You Make Us Do What We Want! The Usage of External Actors and Policy Conditionality in the European...

7/27/2019 You Make Us Do What We Want! The Usage of External Actors and Policy Conditionality in the European Neighbor

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You Make Us Do What We Want!T U f Exl Ac d PlcyCdly E Nd

E Ad

N. 32 | N 2011

WORKING PAPER


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2 | KFGWorking Paper No. 32 | November 2011

KFG Working Paper Series

Edited by the Kolleg-Forschergruppe T Tmv Pw E

T KFG W P S d c l f Kll-Fc y

ll d lc. I c cdc xc wll d d

x c c l d xl d c E d E U.

All KFG W P ll KFG w www.f. c dd

l [email protected].

Cy f : E Ad

Edl c d dc: F A, Ad Bc d C Bl

Ad, E 2011: Y M U D W W W! T U f Exl Ac d Plcy Cdly

E Nd, KFG W P S, N. 32, N 2011, Kll-Fc (KFG)

T Tf Pw f E, F U Bl.

ISSN 1868-6834 (P)

ISSN 1868-7601 (I)

T lc fdd y G Rc Fd (DFG).

F U Bl

Kll-Fc

T Tf Pw f E:

T E U d D f Id

I. 26

14195 Bl

Gy

P: +49 (0)30- 838 57033

Fx: +49 (0)30- 838 57096

[email protected]

www.f.


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You Make Us Do What We Want | 3

You Make Us Do What We Want!

The Usage of External Actors and Policy Conditionality in the

European Neighborhood

E Amm

A

I cdc d lc d, xl c cdd l c-

ly d c c f d yc ddc. Hc, ddc

f E Nd C (ENC) w R dcd j c EU

l f. T c f lc, w, dd : d f -

ddc f ENC d R cld w clc w EU l, w lw d

f ddc cl w llw d lc clc. T d fc

c f R d EU l f E Nd Plcy (ENP)

ly dd lcy ld d f c c: d -

c w-d c f xl c c ly cc f y cl-

c cd, l w w dc c c ll xl y c

w d.

T A

E Amm PD cdd Bl Gd Scl f

Tl Sd (BTS) d c fllw Rc Cll

Tf Pw f E (KFG). S ld M d

Il Rl f F Uy f Bl, Hld

Uy d Uy f Pd d B.A. E Sd f

Uy f Oc. S dd Ell Scl f Il

A G W Uy W D.C. H ld

f EU xl l, E Nd Plcy,

Scy Gc d S Cc.

Cc: d@ld.


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C

1. I 6

2. P D N F: I, R

ENP-Cm 7

2.1 External Governance and the Bleak Prospect of Neighborhood

Europeanizaon 7

2.2Interdependence,Regimes,andCompliancePaernsintheCNC 8

3. T M L: I W Y M 12

4. Cm Cm P S C 15

4.1FromEmergingtoFullCompliance:MigraonPoliciesinArmenia 16

4.2FromIneratoSelecveCompliance:MigraonPoliciesinGeorgia 22

5. C 26

B 28


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Av

AENEAS P f cl d ccl c d c

f d yl

AP E Nd Plcy Ac Pl

CIS Cwl f Idd S

CNC Cc Nd C

DMR D f M d Rf

DRC D Rf Ccl

ENC E Nd C

ENP E Nd Plcy

ENPI E Nd d P I

ILO Il L Oz

IO Il (Gl) Oz

IOM Il Oz f M

JLS Sc Jc, Ly d Scy

NGO N-Gl Oz

NIS Nwly Idd S

OSCE Oz f Scy d C E

PCA P d C A

SIGMA S f I Gc d M

TACIS Tccl Ac Cwl f Idd S

TAIEX Tccl Ac d If Exc I


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1. I

E c T Ccl 1999 d c f dl Sc , w

f d E U d l d ly EU cyd. Cc l ll , c d c-d c w wly d

l d f 2004, ld lly c f E Nd

Plcy (ENP). T ENP c f f lzd c w w

dcd ll ENP Ac Pl (AP). A , Cc Nd

C (CNC) d d lc dd l d cl f

w f EU. A wd f f c, EU d -

fcl d l -llz .

Dclly, w, w d l E Nd C

ld, clly d cly, R EU. T clly f CNC

ld d f d d S , jy -f l

Cwl f Idd S (CIS), c l f l R d dd

c w f .

Fllw c c EU xl c E d d l

f l (Ly/Wy 2006), c f clc w ENP S

Cc l l. Iddc w R dcd c fc f

c f EU l f (D/D 2009; Lx/Sclf 2009), wc ly

ddd l Ez f w d. I f

c w d lcy-cc clc CNC (Ad/Bzl 2012),

ly dd c . G zzl l, w

d d wc cd ddc w R dd c EU-l f E

d.

Bd w -d c d G d A, I c f ddc

w R clc w EU-l dd w cd: , f EU l

w fc f d d cd, lc f lcy cdly

y xl c. T d - c wd dy f l-f

d cd f ll ddc d d R c wy. T l

c fc f EU l, wll cl f clc dd w

c CNC . T dld fllw: c c

dc zzl c f clc w EU lc G d A d l

cl d c cl dc xl c d ddc

E Nd. Sc - lycl c lyd

f c d c f. T l c c f clc w dc ENP

l G d A. T l c z d f ly.


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2. P D N F: I, R ENP-Cm

T ENP-l f CNC f lc ll -

c l wd ENP l f . Tclly, cdc l ld xc lc f c, w y df EU d d-

dc w R d clc w EU l. T fllw c dc zzl f

y ly l j cl d cl

d f CNC.

2.1 ExternalGovernanceandtheBleakProspectofNeighborhoodEuropeanizaon

Tclly, c f EU x f w w d l

l. T ENP, ld l dl w w 2004, w f

wly fl ddc w EU d d c (Lx 2004). T,

d f Ez c d c d f ddc w

E Nd C (ENC) cc c y, zd

c df EU w ENP l c. T l cdd

l f c d cdl lc f EU cdly, wc dd cy

dc dc c (Sclf/ Sdl 2004: 674). Cld w lc f

c f d c c f ccfl l f Cl

d E E cc c c l w d c f EU

c ENC (Klly 2006; Lx/Sclf 2009; Sclf 2009). Addlly,

CNC l dly d f w dc q d EU l ld dw

llly d ENP Ac Pl.

