T au mansdo , Paul; Loschi, Chia a
A icle — Published Ve sion
In e ope abili y and he mul iple modes o o de ing in
Eu ope's digi al bo de egime
In e na ional Mig a ion
P o ided in Coope a ion wi h:
John Wiley & Sons
Sugges ed Ci a ion: T au mansdo , Paul; Loschi, Chia a (2025) : In e ope abili y and he mul iple
modes o o de ing in Eu ope's digi al bo de egime, In e na ional Mig a ion, ISSN 1468-2435,
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h ps://doi.o g/10.1111/imig.70022
wileyonlinelib a y.com/jou nal/imig
INTRODUCTION
Da a ha e become essen ial p e equisi es o o e seeing and ex ac ing alue om c oss- bo de mobili ies. O e
he pas wo decades, he wo ldwide push in digi izing bo de and mig a ion go e nance has led o he con-
s uc ion o da abases con aining pe sonal and biome ic in o ma ion o a elle s. O igina ing om he ealm o
Recei ed: 8 July 2024
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Re ised: 4 Feb ua y 2025
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Accep ed: 21 Ma ch 2025
DOI: 10.1111/imig.70022
SPECIAL ISSUE ARTICLE
In e ope abili y and he mul iple modes o
o de ing in Eu ope's digi al bo de egime
Paul T au mansdo 1 | Chia a Loschi2
This is an open access a icle unde he e ms o he C ea i e Commons A ibu ion License, which pe mi s use, dis ibu ion and
ep oduc ion in any medium, p o ided he o iginal wo k is p ope ly ci ed.
© 2025 The Au ho (s). In e na ional Mig a ion published by John Wiley & Sons L d on behal o In e na ional O ganiza ion o
Mig a ion.
1Depa men o Science, Technology and
Socie y, Technische Uni e si ä München,
Munich, Ge many
2Depa men o Philosophy, Uni e si y o
Bologna, Bologna, I aly
Co espondence
Chia a Loschi, Depa men o Philosophy,
Uni e si y o Bologna, Via Zamboni, 38,
40126 Bologna, I aly.
Email: chia [email protected]
Funding in o ma ion
Ös e eichische Akademie de
Wissenscha en; ENS Fellowship
P og amme “Da a ica ion in Eu opean
Socie ies”; Ho izon 2020 F amewo k
P og amme
Abs ac
D awing on quali a i e in e iew da a and documen
analysis, his a icle aces he making o in e ope abili y
be ween da abases as a policy esponse o Eu ope's c isis-
laden managemen o mig a ion. I a gues ha , a he
han adhe ing o a singula logic, he policy enac s se e al
modes o o de ing h ough which ac o s employ dis inc
meanings and a ionales, deal wi h challenges and com-
plexi ies, and e oke con inui y and/o dis up ion in he
digi al bo de ing o mig a ion. Speci ically, ou o de ing
pa e ns a e iden i ied: in e ope abili y as a echnological
p ojec , as da abase ( e- )adminis a ion, as legal con igu a-
ion and as poli ical ision. Each mode assembles and pe -
o ms he in e ope abili y policy di e en ly, uses modes o
exp ession, p oposes ce ain p oblems and in e en ions
and also engende s o ms o o he ing. The e o e, his a -
icle examines in e ope abili y in he bo de egime as an
example o how he digi iza ion o bo de s and mig a ion is
d i en by mul iple—and pa ially con lic ing— a ionales and
o de ing in en ions.
