Freedom, wherever it existed as tangible reality, has always been spatially limited. This is especially clear for greatest and most elementary of all negative liberties, freedom of movement; borders of national territory or walls of city-state comprehended and protected space in which man could move freely. Treaties of international guarantees provide an extension of this territorially bound freedom for citizens outside their own country, but even under these modern conditions elementary coincidence of freedom and limited space remains manifest. What is true for freedom of movement is to large extent valid for freedom in general. Freedom in positive sense is possible only among equals, and equality itself is by no means universally valid principle but, again, applicable only with limitations and even within spatial limits. Hannah Arendt, On Revolution, 1963 Contemporary challenges to traditional concepts of security, and especially to distinction between internal and external security, has stimulated justifications across Europe for significant increase in practices involving intrusive surveillance, policing, and restrictive measures toward people in general. (1) In some instances, this change may have resulted in erosion of civil liberties, human rights, and rule of law. Therefore, practices implementing Schengen borders regime merit attention. The Schengen agreement of 1985 and Schengen Convention of 1990 that implemented it (2) were intended to establish, through an intergovernmental approach, (3) application of the principle of free movement of persons within European borders. (4) The Single European Act, which came into effect on July 1, 1987, by introducing article 14 into EC Treaties (formerly, article 8a), stipulated that European Community should adopt measures aimed at achieving a market without frontiers; that is, an internal market. Article 14.2 states: The internal market shall comprise an area without internal frontiers in which free movement of goods, persons, services and capital is ensured in accordance with provisions of Treaty. Thus, an internal market should consist of an area without qualitative or quantitative barriers in which free movement of persons, among other three freedoms of movement, should be ensured and fully respected under certain circumstances. (5) It is also important to recall that it was not until May 1, 1999, when Amsterdam Treaty came into effect, that Schengen became part of EU machinery (6) and section dealing with Schengen borders acquis (7) was incorporated within first pillar. A protocol annexed to Amsterdam Treaty finally integrated Schengen acquis into framework of European Union, including decisions and declarations adopted by executive committee established by 1990 convention. Looking at implementation by member states of some of measures adopted under Schengen regime, (8) however, different path has been taken from one carefully settled in EU Treaty (TEU) structure (9) as consequence of predominance of claims about need for security over claims about conditions of freedom. (10) In some instances, member states have unilaterally reintroduced border controls and checks on individuals, justified on grounds of special security concerns or state of emergency. Thus, not only has one of main goals of internal market, freedom of movement of persons, been undermined, but so, too, have other fundamental rights and freedoms provided at European as well as at international level. Additionally, categories of people affected by these restrictive policies cover not only those who qualify as third-country nationals or others, (11) but also EU citizens in general. …
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