T l xl c d c x f l l d lc

yd (Lx/Sclf 2009: 791). Cclly, d f l

dc d l fc, c ccy, -ly, l cdc EU d f

c xl d clc c. Y, l cz xly w f -

ddc w ENC d xl c. T l cd f w-

d c. T c d cly w EU l d

ly dd EU d, ll, c d (Lx/

Sclf 2009: 792). I , ddc w R cdd c-

fc f - f EU l (D/D 2009). R xcd

ll c f CNC wd W d d c f

EU l f (B 2004; Bw/J 2008; Bj 2010; Pc 2005). T xc

w l lc c E Nd w

EU d R (Il 2011; Kc 2011). G ddc f CNC d R

f , y d f d cy lcy, j fw, c f ENP

l d d l lly ly ld.


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Y, c f lc, clc cd f w CNC, ly A d G,

d cl xc. D l, cl, cl d cc -

ddc w R, A dly fll clc w ENP l.

G, w, lc l ddc w R, ly w f llw lc clc. I d zzl, fllw c d

d f ddc w w CNC, R d EU d c w c-

clc .

2.2 Interdependence,Regimes,andCompliancePaernsintheCNC

Iddc f cly w EU, R d CNC. T EU

d l fw dl w cc d cl ddc. R d

CNC, w, d f cc, cl d cl ddc, d

l w d yd Cwl f Idd S (CIS) d Cllc

Scy Ty Oz (CSTO).

Migratory Interdependence and Regimes with the EU

I fw f ENP EU d l c c w d-

dc l l d 2004. Y, ENP fw ccl

l ld y P d C A (PCA) c 1999.

T PCA fw cl c -ld lcl dl d

ccl f ll d . F, PCA cd C Ccl

f l d ly c d Tccl Ac Cwl f

Idd S (TACIS) fcd c c f -

S c. T ENP d d cczd lcy c wd CNC,

lcd TACIS w w E Nd d P I (ENPI) w fd

c d d cl cc d fcl wd f j f .

I 2009, E P d d l. I d f -

wd c d d d d c f d , l -f l

d w Ac A lc PCA c f lcy f d l

(Sc/Tldf 2009: 1). T d lcy f ld dw ll ENP AP. I ld

f lcy, , , dl f l c l,

c f dc cy d f d y CNC (E

C 2006, 2006).

I d l lc, EU l cdly, c d clz-

cl f EU l c (Klly 2006). T condionali-

esf fcl d llz ldy fld E


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P . A d C Ac -fcl f 2005, Ccl f

EU l fcl (wc cd -f l) f EC-d

(Bfc l. 2008; T/K 2008:421). I dd, Ccl f E U dcld

TheECshouldtakeaccountofthefollowingfactorsinteraliaindecidingwhethertoopennegoa -

onsonvisafacilitaonwiththirdcountries:whetherareadmissionagreementisinplaceorunderac-

venegoaon;externalrelaonsobjecves;implementaonrecordofexisngbilateralagreements

andprogressonrelatedissuesintheareaofjusce,freedomandsecurity(e.g.bordermanagement,

documentsecurity,migraonandasylum,ghtagainstterrorism,();andsecurityconcerns,migra-

torymovementsandtheimpactofthevisafacilitaonagreement. (Ccl f E U

2005:3)

T c f fcl w f d wd CNC w C

Cc S ENP Dc 2006 d c f Mly P

w CNC d EU, wc w l f x f Gll Ac M

E Nd (E C 2006, 2007).

T cdl fassistance dd ENPI c, l, l d

c-d (E C 2006). I c f f ccl c (TAIEX,

Tw, SIGMA) d l (Nd I Fcly). T c

d yl (f AENEAS), cl f f lc. T d ,

socializaon, c ll EU c EU lc wll d d d

(Sclf 2009: 8). T lly lcl dl fw f l-

y d l C Ccl ld y PCA. T c

Jc, Ly d Scy (JLS) dl cclly w lc d cd c f

fcl (E C 2010).

D d l , cl, cl d cc ddc l dld

w EU d CNC. Hclly, w f CNC EU c ld

l d f A Fc d ll f G Gy d Gc

(My 2004: 3; Jdz/Ml 2009: 9). Y, d w EU d c -

l cl d cc ddc y d w R. T w, f G

d A w EU l 20 lw R (Pc/Wl 2009:

34), d c y ccdly. Nx l d cll d, dl ll

d cl f EU xl d Sc d EU (Pc/Wl

2009: 34). T c f d EU ly c, fcl f l

f d fllwd y fcl f d d, .. cl

EU l .


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Migratory Interdependence and Regimes with Russia

T f R d CNC dly lzd, d fdly w

G d A. T ly d G f CIS 2009. Iddc wR cc d cl , w, CNC.

T fd f CIS lz c CIS

. Acl f j c ld f lc (Sw/W 1999) d

B A f 1992 ld -f l w CIS . Hw,

w fllwd y d ll d lll l dd

d CIS c (Il C f M Plcy Dl 2005: 27). T CIS -f

l A, w R llly dcd q f G 2001

d lcl w c. Ul R, G dlly d

c 2005 d llly ld -q f cc c cld R (V Sl 2005).

Lly, l Cllc Scy Ty Oz d w lll d

d f cy fc w wd (G 2008;

M/Mzl 2007).

Sc 1990, f CNC cz d -

l cl d lc f S (Il L Oz 2008: 15).

I dd, l-c fl d ll l d R l w.

I lll d d cd f cd Cc d -

cd Cc cc, R d lw d cd ly 2000 (T

l. 2005: 23). Id f l c, d lll c,

f f CIS c, w w ll ll f -f l (Iy 2009: 41). Oly

cly, dc , R d cly .

