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Migration and Development SeriesMigration and Development Series

Aligning Migration and Aligning Migration and Development GoalsDevelopment Goals2323--24 March 200924 March 2009

New YorkNew York

By Robert R. By Robert R. PaivaPaivaDirector, External Relations DepartmentDirector, External Relations DepartmentInternational Organization for MigrationInternational Organization for Migration

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Presentation ContentPresentation Content

Issue 2: Who and what shapes migration Issue 2: Who and what shapes migration policies? policies?

A practitioners perspective A practitioners perspective •• How has Migration Policy evolved?How has Migration Policy evolved?•• MigrationMigration--Development Links: How do we Development Links: How do we

reconcile two policy agendas?reconcile two policy agendas?•• Building coherence amongst Building coherence amongst

institutions/partners: way forwardinstitutions/partners: way forward•• Conclusion Conclusion

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I.I. Evolution of migration Evolution of migration policypolicy

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Post Post World WarWorld War II Phase: (1951II Phase: (1951--1964)1964)

•• Large scale Large scale resettlement resettlement of displaced populations of displaced populations

•• High High unemploymentunemployment in Western European countriesin Western European countries

•• Emergence of a Emergence of a ““ migration industrymigration industry ”” (recruitment, selection, (recruitment, selection, subsidized travel schemes and transport logistics) subsidized travel schemes and transport logistics)

•• TTemporaryemporary laborlabor managementmanagement schemes established (workers schemes established (workers recruited under formal bilateral agreements or as guest workers recruited under formal bilateral agreements or as guest workers subject to fairly strict conditions of entry, residence, & subject to fairly strict conditions of entry, residence, & employment)employment)

•• Key policy determinants: immigration, social conformity, Key policy determinants: immigration, social conformity, demand for foreign labor, economic and foreign policy demand for foreign labor, economic and foreign policy considerationsconsiderations

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•• Focus on Focus on refugee protection and humanitarian assistancerefugee protection and humanitarian assistance•• PrePre--eminence ofeminence of asylum & irregular migration on policy agendaasylum & irregular migration on policy agenda•• Emphasis on Emphasis on family reunificationfamily reunification•• Migration of Migration of highly skilled workers, scientists, researchershighly skilled workers, scientists, researchers

and business investorsand business investors encouraged (concept of encouraged (concept of brain drain,brain drain, loss loss of human and capital investments, loss of tax becomes a major of human and capital investments, loss of tax becomes a major concern in certain regions)concern in certain regions)

•• Key policy determinants: Key policy determinants: ssecurityecurity , humanitarian issues, , humanitarian issues, restriction on permanent immigration, selection of skills to restriction on permanent immigration, selection of skills to fillfill laborlabor market needsmarket needs

•• Little room for Little room for comprehensive migration managementcomprehensive migration management

Regional and Intra-State conflicts(1965-1989)

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GlobalisationGlobalisation Phase (1990s to Phase (1990s to

present)present)

•• Increased mobility of goods, capital and services Increased mobility of goods, capital and services •• Expanding range of migration activities Expanding range of migration activities •• Communications, Communications, transportation revolutionizedtransportation revolutionized•• TransTrans--nationalism: inationalism: individual and family identities redefinedndividual and family identities redefined•• Economic disparities & demographic imbalances Economic disparities & demographic imbalances between between

developed and developing countriesdeveloped and developing countries•• Global markets Global markets developed for certain categories of workers, developed for certain categories of workers,

especially highly skilled professionals especially highly skilled professionals •• Traditional classificationTraditional classification of countries of origin, transit, and of countries of origin, transit, and

destination destination obsoleteobsolete•• Smuggling and trafficking Smuggling and trafficking networks developed to service a networks developed to service a

fastfast--growing growing irregular migration industryirregular migration industry

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Three policy regimes: An Three policy regimes: An academic perspectiveacademic perspective

•• Closure and containment aimed at control of migrants and refugeeClosure and containment aimed at control of migrants and refugees s (determined unilaterally by States self interest, policies pegge(determined unilaterally by States self interest, policies pegged to d to conditionalitiesconditionalities i.e. rejected asylum seekers)i.e. rejected asylum seekers)

•• Selectivity regime deals with immigration and development supporSelectivity regime deals with immigration and development support t (States take more international responsibility, adopt a balanced(States take more international responsibility, adopt a balancedstrategy, both development and humanitarian aid are seen as strategy, both development and humanitarian aid are seen as instruments absorbing migration pressure, some measure of legal instruments absorbing migration pressure, some measure of legal opportunities made available) opportunities made available)

•• Liberalization and Liberalization and transnationalismtransnationalism that involves opening up labor that involves opening up labor flows in conjunction with liberalization of trade, mobilize poteflows in conjunction with liberalization of trade, mobilize potential of ntial of migrants and migrants and diasporadiaspora activities, post conflict reconstruction in activities, post conflict reconstruction in homelands, homelands, instutionalize instutionalize better dialogue and partnership between better dialogue and partnership between N & S, long term perspective)N & S, long term perspective)

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II. MigrationII. Migration --Development Links: Development Links: How do we reconcile two policy How do we reconcile two policy

agendas?agendas?

