International Dialogue on Migration 2011 INTERSESSIONAL WORKSHOP ON ECONOMIC CYCLES, DEMOGRAPHIC CHANGE AND MIGRATION FINAL REPORT

Transcription

1 Internatinal Dialgue n Migratin 2011 INTERSESSIONAL WORKSHOP ON ECONOMIC CYCLES, DEMOGRAPHIC CHANGE AND MIGRATION FINAL REPORT INTRODUCTION Understanding migratin in relatin t ecnmic cycles and demgraphic parameters is a majr challenge fr cuntries at all levels f ecnmic develpment. With migratin recgnized as a majr structural factr in the glbal ecnmy and as an imprtant element in addressing demgraphic realities, the 2011 secnd intersessinal wrkshp f the Internatinal Dialgue n Migratin (IDM) n Ecnmic Cycles, Demgraphic Change and Migratin ffered an pprtunity fr IOM s membership t discuss experiences, exchange effective plicy ptins and lessns learnt, and identify areas fr capacity-building t meet current and future challenges. In the cntext f the IDM s verarching theme The Future f Migratin: Building Capacities fr Change 1, the IDM brught tgether gvernments, members f civil sciety and experts fr an pen discussin n ways t best gvern the interdependencies between migratin, ecnmic cycles and demgraphic change. Migratin, ecnmic cycles and demgraphic change frm a cmplex triangle whse elements bey different timescales and drivers while varying in terms f certainty and predictability. Cycles f ecnmic cntractin and expansin, fr instance, tend t be measured in years, while ppulatin dynamics perate n decadal timescales. Migratin flws respnd t ecnmic cnditins, and thus als t ecnmic bm and bust cycles, but such fluctuatins d nt generally affect structural issues relating t labur market trends, the size and cmpsitin f a cuntry s labur frce, and demgraphic factrs. Indeed, the interactins between ecnmic cycles, demgraphic change and migratin cincide mst visibly in the labur market: they influence in a multitude f ways labur shrtages and surpluses, the demand fr certain skills, r the rati between the ecnmically active prtin f the ppulatin and thse wh d nt participate in the labur market, t name a few. Migratin can bridge areas experiencing labur shrtages and labur surpluses, it can energize ecnmies thrugh the circulatin f skill and talent, and it can cntribute t attenuating demgraphic disparities. 1 The theme is based n the IOM Wrld Migratin Reprt (2010), entitled The Future f Migratin: Building Capacities fr Change, available n the Organizatin s website Cvering a variety f themes, the reprt als devtes attentin t the repercussins f the glbal ecnmic crisis fr migratin. 1

2 The wrkshp tk place against the backdrp f the glbal ecnmic crisis. 2 Amng the many repercussins f the crisis were impacts n migrants and migratin, such as public backlash against migrants, the vulnerability f migrants wrking in cyclical sectrs f the ecnmy, return f verseas wrkers t their hme cuntries and evidence f the relative resilience f remittance flws in spite f the dwnturn. In shrt, the crisis generated a number f imprtant lessns fr plicymakers in managing migratin in recessins, but it als demnstrated the structural imprtance f migratin fr ecnmies and labur markets wrldwide. 3 Plicymakers are thus faced with the challenge f develping migratin plicies that recncile demgraphic factrs, ecnmic pressures and labur market realities. Sme f the central questins in this this regard are: What is the rle f migratin in addressing questins f ppulatin dynamics, labur market needs and ecnmic grwth and develpment? Can migratin be a fix fr demgraphic challenges? Hw can migratin be managed t respnd flexibly t labur market upswings and dwnturns? Hw might labur mbility cntribute t grwth, develpment and cmpetitiveness? What plicy ptins are available fr managing the relatinship between migratin and demgraphic trends, n the ne hand, and between migratin and ecnmic cycles, n the ther? And can migratin plicy integrate these tw frces? It is well recgnized that migratin hlds many benefits bth fr develped and develping cuntries. Cuntries with ageing ppulatins are able t replenish their labur markets, while cuntries experiencing large wrking-age ppulatins cmbined with a lack f jb pprtunities can prmte migratin as means t reduce demgraphic pressures and pen channels twards emplyment. The IDM wrkshp called fr cllabrative appraches t migratin gvernance that bridge shrt- and lng-term pririties, and balance the interests, needs and rights f migrants, cuntries f rigin and cuntries f destinatin. Participants highlighted key plicy areas and capacities needed t embrace the ptential f migratin in creating flexible and cmpetitive labur markets. Furthermre, as cuntries arund the wrld cntinue t feel the effects f the ecnmic crisis, participants als called fr measures that incrprate migratin in a lng-term slutin fr glbal ecnmic recvery. 2 Any references t the ecnmic crisis r the crisis in this reprt refer t the glbal ecnmic recessin which began in 2008, unless specified therwise. 3 Fr mre detail n the ways in which the ecnmic crisis affected migrants and migratin, the reader may wish t cnsult the research cnducted by the Independent Netwrk f Labur Migratin and Integratin Experts LINET (with a fcus n the Eurpean Unin) IOM (2011) The Glbal Ecnmic Crisis and Migratin: Where D We G Frm Here?; IOM (2010) Migratin and the Ecnmic Crisis: Implicatins fr Plicy in the Eurpean Unin; IOM (2009) Migratin Research Series N. 37 The Impact f the Glbal Financial Crises n Internatinal Migratin: Lessns Learned (all available at Migratin Plicy Institute (2011) Migratin and the Great Recessin: The Transatlantic Experience, Organisatin fr Ecnmic C-peratin and Develpment Internatinal Migratin Outlk 2010, 2