Ecc ddc w R c d cd dd f c w

fc d cc c f c. Rc w f

c f cly c CNC GDP d fc cl lz

f cc (Bl Tf Idx 2007: 17; T l. 2005: 29). T -

f c w d f GDP d c c d l

f lll , ll d d . Y, f c c

c GDP f c CNC lly l 10 c (T l. 2005: 28). Fllw

Wld B , c f R G d 491 ll US dll 2010,

wl A cd 436 ll US dll, wc cd xly f c f

c GDP 2010 (Wld B 2010). A l, c f c w, clly

f R, A d G GDP c cdd l (My l. 2007: 31;

T Ec Illc U 2007: 27).

Y, ddc w G d R lw l d G ll

c f llz w R. O d, A wld ll d y -

dc f w lly. Fllw f w-d xl,


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clc w EU wld, f ll, lly cc G A. Oll,

w, A w clc w ENP l, w G l d d

ly cly d cc lcly.

CompliancePaernsinGeorgiaandArmenia

Clc, l d d lc l f d cl

, y f d f lcy cycl. T dc w lcy d-

d l d y xl c l (Lx/Sclf

2009: 800f) lfl d d d f clc. Wl lcy d lly l

clc c f d lc f

l l (E 1957), l f c clc, c d fc -

lc f l. I d d d cclz clc , I wll f fll clc

c wc lcy d d l cc. E clc c

f fll lcy d d c d f lc. Sllw clc d lc lcy

d w l, wl c w .

Cc ENP l, A w c f d fll clc, d-

d f ddc w R. A d Cc P f

l d l c l fw f -l w (Gy

2011; M Acy f RA My f Tl Ad 2010). Slly, cy c-

l w ccl dc f c (PA. 2011) d d

d ld ll d w l f EU d -EU c c

2003.

G dly f l l 2009 d cl ly lcly w -ld

ENP-l d cy , lc d f l ddc

w R. W d d , G d ll lly d

w f ll w EU Sc A (see Figure 1).


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Figure1:NumberofReadmissionAgreementswithEU-MSorMemberstotheSchengenAgreement

1

2

3

4

1

3

4

5

6

7

10

12

2002 2003 2004 2005 2006 2007 2008 2009 2010

Number of Bilateral Readmission

Agreements of Georgia

Number of Bilateral Readmission

Agreements of Armenia

Source: Ministry of Foreign Affairs Georgia (2011); Ministry of Foreign Affai rs

Armenia (2011); Dutch Ministry of Foreign Affairs (2011)

I dd, l c l dd w l f Il Oz f

M (IOM) 2008 d y . T E C lly

xd dfc w G lcy f 2008 ccz

lc f w lcy dc d xly ll f w lcy

(E C 2008: 8). T d clc G cd

ly cly. G d dly f lc clc c l 2009. T ll

EC d w d 2010 d c 2011 (Cl G 2011; RAPID 2010)

d c d c 2011 (My f Jc f G 2010). Y, f

l c l f d.

T cl f clc d ddc w R zzl. T d d f

ddc w R c flly cc f clc c f

lc. I d d l cd d wc ddc w R ,

fllw c dc - c dy f EU l f cd f

ll ddc qly ld c f A d G.

3. T M L: I W Y M I

I f ddc d w-d c lc x f

d dc. Y, c f ENP l f d cd f xl c

ld, ddc d w lly cly ld dc c

d fc f dc . T fllw c dc f w d-

dl fc ly f l f c d cd f ll ddc:

fl f d f dc w ENP d lcy cdly dd

y xl c.


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T l Ez d dc c c f xl c ly

d l ddc d d f Ez c

(Kll/Ll 2000: 24; Lx/Sclf 2009: 805). I d cc , lcy,

ly lc dd c wdw f y f ly d , wc y lly ly f c d Ez (R/Bzl 2000). I

c f CNC, , lly qd w f-c w, cl cy

w d . T f ly d x c

c f EU dccy , c cc ld xcd c

w w (Sclf 2009: 16f). Y, w d cy lc, c l,

cly -q d d c-. Ty l ld

fc f EU lc l cc l

f ly ld d. P fc f wd EU l cd y

f fl (Ad/Bzl 2012). I dd f fc c, wc

, l fc , x c w xl c

lc (Fd 1999). T fc c ddcd f c f c-

y w d l l f dc d l

cc.

I , EU lly c CNC, dl f q, f EU lcy

lcl d f dc (lly cc) d d w

, lcy ccy. T f R: If R f lcy d ddl

l cc f lz f c fc, d lly

f . T c f dd ccl f Ez M

S wll Cl E Acc C (B 2005; Jcq/Wll 2003; Mdz

l. 2006; Wll/Jcq 2010). Nd c d y ll xl c

lly ly xlly d f c l

c c (Pc/ Wl 2009) c d c xlly d l c f

dc cc.

Y, f ycl ddc dd xl lcy f EU (Lx

2008), EU l cd c f cc, fcl llz (T/

K 2008). R l fqly d d ld f c N

Ad y lcl cly w R f lcy d (Hd/L 2007;

Pc 2005). Wl w c xc c c d c xl lc wc c w c-

dl y c, c c, c f xlly d l,

wc xl c l l c .

F cdl y c, fll clc w EU lcy xcd c f f-

l w EU l, c lly EU c d lc R c, f

l d EU lcy c (l c). E d f

fll clc ll cc f ccy ld dd y l c d c y

l c. Ic lly f EU d R


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c f y l l ly ld d (ccd c). I, w,

xcd c f fl , dc c f lc xl y

c wc d cd d. T y d Table 1.

Table1:AssistanceandExpectedCompliancePaerns

A C A Rv A

F w EU- Fll Clc Fll/E Clc

M w EU- I I

If lcy f ld lcy cdly, f f ( cdly)

lc ( cdly) f l y c, ll lly w lcy f

dd w fc f dc . Plcy cdly d cly

c dly fc f c, c -

wd c l (Fd 1999). W y c CNC d, wl d fc

lc f l d cc (llw clc). Hw, c wc xl c

ly lcy cdly, cdly dl c w c

l (ccd lcy cdly) d l ld f

q f xl c (l lcy cdly). Ud cd f ll d-

dc c lly c d c cdly dc d. Wl y

c dly ld f ccd cdly, y lly d c f l cdly,

cly w l cl w dc d, wc w Sclf

d Sdl (2004) c c-cdly (see Table 2). A l cdly l d

l l f EU l x, clc d f fll clc c

xcd.