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TRAUTTMANSDORFF and LOSCHI
e- go e nance, in e ope abili y has been associa ed wi h digi al inno a ion and i s po en ial go e nmen al bene i s
(Hodapp & Hanel , 2022). The concep has been used in a ious domains, including heal hca e, elecommunica-
ion, elec onic go e nmen and eme gency esponse mechanisms (Chen e al., 2013; Kohli & Swee- linTan, 2016;
Pelizza, 2016). I has mo eo e pe mea ed he domain o mig a ion, whe e in e ope abili y has eme ged as a p om-
inen s a egy o acili a e da a exchange ac oss mul iple da abases, pla o ms o applica ions ela ed o mig an
in o ma ion. Ou a icle explo es he ise o in e ope abili y be ween la ge- scale in o ma ion sys ems in he digi al
bo de egime o he Eu opean Union (EU). On 14 May 2019, he EU adop ed Regula ion 2019/817 and 2019/818
o make six majo IT- sys ems in e ope able: he Schengen In o ma ion Sys em (SIS II), Eu odac ( o Eu opean
Dac yloscopy), he Visa In o ma ion Sys em (VIS), as well as sys ems cu en ly unde de elopmen , such as he
En y–Exi Sys em (EES), he Eu opean T a el In o ma ion and Au ho isa ion Sys em (ETIAS) and he Eu opean
C iminal Reco ds In o ma ion Sys em o Thi d- Coun y Na ionals (ECRIS- TCN). These da abases pu sue di e en
pu poses bu unde pin he EU's bo de , secu i y and mig a ion managemen by acili a ing in o ma ion sha ing,
iden i y e i ica ion and coo dina ion among EU membe s a es. The in e ope abili y egula ions p omise be e
c oss- e e encing o pe sonal and biome ic in o ma ion ac oss he sys ems and a icula e he goal o enhancing
bo de secu i y while comba ing ‘illegal immig a ion’.
As Leese a gues, in e ope abili y ‘ e uses o be de ined easily and in a uni o m way’ (2024: 146–147). The e
a e a leas wo main meanings applied o da abase in e ope abili y: he i s e e s o he mo e abs ac , echnical
dimension conce ning he ‘ways in which wo o mo e di e en en i ies can unc ion oge he and wo k owa ds
a common goal’ (p. 146). A second meaning e e s o he p ocesses o adjus ing EU da abases in mig a ion and
bo de domains o be in line wi h b oade poli ical goals insc ibed in o he in e ope abili y policy. Bo h meanings
a e o en in e wined and a imes ha d o sepa a e. In ou a icle, we a e in e es ed in how he policy o in e ope -
abili y is in oduced wi h se e al co- exis ing meanings se ing mul iple goals. We explo e his policy as an o de ing
ool ha mus espond o c ises pe cei ed on se e al le els in he EU's bo de s and mig a ion con ol egime.
Inspi ed by Science and Technology S udies (STS) schola John Law and his concep o ‘modes o o de ing’
(Law, 1994), we unde s and o de ing as a s a egy o use dis inc and some imes compe ing p io i ies, p inciples
o p ac ices ha assemble policy in mul iple ways (Law, 1994; U e a, 2015). We a gue ha a close examina ion
o o de ing pa e ns can p o ide a deepe insigh in o why policymake s asc ibe bo h ans o ma i e and s abi-
lizing powe o in e ope abili y while a ionalizing i as a p agma ic policy esponse. By paying a en ion o hese
pa e ns, we illus a e ha he digi iza ion o bo de s does no adhe e o a singula a ionale o logic. Ins ead,
policies like in e ope abili y can embody mul iple a ionales and jus i ica ions; hey ep esen dis inc meanings o
na iga e he bo de egime's challenges; hey ep esen a ious modes o go e ning bo de s and human mobili y;
and hey se e di e en in e es s o ac o s, in oking bo h con inui y and change in he c isis- laden managemen
o mig a ion.
In wha ollows, we will p o ide a summa y o key hemes in he li e a u e on he digi iza ion o bo de e-
gimes. We will hen cla i y ou concep o modes o o de ing in policymaking, d awing om he empi ical ma e ial
we analysed. We will u he mo e delinea e ou dis inc modes o o de ing: in e ope abili y as a echnological
p ojec , as da abase adminis a ion, as legal con igu a ion and as poli ical ision. Ou conclusion discusses some
in e sec ions be ween hese modes, some cons ain s and unce ain ies associa ed wi h hei pe o mance, and
he ansi ion be ween modes in ins ances o ailu e.
In e ope abili y in he li e a u e
Schola ship has c i ically engaged wi h he inc easing da a p oduc ion and collec ion o egis e , ack and con ol
mig an mobili ies and e lec ed on he ans o ma ions i b ough abou in bo de and mig a ion go e nance
(Bigo, 2014; Pelizza, 2020, 2021; Scheel e al., 2019; T au mansdo , 2024). Da a and digi al echnologies ha e
played c ucial oles in u he mo ing bo de s beyond geog aphical dema ca ion lines, he eme gence o no el
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INTEROPERABILITY AND MODES OF ORDERING
‘ echno- bo de scapes’, o c ea ing delocalized assemblages o con ol (Cô é- Bouche , 2002; Godin & Donà, 2021;
Sohn, 2016). They acili a e ac i i ies such as moni o ing, adap ing o co ec ing da a lows, shaping how ‘mobil-
i y [is made] go e nable in he i s place’ (Bellano a & Glou sios, 2022a: 180). They ha e also enabled a new
quali y in he hype - documen a ion o mobile people, enac ing disciplina y, biopoli ical o con essional egimes o
iden i ica ion (Sal e , 2005). These egimes build on socio echnical o ms o ‘bo de wo k’ (Vuko & Shelle , 2013),
based on biome ic ecogni ion, d ones and sa elli es, include ‘p e- depa u e checks acili a ed by algo i hmic
isk- p o iling o he cap u e and analysis o social media and mobile phone da a’ (Glou sios & Scheel, 2021: 123).
