Monitoring the debate on the new pact on migration and asylum
DOI:
https://doi.org/10.55312/op.v13i2.371Abstract
The New Pact on Migration and Asylum presented by the European Commission on 23 September 2020 aimes at representing a new start with regard to the whole of issues related to the management of the challenges posed by migrants, refugees and asylum seekers arriving in the European Union. High expectations were raised that the reform would truly address the pressing questions that are high on the political agenda in many European countries. The New Pact has provoked a controversial debate. International organizations, European institutions, Member States, civil society organizations, academics have commented the complex package of policies and legislative proposals. One of the most conflictive issues regard the external dimension in the migration and asylum fields. Some observers, in particular Governments and the Council, deem that the cooperation with third countries of origin and of transit or first safe haven represents an essential aspect of solution, having regard to the “success” of the agreements with Turkey and Libya in terms of the reduction of arrivals from these countries. Others are most critical with respect to the “externalization” of responsibilities and of the control of external borders. Another conflictive issue is the reform of the “Dublin” system, addressed in the Pact as part of the Regulation on Migration and Asylum Management. The Mediterranean Member States oppose the continuing attribution of responsibility for asylum seekers to countries of first arrival and the insufficient solidarity mechanisms. Other Member States refuse any obligation of accepting asylum seekers relocated from other Member States. For the time being, no solution is in sight to overcome these divergencies.
Parole chiave:
Asylum, Dublin System, External Dimension, Legal Pathways, Migration, Principle of Solidarity.Downloads
Riferimenti bibliografici
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(1) U. VON DER LEYEN, Cited from the European Commission’s Press Release, A Fresh Start on Migration: Building Confidence and Sharing a New Balance Between Responsibility and Solidarity, 23 September 2020, available at www.ec.europa.eu/commission/presscorner/detail/en/ip_20_1706.
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(2) UNHCR, UNHCR and IOM Call for a Truly Common and PRINCIPLED approach to European Migration and Asylum Policies, 22 September 2020, available at www.unhcr.org/news/press/2020/9/5f69deff4/unhcr-iom-call-truly-common-principled-approacheuropean- migration-asylum.html; UNHCR, Asylum seekers subject to systematic pushbacks at European border, 28 January 2021, available at www.news.un.org/en/story/2021/01/1083192.
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(3) Among many others, see the comment of the European Council on Refugees and Exiles (ECRE), The JHA Council on Afghanistan: all about Europe, 3 September 2021.
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(4) See Council (Justice and Home Affairs), Statement on the situation in Afghanistan, No. 11385/21, 31 August 2021, available at www.data.consilium.europa.eu/doc/document/ST-11385-2021-INIT/en/pdf.
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(5) F. GRANDI in his intervention at the hearing of the LIBE Committee of the European Parliament, 27 May 2021.
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(6) Communication from the EU Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions on a New Pact on Migration and Asylum, 23 September 2020, COM(2020) 609 final.
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(7) M. SCHINAS at a Webinar on 22 April 2021 on the New Pact, organized by the King´s College of London and the British Institute of International and Comparative Law, available at www.biicl.org/events/11486/eu-pact-on-migration-and-asylum-conversation-with-european-commissionvice- president-schinas.
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(8) Citation from E. ZALAN, Commissioner: No One Will Like New EU Migration Pact, in euobserver, 18 September 2020, available at www.euobserver.com/migration/149475.
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(9) European Commission’s Press Release, The EC Reveals Its New EU Action Plan on Integration and Inclusion (2021-2027), 24 November 2020, available at www.ec.europa.eu/migrant-integration/news/theec- presents-its-eu-action-plan-on-integration-and-inclusion-2021-2027; European Commission’s Press Release, Migration Management: New EU Strategy on Voluntary Return and Reintegration, 27 April 2021, available at www.ec.europa.eu/commission/presscorner/detail/en/ip_21_193.
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(10) European Economic and Social Committee’s Opinion (Optional), A New Pact on Migration and Asylum, 27 January 2021, SOC/649-EESC-2020, available at www.eesc.europa.eu/en/our-work/opinionsinformation- reports/opinions/new-pact-migration-and-asylum.
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(11) European Council on Refugees and Exiles, ECRE Comments on the Commission Proposal for a Regulation on Asylum and Migration Management, February 2021, COM(2020) 610 2020/0279 (COD).
