Chapter 9: summary of conclusions and
recommendations
Addressing skills shortages
189. In the context of the EU's demographic challenges
and future labour market needs, we consider that flexibility by
Member States in the operation of the European labour market to
legal migration from third countries, particularly in those with
skills shortages, could be essential in order to secure economic
growth and competitiveness. However, such an approach is not a
panacea, and should form part of a comprehensive approach which
also tackles the development of skills among the existing workforce,
as well as any necessary labour market reforms. (paragraph 46)
Anticipating labour and skills shortages
190. Member States should continue to have the
right to choose the number of migrants from third countries they
wish to admit to their labour markets, depending on their needs.
Therefore, we consider that any transfer of responsibility to
the EU in the management of legal migration would be undesirable
and also impossible to agree and achieve. (paragraph 55)
191. We also doubt whether it is possible for
the EU accurately to predict labour demand or skills shortages
into the future. (paragraph 56)
Social security coordination
192. We note the Government's concerns about
the Commission's approach to the external dimension of EU social
security coordination. However, notwithstanding these concerns,
we consider that the EU may need to consider the portability of
social rights. (paragraph 60)
Family reunification
193. We believe that there could be problems
with a situation that admits spouses and children more readily
to one Member State than another, considering that, once admitted
they may eventually acquire the right to freedom of movement throughout
the EU. We repeat our view that the Government should seek to
opt-in to the Family Reunification Directive. (paragraph 64)
Labour market integration and public opposition
to migration
194. We consider that the EU's contribution to
labour market integration policy should primarily be through the
European Integration Fund. We support the recommendations of the
European Agenda for the Integration of Third-Country Nationals,
and encourage the Commission to develop these recommendations
into concrete proposals, particularly those dealing with countries
of origin in the context of the GAMM. (paragraph 70)
195. We also support the Commission's efforts
to promote the sharing of Member State experiences and good practice
in the wider area of integration policies. We believe that language
learning has an important role to play in this respect. We would
also stress the valuable role that the voluntary and private sector
can play in this process, and recommend that the views of civil
society be taken fully into account in the formulation and implementation
of integration policy. (paragraph 71)
External border controls and tackling irregular
migration
196. We strongly support the Government's efforts
to play an active role in the work of Frontex and the development
of EUROSUR and believe that it is in the United Kingdom's national
interest that these operations are efficient, effective and well
resourced. (paragraph 81)
197. However, we believe that while external
border controls are a crucial part of any strategy to deal with
irregular migration, they have limited effects on reducing irregularity,
not least since most irregular migrants in Europe are visa over-stayers.
We recommend that both Member States and the EU consider a more
balanced and comprehensive approach to over-stayers, including
the selective encouragement of legal migration channels. We also
support the Commission's forthcoming proposal for an entry-exit
system. (paragraph 82)
EU Readmission Agreements
198. We have constantly advocated the United
Kingdom's participation in all EU Readmission Agreements. We believe
that they can be important tools in facilitating returns to third
countries particularly if bilateral relations were to weaken between
the United Kingdom and particular third countries. We were disappointed
that the Government chose not to participate in the negotiating
mandates with Belarus and Armenia and would like to see the United
Kingdom opt-in at a later stage. We support the Government's decision
to opt-in to the agreement with Turkey. (paragraph 88)
199. We believe that the existing Readmission
Agreements would benefit from a full evaluation and urge the Government
to support such an approach by the Commission. (paragraph 89)
Human Trafficking Directive
200. We support the commitment to embed anti-trafficking
measures in wider external migration relations as well as the
recognition of the need for a more coordinated and strategic approach.
We look forward to seeing evidence of these commitments being
put into practice in the 2014 evaluation report of the Anti-trafficking
Strategy. (paragraph 92)
201. We restate our support for the United Kingdom's
participation in the Human Trafficking Directive and welcome the
Government's joined-up approach to this area. (paragraph 94)
European Asylum Support Office
202. We welcome the establishment of the European
Asylum Support Office and look forward to monitoring its progress.