Combined wi h new biome ic egis a ion echniques, i ual asylum o isa p ocedu es and a elle wa ch lis s,
he s o age o in o ma ion in la ge- scale da abases also demons a es he pe sis en go e nmen al desi e o en-
su e he aceabili y o mig an s (Bondi i, 2004). Such in ensi e collec ions o da a ha e inc easingly been accom-
panied by calls o in e ope abili y, as in he Global Compac on Re ugees (Gilbe , 2019), and supplemen ed by
p omises o a i icial in elligence (AI) o au oma e he e alua ions o da a se s (A adau, 2023). Schola s ha e also
highligh ed how da a in e ope abili y in mig an su eillance sys ems elies on o he echnological appa a uses
such as d ones and sa elli es (Topak, 2023).
In he EU con ex , cen alized da abases like SIS II, VIS o Eu odac ha e se ed as key lenses o examining
he echnopoli ics o bo de con ol, e ealing bo h he me iculous echnical ou ines o bo de managemen as
well as he agile na u e o i ual su eillance and digi al sc eening p ocesses (Dijs elbloem, 2021). A en ion has
mo eo e been cen ed on he in luence o newly eme ging ac o s in bo de ing ac i i ies, anging om ansna-
ional bodies such as he EU Agency eu- LISA (Magui e, 2023; T au mansdo , 2024) o global secu i y companies
(Bai d, 2018; Schwe l, 2018). In he con ex o EU da abases o mig a ion managemen , he discussion on o ga-
nizing, adjus ing and enhancing syne gies among hem can be aced back o a leas he ea ly 2000s (De He &
Gu wi h, 2006).
The 2019 in e ope abili y egula ions, as Bigo e al. (2020) sugges , ma k a c ucial junc u e in he e olu ion
o Eu opean secu i y, opening he ield o a new g oup o IT expe s who collabo a e and compe e wi h police,
in elligence and o he secu i y p o essionals (p. 112). They a e now key ac o s pa icipa ing in wha Leese calls
an eme ging ‘digi al space o iden i y managemen ’ ha ‘[d aws] oge he bo de con ol, mig a ion, and secu-
i y as a c oss- cu ing go e nmen al ool […] o p oduce knowledge abou mobile, ola ile popula ions’ (2022:
125–26). The concep o in e ope abili y has also been explained as a esponse o p e ailing epis emic and
ope a ional ‘anxie ies’ su ounding he use o secu i y da abases (Bellano a & Glou sios, 2022b) o as a solu-
ionis pa adigm ha conceals he i ulen complexi ies inhe en in digi al bo de ing (T au mansdo , 2023).
Impo an ly, on echnical le els, schola s ha e sc u inized how exis ing da a p o ec ion amewo ks ace mas-
si e challenges om in e ope abili y and i s en isioned componen s, such as he Common Iden i y Reposi o y
(CIR) o Mul iple Iden i y De ec o (MID). They gi e ise o pa icula conce ns ega ding he ‘massi e ex ension
o he su eillance o many o e en all EU and hi d coun y ci izens a elling o and in Eu ope’ (Aden, 2020:
94). Se e al c i ical legal schola s ha e unde sco ed he isks associa ed wi h such an expansi e scheme o da a
exchange, encompassing h ea s o undamen al igh s, p i acy and he ule o law (Cu in & Bas os, 2021;
Va oula, 2020).
