/SELM3_MigrationManagement_TakingStock

Migration Management in the Mediterranean Region: Taking Stock, Reviewing, and Looking Ahead

Robert Holzmann and Yann Pouget

Marseille Center for Mediterranean Integration

Marseille, April 2010

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Research Director and Senior Advisor, and Economic Consultant, respectively.

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List of Content

Introduction: the Labor Mobility Program at CMI

I.

Contextual framework

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I.1. Migration management and development objectives

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I.2. Demographic imbalances and labor market needs

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I.3. Competing on smart migration management schemes around the Mediterranean

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II. Conceptual framework II.1. Objectives of intervention: economic rationale, stakeholders’ interest and core principles

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II.2. Methods of intervention: types and tools of intervention

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II.3. Outcomes of intervention: results framework and M&Es agenda

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III. Mapping framework

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III.1 Stock taking: who does what?

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III.2 Gap analysis: knowledge gaps and priority research areas

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III.3. Way forward: who’s better geared to fill the gaps? Areas of cooperation

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Selected References

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Introduction: the Labor Mobility Program at CMI To achieve the development objectives for the Mediterranean region and to accommodate the demographic imbalance across regions it is crucial to help establish a much better integrated labor market that calls for enhanced labor mobility. The mobility of labor contributes importantly to economic growth and employment through multiple channels such as human capital transfer and diffusion of innovation through migration across professions, countries and regions, and demographic arbitrage from young to aging societies. Making this process more efficient requires better managed migration at the level of sending, receiving, returning and circulation. Moreover, in order not to discourage labor mobility across professions and borders, inter alia, portability of acquired social rights is needed.

Both migration management and portability are areas where main improvements are necessary and feasible to establish labor mobility for the benefits of all: the sending country, the receiving country and the mobile worker. The main focus of the Labor Mobility Program at CMI is on (better) managing migration, i.e. on the knowledge base that allows to design or improve policies and programs that lead to better outcome of migration (and labor mobility). The topic is derived from the widely shared view that neither fully unrestricted nor fully restricted international mobility is politically feasible and possibly economically desirable. The current migration outcome is somewhere in the middle and according to most observers can be importantly improved upon to the benefit of most, if not all. This requires a more active and managed approach but also the appropriate knowledge base on what is working, and not working, including a better process to monitor and evaluate ongoing and new policies, programs and practices. In the area of managed migration the revealed knowledge gaps include good practices and rigorous evaluations for the process of (i) departure (such as skills preparation, departure training, and orderly departure); (ii) reception (such as access rules, mutual obligation, and labor market integration); (iii) return (such as return incentives by host and home countries, business support and employment opportunities in home country, and portability of social benefits); and (iv) circular migration (a highly topical but more controversial policy area) .

Several major international players including the World Bank, the International Organization for Migration, the International Labor Organization, the Organization for Economic Cooperation and Development, the United Nations Development Program, the Commission of the European Union, the European University Institute, and many other research institutes and bi-lateral development agencies are already engaged in the field of migration management. The CMI’s Labor Mobility team wants to avoid duplication and work closely with the other partners involved by jointly identifying the knowledge gaps and by filling those gaps through cooperation and partnerships. In a role of facilitator, the CMI will focus mainly on technical issues relevant to improve policy tools.

This note includes inputs from the discussion that took place during the Guidance workshop on Migration Management in Marseille on March 8-9, 2010. The first part provides a brief overview and background of the current labor migration situation in relation to developmental and demographic challenges around the Mediterranean region. The second part is a first attempt to build a common conceptual framework on smart migration management, displaying the rationale, objectives, methods and expected outcomes of concrete policy interventions across the migration cycle. The last part reports on the initiated mapping exercise. The summary of workshop discussion and information provided by workshop participants in the proposed stock taking matrix template are presented in separate annexes.

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I. Contextual Framework In view of the developmental and demographic challenges of the Mediterranean region it is important to help establish much better integrated labor markets and improve labor migration management. The current status quo is unsatisfactory: countries around the Mediterranean have so far been unable to adequately address their respective labor market needs while providing the enabling environment for personal achievement to migrant workers and their families. This section provides a brief overview of critical contextual elements before elaborating on a smart labor migration management system for the Mediterranean region.

