The new 1,000-strong force is aimed at slowing the record flow of nearly one million refugees and migrants to Europe this year, mainly from the war in Syria -- the worst crisis of its kind in Europe since World War II.
But some member states in the 28-nation European Union are hostile to a plan which could see them cede sovereignty over their own land and sea borders to bureaucrats in Brussels.
"In urgent situations, the Agency must be able to step in to ensure that action is taken on the ground even where there is no request for assistance from the Member State concerned or where that Member State considers that there is no need for additional intervention," said a draft of its proposal obtained by AFP.
The EU could send in teams of guards in case of a surge at a particular border, or where a member state has a "deficiency" in the management of its borders and had failed to respond to warnings from Brussels, it said.
The fear is that if those controls become permanent, the 26-country Schengen zone which ensures the EU's core principle of freedom of movement, would collapse, taking the idea of a single, united Europe with it.
The new border guard system will replace the EU's largely toothless Frontex agency, which has failed to tackle the flows of people on routes including Turkey to Greece and through the Western Balkans.
The European Commission has said it is "confident" its border and coastguard plan will be adopted by EU leaders who are meeting in Brussels on Thursday Friday.
Polish Foreign Minister Witold Waszczykowski said Monday that the replacement of Frontex "by a structure that is independent of member states is shocking".
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