All hese s udies demons a e how c ucial he s udy o in e ope abili y becomes o unde s and he poli i-
cal, legal and echnological ans o ma ions ha aim o ackle he inc easing load o collec ed da a on mobile
popula ions. Building on he esea ch di ec ions ou lined abo e, ou a icle p esen s an addi ional pe spec-
i e: empi ically, we a e aking a close look a he policymaking p ocess while ques ioning why and how
in e ope abili y is pe o med as a mul iple policy ins umen ha is in ended o ha e an impac a a echnical,
adminis a i e, o ganiza ional and poli ical le el. We emphasize he impo ance o no only e lec ing i s pos-
sible (poli ical and legal) e ec s bu also shedding ligh on how, in his way, assembling his policy p o ides
impo an means o espond in a momen o c isis. Concep ually, we hus ocus on he modes o o de ing
enac ed h ough in e ope abili y, p oposing a no el pe spec i e on policymaking in he digi iza ion o he EU
bo de egime.
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TRAUTTMANSDORFF and LOSCHI
How policy enac s modes o o de ing
Combining c i ical policy s udies and STS, ou concep ual app oach depa s om pe cei ing policy as a ‘con inu-
ally eme ging e ec o mul iple elemen s ha a e assembled and e- assembled’ (Cla ke e al., 2015; Da ies &
Lind ig, 2021; W igh , 2011: 30). Assemblage hinking has become a popula app oach in policy concep ualiza-
ions, ejec ing he idea o policy as a ‘cohe en hing o as de inable as he sum o i s cons i u i e componen s’
(Sa age, 2019: 322). As an analy ical ool, i emphasizes a policy's con ingen and con ex ual cha ac e , i s appea -
ance in di e en guises, i s co- exis ing meanings o enac men o mul iple (policy) wo lds (Da ies & Lind ig, 2021;
G eenhalgh, 2008; U e a, 2015). Ou app oach he e o e ollows his line o hinking and ejec s he assump ion
o a policy's essence; as Sa age (2019) a gues, i is undamen al o ‘[unde s and] how a policy assemblage can
ope a e wi h s a egic and obse able impac s, bu wi hou a singula guiding a ionale’ (325). Policy assemblages
a he come in o being as a angemen s o he e ogeneous componen s, ep esen ing ‘a ga he ing oge he o po-
li ical imagina ions, a ionali ies, echnologies, in as uc u es and agen s owa ds s ee ing indi iduals and g oups
in pa icula di ec ions’ (ibid.: 328). Pa aph asing John Law, policymaking in he digi al bo de egime could be
concei ed as a complex ‘p ocess o holding hings oge he ha a e no s ongly consis en ’ (Law, 2004: 113).
We use his app oach o ca e ou mul iple meanings o in e ope abili y as a policy in he bo de egime, ha is
he ways in which ac o s enac di e en a ionales, logics o jus i ica ions o his policy. As U e a (2015) explains,
policy assemblages enac wha Law calls di e en modes o o de ing, ha is ‘ ecu si e pa e n[s] embodied and
ecu si ely ins an ia ed in he ne wo ks o he social’ (Law, 1994: 111). In Law's wo k on he managemen s a e-
gies o he Da esbu y labo a o y (1994), he desc ibes modes o o de ing as ‘in en ional, bu (o en) non- subjec i e,
sel - e lexi e s a egies’ (109) ha combine a ious p io i ies, p inciples, managemen p ac ices and compe ing
a ionales, h ough which ac o s' pa e n and enac eali ies di e en ly. T ansla ed o ou case, di e en ypes o
o de ing wo k in o m policymake s' pe cep ions o wha in e ope abili y should s and o , wha kind o p oblem
and solu ions i pa e ns, why and o whom his policy mus in e ene in he EU bo de egime.
While o de ing s a egies ha e ypically been associa ed wi h classi ica ion p ocedu es h ough bo de ing
spaces and da abases (Knox e al., 2008; Van Rossem & Pelizza, 2022), ou con ibu ion emphasizes ha o de ing
a emp s seek o a ec echnical and o ganiza ional p ocesses wi hin he bo de egime a he same ime. Modes
o o de ing hus en ail ‘ he sea ch o s a egic e ec s, he aim o ans o m an exis ing si ua ion […] h ough he
es ablishmen o pa icula se s o ela ions be ween new and exis ing [policy] en i ies’ (U e a, 2015: 12). As we
will see, in e ope abili y is assembled h ough di e en policy elemen s, akes on di e en meanings, ollows di-
e ging logics and jus i ica ions o p ac ices ela ing o he policy (see Table 1 below). Con a y o policymake s'
o icial p esen a ions o ‘ a ional, linea and idy implemen a ion models’ (Sin, 2014: 438), we he eby wan o
acknowledge he mul iple o de s inhe en o his policy. We will he e o e in es iga e he making o da abase in-
e ope abili y as pe o ma i e (policy) occu ences ha pu sue o de ing a emp s a he han ace a well- de ined
implemen a ion p ocess (U e a, 2015: 13). Unde s ood as an ins umen o o de ing om wi hin, in e ope abili y
appea s as a policy mul iple (c . Mol, 2002)—in oking bo h con inui y and change, c isis and ( empo al) s abili y in
he EU's managemen o mig a ion. We belie e ha such an app oach can e ine ou unde s anding o policies as
agen s o digi izing bo de s and mig a ion.