I.1. Migration management and development objectives GDP per capita figures reveal strong economic imbalances between European countries and their Southern neighbours but also between Arab Mediterranean Countries (AMCs) and oil-rich economies in the Gulf. Imbalances between AMCs and their richer neighbours are also striking when it comes to the quality of the overall socio-institutional environment, including regulatory frameworks, governance, efficiency of public services, financial infrastructure, and access to information. Migration pressures in the region are in great part generated by this asymmetry in economic and socio-institutional conditions.

If migration flows are the result of a development problem, they can also be viewed as part of the solution. Labor mobility is not a panacea for development but if well managed, it can significantly contribute to closing the development gap and improve the long term socio-economic prospects of AMCs, as well as improving productivity and growth in richer economies in Europe and in the Gulf.

Growth theory indicates that economic convergence between countries is driven by capital accumulation in a first stage and by knowledge production and diffusion in the long run. New ideas are ultimately embodied in people and their productive use requires conductive institutional environments.

Migrant workers can contribute to both capital accumulation and knowledge production and diffusion if they find the enabling conditions to develop their skills and investment projects across the migration cycle. Governments around the region should therefore create the conditions for human capital formation, brain circulation and productive investments by migrant workers if they wish to leverage the potential of labor mobility to achieve higher growth and long term convergence in the Mediterranean region.

I.2. Demographic imbalances and labor market needs Recent reports by the World Bank and other institutions have clearly shown that the demographic outlook in the Mediterranean area calls for a better integrated labor market at the regional level.

Fertility in Arab Mediterranean Countries remains high, life expectancy is rising and populations are expected to keep growing. For these countries, the main challenge of the coming decades will be to absorb the wealth of young people entering the labor market, by creating more and better jobs. Their current inability to absorb this young workforce is partly responsible for the migration pressures towards Europe, North America and the Gulf. These pressures are likely to remain since it will take long time to reduce the economic imbalances between AMCs and its richer neighbors. Given these population dynamics in the overall Mediterranean region, policy makers must approach migration flows as a permanent process but also as an opportunity to address (at least partially) the demographic challenges and labor market needs of the coming decades. As stated above, migrants can be part of the solution only if they find an enabling environment to improve their human capital and answer the skill 4

needs of their potential employers. This calls for inter-state coordination to build a global and sustainable system of labor migration management around the Mediterranean.

I.3. Competing on smart migration management schemes around the Mediterranean In a context of intensified competition for workers at the international level, major receiving countries in North America, Europe and the Gulf have a clear interest in creating an attractive environment for the migrants needed across the skill spectrum to achieve their objectives of growth and competitiveness.

This means providing the enabling conditions for the most productive use of the migrant workforce, mainly through better skills development, recognition and matching mechanisms on local and regional labor markets. In many receiving countries, unemployment rates are higher for migrants than for native workers, and migrants are more often exposed to precarious jobs and/or overqualified for the positions they occupy in the economy. On the social front, the lack of integration and socio-spatial exclusion of entire migrant communities can lead to important and visible tensions. Overall, this calls for sound employment and education policies within the framework of a migration management system that takes into account the interests of all the stakeholders involved in order to be sustainable. Increasing opportunities for regular labor migration from AMCs to Europe and the Gulf through a coherent and mutually beneficial labor migration system remains a common policy challenge for governments around the Mediterranean.

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II. Conceptual Framework

In order to face the economic and demographic challenges of the region in this new century, there is now a consensus that countries around the Mediterranean must develop a common understanding of what constitutes a smart labor migration management system. This system must be a global and permanent one by nature, characterized by a series of tools and mechanisms of cooperation conducting to a sustainable system of international labor mobility for the benefit of all. To become operational, the labor migration management system must rely on a series of concrete policy interventions across the migration cycle. As a clear way of grouping these policy interventions, we propose to divide the migration cycle in four phases: sending, receiving, returning and possibly circulating. We believe that departure, arrival and return are critical moments in the migration cycle when policy interventions can bring significant outcomes for migrants and their host societies or societies of origin. These three moments of the migration cycle are characterized by higher risks and uncertainty for migrants, and provide windows of opportunity for better informing, facilitating or shaping the migration process.