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TwoTwo--way connectionway connection

•• Migration is not a panacea for underdevelopmentMigration is not a panacea for underdevelopment•• Migration is not a Migration is not a substitute for development policy substitute for development policy

Maximizing the positive effect & minimizing theMaximizing the positive effect & minimizing thenegativenegative

•• Depends on the policies put in placeDepends on the policies put in place

migration development

positive

negative

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A new era of migration for A new era of migration for developmentdevelopment

•• Migration is a Migration is a multidimensional processmultidimensional process that that has a direct impact on policy choices a state has a direct impact on policy choices a state makes (tackling isolated migration problems is makes (tackling isolated migration problems is not effective) not effective)

•• Migration is not an Impediment to development; Migration is not an Impediment to development; Migration and Development are interlinkedMigration and Development are interlinked in in many ways and migrants are important many ways and migrants are important stakeholders for growth and developmentstakeholders for growth and development

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Effect of migration on development Effect of migration on development mixed and variedmixed and varied

•• By stage of the migration cycleBy stage of the migration cycle

•• Between shortBetween short--run and long run run and long run

•• Depending on migrant characteristics and local Depending on migrant characteristics and local conditions, especially in labour and credit marketsconditions, especially in labour and credit markets

•• Depending on policies of both host and sending Depending on policies of both host and sending countries and behavioural responses driven by countries and behavioural responses driven by incentivesincentives

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Migration & Development policy Migration & Development policy regimes: Some assumptionsregimes: Some assumptions

•• Migration and Development have constituted separate policy fieldMigration and Development have constituted separate policy fields s marked by differing policy approaches not conducive to national marked by differing policy approaches not conducive to national coordination and international cooperationcoordination and international cooperation

•• Migration and Development policy communities and actors have Migration and Development policy communities and actors have been different with different ends and directed towards differenbeen different with different ends and directed towards different t constituenciesconstituencies

•• Development authorities and practitioners have believed that theDevelopment authorities and practitioners have believed that theoverriding goals of development policies are jeopardized if migroverriding goals of development policies are jeopardized if migration ation is taken into is taken into considerationconsideration

•• Migration practitioners take minimal account of development needMigration practitioners take minimal account of development needs s (root causes of migration) (root causes of migration)

•• Migration interests are shortMigration interests are short--term, whilst development is long term term, whilst development is long term

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Balancing policy interests: Some Balancing policy interests: Some examplesexamples

•• Migration facilitation and migration controlMigration facilitation and migration control (Regulate and facilitate legitimate (Regulate and facilitate legitimate entry while protecting from threats of international terrorism aentry while protecting from threats of international terrorism and criminality)nd criminality)

•• State sovereignty and human securityState sovereignty and human security (States, exercising their sovereign (States, exercising their sovereign right to determine who enters and remains in their country versuright to determine who enters and remains in their country versus their s their responsibility and obligation to protect individual migrants responsibility and obligation to protect individual migrants

•• Cooperative relationships between Cooperative relationships between labor rich and labor poorlabor rich and labor poor countries to countries to promote human capital (promote human capital (Labor mobility, Labor mobility, ifif wellwell--managed, can be advantageous managed, can be advantageous for destination countries andfor destination countries and bring significant benefits to origin countries) bring significant benefits to origin countries)

•• Policies that attract best and brightest vs. Policies of protectPolicies that attract best and brightest vs. Policies of protection from brain ion from brain loss/and to secure returnloss/and to secure return

•• Diversity and cohesion Diversity and cohesion (Balance between maintenance of national identities (Balance between maintenance of national identities and changing social dynamics and strengthening social cohesion tand changing social dynamics and strengthening social cohesion through hrough integration)integration)

•• Human rights and status of migrant workersHuman rights and status of migrant workers (Formulation and (Formulation and implementation of minimum standards of protection)implementation of minimum standards of protection)

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III.III. Building coherence amongst Building coherence amongst institutions/partners: way institutions/partners: way

forwardforward

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Policy Strategies and ResponsesPolicy Strategies and ResponsesThe Migration and Development RelationshipThe Migration and Development Relationship

Countries of destinationCountries of origin

Development

Mainstream migration and remittances into national development strategies

Capacity building

Labour migration policies

Trade policies

DiasporasDevelopment-

friendly policies

Common Sphere of Interests

Platform for

Dialogue

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Three C approach: Coherence, Cooperation Three C approach: Coherence, Cooperation and Capacityand Capacity

Coherence at National level is a basic Coherence at National level is a basic prerequisiteprerequisite