MATERIALS AND METHODS
To iden i y modes o o de ing in he making o in e ope abili y o EU da abases o bo de con ol, ou app oach
in ol ed a quali a i e- in e p e a i e amewo k ha cen e ed a ound 20 semi- s uc u ed esea ch in e iews
(occasionally wi h wo o h ee in e locu o s om he same o ganiza ion) and a b oade collec ion o selec ed
documen s. Documen s included legisla i e ex s, policy pape s om he Eu opean Commission (EC), opinion pa-
pe s, epo s by agencies such as he EU Agency o Fundamen al Righ s (FRA) o he Eu opean Da a P o ec ion
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INTEROPERABILITY AND MODES OF ORDERING
TABLE 1 Tabula o e iew o in e ope abili y's modes o o de ing.
Analy ical c i e ia
In e ope abili y as
La ge echnological p ojec
Res uc u ing da abase
adminis a ion Legal con igu a ion Poli ical ision
Policy pe o mance Technological e olu ion Adminis a i e-
o ganiza ional shi
New legal pa hways Poli ical measu e
Rhe o ical, simpli ied exp ession Da abases alking o each
o he
Building a new ecosys em Enabling/s eamlining access The EU mus deli e
Pe cei ed c isis o p oblem Gaps o in o ma ion/
knowledge
Compa men alized
a chi ec u e o da abases
Non- implemen a ion o egula ions,
iden i y aud
Lack o poli ical esponse o
mig a ion/ e o ism
Requi ed in e en ion Technological o de ing Adminis a i e-
o ganiza ional o de ing
Legal o de ing Poli ical o de ing
Imagined solu ion Technological con inui y,
da a holism
C ea ing a cen al common
eposi o y
Legally enabling wide access o
da abases
Fos e ing Eu opean
in as uc u e
O he ing people on he mo e Mig a ion as da a popula ion No malizing suspicion C iminaliza ion o asylum F aming non- ci izens
Con es ed elemen s Technical necessi y, poli ical
desi abili y
La ge- scale su eillance,
da a misuse and abuse
Inadequa e sa egua ds Secu i y- d i en poli ics
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TRAUTTMANSDORFF and LOSCHI
Supe iso (EDPS), epo s om he High- Le el Expe G oup on In e ope abili y (HLEG) and analy ical sum-
ma ies (e.g. by he Eu opean Pa liamen a y Resea ch Se ice). Ou in e iew ma e ial encompassed a ange o
s akeholde s ha we e no only in ol ed in d a ing policy bu also in con es ing i . The in e iews e e ed o
he his o y and eme gence o he policy, in e ope abili y's meaning o bo de and mig a ion managemen , i s
echnical and poli ical elemen s and i s po en ial implica ions. To unde s and he di e en pe spec i es, we ha e
spoken o a di e se se o ac o s, including no jus EU ins i u ions such as he EC, he Council, EU agencies, he
Pa liamen , bu also na ional ep esen a i es, da a p o ec ion expe s and membe s o NGOs whose o en c i ical
wo k ocused on in e ope abili y and/o bo de con ol acili a ed by da abases.
Ou i s induc i e app oach o he empi ical ma e ial quickly p esen ed a su p ising pic u e o a e y di e se
spec um o explana ions and in e p e a ions o in e ope abili y. Inspi ed by Law's concep o modes o o de ing,
we app oached ou ma e ial again wi h a enewed ocus ha was heo e ically induced o ca e ou , and ana-
ly ically code, a icula ions o o de ing. Law desc ibes a mode o o de ing also as ‘Foucauldian mini- discou se’
(Law, 2003: 1), de ec able h ough empi ical obse a ion. Taking inspi a ion om his ema ks on how o ecognize
hem (Law, 1994: 110–112), we o mula ed ou own c i e ia and iden i ied ou modes ha we e embedded in he
making o in e ope abili y: in e ope abili y as echnological p ojec , as da abases adminis a ion, as legal con ig-
u a ion and as poli ical ision.