3 SCOPE AND PURPOSE OF THE WORKSHOP The wrkshp n Ecnmic Cycles, Demgraphic Change and Migratin was the secnd f tw wrkshps held as part f the 2011 Internatinal Dialgue fr Migratin. 4 Mre than 150 participants attended the event held in Geneva, Switzerland n 12 and 13 September 2011, representing ver 60 cuntries and 23 internatinal and nn-gvernmental rganizatins. The specific bjectives f the wrkshp were: T bring tgether gvernments and ther actrs t share experiences and appraches in addressing the interactins between ecnmic cycles, demgraphic trends and migratin; T draw lessns frm the ecnmic crisis and evaluate the impact f varius migratin plicy measures taken in respnse t the crisis, placing them in the cntext f brader ppulatin and labur market trends in develped and develping, rigin and destinatin cuntries; T identify pririties fr capacity-building in rder t strengthen the effectiveness f plicy interventins in dmains such as migratin, labur, and develpment, with the aim f imprving migratin gvernance in the cntext f glbal and reginal ecnmic and demgraphic trends. A backgrund paper, prvided t participants in advance f the wrkshp, utlined the principal cncepts, plicy challenges and areas f fcus fr capacity-building. The cnclusins f the discussin were presented at the end f the tw-day deliberatins in frm f a Chair s Summary. Bth the backgrund paper and the Chair s Summary are included in this reprt. 4 Mre infrmatin abut the wrkshp, including presentatins by speakers and backgrund material, can be fund at 3

4 DELIBERATIONS AND RECOMMENDATIONS OF THE WORKSHOP The present reprt categrizes the experiences, plicies and practices highlighted by participants at the wrkshp int five areas fr capacity-building which received particular emphasis during the curse f the discussins. Internet links are included wherever pssible t prvide the reader with access t additinal detail n the plicies and practices summarized in the fllwing pages. 1) Capacities t align migratin plicy with pririties in ther plicy dmains; 2) Capacities and plicy ptins t prmte circular and temprary frms f mbility; 3) Migrant-centred appraches, fcussing n rights, skills and human capital; 4) Knwledge, data, mnitring and evaluatin capacities in regard t labur markets, ecnmic cycles and demgraphic trends; 5) Capacities t enhance cperatin and migratin gvernance. 1. Integrate migratin int labur market and demgraphic plicies as part f a cmprehensive plicy mix. Migratin certainly plays an imprtant rle in the labur markets and demgraphics f cuntries arund the wrld. Migratin, hwever, is nt a cure-all slutin t skill r demgraphic deficits r labur surpluses r shrtages a message that rang lud and clear thrughut the wrkshp. Fr example, many participants acknwledged that migratin alne cannt ffset demgraphic ageing, particularly in the lng run. At the same time, migratin shuld nt be blamed fr all prblems afflicting labur markets; fr instance, fr skill shrtages in cuntries f rigin. In shrt, underlying structural factrs (relating, inter alia, t fertility levels, wrkfrce participatin, prevailing wages and wrking cnditins, and the balance between supply and demand) tend t have greater weight than migratin in determining demgraphic and labur market dynamics. Participants thus cncluded that migratin shuld be ne cmpnent f a larger set f plicies which address the effects f demgraphic change and ecnmic cycles. In this cntext, participants reminded each ther that phases f ecnmic dwnturn shuld nt lead t undue migratin restrictins: given the abve-mentined structural cnditins shaping natinal markets, migrant labur is ften needed fr ecnmic recvery, while many ecnmies in cuntries f rigin benefit frm r even depend n their verseas wrkfrce fr remittances. Wrkshp participants als deliberated the relative predictability f demgraphic trends cmpared t the mre erratic nature f ecnmic cycles and the cnsequences fr plicymaking. Discussins highlighted numerus examples f plicies which make migratin a part f brader labur market strategies and ppulatin plicies. Enhancing regular migratin channels which take labur market needs int cnsideratin. Much debate surrunded the questin f timeframes and whether/t what extent migratin channels shuld be adjusted t prevailing ecnmic cnditins. Generally, there was a cnsensus that abrupt clsures f migratin channels are likely t be cunterprductive. The ptential fr migratin slutins fr cuntries with relatively yung demgraphic prfiles yet insufficient emplyment pprtunities was als raised during the wrkshp. The Spanish immigratin law f 2002 made a cnscius effrt t link labur market needs and emplyment with immigratin. When the ecnmic crisis hit the cuntry in 2008, Spain instituted a plicy f financial incentives t encurage the vluntary 4

5 return f migrant wrkers t their hme cuntries. It has been reprted that apprximately ten per cent f the targeted ppulatin respnded t this prgramme. 5 Under the scheme, individuals are allwed t return t Spain three years after their departure, and imprtantly, are able t resume their previus status. Fr example, if smene held lng-term residence status and decides t participate in the scheme by returning hme, he r she will be able t enter lngterm residence status again if he r she chses t return t Spain after three years. Canada, by cntrast, decided t maintain stable immigratin levels during the crisis. Cmplementing migratin measures with ther tls in preparing labur markets t absrb demgraphic changes and ecnmic shcks. In respnding t ecnmic dwnturns, in meeting labur market demands r in anticipating demgraphic develpments, migratin shuld always be ne in an array f ptins that cllectively create apprpriate and lasting slutins. The 3 Ps ppulatin, participatin and prductivity were suggested by the speaker frm Australia as an apprpriate framewrk fr analysing the relatinship between immigratin and ecnmic grwth. A range f plicy ptins, migratin being ne f them, are available in each f thse three categries and shuld be applied accrding t cntext and circumstances. 6 Ghana s interventins in the health sectr include schemes targeting the utmigratin f health prfessinals and their return frm abrad. These prgrammes are cmplemented with initiatives t enhance salaries f health prfessinals, imprve wrking cnditins thrugh better equipment, prvide pprtunities fr skill upgrading and training, and increase the intake f medical students. In Canada, migratin is ne plicy lever in the gvernment s strategy t maintain ecnmic cmpetitiveness in face f demgraphic ageing. Other measures aim t increase birth rates, reduce underemplyment and underrepresentatin in the labur market f certain grups and minrities (e.g. Canada s indigenus ppulatin), and mdify the retirement age. The prvince f Québec, fr instance, prvides high-quality, affrdable child care fr parents and fully funds In-Vitr Fertilizatin treatments fr eligible wmen. Setting up transparent and efficient labur migratin channels which match supply and demand, respnd t real needs and prtect the rights f migrants. Cuntries have created different systems and have adapted them ver time t find the mst apprpriate mechanisms. The main differences between thse mdels, sme f which were presented at the wrkshp, pertain t whether they are emplyer-led r Statedriven and whether they wrk n the basis f labur market demands r human capital ptential. Over time, Australia has mved twards a hybrid mdel which cmbines a pintsbased system with a demand-driven ne. Accrdingly, this mdel respnds t bth the specific needs f emplyers and the macr-level needs f the ecnmy. The prgramme fcusses n skilled migrants with high human capital ptential and is 5 IOM Wrld Migratin Reprt 2010, p See Australia t 2050: the 2010 Intergeneratinal Reprt, Australian Treasury. 5

