152 Andrew Geddes
promoting prosperity in the countries concerned and thereby reducing
the underlying causes of migration f lows (European Council 2002: 10).The Seville Summit concluded that ‘any future cooperation, association or
equivalent agreement which the EU or the EC concludes with any country
should include a clause on joint management of migration f lows and on
compulsory readmission in the event of irregular immigration’ (European
Council 2002: 10). This very clear steer from heads of government at their
Seville meeting was then taken forward by the Commission in its commu-
nication on relations with third countries (CEC 2003). In response to these
conclusions, the Commission produced a Communication that sought to
integrate migration into relations with third countries. The Communication
outlined four key principles (CEC 2003: 4-5):
1 maintain the coherence of external policies and actions through a
comprehensive approach, of which a part is migration and which is
dif ferentiated by country;
2 address root causes;
3 include migration within regional and country strategy papers; and
4 extend additional funding to the area of migration policy and border
secu r it y.
The focus of EU policy was to ‘integrate’ migration issues into EU rela-
tions with non-member states. In this context, migration became a major
strategic priority for the EU. This strategy was developed through regional
and specif ic country strategy papers for MENA countries. These stressed
the importance of including dialogue on migration within current and
future cooperation and association agreements. The following priorities
were identif ied: managing migration and combating traff icking; improving
national legislation; offering migration-related assistance; and facilitating
‘sustainable return’.
The Council of Ministers developed an approach that focused on a num-
ber of areas. The f irst was facilitating what was called ‘brain circulation’ and
encouraging efforts by migrants who want to contribute to their countries
of origin. The EU has displayed a strong interest in temporary and circular
migration. A key issue is the concern held by migrants that, if they leave
the EU, then they will not be able to re-enter. In its 2007 Communication on
Circular Migration and Mobility Partnerships, the Commission raised the
possibility of creating routes for migrants to enter, leave and re-enter and of
linking this to tougher border-control enforcement in sending states (CEC
2007). This has been taken forward within the GAMM and in relations with