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(12) European Council, Conclusions – 24 and 25 June 2021, 25 June 2021, EUCO 7/21, available at www.consilium.europa.eu/media/50763/2425-06-21-euco-conclusions-en.pdf.
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(13) F. GRANDI at the hearing of the LIBE Committee of the European Parliament on the New Pact, 27 May 2021.
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(14) See supra, note no. 4.
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(15) Ibid.
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(16) See on the EU´s external action under the aspect of the EU´s values: C. HEIN, L´azione esterna dell´Unione europee in materia di migrazioni alla luce dei valori comuni, in E SCISO, R. BARATTA, C. MORDIVUCCI (eds.), I valori dell´Unione europea e l´azione esterna, 2016, pp.170-185.
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(17) Proposal of 23 September 2020 for a Regulation of the European Parliament and the Council introducing a screening of third country nationals at the external borders and amending Regulations (EC) No 767/2008, (EU) 2017/2226, (EU) 2018/1240 and (EU) 2019/817, COM (2020) 612 final.
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(18) See L. JAKULEVIČIENNE, Re-Decoration of Existing Practices at the EU External Borders, in eumigrationblog.eu, 27 October 2020.
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(19) Ibid.
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(20) Amended Proposal of 23 September 2020 for a Regulation of the European Parliament and the Council establishing a common procedure for international protection in the Union and repealing Directive 2013/32 EU, COM (2020) 611 final.
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(21) See, among others, J. VEDSTEDT-HANSEN, Border Procedures: Efficient Examination or Restricted Access to Protection?, in D.THYM, Special Collection on the 'New' Migration and Asylum Pact for eumigrationblog.eu, of 18 December 2020; J. CASSARINO, L. MARIN, The New Pact on Migration and Asylum: Turning European Union Territory into a non-Territory, in EU Law Analysis, 30 November 2020, available at www.eulawanalysis.blogspot.com/2020/11/the-new-pact-on-migration-and-asylum.html.
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(22) E. VAN DE RAKT, Erik Marquardt MEP: “Migration Management Has Become a Euphemism for Repelling Refugees”, in Heinrich Böll Foundation, 12 October 2020, available at www.eu.boell.org/en/2020/10/12/erik-marquardt-mep-migration-management-has-become-euphemismrepelling- refugees?dimension1=zora2020.
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(23) European Council on Refugees and Exiles, Joint Statement: The New Pact on Asylum and Migration: An Opportunity Seized or Squandered?, 14 February 2020, available at www.ecre.org/joint-statement-thenew- pact-on-asylum-and-migration-an-opportunity-seized-or-squandered/.
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(24) Proposal of 23 September 2020 for a Regulation of the European Parliament and of the Council on asylum and migration management and amending Council Directive (EC) 2003/109 and the proposed Regulation (EU) XXX/XXX [Asylum and Migration Fund], COM (2020) 610 final.
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(25) A. MERKEL, Declaration made at the Western Balkan Conference, 27 August 2015; Merkel has made an identical declaration 3 years later, on 11 August 2018, widely reported by the media.
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(26) See European Council on Refugees and Exiles, Asylum at the European Council 2018: Outsourcing or Reform. Policy Paper, Brussels, 2018.
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(27) See G. BORSA, Dublin and Asylum: No Agreement (for Now). Why Did the Reform Came to a Standstill?, in Sir Agenzia d’informazione, 6 June 2018.
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(28) European Council’s Press Release, EU-Turkey Statement, 18 March 2016.
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(29) Proposal of 23 September 2020 for a Regulation of the European Parliament and the Council addressing situations of crisis and force majeure in the field of migration and asylum, COM (2020) 613 final.
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(30) See in particular: E. GUILD, C. COSTELLO, M. GARLICK, V. MORENO-LAX, Enhancing the Common European Asylum System and Alternatives to Dublin. Study for the LIBE Committee, Brussels, 2015; F. MAIANI, The Reform of the Dublin III Regulation. Study for the LIBE Committee, Brussels, 2016.
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(31) M. DI FILIPPO, The Reform of the Dublin System and the Need to Go Beyond a Simple Restyling: A Possible Negotiation Strategy for Italy. Policy Brief, Pisa, May 2017; ID., The allocation of competence in Asylum Procedures under EU Law: The Need to Take the Dublin Bull by the Horns, in Revista de Derecho Comunitario, No. 59, 2018, pp. 41-95.
