Memorandum submitted by the International
Organization for Migration (IOM)
1. INTRODUCTION
1.1 Rising migration flows
Migration has become an increasingly important
feature in a globalizing world where not only more people are
on the move, but also the frequency and the different modes, channels
and directions of mobility have expanded and extend into every
corner of the world. This trend is not only set to continue but
to increase.
Over the last 35 years, the number of persons
living outside their country of birth has more than doubled to
stand today at over 175 million people.[65]
Worldwide, one in every 35 persons is a migrant. While the majority
of international migrants originate from developing countries,
it is not an exclusively "South-North" phenomenon. Significant
migration flows occur also between developing countries, in particular
between the low- and middle-income.[66]
Besides the magnitude of migratory flows, the
patterns of migration have also changed considerably. Together
with globalization—especially as regards trade liberalization,
global economic integration and electronic means of communication—the
awareness of existing life and work opportunities in other parts
of the world has also spread. Coupled with wider and easier access
to international transport, this has led to greater population
mobility. Although progress in liberalizing the movement of persons
has not proceeded at the same pace as the liberalization of trade
in goods and capital, regular and irregular labour migration plays
an important role in the international economy.
More nationals of more countries are on the
move, and more countries are affected by migration than ever before.
The rising share of women in migration flows, estimated to account
for 47.5% of all migrants, has been widely reported, although
the implications of this growing trend for policy makers have
not yet been fully developed.
Many countries also experience significant internal
migration, mainly from rural to urban areas, either as a consequence
of population pressure on limited or diminishing resources or,
indeed, driven by social and political upheavals. Thus, for instance,
some 4.3 million people moved internally in Vietnam during the
period 1994-99, far exceeding the 300,000 who went overseas during
the same period.[67]
Such developments present a challenge to policy
makers to adjust migration policies to take account of these changing
patterns. Primary areas of intervention include familiar issues
such as border control, labour migration, international protection,
and the management of irregular migration. Increasingly, though,
attention is also focusing on the nexus between migration and
major policy areas, including health, trade and demography, as
well as development.. Regarding the implications of this increasingly
important policy area, the task at hand is not simply a matter
of doing a bit more or a bit less of what has been done before.
Rather, the challenge is to redefine the management of migration
for the benefit of both developing and developed countries and
their economies.
1.2 Migration can contribute to development
The links between migration and development
are widely acknowledged to be complex, and many commentators argue
that there is a lack of solid information about the ways in which
migration affects development and development affects migration.
Traditionally, much of the focus has been on the negative effects
of migration on development and has followed two main themes:
— To identify and address the root
causes of migration, and
— to attempt to mitigate the negative
aspects of migration related to development (viz. brain drain,
depletion of the labour force, rural exodus).
Increasingly, however, the international community
is beginning to pay more attention to the positive effects of
international migration on home country development.
Migrants are rightly considered as potential
agents of development able to strengthen cooperation between home
and host societies. Migrants can contribute to development through
investment and remittances—but also through their skills,
entrepreneurial activities, and support for democratization and
human rights.
Today, there is growing recognition of what
has been termed brain gain, where skilled emigrants are considered
a potential asset and not necessarily a net loss to the home country.
Indeed, highly skilled migration often benefits both receiving
and sending countries. Moreover, through international migration,
important transnational networks are being developed, which can
act as agents to facilitate cultural, political and economic exchanges
and ensure sustainable links between countries of origin and destination.
This realization is leading governments and civil society organizations
to undertake increasing efforts to develop activities and partnerships
with migrant and diaspora communities abroad in order to establish
and reinforce such linkages with the aim of fostering development
at home.
1.3 Migration and poverty
The relationship between migration and poverty
is a complex one. Migration can help to reduce poverty, while
poverty itself is also a cause of migration. Although not all
migrants are from among the poorest segments of their societies,
the process of migration itself does affect the poorest, both
directly and indirectly, and there remains significant potential
to harness the benefits of migration to improve the livelihood
of the poor.