(paragraph 98)
Regional Protection Programmes
203. We acknowledge the potential of Regional
Protection Programmes to facilitate the GAMM's work in building
capacity in countries of origin and transit. We particularly welcome
the recent establishment of a Regional Protection Programme for
Syria. We encourage the Government to play a proactive role in
their operation and development. (paragraph 106)
Joint EU Resettlement Programme
204. We recommend that the EU should aim to accept
more resettlement refugees under the Regional Protection Programmes
as part of their ongoing dialogue and cooperation with the UNHCR.
(paragraph 110)
205. We commend the Government's ongoing commitment
to resettlement through its Gateway Protection Programme and endorse
its support for the establishment of the joint EU resettlement
programme. (paragraph 111)
A more integrated approach?
206. Migration policy cannot and should not be
the sole concern of interior ministries. We support the approach
advocated by a number of our witnesses for a more integrated approach
to be adopted, which should involve other ministries such as Business,
Innovation and Skills, Development and Foreign Affairs. (paragraph 117)
207. We also consider that the Commission should
adopt a similar approach when seeking to achieve the objectives
of the Global Approach by engaging all the relevant parts of the
Commission, including the Directorate-Generals for Home Affairs,
Development and Employment and Social Affairs, and the European
External Action Service. (paragraph 118)
Trade
208. We consider that the EU's development aims
in the migration context could be assisted by taking steps to
reduce trade barriers with non-EU countries. (paragraph 120)
Brain Drain, Remittances and Diasporas
209. We believe there is a general EU interest
in pursuing proactive policies regarding brain drain, remittances
and diasporas. However, in order for the EU to make a positive
contribution to facilitating remittances, mitigating the effects
of brain drain on countries of origin and assisting diasporas
to transfer skills to their countries of origin, its work in this
area needs to supplement dialogue with concrete actions. This
could include support for making remittances more affordable,
schemes to increase access to finance in remote locations and
providing funding for the development of vocational skills. (paragraph 126)
Mixed competences and effective implementation
210. We agree that the GAMM is a useful framework
for the EU to approach the external dimension of migration. We
also welcome the extension of its scope to cover mobility. (paragraph 133)
211. However, we believe that the current approach
in the GAMM is too diffuse and that in reforming it the EU should
adopt a more focused approach, concentrating on the EU's geographical
and strategic priorities, as well as focusing on a smaller number
of key objectives and instruments, which have a sound evidence
base. (paragraph 134)
212. We believe that Turkey should become one
of the GAMM's main geographical priorities, in tackling irregular
migration, alongside more general engagement in tackling terrorism,
transnational organised crime and promoting judicial cooperation
in civil and criminal matters. (paragraph 135)
213. The EU does have a significant role to play
in migration policy, but if the GAMM is to be effective it must
accommodate rather than disregard Member States' different approaches
in this area. We believe that facilitating voluntary cooperation
between Member States with an interest in particular projects
will yield the most results. (paragraph 136)
Funding, evaluation and monitoring
214. We consider that despite its stated intention
the current iteration of the GAMM has not evaluated effectively
the EU's progress to date in achieving its objectives. Therefore,
we believe that a full and detailed evaluation of the GAMM's different
pillars and the funding instruments that support their objectives
should form a core part of the forthcoming report in 2013, in
order to ensure the GAMM's future relevance and efficacy. (paragraph 139)
Mobility Partnerships
215. We note that none of the existing Mobility
Partnerships are with major sending countries. We recommend that
Turkey (as a candidate country) and Pakistan, as major corridors
for irregular migration into the EU, should be priorities for
future Mobility Partnerships. (paragraph 144)
216. However, it is important to be realistic
about what can be achieved between the EU and third countries
regarding migration and mobility. To this end we support the development
of looser, more informal, forms of cooperation with other important
third countries before moving on to more formal agreements such
as Mobility Partnerships. (paragraph 145)
217. We urge the Government to press the Commission
to accept the need for a thorough evaluation of the existing Mobility
Partnerships. We welcome the recent evaluation of the Moldovan
Mobility Partnership as a positive step in this regard but consider
that considerable progress is still required in this area. Due
to their bespoke nature there cannot be a "one-size-fits-all"
approach to Mobility Partnerships and separate evaluations of
each are therefore required. (paragraph 148)
218. Looking ahead we also believe that any future
Mobility Partnerships should contain clear provision for integrated
monitoring or evaluation mechanisms to assess quantitative benchmarks,
including the views of the target beneficiaries. These mechanisms
should play a prominent role from the very beginning of the process.