Table2:CondionalityandExpectedCompliancePaerns

C C C Rv C

F w EU- Fll Clc Fll/E Clc

M w E- Sllw/Slc Clc I

C-clz d c-cdly c, wc ldy dcd l

(Sclf/Sdl 2004: 674) cly l f yc cl

ddc -EU xl c. W lc ldy f ll

l y c d y -EU c c EU l f, fc w -

cl d lycl l E Nd. F, c ly d-

c, wc d l f c EU US d cl, lcly

ll c f cc cdd ENP Ac Pl. Scd, c

cd c-cdly c, c d y -EU d c xcd

dd y EU. T l f c f dc c, w, ly dd


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dc cc d lcl d c w . Ty

c dd f c c c ly. E d cd f EU-R

dc d f l c c, CNC ll c EU l d-

, f EU-d l f lc f c d c d f wdc . Hc, fwd d ly w c,

c c wd lycl fc dc w cll

f d xly l f w-d c xl c.

I c dld , c f ddc w R EU-lcy f

lly ld y w ly: fl f l d, wc ld

c f l d l c d lc f lcy cd-

ly y xl c. T x wc w fc c cc f lcy c f

G d A lyzd x c.

4. Cm Cm P S C

T c f lcy f S Cc c f G d A lcd

f c d c ll c d cl ccc d d-

dc w R d EU . I dd, y cl w d lcy

lc d cy . B G d A lcd l c l

d yl d c f ENP (E C

2005, 2005). Ty l fll f ll EC wd d , wc w ddd

PCA d ENP Ac Pl (E U 1999). I dd, c d ly

f y Fd H Idx 2006 w xc jy f-c w d -

wc fl d f lcl l (Fd H 2006; 2006). Ty l dly

cl ll f ccy (Bl Tf Idx 2006)1 d jc

d f c lyd y EU fw f ENP. I dd, llz d

cdc f d EU l ENP Ac Pl cl, lc c

l Ac Pl f G d A (E C 2006c, 2006d).

Y, c l d l fc dc d f

lcy d ld d l R, wc lly ld dc -

f c c.

S f zzl clc , cl ly c c c

ld clc c f lcy A. I d l -

cl cd G cx 2009 d wc d cy dly lc-

clc wd. T c fc fl f w CNC d

ly w c c f EU d R. Plcy cdly

1 A c cly dx, wc w d G lc f ly

f fc d fc lc. T ll llw f c f c w d

ccy f cl f f y cl.


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dd cdl f lcy-cc, - c f f -

d ll d c d c c y xl c. Pfl () d

cc f fc c f EU d dc c ccd w

lc f EU-d l () d () c w ,

wc d c ly. T cl ly ld cdy l, f, l z (IO) d -l z (NGO), d l

d xly 40 w w cdcd d c A d G.

4.1 FromEmergingtoFullCompliance:MigraonPoliciesinArmenia

I A, lc d cl lc c d f 1990 d

Pd R Kc d l cl. B cdd c f cy,

l f lzd d l. A , wd

d c w lz dc lcl , y c f c

f d l f l d f dl-d w f

A cy. A cd, d c y c f

EU d R dd A w ddl c f l f lc wc

ld fy l d l, wl

cc d lcl fcld ll .

GovernmentPreferencesinArmenia

B Pd f dd A, L T-P, wll cc d

d l lcy f A l l cc w Azj

N-K - A cl w Azj l d - d cc w

Ty c f A cd f 1915. Wl T-P d ld K

l l S , w d c -

c Ty d Azj. R Kc ccflly clld T-P jy

f l f A d d l A lld d

dl l (Hf 2009; My 2007).

Kc, wll fd cc S Sy, w c 2008, ly ld

lcl f Rlc Py, l y A Rly Fd-

Dy (ARF-D) d d-d z c R-Az d

O E (F/S 2007). I dd, Kc d Sy w cly d

c f lcc cc l l d ly w wly fdd

y P A lc 2007 (Bl Tf Idx 2010). I f

c fl cc c f cy, A lc dld


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w d, cd dl lc c d dly ld

(Dly 2006).

B Kc d Sy d dcld f cl lc,

wc cd cl l d wll lly c f -.Hl d A d cy ly cdd

A d fhaydatandArarasm2, wc l d dd

T-P (Hf 2009). T c f f A w d y

l l, lly d cl xc f d fcd xl

c f cy-l l A Hld (Sd 2011, 218). I 1999,

Kc ld D f M d Rf (DMR) d -

l 1990 cd y l f f f w w Azj

d d q (UNDP 2001). F 1990 2000, d 900,000 A d

f A, wc c d d f c A l (Py 2011:

42). M w qly fd f y c cy, wc w

cd l d d j lc c (G f A 2000;

Kc 2003). E l d f lc d w d S Sy,

w Rlc Py d d A f ll wld N cy

(Rlc Py f A 2011) j l. M w dcld j cc f -

2008 d dc [] l cy (G f A 2007, 2008).

M w l clly ld cc w Azj, wc l d l y

A dc dcl.

TheDiverseUseofExternalOpportunityStructuresComplyingwiththeENP

T A d EU d l x R c l

d jfy w lc dcd l d l w f A, wll

fcl ll ly f c-lcl d c l f lcl

l.

F, M Sc w My f F A d ccl f bi-

lateral readmission agreements. Bll d flzd f A d

d cy l w lllly d d d d d cy f d

A. A ly d flz f ll d w EU d

f c f fcl w xlcly d w Strengtheningofthe

ENP 2007 (Bfc l. 2008: 4). Cly, A d 12 ll d

w EU d Sc c, wc f ll CIS c d G.3

2 A w Z, [A] f cy f wldwd d, wc

q cq d ll f l, c d cl (Hf 2009).

3 A d d w L (2002), L (2003), D (2003), Swzld

(2005), Gy (2006), Bl (2007), Swd (2008), Bl (2009), Nld (2009), Lx

(2009), Czc Rlc (2010) d Nwy (2010)(Dc My f F A 2011; My f F

A f Rlc f A 2011).