Circulation can be viewed alternatively as a spontaneous migration pattern or as a special type of policy scheme. In both cases, it requires a specific effort of conceptualization and is thus considered as “the fourth phase of the migration cycle”. In each of these phases we propose policy interventions guided by clear objectives, following suitable methods and leading to measurable outcomes. This conceptual exercise leads to a results matrix to be tested by rigorous monitoring and evaluation methods in the future.

II.1 Objectives of Intervention The proposed common conceptual framework should first contain key principles for action and derived concrete policy objectives.

Three main inputs are to be considered in determining the objectives of policy intervention: 

Economic considerations: economic rationale for intervention as indicated by economic theory such as information asymmetry resulting in market and government failures, and redistributive concerns;

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Political considerations: natural interests of key stakeholders, namely migrant workers and their families, sending countries and receiving countries;

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Governance considerations: a set of core principles as agreed within the framework of major international fora or institutions like the Global Commission on International Migration or the European Union.

The policy objectives derived from these three inputs should be widely discussed by the major players in the field of migration management.

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The economic rationale for intervention From the point of view of economic efficiency (and ultimately welfare maximization), why should governments intervene in managing labor migration flows? In welfare economics, government intervention is justified by market failures, namely conditions under which markets do not work efficiently. The following market failures provide the economic rationale for government intervention in the migration process: 

Good migration management as a global public good: a regional or global labor migration management system can be seen as a global public good if it is both non rival and non excludable. In this case, it will not be supplied adequately by the market. It is non-rival if fully open to all countries and migrant workers in the region, meaning that the use of the system by one state or individual does not deter its use by other governments or individuals. It is non excludable if it is not possible to exclude one country or one category of individuals from the benefits of this public good. Fulfilling these two conditions implies mechanisms of coordination at the regional level between European and Mediterranean countries. Alternatively, a sound common analytical framework for good migration management interventions can be seen as a global public good, fulfilling the two above mentioned criteria. In both situations, there is a case for a concerted intervention of governments in the region to provide this global public good.

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Externalities of the migration process: Two major types of externalities justify government intervention. The first externality deals with the level of education of national or local communities affected by migration flows. Depending on the level of education of migrants and the nature of migration flows, a national or local community can either suffer from a loss in its general level of education (brain drain) or reversely from a rise in its general level of education (brain gain). Given the paramount importance of human capital for productivity and economic growth, this is a key focus of government intervention. Second, the migration process engenders important effects on society. In receiving countries, the lack of social and economic integration of migrants can generate a set of negative externalities, including social tensions, crime, urban dereliction, etc. In sending countries, the migration process can have important adverse consequences in terms of inequality, disruption of family and community life, social relations, etc. But societal externalities can also be positive, host societies benefiting from the innovative forces of increased social and cultural diversity and sending communities being confronted with new behaviors and cultures through the interaction with respective Diasporas and return migrants. Government intervention can strengthen the positive and correct some of the negative externalities generated by the migration process.

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Asymmetric information and skills matching on global labor markets: the matching between migrant workforce on the supply side and jobs offered by local firms on the demand side is often hindered by asymmetric information about skills. On the one hand, given the lack of formal signaling mechanisms (harmonized degrees and qualification systems) at the regional or global level, local firms cannot easily assess and monitor the skills of foreign workers. On the other hand and for the same reason, potential migrants clearly lack adequate information on the exact nature and level of soft and technical skills required by foreign firms. Skills matching therefore require the concerted intervention of governments at the regional or global level to facilitate the diffusion of adequate information both to potential migrants and employers, including the promotion of formal skill recognition mechanisms and improved education systems.

Alternatively, apprenticeship schemes and on-the-job training can facilitate skills matching without overloading the government with complex sectoral skill assessment tasks.