Research is still being conducted to determine
the real and potential impact of migration on poverty reduction
and development. Research by the World Bank and other institutions
points to a positive correlation between migration and poverty
reduction. A recent study of 74 low and middle-income developing
countries reveals that, on average, a 10% increase in the number
of international migrants in a country's population can lead to
a 1.6% decline in the poverty headcount, and that a 10% increase
in the share of remittances in a country's GDP can lead to a 1.2%
decline in poverty.[68]
However, although migration can be an effective
tool in the fight against poverty in less developed countries,
it does not follow that this is always the case. To harness the
possibilities migration can offer, it is necessary to create an
appropriate policy and programme environment to maximize the chances
for migration to alleviate poverty in countries and regions of
origin. The challenge for governments is to facilitate migration
that is most likely to lead to a reduction of poverty, while also
acting to protect migrants from abuse and exploitation. Indeed,
among the most serious and dangerous risks facing migrants who
have been driven to migrate to escape poverty is their vulnerability
to the false promises of jobs and opportunities by traffickers.
Most of the cross-border trafficking which occurs in the world
today involves the movement of migrants from poorer to richer
countries in search of better opportunities. Few migrants are
trafficked from rich countries to developing countries.
2. RECOMMENDATIONS
2.1 Integrate migration into development frameworks
The current U.N. frame of reference for development
is set by the eight Millennium Development Goals. The international
community has defined development targets to be achieved by 2015,
and indicators for the progress of the respective target. The
eight goals are as follows:
— Goal 1: Eradicate extreme poverty
and hunger
— Goal 2: Achieve universal primary
education
— Goal 3: Promote gender equality and
empower women
— Goal 4: Reduce child mortality
— Goal 5: Improve maternal health
— Goal 6: Combat HIV/AIS, malaria and
other diseases
— Goal 7: Ensure environmental sustainability
— Goal 8: Develop a global partnership
for development
Over the next decade, the international community
will work towards the achievement of these goals. However, the
role of migration in relation to these goals has not yet been
clearly defined, particularly as concerns the reduction of poverty,
and there is seldom any specific reference to the contribution
migration can make to development. It is necessary, therefore,
to integrate migration management approaches more explicitly and
coherently within a broader context of economic and social development
frameworks.
Undoubtedly, migration management should be
given an important place in any strategy aimed at achieving the
Millennium Development Goals. In addition to poverty reduction,
economic growth and private sector development, better migration
management can contribute to promote gender equality and to combat
the spread of diseases such as HIV/Aids and malaria (corresponding
to millenium development goals 1, 8, 3 and 6, respectively), provided
that appropriate policy approaches are in fact developed and implemented.
From an IOM perspective, the problems related
to international migration and development could be much more
efficiently and comprehensively dealt with if relevant migration
management concerns were to be integrated into this framework.
Such an approach would make it possible to identify common priorities
and possible contributions to be made by migration management
towards the achievement of the set goals. Governments worldwide
face the challenge of making migration more orderly, more productive
and of greater benefit to all concerned. The timely development
of national, regional and multilateral frameworks for migration
management that establish the right balance between the interests
of all concerned is a key element in this equation.
The regional consultative processes on migration[69]instituted
by governments worldwide during the last decade offer valuable
insights on what can be done to develop a common approach on migration
and development issues and the means to achieve this. In several
regional meetings of this kind, governments have acknowledged
the importance of the migration-development nexus in their deliberations
and plans of action. Indeed, migration and development is a key
theme on the agendas of such established regional consultative
processes as the Regional Conference on Migration (Puebla Process),
the Western Mediterranean Cooperation Process (5+5 Process), the
Migration Dialogue for Southern Africa (MIDSA) and the Migration
Dialogue for Western Africa (MIDWA).
At the European level, the EU Member States
have acknowledged the principle that an effective EU asylum and
immigration policy must necessarily involve cooperation with the
countries of origin and of transit. This goes beyond the general
endeavour of trying to understand and to influence the causes
of migration; rather it calls for the adoption of a responsible
attitude towards the effects of emigration on the countries of
origin. Indeed, the Spanish, Greek and Italian EU Council presidencies
have each reiterated the need for closer cooperation, trade expansion,
development assistance and conflict prevention as a means of promoting
economic prosperity in the countries concerned, and to reduce
the underlying causes of migration flows. This clearly states
the need for closer cooperation among EU and third countries in
managing international migration.