(paragraph 149)
The Global Forum for Migration and Development
219. We believe that the Commission should be
welcomed to future meetings of the GFMD as an observer so long
as it is clearly recognised within the EU that this will not indicate
any transfer of responsibilities from the Member States. (paragraph 154)
Other international organisations with a role
in migration
220. Increased coordination and reduced duplication
between the various international organisations involved in migration
policy is necessary. (paragraph 158)
221. We also consider that co-operation and the
sharing of expertise between cities and regions in different parts
of the EU could be every bit as important as inter-governmental
and international co-operation on migration. (paragraph 159)
The United Kingdom's partial participation in
EU asylum and immigration policies
222. We consider that the United Kingdom's approach
to migration policy cannot and should not be formulated and implemented
in a vacuum. Migration is a global phenomenon so the United Kingdom's
policy needs to take proper account of the European and international
policy frameworks in order to achieve a more effective approach.
(paragraph 165)
EU immigration measures
223. We consider that migration has provided
benefits for the EU and can continue to do so while Member States'
primary competence in this area is respected. We continue to believe
that the United Kingdom should seek to play a full role in the
development and implementation of the EU's migration policy. (paragraph 167)
224. We see advantage in the United Kingdom's
participation in individual EU migration measures brought forward
by the Commission where these are broadly consistent with Government
policy. While a policy of non-participation may leave the United
Kingdom free to frame its own labour migration policy, we believe
that this may also place the United Kingdom at a competitive disadvantage
in terms of attracting highly-skilled migrants. (paragraph 168)
EU asylum measures
225. We have also consistently advocated the
United Kingdom's participation in the majority of individual EU
asylum measures. We continue to believe that the United Kingdom
should seek to play a full role in the development and implementation
of the EU's asylum policy, including the completion of the Common
European Asylum System. (paragraph 170)
226. We welcome the Government's admission that
non-participation in proposed recast asylum measures does not
release them from their obligations under the first phase of Common
European Asylum System (CEAS) measures, in which they currently
participate. This has been our view since the second phase CEAS
proposals were brought forward by the Commission. (paragraph 171)
The Schengen Area
227. While not being a full member of the Schengen
Area, we believe that the United Kingdom should seek to engage
with the border-free travel area wherever possible. This can be
achieved through continued participation in policing and criminal
justice Schengen-building measures, as well as through exploring
options for enhanced cooperation between the Common Travel Area
and the Schengen Area. We regret the Government's negative attitude
to such cooperation and hope they will reconsider. (paragraph 176)
Free movement of persons
228. The free movement of persons is fundamental
to the structure of the EU and an integral part of the Single
Market. We believe it would be neither desirable nor feasible
to seek to revise its terms. However, we support any efforts by
the Government to tackle benefit fraud as long as it complies
with their obligations under the Treaties. (paragraph 180)
International students and net migration targets
229. We welcome the Government's commitment to
the sustainable growth of the higher education sector. While we
also welcome their intention to disaggregate the statistics on
student migration within headline migration figures as a small
step in the right direction this does not address the heart of
the problem, which is not purely statistical in nature. (paragraph 186)
230. We consider that the current policy creates
the perception that overseas students are not welcome in the United
Kingdom. We therefore believe that it harms both the quality of
the United Kingdom's higher education sector and its ability to
compete in an increasingly competitive global market for international
students, particularly with other English-speaking countries and
some EU Member States, thus reducing much needed income from tuition
fees for our universities and damaging the United Kingdom's international
influence in the longer term. (paragraph 187)
231. We recommend the removal of international
students from the public policy implications of the Government's
policy of reducing net migration. If the Government genuinely
favour an increase in bona fide students from outside the
EU they should make this clearer and ensure that all policy instruments
support this objective. (paragraph 188)
Conclusion
232. We make this report to the House for debate.
(paragraph 11)
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