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(32) Committee on Civil Liberties, Justice and Home Affairs, Report of 6 November 2017 on the proposal for a regulation of the European Parliament and of the Council establishing the criteria and mechanisms for determining the Member State responsible for examining an application for international protection lodged in one of the Member States by a third-country national or a stateless person, COM(2016)0270,
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C8‑0173/2016, 2016/0133(COD). (33) 5 EU States Urge Others to Take in More Migrants, in Deutsche Welle, 20 March 2021, available at
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www.dw.com/en/5-eu-states-urge-others-to-take-in-more-migrants/a-56940912.
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(34) Italian embassy to Greece, Il ministro Lamorgese ad Atene per il "Med5" insieme ai ministri dell’Interno di Cipro, Grecia, Malta e Spagna (19-20 marzo 2021), 24 March 2021, available at www.ambatene.esteri.it/ambasciata_atene/it/ambasciata/news/dall-ambasciata/2021/03/il-ministrolamorgese- ad-atene.html.
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(35) Governo, il testo integrale del discorso di Mario Draghi al Senato, in La Repubblica, 17 February 2021, free translation from Italian; see also, Communication of President M. DRAGHI to the Chamber of Deputees on the European Council, 23 June 2021
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(36) N. MITARACHI, in his intervention at the LIBE hearing of 27 May 2021.
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(37) Corte di Giustizia, judgment of 2 April 2020, joined cases C-715/17; C-718/17; C-719/17, European Commission v. Republic of Poland and Others.
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(38) Press Release by the Maltese Ministry for Home Affairs and National Security, Malta Ministerial Meeting on Migration – A Further Step Towards Solidarity, 23 September 2019, available at www.gov.mt/en/Government/DOI/Press%20Releases/Pages/2019/September/23/pr191984.aspx.
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(39) European Commission, Delivering on Resettlement, 16 October 2019.
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(40) Commission Recommendation (EU) 2020/1364 of 23 September 2020 on legal pathways to protection in the EU: promoting resettlement, humanitarian admission and other complementary pathways, C/2020/6467, in OJ L 317 of 1 October 2020, pp. 13-22.
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(41) Community of Sant'Egidio, Humanitarian Corridors in Europe. Dossier: Humanitarian Corridors in Italy, France, Belgium and Andorra, the Principality of Monaco, 25 September 2019, available at www.santegidio.org/downloads/Dossier-Humanitarian-Corridors-DEF.pdf.
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(42) Mediterranean Hope, Humanitarian Corridors: An Italian Model for the EuropeanUnion, 30 October 2019, available at www.mediterraneanhope.com/2019/10/30/humanitarian-corridors-an-italian-model-forthe- european-union-2/.
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(43) A. GUERRIERI, L'esodo degli ultimi. Corridoi umanitari, parte un nuovo protocollo con la Libia, in Avvenire, 17 June 2021, available at www.avvenire.it/attualita/pagine/corridoi-umanitari-parte-un-nuovoprotocollo- con-la-libia.
Riferimenti bibliografici
(1) U. VON DER LEYEN, Cited from the European Commission’s Press Release, A Fresh Start on Migration: Building Confidence and Sharing a New Balance Between Responsibility and Solidarity, 23 September 2020, available at www.ec.europa.eu/commission/presscorner/detail/en/ip_20_1706.
(2) UNHCR, UNHCR and IOM Call for a Truly Common and PRINCIPLED approach to European Migration and Asylum Policies, 22 September 2020, available at www.unhcr.org/news/press/2020/9/5f69deff4/unhcr-iom-call-truly-common-principled-approacheuropean- migration-asylum.html; UNHCR, Asylum seekers subject to systematic pushbacks at European border, 28 January 2021, available at www.news.un.org/en/story/2021/01/1083192.
(3) Among many others, see the comment of the European Council on Refugees and Exiles (ECRE), The JHA Council on Afghanistan: all about Europe, 3 September 2021.
(4) See Council (Justice and Home Affairs), Statement on the situation in Afghanistan, No. 11385/21, 31 August 2021, available at www.data.consilium.europa.eu/doc/document/ST-11385-2021-INIT/en/pdf.
(5) F. GRANDI in his intervention at the hearing of the LIBE Committee of the European Parliament, 27 May 2021.
(6) Communication from the EU Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions on a New Pact on Migration and Asylum, 23 September 2020, COM(2020) 609 final.