6 designed t meet labur shrtages, mitigate the effects f ppulatin ageing, secure high rates f labur market participatin and bst prductivity. A recent refrm intrduces a tw-step prcedure whereby individuals are asked first t submit an expressin f interest electrnically. Candidates are subsequently ranked using their pints-test scre and are invited t apply n the basis f the ranking. 7 Russia has implemented a quta system which places the burden n emplyers t verify the skills f ptential migrants. In general, migrants receive a three-year wrk permit, and accmpanying family members are als permitted t wrk. Sweden s labur migratin plicy, adpted in 2008, is largely emplyer-driven. While vacancies have t be advertised natinally fr a nminal perid and cmmunity preference fr natinals f Eurpean cuntries must be respected, emplyers have cnsiderable freedm in the recruitment f freign labur. There are n frmal labur market tests r qutas, fr example. The plicy als recgnizes the imprtance f cnsidering family and gender dimensins: families f migrants are given access t the labur market and t the welfare system. Since the launch f the plicy, 40,000 residency permits and 19,000 wrk permits have been issued. 8 Remaining attuned t changing labur market cnditins and demgraphic trends. Many cuntries discussed their recent experiences in becming cuntries f destinatin as well as cuntries f destinatin. Others bserved that after decades f being net exprters f labur, they t find themselves cnfrnted with shrtages. Recently Mldva, fr the first time, began experiencing skill shrtages, and as a result, is making greater effrts t match educatin and training t labur market needs. In Mexic, yuth chrts entering the educatin system and the labur market are becming smaller, resulting in reduced demgraphic pressures which used t fuel migratin. At the same time, the demgraphic prfile f Mexican migrants t the US is beginning t resemble that f the native ppulatin which means that the demgraphic cmplementarity effect is starting t dissipate. Azerbaijan, als traditinally a cuntry f rigin, fund that the ecnmic crisis did nt greatly affect migratin patterns. On the ther hand, the cuntry has nted a grwing demand fr skilled specialists and is lking fr ways t address this issue as part f the Azerbaijani State Migratin Prgramme. This prgramme is als aligned with the State prgramme n the develpment f ppulatin and demgraphic affairs, thus encmpassing labur market and demgraphic issues (amng thers). Cllabrating with and acknwledging migrant netwrks. Migrants frequently resrt t their netwrks in finding emplyment and navigating their destinatin cuntry. While the unregulated nature f these netwrks creates the risk f abuse, they are als a surce f infrmatin and a catalyst fr transnatinal links between migrant cmmunities and their cuntries f rigin. States need t acknwledge the pwer f such infrmal netwrks, which may supplant frmal effrts t manage labur migratin and 6

7 and rganize recruitment. Nnetheless, there are ways t engage with mre frmalized migrant assciatins fr recruitment and infrmatin disseminatin, especially where there are mre established migratin flws. 7

8 2. Enhance the mbility and circulatin f labur and talent fr flexible and resilient labur markets. Temprary and circular labur migratin prgrammes have been subject t cntrversial debate in recent years. Nnetheless, the wrkshp participants supprted the idea that true circulatin and mbility f labur and talent culd hld great ptential fr ecnmies and individuals alike, in particular in respnding t ecnmic cycles. They als cnceded, hwever, that the implementatin f such mbility schemes remains cmplicated and imperfect in practice. Migrants shuld be able t benefit frm the chice and flexibility t g back and frth between different cuntries; fr example, in respnse t ecnmic pprtunities r family cnsideratins, as circular and temprary migratin entail lwer separatin csts. Frm the rigin cuntry s perspective, circulatin culd cunterbalance a lng-term lss f skills, prmte develpment, increase skill exchange and maintain remittance flws. Fr destinatin cuntries, temprary and circular migratin theretically ffer a flexible strategy t react t ecnmic dwnturns and upswings (althugh recent events have demnstrated that when a recessin f glbal prprtins affects cuntries f rigin and destinatin, migrants are mre likely t stay put in the destinatin cuntry, rather than return t ptentially mre difficult cnditins). Therefre, numerus bstacles remain in fully realizing the circulatin f labur and talent. The varius presentatins at the wrkshp cntemplated the lessns that culd be extracted frm past experiences t enhance circular mbility and reviewed the varius capacity-building effrts required thrughut the cycle f circular and/r temprary migratin, frm pre-departure and insertin in the hst labur market, t return and reintegratin in the cuntry f rigin. Imprtantly, hwever, participants als insisted that structural issues cannt be reslved by temprary means, particularly insfar as demgraphic trends are cncerned. Cntemplating circular mbility in the cntext f free mvement regimes. Past experience has shwn that liberalized regimes fr the mvement f peple are mst cnducive t circulatin. These arrangements are ften reginal in nature and prvide the institutinal cnditins that facilitate repeated mves between cuntries. Accrding t experts present at the wrkshp, the experiences f Pland and ther cuntries which acceded t the Eurpean Unin in 2004 demnstrates that circular mbility wrks best under cnditins in which the free mvement f persns is institutinally enshrined. Studies fr the perid frm 2004 t 2007 have shwn that migratin f individuals frm the new Eurpean Member States had large psitive macrecnmic effects fr cuntries f destinatin. Impacts n hme cuntries were neutral r negative initially, fllwed by the psitive results f decreasing unemplyment and rising wages in the lnger run. In Suth America, by prmting greater freedm f mvement amng the cuntries f the Cmmn Market f the Suth (MERCOSUR), the regin saw a change in migratin patterns. Argentina nted, fr instance, that migrants frm neighburing cuntries mved mre flexibly between cuntries, chsing temprary ver permanent migratin. Mexic highlighted the lessns frm a perid f pen brders and bilateral labur migratin prgrammes between Mexic and the United States between 1960 and 1980, nting that there was very little in the way f permanent settlement f Mexicans in the US. This perid, incidentally, came t an end as a result f an ecnmic dwnturn. Mexic als reprted n a new law t create greater freedm 8