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Governance failures: if governments in the region are unable to correct the above mentioned market failures, the migration process can lead to unsatisfactory outcomes in terms of economic and human development because of failing migration management. Government failures can result from insufficient data collection and information about migration flows and impacts, lack of inter-ministerial coordination within countries, lack of inter-governmental coordination between countries in the region, insufficient administrative resources or simply lack of interest in managing migration flows. We need to understand how governments function in order to assess whether their intervention is likely to correct the market failures. Implementation constraints must therefore be taken into account when setting the policy objectives.

The interests of key stakeholders In a recent paper for the Swedish Presidency conference on Labor Migration, Gregory Maniatis from MPI argues that the essence of a smart migration management system is that it must not violate the natural interests and behaviors of individuals, business and states. Building on this approach, we propose to state clearly the natural interests of the key stakeholders in the migration process, namely migrants and their families, sending countries, and receiving countries. In a human development perspective centered on the individual, a good labor migration management system should create the enabling conditions and opportunities for individuals to fulfill their life choices and achieve their highest potential in terms of human capabilities. From the point of view of national communities and firms, the economic and development outcomes of increased labor mobility should be maximized at the lowest administrative, social and political costs. The interests of key stakeholders between and within countries are not necessarily convergent and must therefore be balanced to achieve win-win-win situations in a mutually benefiting migration management system. To achieve this balance and ease comparisons, we propose to structure the interests of each stakeholder under the same areas of intervention: employment, human capital, social protection, social cohesion, and for national communities as a whole, economic development and fiscal effectiveness.

Migrants and their families According to the concept of human development as developed by Mahbub ul Haq and Amartya Sen, the basic purpose of development is to create the enabling conditions to enlarge people’s choices. In this approach, freedom of movement is a fundamental condition for individuals to fulfill their personal choices and must be enabled as such. We also distinguish four other types of natural interests for migrants and their families from the point of view of human development: 

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Employment: work is a fundamental condition for achieving material security and personal development. Migrant workers and their families often face greater difficulties in their access to employment opportunities. Their primary interest is to receive support to overcome these difficulties and facilitate their labor market insertion.

Human Capital: facilitating human capital development throughout the migration process is also paramount for personal achievement. Migrants and their families wish to improve their human capital along the migration process, acquiring a combination of behavioral changes, soft skills and technical competencies for improved long term employability and enlarged freedom of choice. In short, migrants and their families would benefit from supportive interventions for human capital formation and access to socio-economic opportunities.

Social Protection: another key interest of migrants and their families is to secure protection against life-cycle risks and more specific vulnerabilities that they will face across the migration cycle. Migrant workers and their families use migration to increase their saving and 8

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consumption possibilities, health conditions and access to education. Migration is thus a primary tool for social risk management for households. Migrants and their families also have an interest in equal access to coverage by national security systems, fair treatment at the workplace and portability of pension and health benefits.

Social Cohesion: migrants and their families finally have an interest in enjoying peaceful and fruitful interactions with the rest of the society.

Sending countries Sending countries have an interest in pursuing the following objectives at the lowest administrative and political costs:      

Employment: ease unemployment pressures on local labor markets, especially for young unemployed people; avoid undermining the long term dynamism of the domestic labor market; Human Capital: skills development of migrant and domestic workforce for increased productivity, innovation and growth in the medium to long run; limit the brain waste and brain drain while maximizing the brain gain; Social Protection: ensure the well-being, social protection and basic rights of migrant workers and their families; ensure portability of social rights for return migrants; Social Cohesion: social cohesion and successful integration of return migrants or circular migrants; limit the negative outcomes of outward migration in terms of social cohesion for sending communities; Economic Development: maximize the development impacts of migrants’ investments in their communities of origin, including remittances, business creation, community projects and creation of transnational business networks; Fiscal Effectiveness: minimize the fiscal loss generated by outward migration and fiscal pressure of return migration.

