Expansion without mandates: Border and asylum agencies in European Union migration governance

The European Border and Coast Guard Agency (Frontex) and the European Asylum Support Office (EASO) have experienced increases in available resources and have conducted joint operations with European Union (EU) Member States in recent years. They may be regarded as examples of agencification in border protection and asylum policy, but this paper argues that agencification has proceeded without an expansion in agency mandates. Using Frontex and EASO operations in two Southern European border countries, Cyprus and Greece, as comparative case studies, I show that the two agencies have employed their growing technical, performative, legal and moral resources to legitimize efficient processing of asylum applications in reception centers, and coordinated border protection and more/swifter returns. At the same time, the absence of mandates on final decision-making has diluted policy accountability and weakened monitoring vis-à-vis Member States, with respect to fundamental rights violations and the implementation of EU law. This resource expansion without mandates has allowed EU agencies to resolve long-standing tensions among Member States and the European Commission in a contested policy area. The analysis has broader implications for the role of agencies in multilevel migration governance.