9 f mvement between Mexic and neighburing Guatemala, in view f seasnal labur demand in the agricultural sectr. Amng its different features, the new law grants Mexican natinality t children f Guatemalan migrant wrkers brn n Mexican territry. Facilitating circulatin and reducing entry and exit csts. True circulatin depends n mre than pen brders. At the tp f the list are measures that cnsider the family situatin f the migrant, such as easing the prcess f family reunificatin and allwing access t the labur market fr accmpanying spuses. Develping and prviding multiple-entry visa ptins and ensuring prtability f scial security were als highlighted as gd practices. Taxatin schemes that avid duble taxatin are als likely t make a difference in individual s mbility decisins. Sweden s take n circular migratin pursues develpment bjectives fr the cuntries f rigins f migrants in Sweden. It therefre targets migrants already resident in Sweden sme f whm may have already becme Swedish natinals. The cuntry is cnsidering the challenge f hw t remve barriers t mvement in rder t encurage individuals t g back and frth between their cuntry f rigin and Sweden, as ften as they wish. Prmting mbility as part f reginal partnerships. In settings where significant plitical and ecnmic ties exist between cuntries, migratin schemes can be embedded in these brader plitical and ecnmic relatins and extended thrugh supplementary prvisins, fr instance t further the develpment f the hme cuntry r guarantee the prtectin f migrants in the cuntries invlved. Mldva became the first cuntry t enter int a Mbility Partnership with the Eurpean Unin under the EU Glbal Apprach t Migratin. In additin t access t labur markets in the Eurpean Unin fr Mldvan migrants, the scheme included numerus ther activities, such as PARE 1+1 in which each unit f Mldvan currency (the Leu) invested by a migrant back hme is matched with ne Leu by the State. There are als prgrammes t ensure adequate recgnitin f qualificatins. Mldva and Russia reprted n the planned cnclusin f a bilateral agreement between the tw cuntries that grants scial prtectins t migrants frm bth cuntries. Easing the transitin between temprary and permanent residency and wrk categries. Retentin f migrant wrkers was als discussed. Emplyers wh have invested in the training f an emplyee may wish t prlng his r her stay. Likewise, the prspect f being able btain permanent residence als increased the incentives fr migrant wrkers t integrate int the new sciety, and eases the prcess f circulating between tw cuntries. Lastly, targeting student migrants was highlighted at the wrkshp as a nvel strategy t enhance human capital and ensure that the labur market is replenished with a yung skilled labur frce. Canadian Experience Class is a prgramme pen t skilled temprary freign wrkers and internatinal students wh have Canadian wrk experience and meet 9

10 language requirements. This prgramme enables skilled migrants t transitin frm temprary t permanent status. 9 Sweden s new labur migratin plicy greatly facilitates the transitin frm temprary t permanent status: the initial temprary permit can be renewed several times, and if the individual is still emplyed after fur years, permanent residence can be btained withut having t return hme t apply. In additin, freign pstgraduate students in Sweden als have the pssibility t apply fr residence and wrk permits while in the cuntry. Develping flexible arrangements fr specific labur needs. Temprary and circular migratin schemes have in the past been utilized t respnd t labur shrtage in specific market sectrs, such as agriculture. While these prgrammes can be beneficial fr emplyers, facilitate the flw f remittances and pen up pprtunities fr lessskilled migratin, cncerns have als been raised in regards t the prtectin f human and labur rights f migrant wrkers under such schemes. Canada s Seasnal Agricultural Wrker Prgramme matches wrkers frm Mexic and the Caribbean with Canadian farmers in search fr temprary labur during planting and harvesting seasns. The prgramme carefully defines the cnditins f the cntracts t minimize the risk f abuses. In additin, as part f the scheme, wrkers are eligible fr pensins. Canada s internatinal scial security agreements with Mexic and a number f Caribbean cuntries enable participating wrkers t cllect pensin benefits frm either cuntry. 10 Plish seasnal migratin t Germany during the 1990s and until 2004 when Pland jined the Eurpean Unin was critical fr labur markets in bth cuntries. Sme f the key factrs explaining its success lay in gegraphical prximity, lw travel csts, uncmplicated entry requirements, and readily available infrmatin thrugh fficial channels and infrmal netwrks. Mexic bserved that while permanent migratin frm Mexic t the United States has slwed dwn cnsiderably, mbility and circulatin cntinues and is even set t increase further. US agricultural states in particular are devising ways t attract seasnal wrkers by means f temprary visas. Supprting migrants pre-departure. Advice n migratin pprtunities, visas, access t services, emplyment cnditins and cntracts, rights and bligatins, recurse mechanisms in case f emergency, as well as practical infrmatin abut life in the ptential hst cuntry have lng been recgnized as useful measures in preparing migrants r ptential migrants fr the experience, while trying t minimize sme f the risks assciated with migratin. Designing plicies t encurage and supprt the return f migrants, especially in times f crisis. Grwing numbers f cuntries are trying t spread the wrd t their verseas natinals abut investment, business and entrepreneurial pprtunities in the cuntry f rigin. Prgrammes t supprt migrants in saving financial capital while abrad and re-integratin centres prviding jb cunselling and referrals can ease the reintegratin prcess and help inject new skills in the labur markets f hme cuntries. Hwever,