Each mode was analysed based on he ollowing a ibu es. Fi s ly, we examined he discu si e pe o mances
o his policy, which always d ew on di e en policy pa s o componen s. I included ac o s' emphasis on di -
e en p io i ies, jus i ica ions o s a egic objec i es in each mode, as well as speci ic ma e ial o legal elemen s
ha se ed hei explana ions. By a icula ing how ac o s assemble hei policy, ‘modes ell o hemsel es, hey
pe o m hemsel es, and hey embody hemsel es in di e en ma e ials’ (Law, 1994: 151). Secondly, we sough o
iden i y cha ac e is ic he o ical exp essions o each mode o o de ing, ypically ying o con ey he policy's es-
sen ial elemen and elying on epea ed s o ies o simpli ica ion (see Law, 1994: 152). Thi dly, each o de ing mode
p esen s a speci ic se o p oblems, o en cha ac e izing p essing challenges o he c isis o he bo de egime.
Fou hly, each mode also de ines a pa icula s yle o in e en ion, ha is a ce ain way in which in e ope abili y
can ope a e as a ool o c isis managemen , ans o ma ion, s abili y o main enance. Fi hly, each pa e n exhibi s
a dis inc app oach o ‘o he ing’, ma ked by a pa icula aming o indi iduals on he mo e (as non- Eu opeans).
Finally, each mode igge s i s own o m o c i ique and con es a ion agains he policy, sugges ing ha modes o
o de ing a e ne e s able amewo ks bu inhe en ly incomple e and equi e epea ed a emp s o s abiliza ion.
INTEROPERABILITY'S MODES OF ORDERING
Technological p ojec
The i s mode o o de ing a icula es in e ope abili y as a echnological p ojec . I assembles se e al policy ele-
men s o pain a na a i e o echnological e olu ion in he bo de egime, pe o ming a policy eali y whe e
in e ope abili y mus be unequi ocally associa ed wi h e iciency and inno a ion. In his con ex , in e ope abili y
is p omo ed as a sha ed commi men , embodying inhe en ly posi i e alues wi hin a agmen ed landscape o
da abases. Acco dingly, his policy becomes mos in elligible when i is pe cei ed wi hin ‘an a ea whe e a lo o
[ echnological] de elopmen s ha e occu ed in he las yea s’ (In e iew 14). Fu he mo e, in e ope abili y is he e
no a b and- new concep bu a he na a ed as a quasi- na u al e olu ion, which mus enhance he o e all p o-
cesses in digi ized bo de con ol and secu i y. As one o he in e iewees s a ed on in e ope abili y, ‘we wan ed
o make mo e sys ema ic checks a bo de s o ensu e ha he au ho i ies al eady use […] all o hose [da abases]
hey need o use a he same ime’ (ibid.). As a echnological p ojec and commi men o con inued echnological
e olu ion, in e ope abili y ‘is no new a all; […] i 's some hing ha jus basically means “ha ing one sys em alk o
ano he one”’ (ibid.).
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A se o simpli ying ca chph ases epea edly eme ges in his mode o o de ing, pa icula ly in he na a i es
o EC and EU agency ep esen a i es. As seen abo e, one he o ical igu e in ol es he no ion o da abases pos-
sessing he abili y o ‘ alk o ano he ’, an idea ha o igina es om he echnical de ini ion o in e ope abili y in
an ea ly EC Communica ion on ‘S onge and Sma e In o ma ion Sys ems o Bo de s and Secu i y’ (EC, 2016).
This documen emphasizes he key p inciple o ‘in e connec i i y o in o ma ion sys ems’, he abili y o ‘di e en
sys ems o da abases […] o “ alk o each o he ” echnically’ (EC, 2016: 16). Ano he ecu ing ph ase sugges s ha
in e ope abili y will ‘b ing down he da a silos’, signi ying he elimina ion o in o ma ion sys ems ha collec ed
da a solely o hei sepa a ed pu poses. I any echnical de ails in he policy a e conside ed impo an , i is be-
cause hey a e simpli ied ep esen a ions o imp o ed bo de con ols h ough da a sha ing. A ep esen a i e om
he eu- LISA Agency explains:
he sha ed BMS [Biome ic Ma ching Sys em] eplaces hose i e [ma ching sys ems] wi h one en-
gine common o all i e [in o ma ion] sys ems. And, which means we only need o main ain one
[…], we only need o de elop and e ol e one sys em […]. I 's mo e a ional, i should be cheape , i
should be mo e e ec i e, and i should ha e be e pe o mance capabili ies.
