closing the borders with the Russian Federation. However, it was still left open to those in need to obtain asylum by air and sea. This has changed in mid-April 2024, when the Finnish government decided to close the maritime borders with Russia at Haapasaari, Nuijama and Santio points.

EU migration policy has been transformed since the instrumentalisation of migrants became present at its external borders. Conditions of entry were rechanged, and the field of external border protection was improved. In 2024, the EU decided to reform the migration process, also addressing the issue of asylum. Its first proposals were in September 2020. The agreement, among other things, deepens the principle of solidarity among member states and increases the efficiency of action in the migration field. The reform concerns new conditions for admission of migrants, qualification and relocation within the EU. Also, countermeasures included the control of external borders and the monitoring of the situation in fragile regions. It supposed to identify and effectively used to protect the borders. The EU has decided to authorise The Frontex Agency (Agencja Frontex). The agency is seen as an effective instrument in the protection of external borders, including coastal borders. In the situation with Finland, the general support provided by Frontex was aimed to increase border protection. The Frontex has published in its report of 20 March 2024, points to reduce effect of the challenge of migration to the EU. It presents the key points including internal EU cooperation, improved border protection cooperation, actions against cross-border crime, advanced control on potentially posing risk for security people and threats.

Conclusions

Following the start of the Russian Federation’s invasion of Ukraine in 2022, the security of the EU’s external borders has taken on increased importance. The ongoing hybrid warfare by Russia and Belarus, creates threats and challenges for the external borders of EU countries and NATO’s eastern flank. The situation on the Finnish-Russian border in 2023, earlier Polish-Belarusian from 2020 has definitely impacted on the security of the countries it was aimed on. The use of migrants for strategic purposes forms distinct social and public opinions. Above all, the actions taken are seen as a way to influence political decisions, also foreign and security policies of the Member States at the eastern external borders of the EU.

Fot. Unsplash

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