The eu’s miGrATion relATions wiTh menA counTries 157
measures to facilitate circular migration, which research suggests could
possess signif icant development potential. However, as has already been
noted, the dilemma for EU member states is not whether they pursue a policy
of migration as risk or migration as danger. In their policies – linked as they
are to states and their borders – migration is understood as both a risk and
a danger. States decide through their policies, as Zolberg (1989) put it, how
high to build the walls and how widely to open the small doors in those
walls. This is a long-standing policy dilemma; the point is that it now plays
out at EU level, too. Finally, these issues and debates play out within the EU’s
multi-level system of governance, with tensions between ‘danger’ and ‘risk’
evident in member-state policies and EU action. This is no surprise because
these are the tensions apparent within the domestic politics of migration
in many EU member states. This chapter has attempted to show how, why
and with what effects these issues have now acquired an EU resonance, and
that analyses of migration and asylum policies in Europe need to factor in
the impact of the developing EU migration and asylum framework.
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