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T ccl f ll d w cl w d lcy f

c A cy, wc cdd l d f d

Rlc Py (Rlc Py f A 2011) wll ARF-D d cd cl

f l c cy (Hf 2009). A d- w lly ld c f c f d,

M Acy f Rlc f A (f DMR) cdd ccl f d

j y f c , wl w

d E l c .4 Illy, M Acy

d ccl f d 2003 lz f

f A cz, ld A c.5 R c

w cdd j y d d f l cl

A Nl Aly l 6 d l lc f f f

l , f cd , d .7

I d l d d f d A, A

cly d cl d ccl c f EU d R. T My f

D d f TAIEX jc 2010 lw l w EU c-

q (E C 2011). T l f d w l d

y EU c d yl 2009 w EC c f xly

700,000 E (A UN Ac 2009). A f EU, A l d

l f R d d d A. A d R d ll

d d xc cl l 2010 (Pd f Rlc

f A 2010). T Plc f Rlc f A ld w- c

2005 d 2006 w jly dld w y f R Fd A d

R Fdl Sc f M. I d f A cz

R (Zf l. 2008: 28f), dly d w f A d

lll . A cl EU lcy cdly ld fcl, wc w ly

l 2006, w dd A cly w q

d , lcy d w dc fc.

T dl cl w d dc f c A,

wc ly d cy clly ld d, A Plc, l

lcy fc ld c 2004. T ccy ld dd y EU d xl

d qd lc w ly lz -x d. T d

d f A lc ly d q f EU l c

4 Iw w cl f S M Sc f Rlc f A (RA) Y, A,

Oc 2010.

5 Iw w f S M Sc f RA Y, A, Oc 2010.

6 Iw w M f Nl Aly f RA (P A) Y, A, Oc

2010.

7 Iw w cl f S M Sc f RA Y, A, Oc 2010; Iw w

M f Nl Aly f RA (P A) Y, Oc 2010.


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d ly 2012, fllw dl dc f 2008 (G f

Rlc f A: 2008).8 T f cdd lcy dl cy,

A d ldy d w c f dc cy 2006. 9 T

f EC cwld A d dc d cy dd 2007 (E C 2008: 12), d cl f E C

dld dc wld ldy cd llw f fcl,

llz w EU.10 T d dc c d, w, w A

2004 cl f My f F A, w cd OSCE cfc, w

ld d d dd f c d.11 H ccflly ld

d d f A lc f dc12 cqly ld

f TAIEX jc xc w w E M S xc w c

d 2007 (PAO A 2007). T l f ccy-ld l

jc w ll f j jc f IOM d OSCE cld , cl

d lcy dc (Il Oz f M 2010). Ccy ld f f cl

y f q ly w d A, l G. T dly f

dc f 2011 ly 2012 w ly ld lc f ccy w A

lc d ly c d cd f ly q w

l c (Nw. 2011).

T ll l f ENP q w l cly fcld y c-

c w d f S M Sc d ENP Ac Pl. W d

l f l c l , S M Sc cly -

f EU d c cy f EU ccy-ld

ld. I ld f TAIEX jc c l c l f 2008 d 2010 (E

C 2011; , 2011), d cly ld f Tw c , , -

d f l f l c l (E C 2011).13

Bd c, w, w j cc w lc d M

Acy cd fc .14 T lc, w cl dl

d cy-ld d, w cly d cl f A -

cy fc d dl lc 2008. A dl dc w d

ccd y -ld cy w lc, d f cl

8 Iw w cl f My f Ecy f RA Y, A, Oc 2010.

9 Iw w cl f P d V d f Plc f RA Y, A, Oc

2010.

10 Iw w cl f E C, DG H A, Bl, A 2011.

11 Iw w cl f Cl D/ My f F A f RA Y, A,

Oc 2010.

12 Iw w cl f Cl D f My f F A f RA Y, A,

Oc 2010.

13 Iw w cl f S M Sc f RA Y, A, 10/2010.

14 Iw w cl f Cl D/ My f F A f RA Y, A,

10/2010.


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cc, dl w y ly cl y. 15 T, wl M

Acy cly f EU, w l cl lcy . I w ly

l d cc f xl d, c UN Rf Acy

UNHCR, A w dd ld f S MSc (H 2011: 10).16 A l f w f S M Sc, cc

w d 2010 d Nl Ac Pl w d fw f w

c l l c ld f (M Acy f

RA My f Tl Ad 2010). T d d wd

c l f lc l d -ld cc

y . W w d f 2011 d lld

cl l f , fqly fd Nl Ac Pl

(A Nw 2011; PA. 2011).

D ly l d d f l d dl l

, A w qcly fcl w EU (E.

2010). Wl EU ll fll f d cy d C,

R w ldy fcl f A, yd -f l ld

CIS. I 2009, R C dd ll w f A w-

R. T C d ly d f -

fc A, cd f S w dd f

A (Aw 2011; E. 2010, 2011, 2011). Fllw c cc f

2011, dcld d cc d d dc w

R (Mdx 2011). T lcc d 2011, wll

y l cl d cc dc, w, l d

A f c-cc w cy. T c dd

fc dl-d w A d ld , d c f

cl c. A fllw d dc, A w cly w y cc

dw 2009 G (see Figure 2).

15 Iw w cl f S M Sc f RA Y, A, Oc 2010.

16 Iw w cl f S M Sc f RA Y, A, Oc 2010.


21/34


F 2: Rl GDP Gw R

Lw, c y cly dcd 2009 (Wld B 2011), ll cc

c l dcd w f A d. Wl w d clly

d ll d wly l A d cd c w c, d

70 c f A l d ld c c y -

cl c (Bl Tf Idx 2008; Il L Oz 2008; T l.

2005). T dc c y 2009 c cd cc d cl f

cy. T C , f wc A cly ld c

y 2009, w cdd cc d cl f A

(Gy 2011). S f cl l ld ll lcl

f c l. P M T Sy lcly jcd cc -

fld , : W c w d, w ld d y l w

, ccl d l ? (E. 2011).