Receiving countries Receiving countries have an interest in pursuing the following objectives at the lowest possible administrative and political costs:  

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Employment: fill in labor needs of local firms given the domestic demographic constraints; avoid crowding out native workers; Human Capital: improve skills matching and development to enhance productivity, increase flexibility in the production system and ultimately achieve better growth prospects in the medium to long run; avoid overstrain of the domestic vocational training and education system by migrant workers; Social Protection: ensure the well-being, social protection and basic rights of all workers working on the national territory; avoid benefit arbitrage and exploitation by newcomers; make benefit system neutral for return decision Social Cohesion: social cohesion and successful integration of newcomers: enabling economic, social and cultural integration of migrants and their families; avoid systematic preferential treatment of migrants over native workers; Economic Development: enrich host societies in terms cultural and economic innovativeness through increased social diversity; Fiscal Effectiveness: minimize the fiscal burden of migration in terms of stress on public services and welfare benefits.

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Core principles of intervention Building on the Global Commission on International Migration’s 2005 report, on the European Commission’s 2008 Communication on a Common Immigration Policy for Europe, and on other key global reports by international agencies, we put forward the following overarching principles to guide migration policy interventions:        

Individual Freedom: enabling mobility as a fundamental element of individual freedom, removing barriers to personal achievement through migration for each individual.

Welfare Maximization: maximizing economic and development impacts of increased labor mobility for sending and receiving countries but also for migrants and their families in terms of human capital formation and saving and consumption opportunities for households.

Equity: ensuring fair treatment of individuals regardless of their origin and providing them with the same access to social and economic opportunities.

Protection against Vulnerability: protecting migrants and their families against the specific vulnerabilities they face across the migration cycle and securing their access to basic rights.

Social Peace: facilitating the peaceful coexistence of individuals through the promotion of social cohesion in increasingly diverse societies as a result of migration flows.

Transparency: designing a clear incentive structure and improving information on migration policy schemes and clear rules of mutual obligations in order to make the migration system more readable and understandable for migrants.

Policy Coherence: ensuring policy coherence within and between countries, making sure that economic development goals are compatible with other considerations in the design of migration policies.

Operational Feasibility: taking into account the enforcement and implementation capacities of states to make sure that government intervention is effective.

Policy objectives Using the inputs of the three previous sections, we derive the following policy objectives:      

Employment: facilitate labor market insertion, long term employability of migrant workers, and employment opportunities for return migrants.

Skill Matching & Development: facilitate skills matching on domestic and global labor markets while fostering human capital formation at all skill levels for both migrant and non-migrant workers.

Social Protection: implement adequate social protection measures to reduce the vulnerability of migrants and their families at all stages of the migration cycle while avoiding benefit arbitrage and establishing neutrality for mobility decisions Social Cohesion: promote peaceful and fruitful interactions among individuals in increasingly diverse societies based on clear rules of mutual rights and obligations.

Economic Growth & Development: maximize the economic development impacts of increased labor mobility in terms of capital investments, knowledge creation and innovation.

Information: maximize the use and understanding of migration schemes and rules by migrant workers through clear policy design and information diffusion.

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Coordinated policy intervention: build coordination mechanisms both at the intra-national and inter-national levels to achieve policy coherence in building a good migration management system as a global public good.

Bureaucratic Effectiveness: improve implementation capacities of governments and costeffectiveness of interventions.

II.2. Methods of Intervention Suitable methods of intervention can be found for each of the objectives stated above but given the scope of the Human Development Program at the CMI (SELM: Skills, Employment and Labor Mobility), we focus on policy interventions targeted at the first three objectives: employment, skills development & matching, and social protection. In welfare economics, we distinguish three main methods of government intervention: regulation, direct provision of goods and service, and taxation/subsidy. In what follows we deal with the first two methods: labor regulation and public provision of information, training and education, and social protection for migrant workers. Taxation and subsidy can also be used in certain circumstances (mainly for admission procedures) but we believe the importance of the two other tools is greater in migration management.

Types of intervention in the migration process The three following types of intervention are targeted at the first three objectives stated in the previous section, namely employment, skills development & matching, and social protection: 

Migrant Training: migrant training schemes are tailored to the specificities and needs of migrant workers as opposed to non-migrant workers. They include language training, inter-cultural training, training on administrative and hiring procedures, expectation management, support of migrant entrepreneurs, etc. These measures aim to improve long term employability and broader social integration of migrant workers and their families.

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Skill Matching & Development: skills matching and development measures aim to maximize the allocation of labor in the global economy by reducing asymmetries of information between migrant workers and employers on the labor market and facilitating the acquisition of skills in demand in the economy for migrant workers. In short, these measures answer labor market needs through targeted human capital formation and information diffusion.