11 return may als take place under difficult circumstances: even thugh the ecnmic crisis did nt generate large-scale returns, many cuntries fund themselves having t receive and reintegrate migrant wrkers wh had left their destinatin cuntries due t the recessin. In supprting the reintegratin f its verseas wrkers during the ecnmic crisis, the Gvernment f the Philippines initiated livelihd prgrammes ffering financial supprt fr returnees as well as retraining pprtunities. The Gvernment als wrked with the private sectr and chambers f cmmerce in rder t prmte the reinsertin f verseas wrkers in the dmestic labur market. Targeting diaspra cmmunities t mbilize cmpetencies acquired by migrants while verseas can deliver a range f benefits t the develpment f cuntry f rigin. Prgrammes such as the IOM s Migratin fr Develpment in Africa (MIDA) assists African natinals in cntributing t the develpment f their cuntries f rigin. Thrugh temprary returns f qualified natinals, individuals can supprt ecnmic and scial sectrs (such as health care and educatin) by fstering the exchange and develpment f skills, knwledge and prfessinal netwrks. One particular example highlighted at the wrkshp is MIDA FinnSm Health between Finland and Smalia, which has rganized the temprary returns f health wrkers frm Finland t their native Smalia. In its first phase in , fr instance, the prject facilitated 22 temprary return assignments, invlving Smali medical dctrs, dentists, nurses, midwives, and labratry technicians. Imprtantly, the MIDA FinnSm Health prject is demand-driven and based n pririty needs identified by lcal authrities and prject partners in Smaliland and Puntland Fr mre n the MIDA FinnSm Health prject, see and IOM (2009) Migratin fr Develpment in the Hrn f Africa Health expertise frm the Smali diaspra in Finland, available at Additinal infrmatin n MIDA mre generally is available at: 11

12 3. Fcus n migrants skills and human capital and ensure prtected cnditins and decent wrk fr migrants at all skill levels. Human capital has becme a highly valued asset in the glbal ecnmy. One strng message which emerged frm the wrkshp discussin was that cuntries will increasingly find themselves cmpeting fr labur and talent, and this cncerns nt just the traditinal industrialized natins, but als emerging ecnmies. Fr example, the Wrld Ecnmic Frum reprted at the wrkshp that 34 per cent f emplyers experience difficulties in filling pen psitins due t lack f available talent. 12 In the debate n the availability and distributin f human capital, participants stressed the imprtance f fcussing n all skill levels. Participants cautined against segmented appraches which treat high- and lessskilled sectrs (and, cnsequently, highly skilled and less skilled migratin) as thugh they perated independently f each ther. In reality, the tw are ften cntingent upn each ther, as illustrated by the grwing participatin f wmen in high-end sectrs f the labur market in develped cuntries, facilitated by the availability f less-skilled labur (ften migrant labur) t take n dmestic tasks. The wrkshp als highlighted that ecnmic recvery f markets can be catalysed by ready access t bth high- and less-skilled labur. Varius arguments were put frward why migrants are f particular cncern: first, t many migrants find themselves at risk f human and labur rights abuses, while principles f decent wrk 13 (which were highlighted at the wrkshp) are als ften vilated in the cntext f migratin fr wrk. Secndly and mre specifically, migrants are typically the first t be affected during perids f ecnmic instability, as they are mre likely t lse their emplyment r be pushed int precarius cnditins. Thirdly, migrants are an imprtant target grup in the investment in human capital and skills in mdern labur markets arund the wrld: n the ne hand, migrants ften pssess imprtant and much-needed skills. On the ther hand, migrants ften struggle t have their qualificatins and skills adequately recgnized, and experience underemplyment and brain waste as a result. The discussins thus revlved arund the links between migratin plicies and measures in the realm f educatin, training, up-skilling and skill recgnitin, as well as ways t reduce the varius risks and vulnerabilities which migrants may experience in the glbal labur market. Creating effective systems fr the recgnitin f skills and qualificatins and the transfer f licences and certificates. This is a crucial element in integrating migrants int labur market and maximizing their human capital ptential. Indeed, migrants and returnees wh d nt have their skills recgnized may be unable t access emplyment that matches their skill sets. As the mbility f prfessinals is becming an increasingly imprtant cmpnent in labur markets arund the wrld, participants suggested that gvernments, emplyers and educatinal institutins wrk tgether t evaluate the cmpatibility f credentials and standardize mechanisms fr btaining equivalent licences and certificates. Facilitating skill-matching mechanisms. Recgnitin f qualificatins is ne step f the prcess, but is nt sufficient n its wn t make the best use f the skills and qualificatins in the labur market. Matching migrant prfiles with jbs and emplyers requires measures that assist migrants in navigating labur markets and recruitment systems that they may be unfamiliar with, as well as supprting emplyers in accessing the migrant talent pl (in particular fr small and medium sized enterprises) See the Internatinal Labur Organizatin s Decent Wrk Agenda 12

