I.  INTRODUCTION

  Migrations are a complex social phenomenon due to their causes and consequences, their origins and destinations, and the challenges that they pose both to the societies where immigrants come from and the societies where they settle. Yet, with varying degrees of intensity depending on the point in history, all societies have experienced both incoming and outgoing migratory movements. It is the sedimentation of successive migratory currents in a given area that makes all contemporary societies mixed and plural. Migration therefore contributes to moulding the host societies while leaving a deep mark on the societies of origin.

  Until recent years, Spain and other southern European countries have been areas of emigration. And the emigrants who left Spain and other European countries moved to the Americas, to Northern Africa and to other European countries over different times in modern history, making a positive contribution to both the development of the host countries and the welfare of the overall population in their countries of origin.

  For the last two decades, Spain has become a country of immigration. This has been the case since the mid eighties in terms of annual flows, and since the beginning of the nineteen nineties in terms of the number of immigrants residing in Spain compared to the number of Spaniards residing abroad. Moreover, with the acceleration of migratory flows registered over the last five years, the proportion of foreigners residing in Spain has reached the high range among European Union countries.

  The opportunities and challenges posed by immigration are very similar to those faced by our surrounding countries whose experience in receiving immigration is longer standing. Spain has the advantage of being able to learn from their experiences, from what they did well and from their mistakes when integrating immigrant population. However, aside from the brisk pace of this phenomenon in Spain, our immigration also has specific traits that should be taken into account.

  As regards the fight against illegal immigration, the Government is making a great security, diplomatic and political effort, not only on a bilateral basis but also on a regional and international level, in order to stop the arrival of illegal immigrants, fight agains the mafias involved in this activity and to increase the surveillance and control on borders and airports.

  In this sense, we have increased:

—  the means of control and surveillance on the borders;

—  the number of patrolling units on the coast of origin of this kind of immigration;

—  the rescue effort of people who risk their lives in their journeys;

—  humanitarian and health services; and

—  care and repatriation of these people to their countries of origin.

II.  MEASURES ADOPTED WITHIN THIS FRAMEWORK

A.   Operational Measures

—  Significative increase in the National Security Forces (FCSE). For instance, there has been a near-50% increase in the National Police Corps (CNP) and border posts and a 65% increase in the foreign departments.

—  The Commissariat-General for Aliens and Documentation of the CNP has design a Plan to combat Illegal Immigration, creating the Illegal Immigration Squad (BRIC) and reinforcing the Central Unit of Immigration Smuggling and Fraudulent Documentation (UCRIF) and the Central Unit of Expulsion and Repatriation (UCER).

—  At the "Guardia Civil", important reinforcement of 285 members of personnel in the Territorial Fiscal Patrol (PAFITEs) in 2006 on the Ceuta and Melilla land borders, raising of the fences and building of a tridimensional wire structure.

—  Extension of the Integrated External Surveillance System (SIVE). It's been finished in Lanzarote and Fuerteventura and between Cádiz and Almería. It's being continued in the rest of the Canary Islands and it will be installed in Huelva at the end of 2007. Planning and development continues in Murcia, Alicante and Valencia.

—  National and European border control forces have been established: Seahorse (2006-08), Seahorse network (2007-09), "Paso del Estrecho" (Strait of Gibraltar Crossing), Operations HERA.

—  Spain has sent and is sending help to other State Members that are also affected by illegal immigration in joint operations: Nautilus (Malta-Sicily) and Hermes (Sardinia-Balearics).

—  The permanent deployment Spain has in Western Africa not only is going to continue but it is going to be increased sending planes and ocean-going vessels to Mauritania, Senegal and Cape Verde.

—  In September the "Guardia Civil" was given the "Río Miño" ocean-going vessel, a more efficient tool to fight against illegal immigration both on international waters and anywhere in Africa.

—  Proceedings regarding the control of common borders: Together with the cooperation with Morocco, cooperation and training actions regarding border control are being developed in Mauritania, Senegal, Cape Verde and Gambia: joint patrols, cooperation in training, liaison officers and joint investigation of mafias. So far all of this has resulted in the special repatriation of third country nationals and the building of a refuge in Mauritania.