2.2 Ensuring that migration contributes to
development
The effects of international migration on developing
countries can be both positive and negative. The departure of
highly skilled migrants is often referred to as a loss, or brain
drain, for the country of origin, and as a benefit, or brain gain,
for the country of destination. The negative effect in this case
goes beyond the loss of skilled manpower, and includes the loss
of return on the investment made by the country of origin towards
the training and education of its nationals. This is particularly
acute in such sectors as health care, that have a direct impact
on the ability of developing countries to maintain and improve
the quality of life of their citizens. However, it is also increasingly
acknowledged that the emigration of the highly skilled is not
necessarily a net loss, and that it may in fact benefit both receiving
and sending countries. Available evidence shows that countries
of origin stand to benefit through the inflow of remittances,
but also from access to knowledge, new technologies and new markets
through the linkages to their migrant communities, as well as
the eventual return of their expatriate skilled manpower and their
superior training and skills, management experience, their ties
to foreign institutions and networking capacity acquired while
abroad.
The promotion of international migration has
been an implicit or explicit policy goal in many developing countries.
Many are adopting policies, legislation and structures to actively
promote the foreign employment of part of their workforce. Such
policies are pursued by the governments of, eg, Bangladesh, El
Salvador, India, Jamaica, Mexico, Nicaragua, Pakistan, the Philippines
and Sri Lanka.
Despite the actual and potential benefits of
international labour migration, unmanaged and indiscriminate international
recruitment of skilled workers can have a profound negative impact
on countries of origin with fragile economies and skills shortages,
particularly in such sectors as health and education. As more
EU countries seek to attract highly skilled labour migrants, concerns
about brain drain have resurfaced.
Governments have adopted various countervailing
measures to counter the potential negative effects of skilled
emigration on countries of origin. Until the late 1980s, the problem
was often addressed by policies focusing on measures to reduce
the outflow of the highly skilled labour force from developing
countries, or to balance their negative effects through taxation.[70]
Today, the emphasis is rather on improving the regulation of the
recruitment of migrants from developing countries, the creation
of incentives to promote return migration and to maximize the
development contribution of migrant communities, including the
management of remittances.
Some destination countries, including the U.K.,
have adopted codes of good conduct for the health sector recommending
that recruitment be conducted in consultation with countries of
origin to avoid the loss of essential skilled workers. It has
been suggested that governments in the developed world should
also establish guidelines for potential employers of international
migrants regarding recruitment, training and the acquisition of
skills. Other policy options to be considered include the identification
of developing countries most vulnerable to skill losses, and the
establishment of a list of countries not to be targeted by employers
seeking to recruit overseas workers. Better regulation of international
recruitment agencies and the introduction of guidelines for the
ethical recruitment of workers from developing countries is another
policy option being discussed.
Another policy area of concern is the regulation
of student migration. Student mobility has grown significantly
in recent years, including students from developing countries.
Developing countries therefore have an interest in creating incentives
for students to return and use their acquired skills at home,
thereby increasing the home country's potential to acquire skilled
professionals. The introduction of safeguards to limit the risk
of brain drain and to ensure an adequate rate of return of expatriate
students could ease the concerns of countries of origin, which
may otherwise be tempted to restrict the international mobility
of their students. One of a number of possible approaches to minimize
brain drain would be to provide for a greater number of scholarships
with conditions attached regarding the return of the students.[71]
Whether a country experiences brain gain rather
than brain drain depends in part on the successful utilization
of the potential of diaspora networks, and the knowledge and experience
of returning migrants. There is growing recognition that skilled
emigrants need not necessarily constitute a permanent loss to
their countries of origin, and that they can play a very positive
transnational role. The challenge is how best to design policies
and programmes to facilitate and harness the potential benefits
of that positive role.[72]
2.3 Maximizing the development contribution
of diasporas
There is growing global awareness that migrant
diasporas may contribute in several important ways to the social
and economic development of their country of origin. Modern communication
and transportation technology makes it easier for migrants to
maintain links with their home countries, and also facilitates
the transfer of skills and funds. Often it is the migrants themselves
who serve as the most effective link between the sending and receiving
countries. Diasporas often organize themselves and form associations
that are able to promote the flow of investments and know-how
to their home countries. The challenge for policy makers in developed
and developing countries is to create an environment conducive
to enhancing the contributions by migrant diasporas to development.
Host countries could encourage initiatives to create migrant associations
on their territories, while home countries could facilitate the
creation of networks among their expatriates to help maintain
close linkages with the home communities and assist in the transfer
of know-how, information and development initiatives.
2.4 Improve the management of remittances
for development
One of the most important linkages between diasporas
and the home country is forged through the transfer of remittances.