•• Migration should form an integral part of every cou ntryMigration should form an integral part of every cou ntry ’’s national economic and s national economic and development plan. This requires that development plan. This requires that Governments:Governments:

–– Develop policies and articulate national strategies to explore tDevelop policies and articulate national strategies to explore the positive linkages (some he positive linkages (some progress made, yet many Governments unclear what they want to acprogress made, yet many Governments unclear what they want to achieve, which sectors hieve, which sectors they want to promote; blind folded policy making ongoing)they want to promote; blind folded policy making ongoing)

–– Integrate international migration in national development policyIntegrate international migration in national development policy frameworks such as frameworks such as PRSPsPRSPs, , Country Strategy Papers or Country Strategy Papers or CCAsCCAs, , UNDAFsUNDAFs (very little progress on this front, needs (very little progress on this front, needs attention)attention)

–– Institute a multiInstitute a multi--sectoralsectoral approach to managing migration at the country level; this requiapproach to managing migration at the country level; this requires res addressing other priorities linked to development such as healthaddressing other priorities linked to development such as health, education, public sector , education, public sector reform, private sector development, national security concerns areform, private sector development, national security concerns and the reinforcement of legal nd the reinforcement of legal and administrative frameworks and administrative frameworks

–– Policy coherence amongst priority sectors such as health, educatPolicy coherence amongst priority sectors such as health, education, environment, gender ion, environment, gender requires active participation of and cooperation between both mirequires active participation of and cooperation between both migration and development gration and development policy makers and practitioners.policy makers and practitioners.

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Cooperation: an important policy tool Cooperation: an important policy tool for development and migration for development and migration

practitionerspractitioners•• Harnessing migration for development requires partnerships at muHarnessing migration for development requires partnerships at multiple ltiple

levels: levels:

•• Partnerships amongst destination countries, between source and rPartnerships amongst destination countries, between source and receiving eceiving countries and home, host and transit countries are a first step countries and home, host and transit countries are a first step towards the towards the recognition of migrationrecognition of migration’’s positive contribution to development. It recognizes s positive contribution to development. It recognizes responsibility sharing between countries involved in or affectedresponsibility sharing between countries involved in or affected by particular by particular migratory movementsmigratory movements

•• Partnership with migrants and Partnership with migrants and diasporadiaspora associations is vital; They associations is vital; They represent represent a bridge between countries of origin and destination and ga bridge between countries of origin and destination and giveive ownership to ownership to the process the process

•• Private sector can also contribute to creating new opportunitiesPrivate sector can also contribute to creating new opportunities for for business, joint ventures, trade and increased flows of investmenbusiness, joint ventures, trade and increased flows of investment.t.

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Formal:

- Multilateral agreements regulating international trade (GATS Mode 4)

- Regional integration processes

Informal:

InterInter --State partnershipsState partnerships

- Global Forum on Migration and Development (GFMD)

- Regional Consultative Processes

- IOM’s International Dialogue on Migration (IDM)

- Bilateral arrangements

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Capacity: the importance of knowledge, Capacity: the importance of knowledge, research and human capacitiesresearch and human capacities

•• Improving data and statistics particularly as migration relates Improving data and statistics particularly as migration relates to to development (transnational communities, return and circular migrdevelopment (transnational communities, return and circular migration, ation, remittances);remittances);

•• Enhancing knowledge of the effects of migration policies on deveEnhancing knowledge of the effects of migration policies on development lopment and of development policies on migrationand of development policies on migration;;

•• Promoting policy dialogue and closer cooperation between migratiPromoting policy dialogue and closer cooperation between migration & on & development stakeholders development stakeholders –– at bilateral, regional, interat bilateral, regional, inter--regional and global regional and global levels;levels;

•• Increasing interIncreasing inter--state cooperation on migration management;state cooperation on migration management;

•• Experimenting Experimenting –– devising and investing in new pilot projects and devising and investing in new pilot projects and programmes to test out in very practical ways how migration can programmes to test out in very practical ways how migration can best best contribute to development.contribute to development.

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1.1. Combination of measures needed Combination of measures needed –– uniuni--dimensional inadequate;dimensional inadequate;

2.2. Channel migration into regular and humane avenues Channel migration into regular and humane avenues –– including by including by increasing legal opportunities for labour migration;increasing legal opportunities for labour migration;

3.3. Migrants and Migrants and diasporadiaspora want to help their home countries want to help their home countries –– tap this tap this resource;resource;

4.4. Put in place policies to encourage permanent or temporary returnPut in place policies to encourage permanent or temporary return home home –– promote promote ““brain gainbrain gain””;;

5.5. Engage the private sector in incentiveEngage the private sector in incentive--based approaches to human based approaches to human resource development to meet home & host country needs;resource development to meet home & host country needs;

ItIt ’’s time to integrate migration factors into developm ent s time to integrate migration factors into developm ent planning agendasplanning agendas

Conclusion