(In e iew 2)
Simila ly, o icials a gue ha in e ope abili y ‘will make subs an ial di e ence in e ms o e iciency and e -
ec i eness o he bo de managemen wi h all he posi i e e ec s also on in e nal secu i y’ (In e iew 1). Such
na a i es mus es ablish a sense o con inui y by in oking he g adual expansion o bo de in as uc u e, and
hey a oid o e emphasizing any dis up i e e ec s o in e ope abili y. As a echnological p ojec , in e ope abili y
ins ead symbolizes he s eady cou se o echnological ans o ma ion.
One p e ailing p oblem o sol e in Eu ope's mig a ion managemen hen would s em om incomple e
da a collec ions o ‘in o ma ion gaps’ ha sepa a ed da abases seem o p oduce (see T au mansdo , 2023;
Va oula, 2020). In ‘S onge and Sma e In o ma ion Sys ems o Bo de s and Secu i y’, he c ea ion o he expe
g oup HLEG is announced in o de o add ess ‘cu en sho comings and knowledge gaps caused by he complex-
i y and agmen a ion o in o ma ion sys ems a he Eu opean le el’ (EC, 2016: 15). Consequen ly, discussions
on in e ope abili y ha e amed in e ope abili y as a p ojec o illing gaps, co ec ing p e ious mis akes, inally
‘mak[ing] su e hey [da abases] can alk o each o he and a oid in o ma ion gaps by linking in o ma ion ha a e
p esen in di e en sys em’ (In e iew 4).
In e ope abili y is he e posi ioned as a echnical solu ion o add ess u u e challenges and o e come he ‘c isis’
o mig a ion managemen — h ough echnically ad ancing bo de con ol: ‘i will no be he holy g ail […], ob i-
ously, bu i will sol e a numbe o gaps, o se ious issues in he u u e’ (In e iew 13). The se o p oblems imag-
ined in his mode o o de ing equi es echnoc a ically sol ing mindse s ha can help sus ain s abili y. In o he
wo ds, o de ing is en isioned h ough echnological con inui y. On nume ous occasions, speake s emphasized
how in e ope abili y aligns wi h a ‘his o ical pe spec i e’ on he b oade con ex o digi iza ion.
[S]o, jus o inalize a bi he poin on he his o y: now we ealized ha c ea ing se e al IT sys ems,
one by one in a way ollowing he silo- app oach, which made sense when you look a i om he
pe spec i e o ‘I am doing one sys em o one goal’. Bu hen we ealized, la e on, ha by c ea ing
all hese sys ems in silos and no communica ing be ween hemsel es, we c ea ed […] some gaps
o in o ma ion o some holes e en in e ms o secu i y, o possibili ies o he people o use one
sys em, [… wi h one] iden i y, and hen apply o ano he one wi h a di e en iden i y.
(In e iew 14)
Posing he p oblem as in o ma ion o knowledge gaps also in ol es he seemingly neu al assump ion o da a
holism, ha is ha mig an da a a e ‘be e ’ da a when hey a e linked ac oss sys ems and become mo e eadable,
8 o 17
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TRAUTTMANSDORFF and LOSCHI
accu a e o ac ionable. Da a holism posi s ha in o ma ion becomes uly aluable only when conside ed as a ne -
wo ked whole, whe e he in eg a ion and in e connec edness o da a yield meaning ul and insigh ul knowledge.
O de ing eali y hus in e enes in he digi al bo de egime on he le el o he echnical; by p omo ing da a holism
as an unde lying jus i ica ion o in e ope abili y, he solu ion is pu o wa d as a echnological p ojec ha could
p oduce a mo e comple e, in o ma ional pic u e o a bo de - c osse .
