The external dimension of the EU's Area of Freedom, Security and Justice became progressively more important as it became evident that the EU could not build the said area unless it cooperated with third countries. In the field of immigration, the EU defined a 'global approach to migration' aimed at linking migration and development, although progress was hindered by attempts to impose upon third countries the priority to fight against illegal immigration. It remains to be seen if this policy as defined on paper will be implemented effectively and whether it will allow the EU to meet the challenges linked to the definition of a policy for legal immigration and a more coherent management of the labour market. In the field of criminal judicial and police cooperation, external relations have developed but have been hindered by several factors, especially institutional and decisional ones. One of the main challenges with which the EU is confronted when developing the external dimension of its penal area is the need to safeguard some of its own values and standards when cooperating with its partners, namely to find the right balance between the 'sword and shield functions' of penal law.