(7) M. SCHINAS at a Webinar on 22 April 2021 on the New Pact, organized by the King´s College of London and the British Institute of International and Comparative Law, available at www.biicl.org/events/11486/eu-pact-on-migration-and-asylum-conversation-with-european-commissionvice- president-schinas.
(8) Citation from E. ZALAN, Commissioner: No One Will Like New EU Migration Pact, in euobserver, 18 September 2020, available at www.euobserver.com/migration/149475.
(9) European Commission’s Press Release, The EC Reveals Its New EU Action Plan on Integration and Inclusion (2021-2027), 24 November 2020, available at www.ec.europa.eu/migrant-integration/news/theec- presents-its-eu-action-plan-on-integration-and-inclusion-2021-2027; European Commission’s Press Release, Migration Management: New EU Strategy on Voluntary Return and Reintegration, 27 April 2021, available at www.ec.europa.eu/commission/presscorner/detail/en/ip_21_193.
(10) European Economic and Social Committee’s Opinion (Optional), A New Pact on Migration and Asylum, 27 January 2021, SOC/649-EESC-2020, available at www.eesc.europa.eu/en/our-work/opinionsinformation- reports/opinions/new-pact-migration-and-asylum.
(11) European Council on Refugees and Exiles, ECRE Comments on the Commission Proposal for a Regulation on Asylum and Migration Management, February 2021, COM(2020) 610 2020/0279 (COD).
(12) European Council, Conclusions – 24 and 25 June 2021, 25 June 2021, EUCO 7/21, available at www.consilium.europa.eu/media/50763/2425-06-21-euco-conclusions-en.pdf.
(13) F. GRANDI at the hearing of the LIBE Committee of the European Parliament on the New Pact, 27 May 2021.
(14) See supra, note no. 4.
(15) Ibid.
(16) See on the EU´s external action under the aspect of the EU´s values: C. HEIN, L´azione esterna dell´Unione europee in materia di migrazioni alla luce dei valori comuni, in E SCISO, R. BARATTA, C. MORDIVUCCI (eds.), I valori dell´Unione europea e l´azione esterna, 2016, pp.170-185.
(17) Proposal of 23 September 2020 for a Regulation of the European Parliament and the Council introducing a screening of third country nationals at the external borders and amending Regulations (EC) No 767/2008, (EU) 2017/2226, (EU) 2018/1240 and (EU) 2019/817, COM (2020) 612 final.
(18) See L. JAKULEVIČIENNE, Re-Decoration of Existing Practices at the EU External Borders, in eumigrationblog.eu, 27 October 2020.
(19) Ibid.
(20) Amended Proposal of 23 September 2020 for a Regulation of the European Parliament and the Council establishing a common procedure for international protection in the Union and repealing Directive 2013/32 EU, COM (2020) 611 final.
(21) See, among others, J. VEDSTEDT-HANSEN, Border Procedures: Efficient Examination or Restricted Access to Protection?, in D.THYM, Special Collection on the 'New' Migration and Asylum Pact for eumigrationblog.eu, of 18 December 2020; J. CASSARINO, L. MARIN, The New Pact on Migration and Asylum: Turning European Union Territory into a non-Territory, in EU Law Analysis, 30 November 2020, available at www.eulawanalysis.blogspot.com/2020/11/the-new-pact-on-migration-and-asylum.html.
(22) E. VAN DE RAKT, Erik Marquardt MEP: “Migration Management Has Become a Euphemism for Repelling Refugees”, in Heinrich Böll Foundation, 12 October 2020, available at www.eu.boell.org/en/2020/10/12/erik-marquardt-mep-migration-management-has-become-euphemismrepelling- refugees?dimension1=zora2020.
(23) European Council on Refugees and Exiles, Joint Statement: The New Pact on Asylum and Migration: An Opportunity Seized or Squandered?, 14 February 2020, available at www.ecre.org/joint-statement-thenew- pact-on-asylum-and-migration-an-opportunity-seized-or-squandered/.
(24) Proposal of 23 September 2020 for a Regulation of the European Parliament and of the Council on asylum and migration management and amending Council Directive (EC) 2003/109 and the proposed Regulation (EU) XXX/XXX [Asylum and Migration Fund], COM (2020) 610 final.
(25) A. MERKEL, Declaration made at the Western Balkan Conference, 27 August 2015; Merkel has made an identical declaration 3 years later, on 11 August 2018, widely reported by the media.
