Analysis of the impact of border-related measures taken by Member States in the fight against COVID-19

As an update and follow-up to the report “Analysis of the impact of border-related measures taken by Member States in the fight against COVID-19” (January 2021), this study assesses two years of border management linked to the pandemic and their impact on border regions, and draws some recommendations for their management in the future, also taking into account the current revision of the Schengen Borders Code. The findings of this study are based on an online survey addressed to Member States and local cross-border cooperation structures. This survey was supplemented by bilateral interviews, and by literature review.

The analysis of border-related measures taken by Member States in the fight against COVID-19, and their effects on persons living in CB regions, has revealed the nature of CB interdependencies, within 6 different spheres: economic (market and funding of public policies); functional (public services); institutional (government/governance); informational (available information and its use by actors); cultural (trust based on common vision and ethics) and interpersonal (role played by persons engaged in families and institutions). Public authorities had no clear view of these interdependencies, and their first reactions when the crisis occurred have mainly taken place within domestic frameworks through trade-offs between these 6 spheres, but turning their backs on each border, resulting in major difficulties in coordinating across borders, and inappropriate, disproportionate, unfair, if not violent border management measures. Thus, border regions were more severely impacted than other territories. Moreover, borders’ real nature and daily functioning have proved to be largely misunderstood, by both public and private actors. The European Commission has reacted appropriately, within the scope of its too limited competences.

After two years of experiential learning, border management clearly requires reinventing, considering borders not only as lines, but also as zones, as cross-border regions where people live. Future policies should be based on a global 360-degree vision; common ac­countability of local, national and European institutions vis à vis border inhabitants; horizontal, vertical and diagonal coordi­nation; moving from voluntary co-operation to compulsory collaboration, with CB mandates given to institutions. The recommendations address two aspects: the local management of the CB region; and the multilevel governance of borders.

The crisis has revealed the limited relevance of national borders.  Member States, instead of holding on to exclusive sovereignty within their borders, should exert their sovereignty in common on each border and at the EU level.  Only on this condition will they achieve the single market and develop public goods, managing the transitions they have to face, while fully involving citizens.