In recognition of this, one of the consequences of migration being
examined in greater depth today by numerous governments and international
organizations is the potential benefit of remittances to development.
The total value of remittances transferred through
official channels more than doubled between 1988 and 1999. According
to the World Bank, in 2002 remittances to developing countries
stood at USD 88 billion—considerably higher than the amount
of official development assistance for that or any other recent
year. Based on trends in the first half of 2003, remittances are
projected to exceed USD 90 billion in 2003.The real figure is
likely to be much higher given that many migrants remit through
informal channels. Although large countries are the main recipients
of remittances, the amounts going to smaller countries represent
a higher share of GDP.
There is a considerable literature on the reasons
why migrants send money home,[73]
but there is less research and knowledge on how to develop mechanisms
to reduce the cost of sending remittances and to ensure that remittances
are sent through reliable financial channels, including banks
and credit institutions. Barriers to the official transfers of
funds are currently the greatest obstacles to maximizing the benefits
of remittances. Official bank transfers are often complicated
and lengthy, if not altogether inaccessible to migrants who are
unable to open bank accounts in their countries of residence either
because of their temporary situation, or legal status. Frequently,
the only alternatives are private companies, and these generally
charge high fees. The average charge for the transfer of remittances
to developing countries is around 13% and often exceeds 20% of
the amount transferred.[74]
High transfer fees create an incentive for migrants to send their
remittances through informal channels, but these are often unreliable
and money can be lost or stolen in the process.
Policy makers have been concerned with four
major issues relating to the management of remittances:
— How can the transfer of remittances
be made cheaper and easier;
— How to ensure that remittances are
transferred through more reliable channels;
— What use is made of remittances,
and
— How to best harness the development
potential of remittances?
Several measures have been taken to address
transfer issues, including:
— Mandatory remittance requirements
(eg Korea);
— Attracting remittances through foreign
currency accounts and bonds (eg India);
— Pre-departure counselling and advice
to migrant workers (eg Philippines);
— Simpler transfer procedures and expansion
of financial networks (eg Bangladesh);
— Home country incentives to encourage
remittances through formal channels (eg Pakistan);
— Reduced transfer fees (eg Mexico,
IRNeT credit union service).
There is a need to take stock of the various
measures that have been tried in different parts of the world
to manage remittances more efficiently and to see whether any
successful approaches that have been found to contribute to development
and poverty reduction could be replicated elsewhere.
2.5 Facilitate the return and reintegration
of migrants
Recent research suggests that only a relatively
small proportion of skilled migrants from developing countries
working in the U.K. return to their countries of origin.[75]
Policies to encourage return migration may be
able to significantly reduce the negative effects of the brain
drain. Returning migrants who bring back their skills and work
experience acquired abroad can invest their knowledge in the home
country and thereby contribute to economic and social advancement.
Returning migrants and migrant diasporas can
be an important source of foreign direct investment. Governments
can foster return migration and maximize the investment potential
of the experience, skills, networks and financial capital of return
migrants by introducing policies which streamline investment procedures
for interested returnees, involve return migrants more actively
in policy making, and encourage return migrants to contribute
to, and network with, public sector institutions so that their
contributions do not remain confined to the private sector.
Means to encourage diaspora participation in
the domestic economy should also be investigated. Some governments
are considering special investment procedures and incentives to
attract investment by diasporas, and to develop and institutionalize
the diaspora network for their contribution to investment, research
and training. Some governments offer returning migrants reintegration
assistance to facilitate their return as well as to ensure that
returns and reintegration, in fact, prove to be durable. In many
cases institutional capacity building is required to facilitate
such efforts.
Nevertheless, it remains difficult to assess
the overall effects of return migration on local development as
there is generally much less information available concerning
the characteristics and implications of the return of skilled
workers to developing countries of origin, than the outflow of
persons from the developing world.
The IOM Return and Reintegration of Qualified
Nationals programmes have for many years supported the social
and economic advancement of developing countries. Programmes in
Africa, Asia and Latin America have sought to foster national
human resource development and to counter the negative effects
of brain drain. In collaboration with governments of the country
of origin, IOM identifies and selects suitable candidates, finances
their return and ensures their reintegration into both professional
and personal environments, thus contributing to rebuild and strengthen
a depleted human resource base.
