ABSTRACT
The reconstruction of the discourse on border politics shows that citizenship practice in the Maastricht period has contributed to further differentiate the institution of citizenship. This differentiation was not an intended goal of community policy makers. Accordingly citizenship practice aimed at mobilizing the resources of the citizenship acquis as a means to build a unified identity and not to fragment identities. The case study suggests that the noncommunity approach to border politics, which was one aspect of passport policy, contributed to the fragmentation of citizenship. This chapter shows that with evolving border politics of the 1990s, debates over competencies and shifting powers among the member states' and the community's political domain gained momentum. It shows that by highlighting the question of access and control, the Schengen negotiations generated an important insight into the problematic link between the three historical elements of citizenship—rights, belonging and access—in the context of the community as a non-state polity.