13 Upwardly Glbal is a US-based nn-prfit scial enterprise which aims t cnnect emplyers with qualified migrants. The rganizatin fcusses n shifting attitudes and raising awareness abut diversity in the wrkplace and the inclusin f migrant talent in the private sectr. Upwardly Glbal als empwers migrants t vercme entry barriers by training migrants in jb searching skills, develping interview techniques and supprting the creatin f prfessinal netwrks. 14 Valuing the glbal skills f migrants. Apart frm their frmal qualificatins, migrants als ften pssess ther attributes, such as crss-cultural cmpetences, internatinal wrk experience, language abilities, adaptability and transnatinal cnnectins, which many private sectr cmpanies actively seek in their emplyees. Building skills and keeping in mind the full range f skills required. Participants discussed ways t cmbine migratin and skill-building plicies. A fcus n educatin, training and lifelng learning was suggested, as was cperatin with universities and training institutins, even acrss brders. While much attentin is devted t attracting highly skilled prfessinals, mst labur markets require wrkers at all skill levels. Fr example, the Azerbaijani State Migratin Prgramme envisages cperatin with universities and bilateral agreements in the sphere f educatin t increase the availability f needed skills. The Eurpean Unin s EU 2020 Strategy recgnizes that skills and knwledge cnstitute Eurpe s mst imprtant cmpetitive advantage and seeks t further this strategic bjective thrugh, inter alia, educatin, labur market participatin, mbility (bth within the EU and frm third cuntries) and better labur market integratin f migrants already present in the EU. Sweden s 2008 labur migratin plicy is explicitly nn-sectral, meaning that emplyers are free t recruit freign labur at all skill levels. Seasnal wrkers have been in great demand, while IT, husekeeping, hspitality, arts, sprts, architecture, and engineering emerged as sme f the main categries in which emplyers have sught migrant wrkers, illustrating the full spectrum f skill levels. Increasing migrant participatin in labur markets in destinatin cuntries. Many participants pinted ut that plicies shuld nt nly fcus n enhancing labur migratin channels, but als strive t better include migrants already present in the cuntry. This is partly related t the recgnitin f skills t avid underemplyment and underutilizatin f ptential available in the cuntry. But plicymakers may als wish t fcus n the labur market pprtunities and entry barriers f s-called nn-ecnmic migrants, such as thse entering the cuntry as refugees and asylum-seekers r thrugh family reunificatin prgrammes, as well as descendants f migrants wh ften cntinue t experience bstacles t labur market participatin. In the US, the Nrtheast Ohi Healthcare Wrkfrce Pipeline (NEOHWP) prject by the Nrtheast Ohi Health Science & Innvatin Calitin, Glbal Cleveland, and Upwardly Glbal wrks t increase participatin f migrants in the Ohi healthcare sectr. NEOHWP was develped t better manage the grwing demgraphic disparities in the Ohi regin. The prject aims t replenish the Ohi healthcare

14 system with skilled yung migrants t meet the challenges created fr the expanding healthcare industry by the grwing number f retirees. 15 Cnsidering gender specificities in labur migratin, emplyment and family plicies, and differentiated vulnerabilities during ecnmic crises. Participants nted that men and wmen have different experiences in the labur market and that the same is f curse true fr migrant men and wmen. Measures that aim t enhance the human capital ptential f migrants r respnd t the cnsequences f an ecnmic dwnturn need t be sensitive t these differences. Spain, fr instance, remarked that the 2008 ecnmic crisis verwhelmingly affected male migrant wrkers wh were emplyed in the cnstructin sectr. Wmen migrants, by cntrast, tended t wrk in nn-cyclical sectrs and were less likely t be ut f wrk. Similarly, the Philippines nted that female dmestic wrkers rarely lst their jbs during the crisis cmpared t male migrants, particularly thse wrking as seafarers. Strengthening private sectr capacities t harness the talent available within the migrant cmmunity, including crss-cultural and linguistic skills, while raising awareness f sme f the challenges faced by migrants in accessing the labur market. Building the capacities f human resurce prfessinals and managers in recruitment in crsscultural settings r in diversity management in the wrkplace, r devising schemes that enable migrants t gain wrk experience in their field f expertise can help break dwn sme f the barriers between emplyers and migrants. One particular prgramme discussed by Upwardly Glbal during the wrkshp was the Glbal Engineers in Residence (GEIR) prject. Thrugh GEIR, migrants with a backgrund in engineering are able t gain valuable wrk experience and prfessinal cnnectins, while emplyers are intrduced t the pl f talent available in the migrant cmmunity. Prmting mechanisms fr skill exchange and circulatin f human capital. In the wrkshp, cuntries f rigin f migrant labur called n destinatin cuntries which seek t attract highly skilled migrants t cnsider the cnsequences fr their hme cuntry ecnmies. There are grwing pprtunities fr cuntries f rigin and destinatin t cperate in helping migrants t transfer knwledge and exchange skills between the tw scieties. In the health sectr, the Gvernment f Ghana s Human Resurces Develpment Strategy has implemented internatinal exchange prgrammes with the assistance f IOM, whereby Ghanaian health prfessinals abrad return t Ghana n a temprary basis t wrk alngside lcal clleagues. In turn, health prfessinals frm Ghana cmpleted temprary stays in healthcare institutins in the UK, Germany and the Netherlands. The prgramme aimed t stimulate cperatin and the flw f knwledge and build prfessinal netwrks. T date, 150 temprary returns and ten exchanges with a Eurpean healthcare facility have been realized, benefitting 40 Ghanaian institutins