T , c dd y EU d R f d d w f

ld A l d f ly c A, wl

w Nl Ac Pl ld cc f

c f . A , f A R

C P d c ll cc d lcl

l f ll f y, clly cl c. T, ddc w

R dd c EU l f, c d f A dlyd

ll w ENP c d R dd f ddl c f l.


22/34


4.2 FromIneratoSelecveCompliance:MigraonPoliciesinGeorgia

Ul 2008, d Pd Ml Sl wd ll f -

-ld lc G. I l w ll ll d, S dl f xl dl f cd l f w, w d

y A . A d l , ly w f f G

d d dy w f c y d c. Clc

c w ENP lc ly d A 2008, w EU clly ld lcy

cdly f fcl , wc w fcd y dc ddl

cdly f R.

Government preferences in Georgia

T R Rl 2003 w f y f ld y f Jc M

Ml Sl d Pl N Bjdz d cflly d f Pd

Edd Sddz, w y ccd f wdd c. I 2004, Ml Sl,

y w-dcd lc w w Pd, ld cl cy f c,

ll l y d cy E-Alc c (Cj 2010:

24). Sl Ud Nl M cqd ld Pl d ly c-d

l f cl cy wly fd d, l cy w w-

fl . I dd, Sl ccflly dcd d G c

Pl f xd dl w. W fllwd w qc f

fly f Adj d ccfl ccdw f y c, wl S O

d Az d d fc dd lc l d f G d l

c d wdd. W l f K Bddz, c G d R

lc, -ll f c w ld w Sl d f 2004

wd. T dl f w ll c dl d cc w,

dld Sl dcl -c d d w d ly wy cld

d G (E Sly I 2010: 9). A ly 2006, Bddz

f wdd G w ll f D B Idx f Wld B

(Wld B 2006). I l R d wd cdly l

cc dl w f 2005 d 2006, d f c G dc

d y c (Hd/L 2007). A l, Bddz z d w d

c f lzd G , cl w ll c f G

cy R (P 2006). A cd l cc f Sl f 2008, ly

dl lc Jy d w w R A y, Bddz w d.

Ud wly fd d Ml Sl d Ud Nl M l-

c ld w f cl lc. T w f ll d

w f G ly Sl ccfl l d cly

lc A. Y, G d l xly 20 c f l f


23/34


24/34


Ul l 2009, ll w d cly w ENP lc G. P

ll EC readmission agreement G d N 2009 fw ll d -

w ddl w d. F w lc w Swzld,

U, Bl, Ily d Gy (Il Oz f M 2008: 12), wl - w Ily w ld (G f G 2009). I dd, G dd d

l c l d yl. T My c f cd f

lc, My f Rf d Accd 2008, lly wd d c l,

wc w l cd y IOM. Hw, d w cdd y d

dd l l.17 Fllw f IO d l x, d lc

f w cdd , lcd wfl dc

d w l d.18 Sld l d lc f lcy d

f ll dlf l l w G

d cy (Cl G 2010; E Sly I 2010). O cl cy l

d w ly cld G, d EU fc

l ll.19 T My f Rf d Accd d c

w G d ly ll EU . I ld f TAIEX jc l

(E C 2011), wc f IOM G lly clld

w f y.20 Cc c f dc cy, G d ll

l 2008. Wl A d ldy dd l dc cy d cld w c-

l dd, G fld d f 2008. I ll, ld w d

lcy f, c ly lc f f G d d d-

c f G w d ly .

Y, G d cly d d f ly fcl w EU, -

w l w ll d f ly d E-Alc f

. A fc cly d G dd f fcl d

f fc EU d R d ldy fcd ll fcl 2007.

A R dd l G -wy , G

cdd EU-R dc c f y

fcld l EU f cc R z (Gl 2008). Hc,

c f R fcd ddl c f lcy cdly. V fcl-

w dd d w l c l y ll

17 Iw cdcd w EU cl E Dl G Tl, G, Oc 2010;

Iw cdcd w f G c f Il Oz f M

Tl, G, Oc 2010.

18 Iw cdcd w f G c f Il Oz f M

Tl, G, 10/2010; Iw cdcd w cl Oc f S M f E-

Alc I f Rlc f G Tl, G, Oc 2010.

19 A xl, w d y E U ll l-

d wy. () T , w w w. (Iw w f Cc

I f Dl Tl, G, Oc 2010).

20 Iw cdcd w f G c f Il Oz f M

Tl, G, Oc 2010.


25/34


G l y. R ld c f fcl d f

l y d ddd lc ll c f fcl. Wl G -

fqly d d , y ll cd lc l

f dc cy d ll l 2008 (EC 2008), c c f fcl f EU w cd y cc -

d f E C .

T cd w w R A 2008. Fllw c- , EU

dd wdd G w d fcl. T d w xlcly

l f cc d d d qly R d G cz, ccl-

f Exdy E Ccl 2008 dcd (RAPID 2008). T EU clly ld

fcl f EC d d dc f c

-l c f fcl.21 I 2008, Fc F, EU-C

f Jc, Fd d Scy clld f dc f c G 2009

f fcl (Il Oz f M 2008), wl c c

f EC d d fcl d lzd f l (T/

K 2008).

G qly d w d document security. T cy cd w l-

, Cl Ry Acy f G, d dc Al 2010 d

y cl c f EU d ENPI ll (Cl Ry Acy G 2011;

Kzl 2010). R f Cl Ry Acy d dc f c

w d cdly EU d fcl c.22 Hw, EC

readmissionnegoaons, wc w d fcl , ll

fcd dc cl G ly ll lcy. T EC d l

fw ll d cy l d dd c G, f dc wd

y d G f. A d y f G d EU -

, l d cc f G d, ll f G

cd ly f d l d ly d cy f .23

T cld wd dw y G l dc ly ld

d cy l w ld ld ly dd f G dd

c.24 T w ccflly d 17 J 2010, w fcl

w d (RAPID 2010). Clc d lc, d fc G dd -

d dc c , d wd-dw d d f

fld l c l .

21 Iw w cl f EU d My f F A f G Tl, G, Oc

2010.

22 Iw w cl f Cl Ry Acy f My f Jc f G Tl, Oc

2010.

23 Iw w cl Oc f S M f E-Alc I Tl, G, Oc

2010; Iw w cl f E C, DG H A, Bl, Bl, A 2011.