(26) See European Council on Refugees and Exiles, Asylum at the European Council 2018: Outsourcing or Reform. Policy Paper, Brussels, 2018.
(27) See G. BORSA, Dublin and Asylum: No Agreement (for Now). Why Did the Reform Came to a Standstill?, in Sir Agenzia d’informazione, 6 June 2018.
(28) European Council’s Press Release, EU-Turkey Statement, 18 March 2016.
(29) Proposal of 23 September 2020 for a Regulation of the European Parliament and the Council addressing situations of crisis and force majeure in the field of migration and asylum, COM (2020) 613 final.
(30) See in particular: E. GUILD, C. COSTELLO, M. GARLICK, V. MORENO-LAX, Enhancing the Common European Asylum System and Alternatives to Dublin. Study for the LIBE Committee, Brussels, 2015; F. MAIANI, The Reform of the Dublin III Regulation. Study for the LIBE Committee, Brussels, 2016.
(31) M. DI FILIPPO, The Reform of the Dublin System and the Need to Go Beyond a Simple Restyling: A Possible Negotiation Strategy for Italy. Policy Brief, Pisa, May 2017; ID., The allocation of competence in Asylum Procedures under EU Law: The Need to Take the Dublin Bull by the Horns, in Revista de Derecho Comunitario, No. 59, 2018, pp. 41-95.
(32) Committee on Civil Liberties, Justice and Home Affairs, Report of 6 November 2017 on the proposal for a regulation of the European Parliament and of the Council establishing the criteria and mechanisms for determining the Member State responsible for examining an application for international protection lodged in one of the Member States by a third-country national or a stateless person, COM(2016)0270,
C8‑0173/2016, 2016/0133(COD). (33) 5 EU States Urge Others to Take in More Migrants, in Deutsche Welle, 20 March 2021, available at
www.dw.com/en/5-eu-states-urge-others-to-take-in-more-migrants/a-56940912.
(34) Italian embassy to Greece, Il ministro Lamorgese ad Atene per il "Med5" insieme ai ministri dell’Interno di Cipro, Grecia, Malta e Spagna (19-20 marzo 2021), 24 March 2021, available at www.ambatene.esteri.it/ambasciata_atene/it/ambasciata/news/dall-ambasciata/2021/03/il-ministrolamorgese- ad-atene.html.
(35) Governo, il testo integrale del discorso di Mario Draghi al Senato, in La Repubblica, 17 February 2021, free translation from Italian; see also, Communication of President M. DRAGHI to the Chamber of Deputees on the European Council, 23 June 2021
(36) N. MITARACHI, in his intervention at the LIBE hearing of 27 May 2021.
(37) Corte di Giustizia, judgment of 2 April 2020, joined cases C-715/17; C-718/17; C-719/17, European Commission v. Republic of Poland and Others.
(38) Press Release by the Maltese Ministry for Home Affairs and National Security, Malta Ministerial Meeting on Migration – A Further Step Towards Solidarity, 23 September 2019, available at www.gov.mt/en/Government/DOI/Press%20Releases/Pages/2019/September/23/pr191984.aspx.
(39) European Commission, Delivering on Resettlement, 16 October 2019.
(40) Commission Recommendation (EU) 2020/1364 of 23 September 2020 on legal pathways to protection in the EU: promoting resettlement, humanitarian admission and other complementary pathways, C/2020/6467, in OJ L 317 of 1 October 2020, pp. 13-22.
(41) Community of Sant'Egidio, Humanitarian Corridors in Europe. Dossier: Humanitarian Corridors in Italy, France, Belgium and Andorra, the Principality of Monaco, 25 September 2019, available at www.santegidio.org/downloads/Dossier-Humanitarian-Corridors-DEF.pdf.
(42) Mediterranean Hope, Humanitarian Corridors: An Italian Model for the EuropeanUnion, 30 October 2019, available at www.mediterraneanhope.com/2019/10/30/humanitarian-corridors-an-italian-model-forthe- european-union-2/.
(43) A. GUERRIERI, L'esodo degli ultimi. Corridoi umanitari, parte un nuovo protocollo con la Libia, in Avvenire, 17 June 2021, available at www.avvenire.it/attualita/pagine/corridoi-umanitari-parte-un-nuovoprotocollo- con-la-libia.
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