—  The "Guardia Civil" has worked on a Five-year Plan ("Plan Atlántida") for the reinforcement of staff and equipment to purchase ocean-going vessels, surveillance planes, and unmanned planes and satellite surveillance.

—  The Council of Ministers approved a Contingency Fund on 7 December 2006 to the value of €31,075,349.81 to finance various expenses such as improvement works for the CIEs, equipment and travel expenses of the National Security Forces officers both in and outside Spain.

B.   Structural Measures

—  The Ministry of Interior has created the Directorate-General for International and Foreign Relations (Royal Decree 991/2006 8 September).

—  Interior attachés have been deployed to contribute to the fight against illegal immigration in Mauritania, Senegal, Cape Verde, Guinea-Bissau, Mali and Guinea Conakry.

—  The Regional Coordination Centre in the Canary Islands has been created. Its Director has become the Coordinating Authority.

—  A National Coordination Protocol is under consideration. This would affect all ministries that are involved in case there is a possible crisis when making a decision regarding immigrant boats. With the experience of the Regional Coordination Centre in the Canary Islands, the Centre of Sea Borders Surveillance will be created. The Ministerial Order draft is being studied by the different Ministries.

  A general Royal Decree which will regulate the help and subsidies that are given in the field of international police cooperation is being elaborated. The purchase of equipment to reinforce border control and the help to these countries will be directed faster and more efficiently. Thus, once the decision for special help is taken, it will not be necessary to publish a Royal Decree for each case.

—  Agreements regarding immigration:

—  Bilateral Readmission Agreement in force: Algeria, Bulgaria, Cape Verde, Slovakia, Estonia, France, Gambia, Guinea Conakry, Guinea Bissau, Italy, Latvia, Morocco, Mauritania, Nigeria, Poland, Portugal, Romania, Switzerland, Ghana and with the Former Yugoslav Republic of Macedonia.

—  Agreements in hand with Cameroon, Ghana, Mali, Niger, Sierra Leone, and Senegal.

C.   Economic and International Measures

—  Approval of the Integral Security Plan of the Canary Islands 2006-2008. It is coordinated by the vice-presidency and eight ministries are involved. Five of the eight goals it contains are related to immigration. It has meant an increase in the officers of the National Security Forces.

—  Efforts are being made to negociate with the countries of origin or transit to achieve greater efficiency and speed in the immigrant identification and repatriation processes.

—  Spain has signed MOUs with Senegal, Mauritania and Cape Verde so that they accept the deployment of Spanish or European forces on their territorial waters.

—  These countries have been offered operative cooperation and technical assistance, and equipment too.

—  Spain has been able to make immigration a world priority for the European Union at the moment.

—  Spain, together with France and Morocco and the cooperation of the European Commission organised the Rabat Euroafrican Conference on Migration and Development. Its Action Plan has already been started.

—  Spain has contributed decisively to the promotion of four new EU funds regarding Borders, Asylum, Return and Integration (more than €4,000 million for 2007-13). Spain is particularly contributing to the European Border Fund with €1,800 million. During 2007 and 2008 Spain has been the first recipient in the border fund, and it is waiting for a 60 million allocation. Spain is also the first recipient in all four funds, where it is expected to receive 87 million euros in funds. The Ministry of Interior is developing a specific structure to manage border and return funds.

—  Spain has been one of the countries that have strongly led the support and promotion to start the Agency for the management of the Operative Coordination of Member States External Borders (FRONTEX). The Deputy Director of the Agency is Spanish.

—  Spain has promoted the development of Article 7 of the Regulation of FRONTEX, which sets out an inventory of equipment for the control and surveillance of external borders that each Member State provides the Agency with. This inventory already exists. Spain has contributed with two helicopters (one from the Police, another one from the "Guardia Civil"), eight ships (five coasting vessels—17 metres, three seagoing vessels—30 metres) and some equipment (six thermal cameras, one of them being a mobile camera, one CO2 mobile detector, one mobile radar). Spain is one of the countries at the top of the list of contributors.

III.  STRATEGIC PLAN FOR CITIZENSHIP AND INTEGRATION (NOT PRINTED HERE)

19 October 2007