24 Iw w cl f Oc f S M f E-Alc I Tl, G, Oc

2010.


26/34


R, d f dc ddl cdly fcl c, w

ll d y G fc ly f qc EU . T G

d EU ly ld EU lcy d G [c!] c -

EU lcy l d d cd (Sdl 2007) d clld f d f EU-G fcl. T ccd w d

llz. T S M f E-Alc dcly ccd EU f d G

y y llz G R:

We are not complaining. But we are warning our friends that it would be very unwise to give Russia

visaliberalisaonbeforeus-notbecauseweareagainstitinprinciple,butbecauseofRussiasillegal

passporsaon.ItwouldbeverydamagingforEUspoliciesinsupportofGeorgiasterritorialintegrity

andsovereignty(G Bdz cd : P 2011).

T c dd G w R z dd ly dd l-

cdly f EU w 2008. I l f d f -

cl f l y y EU, c dd y R z l

qd G w ccflly EU . T ly f

c f fcl G w l ld cl d d -

w d c, lcl cc. I ll, cf w

G d R ld d f ddl cdly c cly f

ENP d G d, wl cld d y G c-

cflly EU f qc f G.

5. C

T d q d wc cd ddc w R (d ) c

c f EU l f E Nd. I d dl c f d-

dc w R clc w EU lc G d A dd w

dc cd: fl f dc l d d ENP l, wll

c f lcy cdly y xl c.

I c d cy , d d l f ENP l w fcld y

d c c dd y R d ddd fl f

ENP l d dc . A d c w R ddl -

y l lcy d w cl w ENP c,

wl d A l dc dc cc d lcl

cl c 2009. I G, w, l EU lc w dd w ly

ll c f . Hc, G ld EU l ly

c c f R lc G c -

lc, wc dd f ddl cdly EU dd. Slc clc w -

l lc fcl c w EU w dly d


27/34


d w c f dc lcy cdly f R d l

d l l y. M ly, c f G w ENC c l

l xl c d c EU ccl

c, wc d ccfl c f fcl w EU.

Wl d d cll ll fwd y l xl

c, y c c: c f l d y EU ly

ly d y lzd d f c f EU f lcy

ld y R; f c cly c d c w d lcy

l w w d. I c f c ld, c-cdly d

c-clz c c cc. T d f y y d dd

ddc cl f d f c c, ddd

l y f dc c l cc. T d f -

- c w-d c f xl c c l

dd wy l l d cd f ll ddc, wl d .


28/34


B

Ademmer, Esther/ Brzel, TanjaA.2012: M, Ey d Gd Gc EU E

Nd, : E-A Sd (fc).

Armenian News 2011: A G Ccd M, : ://w.//w/49439:l; ccd Jly 28, 2011.

ArmenianUNAssociaon2009: Rfc f M f My Flw A. Pjc

M, : ./dx.?=c_c&w=cl&d=34&Id=44&l=

; ccd Al 16, 2011.

Armtown2011: H M P G M Plcy, : ://www.-

w.c/w//q/20110318/201103181/; ccd A 22, 2011.

Badurashvili, Irina 2011: O-M f G Mcw d D, : G,Nl/

Sd, T (d.): Tdy M P-S Sc. T C C

Sd, Ff M, 79-122.

Baev, Pavel K. 2004: A R Cd. T Py G Cl A, : Cd Rw fIl A 17/2, 269-283.

BertelsmannTransformaonIndex2008: Wld Dl A Cy R, Gl.

BertelsmannTransformaonIndex2010: A Cy R, Gl.

BertelsmannTransformaonIndex2006: Dld R 2006, Gl.

Boniface,Jrme/Wesseling,Mara/OConnell,Kevin/Ripoll-Servent,Ariadna2008: V Fcl

T f Cl - Ky Ac f ENP, E Pl.

Browning,Christopher/Joenniemi,Per 2008: G f E Nd Plcy, :

E Jl f Il Rl 14/3, 519-551.

Brusis,Marn2005. T Il U f E U Cdly. Rlz Czc

Rlc d Sl, : E E Plc & Sc 19/2, 291-316.

Bugajski,Janusz2010: R Pc Rlz, : Cc Rw f Il A

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Civil Georgia 2011: EU-G V E, Rd T E Fc Mc, : ://

www.cl.//cl.?d=23058; ccd Al 11, 2011.

Civil Georgia 2010: Sl: G Swzld w El f S, : ://www.cl./

/_.?d=22064; ccd Al 16, 2011.

CivilRegistryAgencyGeorgia2011: T F Bc P w d G, : ://www.c.

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Companjen,FrancoiseJ2010: G, : Bc, Dc A/ Pl, Al (d.): T Cl Rl-

F S Rlc Scc d Fl, Ld d Nw Y: Rld,

13-29.

Council of the European Union 2005: 16030/05 N f P R C

Dl C Ac V Fcl, Bl.

Danielyan, Emil2006: A Olc M Bd f Pw w Nw Plcl Py, : E Dly

M 3/9.

Dimitrova,Antoaneta/Dragneva,Rilka 2009: C Exl Gc. Iddc w

R d CIS L EU Rl Tf U, : Jl f E Plc

Plcy 16/6, 853-872.

DutchMinistryofForeignAairs2011: Ty D, : www.z.l//Ky-c/T; c-

cd S 2, 2011.

Easton, David1957: A Ac Aly f Plcl Sy, : Wld Plc 9/3, 383-400.


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Epress.am2010: A S f V Fcl Tl w EU, : ://www..//2010/11/27/

--f--fcl-l-w-.l; ccd A 22, 2011.

Epress.am 2010: Ex D Udd W D My I U , : ://www..

//2010/09/30/x-d-dd-w-d-y---.l; ccd

A 22, 2011.

Epress.am 2011: E w Ex f A Cz Fc S, : ://www.

.//2011/01/14/xc--w-x-f--cz--c-

--y-.l; ccd A 22, 2011.

Epress.am 2011: S T Ccl M R H d Rl H? A PM E-

, : ://www..//2011/06/28/--ccl----d-l-

-----.l; ccd A 22, 2011.