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Labor Regulation and Social Protection: labor regulation and social protection measures aim to ensure adequate protection for migrants and their families against the social risks and specific vulnerabilities they face across the migration cycle.

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Tools of intervention across the migration cycle What follows is a (living) list of policy tools under each type of intervention and across the four phases of the migration cycle: 1. Sending 

Migrant Training Schemes - pre-departure training and information including: - Language and literacy training - Administrative training - Inter-cultural training - Training on hiring practices - Expectation management

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Skill Matching & Development:: - Sectoral skill assessments to improve the matching between potential migrants and employers’ needs - Information campaigns, online information and virtual tools for skills matching for the use of employers and potential migrants - Skills recognition and harmonization through regional qualification frameworks - Quality assurance networks for higher education degrees at the regional or global level - Participation of receiving countries’ governments and employers in upgrading the education system in sending countries, both for technical training and universities

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Labor Regulation and Social Protection: - Regulation of overseas recruitment, notably private recruitment agencies - Developing and enforcing minimum standards in employment contracts and measures of protection against abuses, in particular through bilateral agreements - Administrative, civil and legal services and counseling abroad through embassies and consulates - Portability of social benefits (pensions and health): bilateral and multilateral agreements/ fair treatment of temporary migrant workers - Welfare funds

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Other tools for intervention in this phase include marketing/promotion of domestic labor force abroad; and building ties with diaspora networks to facilitate social integration of newcomers.

2. Receiving 

Migrant Training Schemes: - Language and literacy training - Administrative support - Training on hiring practices - Mentoring schemes - Facilitated access to social networks for employment - Targeted support to migrant entrepreneurs 12

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Supporting socially and geographically excluded immigrants’ children in achieving better education and labor market outcomes through language training, soft skills and job placement

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Skill Matching & Development: - Monitoring of flows and information systems for skills matching - Admissions through labor market tests - Admissions through points systems - Skills recognition mechanisms: qualification frameworks and university quality assurance networks at the regional or global level - Skills acquisition and upgrading through vocational training - On-the-job training and apprenticeship schemes - “Education to residency schemes”: recruitment of international students who complete their studies in the host country - Active placement in partnership with local firms for facilitated labor market integration

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Labor Regulation and Social Protection: - Fair access to education and job opportunities through antidiscrimination legislation - Reducing costs of formal recruitment and ensuring quick delivery of work permits to remove barriers to formal employment of migrant workers and provide the right incentives for regular migration - Protection of migrant workers in the employment context including terms and conditions of employment, enforcement of workplace procedures to guarantee minimum employment standards and migrant protection against abuses - Access to national social protection systems for migrant workers and their families - Family reunification procedures

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Other tools for intervention in this phase include facilitating remittances’ transfer; facilitating access to urban infrastructure, affordable housing, transport connection and social services for migrants and their families; public campaigns and social marketing to reduce discrimination against migrants, enhance acceptance of ethnic and cultural diversity and raise the awareness of potential employers and local residents to the benefits of a better economic integration of migrants; fostering participation of migrant workers and families in the social and political life of the country; supporting diaspora networks to facilitate integration and co-development projects.

3. Returning 

Migrant Training schemes - Voluntary Return Assistance Programs including: - Information and assistance with respect to administrative and logistic procedures for return - Assistance to professional reinsertion in the country of origin - Profiling return migrants in order to tailor return assistance to their specific needs - Entrepreneurship support for return migrants

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Skill Matching & Development: - Skills recognition mechanisms for return migrants: taking into account the professional experience of migrants abroad - Incentives to attract needed skilled workers back in their countries of origin

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Labor Regulation and Social Protection: - Portability of social benefits (pensions and health): benefit design and bilateral and multilateral agreements

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Other tools for intervention in this phase include facilitating remittances’ transfer and supporting diasporas’ investments (individual or collective) in their communities of origin.