15 Prtecting migrants during times f ecnmic crisis. T prevent migrants frm falling int irregular r vulnerable situatins, cuntries f rigin and destinatin can wrk tgether and engage with emplyers, t supprt, fr example, jb transferability prgrammes r repatriatin. During the 2008 ecnmic crisis, the Gvernment f the Philippines reinfrced bilateral negtiatins with gvernments t manage exit prcedures fr Overseas Filipin Wrkers wh were frced t abandn their cuntries f destinatin. One main bjective fr the Gvernment f the Philippines was t btain re-entry guarantees fr any migrant wrkers wh left during the crisis. Fllwing the crisis, the Gvernment develped a crisis mnitring system. The bjective is t prduce an evidence-based early warning system thrugh gvernment attachés and verseas missins t identify changes in freign labur markets and emplyers that culd be vulnerable t ecnmic fluctuatins. This wuld allw fr early interventins t minimize the impact n migrant wrkers and t agree n schemes fr their reemplyment nce the situatin has imprved. Prviding migrants with full infrmatin n their rights, emplyment terms and bligatins. Infrmatin regarding dmestic labur legislatins, emplyment cntracts, and bligatins and rights can be a buffer against sme f the risks and abuses faced by migrant wrkers. States can als develp and supprt infrmatin distributin mechanisms thrugh migrant netwrks, ethnic media and civil sciety. In this cntext, participants discussed the rle f recruitment agencies as cnveyrs f infrmatin as well as the need fr careful mnitring and regulatin f such agencies. The Ghanaian Ministry f Health plans further steps t supprt Ghanaian health wrkers abrad, including mnitring wrk cnditins and the creatin f labur attachés wh wuld serve as cntacts in embassies and cnsulates. Addressing the status f migrants in an irregular situatin. Irregular status pses significant risk fr the prtectin f the human and labur rights f an individual. It als creates additinal barriers t the effective inclusin f migrants int the labur market, scial security and taxatin systems. Implementing plicies which regulate migrants in the wrkfrce shuld be dne in cnsideratin f labur market demands and demgraphic pressures. The Spanish regularizatin prgramme in 2005 regularized migrants legal status and brught jbs and emplyers which had perated utside the law within the purview f legal regulatin. Migrants were required t prvide evidence f a wrk cntract and residence in Spain fr a perid f three years. The regularizatin prgramme brught irregular migrants int scial welfare prtectin and increased the gvernment s capacity t implement effective taxatin systems. 15

16 4. Develp assessments, mnitring and data cllectin capacities n migratin, labur market trends and demgraphic develpments fr wellinfrmed plicymaking. Plicymakers grapple with cnsiderable cmplexities and uncertainties in understanding and addressing ecnmic cycles and demgraphic change. The ecnmic crisis, fr instance, had taken many by surprise, while subsequent develpments rapid recvery in sme parts f the wrld, a wrsening f the situatin in thers prved equally difficult t fresee. Demgraphic trends, by cmparisn, appeared mre manageable t many wh spke at the wrkshp, yet ppulatin dynamics t are multivariate prblems nt readily influenced by plicy interventins. Nnetheless, there was general agreement that mre effrts are needed t understand and mnitr migratin in relatin t demgraphic and labur market trends t create a mre slid basis fr plicymaking in the future. The recent crisis, fr instance, allwed experts and plicymakers t reassess sme f the cmmn assumptins abut the relatinship between migratin and recessins and t extract lessns fr the future. Calls fr better data n migratin have been a cnsistent theme at this and previus IDM wrkshps as States rely n such data t infrm the allcatin f resurces and natinal and reginal migratin strategies. Mre specifically, methdlgies t assess labur markets, including current and future needs and ptential shrtages, have becme mre sphisticated: shrtages, fr instance are nt always simply calculatins where demand exceeds supply. Instead, they depend critically n the price f labur, as well as prevailing prductin prcesses, wrking cnditins and emplyer perceptins. Mre and mre cuntries are lking t develp such labur market assessments and integrate them with migratin plicies, but many als lack the capacity t btain and apply such data. Mapping future scenaris in migratin, ecnmic cycles and demgraphic change. While firm predictins are unlikely t materialize, participants highlighted the imprtance f attempts t build scenaris based n ppulatin prjectins, different ecnmic realities and a range f migratin patterns and plicies. This can be dne at natinal r reginal levels and can serve t utline pssible futures t infrm plicymaking. The Wrld Ecnmic Frum, in cllabratin with the Bstn Cnsulting Grup, analysed demand and supply f talent in the glbal labur market in its 2009 Talent Mbility prject. Invlving a range f private sectr and ther stakehlders, the prject identified numerus plicy ptins and lines fr actin in the realm f ecnmic diversificatin, yuth emplyment, jb creatin, diversity in the jb market, retraining and brain drain. 16 Mnitring labur market trends. A number f cuntries regularly carry ut systematic macr- and micr-level analyses t better understand the natinal landscape f labur and skills in rder t assess current and anticipate future needs. Pssible cmpnents f such assessments, depending n its cntext and aim, include data cllectin n unemplyment and underemplyment, unfilled vacancies, skill prfiles f thse entering and leaving the cuntry, the imprtance f the infrmal sectr and its relatinship with the frmal ecnmy, relevant gender aspects, skills available in the diaspra, and remittance flws. It was stressed as imprtant t differentiate between cyclical and nncyclical sectrs, t cnsider bth shrt- and lng-term trends, and t pay attentin t