Many other measures have been adopted to promote
the permanent return of highly skilled migrants. These initiatives
include specific incentives (eg, tax exemptions, financial assistance
with moving costs or seed capital to establish a business, citizenship
rights for spouses and children), or the creation of more attractive
opportunities in the home country.
However, available experience has also shown
that such measures are sometimes difficult to implement, particularly
when the economic and political conditions in the country of origin
are not attractive to returnees. A challenge regarding the return
of skills is how to reach out to and encourage members of diasporas
to return, even if only temporarily, and to facilitate the sharing
of their skills by the home community. An example of such an approach
is the IOM Migration for Development in Africa programme.
IOM Programme for migration for development in
Africa (MIDA)
One way to promote and take advantage of brain
circulation is through programmes such as the IOM programme for
Migration for Development in Africa (MIDA), launched in 2001.
This programme involves the temporary or permanent transfer of
vital resources and skills to support the development of countries
of origin. The programme works by promoting a legal status for
the diaspora in destination countries and reallocates the resources
and skills of African migrants through a variety of actual and
virtual transfers. Countries that have already taken formal steps
towards inscribing MIDA in their National Indicative Programme
(NIP) are Benin, Cape Verde, Democratic Republic of Congo, Ghana,
Kenya, Rwanda and Uganda.
UK Voluntary return and reintegration programme
Another area that requires stronger intervention
concerns support for the reintegration of returnees. IOM studies
suggest that relatively little reintegration assistance is currently
available to migrant workers returning to developing countries.
Yet, IOM experience suggests that the provision of reintegration
assistance can help ensure that returns are in fact durable.[76]
In line with this approach, IOM launched a Voluntary Assisted
Return and Reintegration Programme in 2002. The purpose of this
programme is to facilitate the sustainable return of asylum seekers
by identifying potential training activities and employment opportunities,
or by assisting in the creation of small businesses in countries
of origin, depending on the needs and profile of the returnees
and the resources and local circumstances. Reintegration assistance
is provided in conjunction with IOM offices in countries of origin,
and local partners are identified throughout the implementation
of the programme. In addition, mechanisms have been set up to
monitor and evaluate those assisted.
The introduction of reintegration assistance
has been welcomed by those seeking to return home. To date, returnees
have been assisted with training schemes such as computer, hairdressing
and language classes. Small business schemes have also been supported
through the purchase of materials for farming initiatives, carpentry
and sewing shops and many more.
2.6 Reducing the risks of migration for poor
people
Trafficking in women and girls from developing
countries is a serious and growing concern to many governments.
Trafficking is fuelled among other factors by changes in the global
economy and major economic disparities between and within countries,
exposing poor people, especially women and children, to the risk
of trafficking and economic and sexual exploitation. A recent
study on trafficking in South Asia by the Asian Development Bank
found that the most commonly identified push factor driving the
trafficking process is poverty. Despite this, trafficking often
does not receive sufficient priority in strategies aiming to combat
poverty in different parts of the world. For example, combating
trafficking is not articulated as a specific objective in any
country strategy paper in South Asia. There is an urgent need
to "mainstream" trafficking into the work of development
agencies and for measures intended to reduce poverty to also target
those most vulnerable to trafficking.
Poverty is also a major factor driving irregular
migration and migrant smuggling. The number of irregular migrants
continues to increase despite rising spending on enforcement measures
in developed countries. The absence of viable regular migration
opportunities can lead individuals to fall back on smugglers and
traffickers to help them access developed countries. As a result
they are often caught in conditions of personal insecurity and
exploitation. The money paid for the services of criminal networks
is lost for the development of home countries. In the absence
of legal low-skilled labour migration channels, hundreds of thousands
of workers are engaged in illegal work in Europe.
The failure to adequately address such push
factors as poverty in developing regions further feeds this trend,
although not all irregular migrants originate from the poorest
parts of the developing world. IOM favours a comprehensive approach
to manage irregular migration.[77]
Such an approach includes a range of measures, including foreign
direct investment, where possible, development assistance and
better protection of the rights of migrants. Another key component
is the creation of temporary and targeted labour migration channels
to provide viable and attractive alternatives to irregular migration
for migrants from developing countries. More legal entry routes
will not stop all attempts at irregular entry and residence in
a country, but should have at least two positive effects: one,
such policies, if well targeted and well understood could reduce
the incidence of illegal entries and residence and, two, bilateral
labour agreements can act as an incentive for labour-sending countries
to assume more responsibility to counter irregular migration.
