El sistema de asilo en la UE: ¿Hacia una solución federal?

Artículo publicado en el blog de Federalistes d’Esquerres  Esquerres Sense Fronteres

 

Tuvo que pasar la Segunda Guerra mundial para forjar la idea de una Europa federal como unión de naciones. De la mano de esta idea nacía también el derecho de asilo, reconocido en la convención de Ginebra de 1951. Europa asumía entonces, que la protección internacional es una responsabilidad moral y política, y también una responsabilidad con la paz. Aunque hoy parece olvidado, el derecho de asilo se recogió en la carta de Derechos fundamentales de la Unión Europea (artículo 18), firmada en Niza en el año 2000. Y en su artículo 19 se suscribió la prohibición de las expulsiones colectivas, que reivindica el principio de no devolución, algo que también parece olvidado a cambio de impulsar políticas de externalización y readmisión, como es el Pacto con Turquía y otros pactos con países del norte de África. ¿Qué fue de aquellos valores de solidaridad de la Europa soñada por Spinelli?

Ocurrió que al tiempo que se redactaba la Carta de Derechos Fundamentales, se consolidaba el espacio Schengen y con él, la fortificación de las fronteras exteriores de la Unión Europea. Una gran frontera que remplazó a todas las demás. En el mapa de Europa quedó trazado “un espacio seguro” y cerrado dentro del cual las personas ciudadanas de los países firmantes podrían circular libremente y las personas bautizadas como “extracomunitarias” (provenientes de países no nacionales de la UE) no podrían acceder. Los países limítrofes, ejercerían de “guardianes” de toda la UE.

El Tratado de Schengen (1985) también trajo la necesidad del Tratado de Dublín, creado para racionalizar los procesos de solicitudes de asilo de acuerdo a la convención de Ginebra. Fue firmado en 1990 y reformado en 2003 (Dublín II) y en 2013 (Reglamento Dublín III). Este convenio es el que rige ahora para asignar el país en donde una persona puede tramitar su solicitud de asilo. Establece dos criterios prioritarios: tener familiares o disponer de permiso de residencia. En la práctica, estos criterios resultan muy restrictivos, por lo que predomina el tercer criterio, el del primer país de llegada. Esto es lo que hace que el sistema Dublín sea sumamente injusto, tanto para los estados miembros como para las personas solicitantes de asilo, ya que desplaza la carga hacia los países limítrofes en lugar de compartir la responsabilidad. En los últimos años las personas solicitantes de asilo se han acumulado en Italia, Grecia y Hungría, a la espera de una lenta “reubicación”, que a duras penas se fue pactando en el Consejo Europeo, no sin dejar de aflorar las mezquindades nacionales. Para controlar Dublín, en el año 2003 se creó el Sistema EURODAC, una base de datos de huellas dactilares de personas solicitantes de asilo y de personas detenidas en los controles Schengen. Con este sistema se puede saber por cuál país entró la persona y si ha solicitado asilo, ya que se puede pedir sólo en un estado miembro. Si la persona fue registrada en un país distinto del que quiere pedir asilo, Dublín establece que debe ser “transferida” al país donde se registró, que por lo general es el que entró. Por este motivo, muchas personas se rehúsan a dejarse tomar las huellas digitales y optan por continuar viaje hacia otros países del Norte como Suecia o Alemania, corriendo el riesgo de ser detenidas. El fracaso de Dublín hace tambalear el acuerdo de Schengen. Cabe recordar que algunos países optaron por cerrar temporalmente (solo pueden hacerlo durante seis meses) sus fronteras Schengen para que no pasasen las personas refugiadas, como lo hicieron Austria, Alemania, Dinamarca en su momento o Francia que de tanto en tanto cierra el paso de Ventimiglia.

Queda claro entonces que Dublín es un sistema totalmente ineficaz y nada equitativo, y además muy caro, ya que incluye el mantenimiento de EURODAC y los gastos de transferencias, detenciones y deportaciones. Pero lo peor de todo es que no garantiza los derechos de los solicitantes de asilo, ya que estos dependen de los estados miembros y ningún organismo supranacional vela por ello. Una alternativa que se discutió en la Comisión de Libertades Civiles del Parlamento Europeo es que la agencia EASO (European Assylum Suport Office) amplíe sus funciones y sea una autoridad competente en una posible redistribución más equitativa, en la cual predominen las preferencias de las personas refugiadas. El problema esencial es, tal como han difundido los medios de comunicación desde hace casi tres años, la no aceptación de la obligatoriedad de las cuotas de personas refugiadas por parte de los estados miembros y la instrumentalización de la problemática por parte de grupos políticos de derecha y extrema derecha.

Pero además de Dublín, la Unión Europea cuenta con otros instrumentos menos mezquinos en materia de asilo, y que, de aplicarse, podrían solucionar la gestión de la protección internacional. Un ejemplo es la Directiva de Protección Temporal. Tras la guerra de los Balcanes, el parlamento europeo aprobó la Directiva 2001/55/CE que establece protección temporal en caso de afluencia masiva de personas desplazadas, pero que nunca fue aplicada en ningún estado miembro. En 2011, con la llegada masiva de tunecinos a las costas italianas, el gobierno italiano solicitó la aplicación de esta Directiva, pero no reunió el consenso necesario en el Consejo Europeo. Francia y Alemania alegaron que los tunecinos eran “migrantes económicos”. Tras los naufragios cerca de la isla de Lampedusa, se puso alguna otra excusa para no aplicarla.

Otro instrumento imprescindible que debería ponerse en práctica de forma urgente es la expedición del visado humanitario desde embajadas y consulados, algo básico y fundamental para que no siga muriendo gente en el mar. Para expedir visados humanitarios se necesita reformular la regulación del código de visados, una propuesta que ya ha pasado por el parlamento europeo en 2016, pero que el Consejo no está dispuesto a negociar. De todos modos, una posible reforma de la regulación del código de visados sólo armonizaría las reglas, sin que sea obligatorio para los estados miembros. La reticencia de los estados en otorgar el visado humanitario está muy clara, y se basa en sus competencias exclusivas sobre la gestión del control de sus fronteras nacionales, tanto a nivel material como simbólico.

Es evidente que el viejo sueño de Spinelli de la Europa libre y unida aún no está del todo consolidado. La realidad es que la Unión Europea funciona como un artefacto político intergubernamental a través de acuerdos entre los gobiernos de los estados miembros. Aunque existen organismos supranacionales como la Comisión Europea y el Parlamento, el peso específico lo tiene el Consejo. Es esta forma de funcionamiento la que hoy en día no permite afrontar ni gestionar de forma eficaz y solidaria el derecho de asilo de las personas extranjeras que lo necesitan.

Siempre me pregunto qué pensaría Spinelli si viera las imponentes vallas de la Europa Fortaleza que impiden el paso de personas refugiadas. Y es que con la idea de Europa y del Espacio Schengen como libre circulación, se produjo una paradoja: Europa, en tanto unión de estados-nación, reforzó – aunque no era la intención inicial – la idea de frontera, y por lo tanto también la idea de nacionalidad. Es decir, la globalización no abolió la territorialidad como modo de control, sino que por el contrario, la afianzó. ¿Qué pensaría Spinelli? Lo mismo que pensaba mientras el fascismo lo tuvo confinado: que no hay otro camino más que seguir construyendo “comunitarización”, tal como promueve el federalismo europeo, a través de estructuras supranacionales que velen por los intereses de las personas (y no de los estados) y a través de acuerdos solidarios que promuevan responsabilidades compartidas y equilibradas.

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