A he same ime, his mode o o de ing pu s o h a s a egic nai e y ha depoli icizes he da a collec ions
o mig a ion, a o m o o he ing ha ames mig a ion only in e ms o a da a popula ion—p ocessable, sha able
and go e nable as da a. EU ins i u ions he o ically es ablish a clean sepa a ion be ween wha appea s o
be he neu al ci cula ion o in o ma ion and he hie a chical and o en iolen p ocess o da a ex ac ion. I
is his seemingly apoli ical manoeu e ha has d awn equen c i icisms o his mode o o de ing. An ea ly
e lec ion pape by he EDPS (2017) c i icized he in e ope abili y ini ia i e by he EC o o e ly emphasizing
he alue o in e ope abili y's echnical easibili y and he eby e ec i ely sidelining ques ions ega ding he
necessi y, poli ical desi abili y o legal adequacy o un es ic ed da a exchange. Likewise, one o ou in e locu-
o s om a ci il socie y o ganiza ion campaigning on in e ope abili y poin ed ou ha policymake s po ayed
in e ope abili y as a ‘scien i ically a ional solu ion’ o undamen ally socio- poli ical p oblems in mig a ion and
bo de go e nance. They s essed ins ead ha ‘[da a] is no scien i ically uni o m in he way i 's been collec ed
and sha ed’ (In e iew 17). Thei c i ique hus a ge ed he o de ing a emp s ha no only pushed o wa d
in e ope abili y as a me e echnological p ojec bu also igno ed he ac ha collec ing mig an da a has al-
ways been highly poli ical as a undamen ally une en, hie a chical and o en iolen unde aking by Eu opean
au ho i ies.
Res uc u ing da abase adminis a ion
An al e na i e mode o o de ing pe o ms in e ope abili y no as an ins umen o echnological con inui y bu
as a shi in he adminis a ion o la ge- scale IT sys ems. In his mode, he impo ance o he policy's indi idual,
echnical componen s, pa icula ly he CIR and he sha ed Biome ic Ma ching Se ice (sBMS), is pa icula ly ac-
cen ua ed, as well as hei implica ion on adjus ing wo k lows h oughou di e en adminis a ions/adminis a-
i e uni s. I s co e emphasis lies on he in e play o indi idual policy componen s ha would p o oundly eshape
adminis a i e s uc u es and he handling and p ocessing o da a. In e ope abili y is he e be e concei ed as
a dis up i e ans o ma ion, necessi a ing he adap a ion o ope a ional ac o s on he g ound, such as bo de
gua ds. Thus, he policy signi ies ‘mo e han would expec om i s name [… which] would me ely see he echnical
in e connec ion o sys ems’, as a na ional ep esen a i e emphasized. Ins ead, i would en ail a ‘comple e change
in he cu en da abase s uc u e wi hin he EU’ (In e iew 10).
In e ope abili y ans o ms he e he a ionale o he adminis a i e handling o da a, pe o ming wha
Bellano a and Glou sios cha ac e ize as da as uc u ing (2022b). Whe eas da abases we e p e iously ailo ed
o speci ic collec ion pu poses (e.g. o isa p ocessing o asylum applica ions), he policy now challenges he
unde lying concep o pu pose limi a ion, ende ing i ‘a bi o [… an] almos dead le e ’ (Round able wi h da a
p o ec ion expe s, expe 1). Al hough he in e ope abili y egula ions o icially main ain access es ic ions o
each indi idual sys em, he a ious componen s e ec i ely acili a e he ci cula ion o in o ma ion ac oss all sys-
ems. The logic o he CIR explici ly aims o d aw on in o ma ion ha was o iginally s o ed o a dis inc pu pose in
a sepa a e da abases (e.g. o isa p ocessing in he VIS). One o he in e locu o s s essed ha , hypo he ically ‘[n]
ow in o ma ion can be eused o di e en pu poses and once you in e connec sys ems, i becomes much easie
o do i mo e and mo e, euse [i ] o o he pu poses’ (In e iew 16).
A ecu en me apho o his logic is a icula ed in he no ion o a (new) ecosys em: ‘So, i 's a whole idea o
c ea ing a new ecosys em whe e e e y hing, you know, i 's [easie ] o each. I 's no jus in e connec ing sys-
ems’ (ibid.). As such, in e ope abili y is especially ad oca ed by hose ac o s who unde sco e he policy's u u e
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INTEROPERABILITY AND MODES OF ORDERING
Endno e
1 This na a i e also igno es he ac ha some da a om EU ci izens a e s o ed; SIS II p ocesses da a o EU ci izens o
whom he e is a Eu opean a es wa an .
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