17 the experiences f emplyers t generate slid, evidence-based labur market assessments. The Philippines has begun develping a glbal emplyment map that lks at cuntries recruiting migrant wrkers in rder t identify future pprtunities fr the cuntry s migrant wrkers in a targeted manner, engage in bilateral negtiatins with relevant cuntries, and prepare migrant wrkers fr the sectrs which are likely t shw high demand fr labur. An example f a useful resurce fr statistical infrmatin n labur migratin is the ILO Internatinal Labur Migratin Database, which has been btaining and string relevant infrmatin since Mnitring and evaluating labur market utcmes fr migrants and different migrant grups. As previusly stated, there is a significant risk that migrant talent and skills remain underutilized, even where there are shrtages. Plicymakers may wish t systematically analyse and mnitr labur market utcmes fr migrants t identify barriers t effective labur market integratin. These can range frm bstacles in having their qualificatins recgnized t discriminatin. In additin, such evaluatins need t be sensitive t differences within the migrant ppulatins, fr instance: gender, age, type f migratin status, and area f rigin. Australia s Department fr Immigratin and Citizenship carries ut a Cntinuus Survey f Australia s Migrants t gauge issues such as labur market inclusin and access t husing and services. The survey has revealed, fr instance, that migrants selected via Australia s skilled labur migratin plicy are unifrmly mre likely t be in full-time skilled emplyment than migrants entering via the family stream. 18 Imprving the prtectin f migrants thrugh cherent data cllectin. Mnitring mechanisms allw States t invest in the kind f capacity-building required t enhance prtectin and law enfrcement in the area f emplyment. Data surced frm labur inspectins can be particularly useful in this regard. Enhancing capacities t understand migratin trends. Migratin Prfiles 19 g beynd simply cmpiling a statistical reprt n migratin. They prvide a framewrk fr bringing tgether existing infrmatin frm different surces, identifying gaps in the knwledge and understanding f migratin and generating dialgue n migratin amng different natinal actrs. Migratin Prfiles can als be targeted twards a particular plicy gal, such as assessing migratin s ptential fr develpment, addressing the vulnerabilities that migrants experience, r integrating migratin in labur market and ppulatin planning. Mldva, as part f its Mbility Partnership with the Eurpean Unin, has embarked n an Extended Migratin Prfile prject. The tl aims t mnitr migratin flws in rder t determine the needs f the labur market, and t develp cherent migratin data and plicies

18 Evaluating plicy utcmes. Plicymakers are increasingly recgnizing the imprtance f assessing the impacts f plicies in the realm f labur markets, labur migratin, ecnmic inclusin f migrants, and skills building, t name a few. One particular area that was highlighted as deserving mre rigrus evaluatin is that f the success and effectiveness f labur recruitment systems. Sweden, fr example, has requested the Organisatin fr Ecnmic C-peratin and Develpment t cnduct an evaluatin f its 2008 labur migratin plicy, including the state f its implementatin, its impacts, and areas fr imprvement The OECD evaluatin f the Swedish labur migratin plicy was released in December 2011 and is available here: _ en. 18

19 5. Further the gvernance f internatinal migratin thrugh brad partnerships and cllabrative fra. The wrkshp drve hme the message f the intercnnectedness f migratin, ecnmic cycles and demgraphic change, but als the intercnnectedness between cuntries f rigin and destinatin in this cntext. Althugh there is widespread awareness that mst States cannt achieve their migratin management bjectives unilaterally, the questin f hw t gvern internatinal migratin remains subject t substantial debate, bth in thery and in practice. A range f different ntins f migratin gvernance were put frward at the wrkshp: sme fcussed n results, such as making migratin mre rderly, fair and beneficial, while thers priritized the prcess f gvernance, including trust-building and the inclusin f a range f stakehlders. Migratin gvernance can thus be cnceptualized as a set f cllabrative practices t maximize psitive utcmes and minimize negative repercussins f migratin. Cllabratin can be glbal, but can als take place at the reginal r even natinal level. Participants als highlighted that as many cuntries becme cuntries f rigin, transit and destinatin simultaneusly, this has created a brader base f cmmn experiences and thus better grunds fr cllabrative gvernance. Likewise, the shck f the glbal ecnmic crisis has presented a stress test fr any incipient migratin gvernance mechanisms, creating risks such as islatinist and prtectinist plicies and xenphbic attitudes, and creating pprtunities fr incrprating migratin int natinal and glbal recvery strategies. Hwever, participants als ventured that a narrw fcus n States as the nly actrs in migratin gvernance may be misplaced. Negative public perceptins f migrants and migratin, fr example, were a cncern fr many cuntries, especially during the ecnmic crisis. In fact, public rejectin f migratin nt nly destabilizes scial chesin in a cuntry, but can als jepardize ecnmic vitality if it means that much-needed labur and talent is kept ut. Integrating civil sciety, migrants and the private sectr int the discurse shuld aim t generate a better appreciatin f migratin and its value and bradens the scpe and capacities fr innvative initiatives. Targeting the change agents. Migrants and migrant netwrks, the private sectr and yuth were recgnized as amng the key players wh will decisively shape the glbal migratin landscape f the future: migrants and the netwrks thrugh which they rganize themselves have majr scial and ecnmic impacts n the scieties they interact with; the private sectr is already lking t glbal talent and labur t maintain a cmpetitive edge; and yunger generatins are grwing up in a wrld in which internatinal mbility, crss-brder cnnectins and glbal aspiratins are increasingly cmmnplace. Accrding t the representative frm the Internatinal Cathlic Migratin Cmmissin which als crdinates civil sciety representatin at the Glbal Frum n Migratin and Develpment, gvernments must find new avenues t engage with these grups. Recgnizing migrants as decisin makers. Fllwing frm the abve, plicymaking needs t take greater accunt f the fact that the pwer ver migratin decisins ultimately rests with individuals and husehlds. Surveys, migrant-centred research, and ther methds can intrduce nvel bttm-up cnsultatin mechanisms. Engaging with diaspras netwrks thrugh internet-based platfrms, fr example, can prduce useful framewrks fr States t develp plicies in cnsultatin with migrants. Drawing in the private sectr. Invlving the private sectr in bth hme and hst cuntries is increasingly being nted as an imprtant step in building new strategies that enhance and sustain the benefits f migratin. The rle f emplyers and the private 19