The recent round of enlargement has provided new impetus for the study of European
Union (EU) external borders. This article conceptualizes the emerging European
border regime as a composite policy, arguing that the regime is shaped by
policy-making across such diverse areas as Regional Policy, Justice and Home
Affairs, Neighbourhood Policy and Enlargement. It shows that different policy
paradigms attribute diverging functions to the EU external border and prescribe
different modes of governance and diverse patterns of openness and control. The
policy process producing the border regime is therefore both vertically and
horizontally fragmented, reflecting interests, perceptions, norms, structures and
procedures at various levels of authority (supranational, national, local) and in
different policy sectors. This fragmentation results in a differentiated and uneven
border strategy marked by diverse patterns of inclusion and exclusion, as
illustrated by three case studies representing variations from the common European standard.
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