Epress.am 2011c: S Ocl Ecd Fd W Ad, : ://www../

/2011/03/18/--cl-cd--d-w-d.l; ccd A-

22, 2011.

European Commission 2005: E Nd Plcy. Cy R A, Bl.

European Commission 2005: E Nd Plcy. Cy R G. Bl.

European Commission 2006: Cc f C Ccl d E

Pl S E Nd Plcy, Bl.

European Commission 2006: Cc f C E Pl d

Ccl. Tc P f C w Td C A f M

d Ayl, Bl.

European Commission 2006c: EU/ G Ac Pl, : ://c..//l/df/

_c_l_.df.; ccd A 22, 2011.

European Commission 2006d: EU/A Ac Pl, : ://c../wld//df/c_

l/___l_.df.; ccd A 22, 2011.

European Commission 2007: Cc f C E Pl, T C-

cl, T E Ecc d Scl C d C f R. O Ccl

M d Mly P w E U d Td C. Bl.

European Commission 2008: Cc f C Ccl d E

Pl. Il f E Nd Plcy 2007 P R A-

, Bl.

European Commission 2008: Cc f C Ccl d E P-

l. Il f E Nd Plcy 2007 P R G,

Bl.

European Commission 2010: S Cc - Gl Cx, : ://c../jc/l-

c/xl/xl_d_cc_.; ccd A 7, 2011.

European Commission 2011: Ow f TAIEX Pjc A 2010, : ://c../-

l/x/dy/x-/dx_.j; ccd Mc 7, 2011.

European Commission 2011: Ow f TAIEX Pjc G 2006, : ://c../-

l/x/dy/x-/dx_.j; ccd Mc 7, 2011.

European Commission 2011c: Tw Nw 22. B C- Tw, : ://

c../d/w/d/w/w_.; ccd Mc 8,

2011.

EuropeanStabilityIniave2010: G L Rl P T. Jc Tl, Bl,

Bl, Il.

EuropeanStabilityIniave2010: Oc G L Rl P . G dl,Bl, Bl, Il.

European Union 1999: P d C A w E C


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d M S, f O P, d A, f O P, Bl.

European Union 1999: P d C A w E C

d M S, f O P, d G, f O P, Bl.

Freedom House 2006. N T. Cy R A, : ://www.fd./

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Freedom House 2006. N T. Cy R G, : ://www.fd./

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Freire,MariaRaquel/Simo,Licnia 2007: T A Rd Dccy. D f T

Pc, : C f E Plcy Sd, CEPS W Dc N. 267.

Frieden,Jery1999: Ac d Pfc Il Rl, : L, Dd A./Pwll, R

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Gevorgyan, Vardan 2008: P 1 - Plcy f C Il M Rlc f A, :

Zf, L/ Kl, Wfd/ Gy, Vd/ Kd, Tz/ Iy, I (d):

Plc Il M - Vl II Rlc f A, Gc d R Fd,

S.Goble,PaulA 2008: R Pz, : T Nw Y T, S 9.

Gorupai, Oleg 2008: CSTO: A B f Illl M. Ky Zzd 81/Jly.

GovernmentofArmenia2000: Cc S Rl f Pl M R-

lc f A, : ://www.d./d/d~1/jc.HTM; ccd Jly 6, 2011.

GovernmentofArmenia2008: P Dc N 380-A Rlc f A G P,

Y.

GovernmentofArmenia 2007: Rlc f A Nl Scy Sy, Y.

GovernmentofArmenia 2008: RA G Dc. C Rlc f A Sl

Dl P, Y.

Government of Georgia 2005: Nl Scy Cc f G, : ://www.f../dx.

?l_d=ENG&c_d=12; ccd A 22, 2011.

Government of Georgia 2009: N P. Py Dc f EU-G C Fw

f Mly P I, Tl.

Grigoryan, Marianna 2011: A: R G W P Hl Pl D, :

://www../d/63157; ccd S 8, 2011.

Hedenskog,Jakob/Larsson,Robert 2007: R L CIS d Blc S, : Swd

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Hofmann, Tessa 2009: F d ddc d c: A d N-K 1986-

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Hovhannisian, Karen 2011: V Llz Bl Sdy A, : Il C f H

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Iarmoliuk, Ilona 2011: R M M, : ://.c/9/32595/?=1; ccd Jly 6,

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InternaonalCentreforMigraonPolicyDevelopment2005: Ow f M Sy CIS

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InternaonalLabourOrganizaon 2008: L M Rc A, Y.

InternaonalOrganizaonforMigraon 2008: Mdly Rw f M M G-

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InternaonalOrganizaonforMigraon2010: IOM S G Il f Bc


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Jacquot,Sophie/Woll,Cornelia 2003: U f E I. E f SclclPc, : E I Ol P 7/12, 1-18.

Jgamadze,Nino/Markarashvili,Maria2009: My A f B I, : Il

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Kelley, Judith 2006: Nw W Old W. P Plcl Rf Nw E

Nd Plcy, : Jl f C M Sd 44/1, 29-55.

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Knill,Christoph/Lehmkuhl,Dirk2000: Mc d E. Nl Rl

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Kucera, Joshua 2011: Cl A, Cc: Pz Bld f H Dcz, :

EN., Jy 14, 2011.

Lavenex,Sandra2004: EU Exl Gc Wd E, : Jl f E Plc Plcy

11/4, 680-700.

Lavenex,Sandra2008: A Gc Pc E Nd Plcy. I

yd Cdly?, : Jl f E Plc Plcy 15/6, 938-955.

Lavenex,Sandra/Schimmelfennig,Frank 2009: EU Rl yd EU Bd. Tz Exl G-

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Levitsky,Steven/Way,LucanA.2006: L L: R Il D fR C, : C Plc 38/4, 379-400

Manaseryan, Tatoul2004: D. T C Ad f A, : A Il

Plcy Rc G, W P N. 04/14, Y.

Marat,Erica/Murzakulova,Asel2007: T CSTO Bld Nw S-Sc, : Cl Cc

I: CACI Aly Mc 10.

Mayer, Sebasan 2007: D Sd l Nc d w EU: Pll, Ewcl-

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