2.7 Migration and trade: Enhancing understanding
of the development potential of mode 4
Within the framework of the General Agreement
on Trade in Services (GATS) which came into force in 1995 and
applies to 144 countries, one of the four possible ways of trading
a service is through the temporary movement of "natural persons".
In recent years there has been a growing interest on the part
of developing countries to liberalise movements under GATS Mode
4, in order to provide greater opportunities for persons in developing
countries to obtain temporary work in developed countries.
IOM, the Organization for Economic Cooperation
and Development and the World Bank held a seminar on trade and
migration in Geneva on 12-14 November 2003. The meeting brought
together internationally for the first time trade and migration
officials for an informal exchange of views on the relationship
between migration and trade, in particular the supply of services
via the temporary movement across borders of "natural persons",
or Mode 4 of the World Trade Organisation (WTO) General Agreement
on Trade in Services (GATS).
One of the conclusions of this meeting is that
GATS mode 4 is relatively broadly, yet poorly defined. It is at
present difficult to know precisely what kinds of movements are
taking place under Mode 4 and what impact these movements are
having on sending and receiving countries. Research in the area
of Mode 4 remains in its infancy. However, it is clear that the
financial, human and social capital that is gained by migrants
abroad will potentially bring positive benefits to countries exporting
labour services, particularly if migrants return to or maintain
substantial links (including economic links) with their countries
of origin. Temporary labour migration, and Mode 4 movement within
it, potentially enhances benefits for countries of origin in four
main areas:
1. Increasing brain circulation
2. Maximizing remittances
3. Use of Mode 4 to enhance other forms of
trade
4. Promoting labour exports
2.8 Improving data on migration and development
Information and data on migration from and to
developing countries are relatively scant and unreliable. More
and better information is essential for policy makers to address
migration and development challenges more effectively. In particular,
more and more specific research and data collection in developing
countries is needed if the impact of both migration and return
migration is to better understood and factored into programmes
to assist countries of origin to develop and retain, and further
improve their national resources, including human resources.
In the U.K., recent research suggests that it
is very difficult to assess the impact of immigration from developing
countries since there is no annual survey of work permit holders.[78]
There is also a lack of information about the role migrant communities
play in shaping migration flows to the U.K. or how they contribute
to development in their country of origin. Consideration should
be given to preparing an annual report on migration from developing
countries to the UK to promote a better understanding of trends
in migration from less developed countries to the UK.
Such gaps in the available database seriously
limit a clear understanding of the different ways in which diasporas
and expatriate networks can contribute to development and better
migration management. Few governments maintain regular statistics
on their expatriates. Even in the case of remittances, where there
is a great deal of information, there are several problems with
the comparability of the data collected. On the one hand, official
remittance data collected by the International Monetary Fund (IMF)
may underestimate the size of flows because they fail to capture
informal remittance transfers. On the other hand, official remittance
figures may also overstate such flows, as other types of money
transfers, including illicit ones, cannot always be distinguished
from remittances.[79]
Improving the quality of data on remittance flows and their impact
on development is one of the key recommendations emerging from
a recent DFID/World Bank conference on migrant remittances, held
in London, 9-10 October 2003.
Some limited data sets on migration exist (maintained,
for example, by OECD, EUROSTAT, the UN Population Division) as
well as certain limited data sets relevant to development (such
as those developed by the World Bank, IMF, UNDP). However, despite
the acknowledged importance of the migration-development nexus,
any action undertaken to date to aggregate existing data and to
fill the gaps with essential new data has been limited.
2.9 Conclusions
International migration has enormous development
potential for the countries of origin, especially for the least
developed among them. It can contribute to the reduction of poverty
at the local and national level, improve sustainable human development
and reduce the economic vulnerability of these countries. Therefore,
migration management is an important element in a strategy aimed
at achieving the Millennium Development Goals.
Destination countries have traditionally sought
to reduce and/or restrict international migration. Today, however,
the need for more immigration to support their demographic and
labour needs is being increasingly acknowledged. This fact creates
the opportunity for the international community to reconcile migration
policies and development strategies.
The important elements of a comprehensive approach
include:
— Ensuring that migration is incorporated
into development frameworks and anti-poverty strategies.
— Effective management of remittances;
— Mobilization and involvement of diasporas
and transnational networks in development strategies;
— Facilitating the return and reintegration
of migrants;
— Targeted and comprehensive labour
migration programmes.
Today, policy makers have a real opportunity
to create a win-win situation in the field of international migration
management for the benefit of migrants, governments and communities
in countries the world over.
IOM ACTIVITIES CONCERNING
MIGRATION AND
DEVELOPMENT
Migration and Development: A Key Focus of IOM
Activities
After half a century of worldwide operational
experience, the International Organization for Migration has become
the leading intergovernmental organization working with migrants
and governments to establish humane responses to migration challenges.
IOM believes that international migration presents an opportunity
for cooperation and development. IOM counts 102 Member States
and 33 Observer States. The Organization has more than 165 offices
around the world.
Development has long been a topic of interest
to the International Organization for Migration. IOM recognized
the complexity of the relationship between migration and development
already early on. Indeed, the resolution to establish a Provisional
Intergovernmental Committee for the Movement of Migrants (PICMME)
from Europe,[80]
adopted in 1951, underlined the existence of "a close relationship
(...) between economic development and immigration". Already
in the 1960s, ICEM, as IOM was subsequently called, developed
specific "Migration for Development" programmes to enhance
development through migration.[81]
Today, the relationship between migration and development is an
increasingly important focus for IOM activities. This, in part,
also reflects the growing number of African and Asian countries
that have joined IOM over the years.
THE IOM APPROACH
The key assumption of IOM is that international
migration, if effectively managed, can contribute to the growth
and prosperity of both countries of origin and destination. In
this sense, migrants are considered as potential agents of development
who strengthen cooperation between home and host societies. While
the focus of IOM activities, therefore, lies on the strengthening
of the positive aspects of migration, the approach is sufficiently
inclusive and adaptable to also tackle aspects of root causes
and alleviate negative consequences of migration. IOM activities
relating to migration and development can be broadly structured
into the areas of international policy dialogue, policy-oriented
research, and migration management programmes, including technical
cooperation, and operations.
The overall aim of IOM is:
To harness the potential of international migration
for development within a context of orderly movement.
In the course of the last four years alone,
IOM has implemented migration projects directly linked to development
in more than 30 countries in Africa, Central Asia, the Caucasus,
South Asia, South-east Asia, and south-eastern Europe.
November 2003
65 IOM, World Migration 2003: Challenges and Responses
for People on the Move, World Migration Report Series Vol 2, Geneva. Back
66
Ibid. Back
67
"Migration and Migration Policy in Asia: a synthesis of
selected cases", Ronald Skeldon, 2003. Back
68
John Page and Richard Adams, "The Impact of International
Migration and Remittance on Poverty", World Bank, forthcoming,
2004. Back
69
See IOM, 2001, "The Role of Regional Consultative Processes
in Managing International Migration". Back
70
"Connecting Migration, Brain Drain and Capacity Development",
Carlo Lopes, UNDP Bureau for Development Policy, 2002. Back
71
OECD, Trends in International Migration, 2001, p115. Back
72
"Policy Research on Migration and Development", David
Ellerman, World Bank Working Paper 3117, August 2003. Back
73
Richard Black, "Soaring Remittances Raise New Issues".
Migration Information Source, Migration Policy Institute 1 June
2003. Back
74
I B Lowell and R, de la Garza, 2002, "Sending Money Home:
Hispanic Remittance and Community Development" Rowman and
Littlefield, Oxford. Back
75
Allan Findlay, "From Brain Exchange to Brain Gain: Policy
Implications for the UK of Recent Trends in Skilled Migration
from Developing Countries", ILO, Geneva, 2001. Back
76
"Synthesis Paper on the Studies of Labour Migration Processes
in Bangladesh", IOM Dhaka, 2002. Back
77
See "Comprehensive and Solutions-Oriented Approaches to Irregular
Migration", IOM 2003. Back
78
"From Brain Exchange to Brain Gain: Policy Implications
for the UK of Recent Trends in Skilled Migration from Developing
Countries", Allan Findlay, ILO, Geneva, 2001. Back
79
"Remittance Data", Migration Information Source, Migration
Policy Institute, 1 June 2003. Back
80
PICMME would change its name to the Intergovernmental Committee
for European Migration, then to Intergovernmental Committee for
Migration and finally, in 1989, to IOM. Back
81
For more details, see chapter 3, Ducasse-Rogier, M, The International
Organization for Migration 1951-2001 Back
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