4. Circulating 

Migrant Training schemes: - Language and literacy training - Administrative training - Inter-cultural training - Training on hiring practices - Expectation management - Entrepreneurship support

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Skill Matching & Development:: - Paid traineeship schemes and on-the-job training - Job placement - Exchange programs and academic fellowships for professors and students

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Labor Regulation and Social Protection: - Seasonal or temporary migration schemes for temporary labor needs - Adapted and flexible work permit systems for circular migration including work contracts and residence permits - Portability of social benefits (pensions and health): benefit design, and bilateral and multilateral agreements/ fair treatment of temporary migrant workers - Protection against specific risks and abuses faced by temporary workers in the recruitment process and at the worksite - Home country based welfare schemes for temporary workers

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Other tools for intervention in this phase include facilitating remittances’ transfer and supporting transnational networks of experts and entrepreneurs.

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II.3. Outcomes of Intervention Results framework and M&E agenda The last element of the proposed conceptual framework is a results framework displaying the expected outcomes of the above mentioned interventions according to the policy objectives and related methods of intervention. In order to become operational, such a results framework should contain clear indicators necessary to perform rigorous methods of monitoring and evaluation (M&Es). The application of rigorous M&Es to policy interventions would allow improving our understanding of which interventions work and do not work in order to build a sound migration management system in the medium to long run. The following draft results matrix is the first stage of this M&E agenda. It should serve as a discussion base to clarify objectives, types of intervention, outputs, and expected outcomes (including potential indicators). It is in draft form and hence expected to be a living document that is upgraded with increasing experience of M&E in this area. A second stage of the M&E agenda will include comparisons across interventions, e.g. when, where and how much skills and language training should be best undertaken – before departure or at arrival. A final stage would be the evaluation of policies (i.e. a set of interventions).

The results chain The first step in developing an M&E framework is to use a results chain to display clearly the logical path that a program or policy will follow to achieve desired results. The results chain in a typical program is as follows: Objective

Input

Intervention

Output

Outcome

Objective: policy objective defined ex ante by the implementation agency Input: financial, human, and other resources mobilized to support the intervention Intervention: actions taken or work performed to convert inputs into specific outputs Output: project deliverables within the control of the implementing agency (supply side) Outcome: use of outputs by beneficiaries and stakeholders outside the control of the implementing agency (demand side) In the draft results matrix below, we include only proposed objectives, methods and outcomes of migration management interventions. The inputs and outputs of intervention are more straightforward and can be discussed at a later stage to complete the results chain for specific interventions.

For the sending phase we detail objectives, interventions and outcomes and already include some examples of potential outcome indicators for further discussion.

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Draft Results Matrix PHASE OF THE MIGRATION CYCLE SENDING

OBJECTIVES OF INTERVENTION

METHODS OF INTERVENTION

OUTCOMES OF INTERVENTION (Examples of potential indicators)

Employment:

Migrant Training Schemes - pre-departure training and information including:

Employability:

Skill Matching & Development:

Skill Matching & Development:

Skill Matching & Development:

Facilitate skills matching on host countries’ labor markets

Sectoral skill assessments to improve the matching between potential migrants and employers’ needs Information campaigns, online information and virtual tools for skills matching for the use of employers and potential migrants/ Skills recognition and harmonization through regional qualification frameworks/ Quality assurance networks for higher education degrees at the regional or global level/ Participation of receiving countries’ governments and employers in upgrading the education system in sending countries, both for technical training and universities

Improved matching between migrants’ skills and firm’s skill needs in host countries’ labor markets

Social Protection:

Labor Regulation and Social Protection:

Vulnerability:

Minimum protection against social risks

Regulation of overseas recruitment, notably private recruitment agencies/ Developing and enforcing minimum standards in employment contracts and measures of protection against abuses, in particular through bilateral agreements/ Administrative, civil and legal services and counseling abroad through embassies and consulates/ Portability of social benefits (pensions and health): bilateral and multilateral agreements/ fair treatment of temporary migrant workers/Welfare funds

Decreased vulnerability of migrant workers and their families against the specific risks they face upon departure and across the lifecycle

Facilitate labor market insertion of migrant workers upon arrival in host countries

Improve human capital formation of migrant workers at all skill levels

Protection against abuses of migrant workers and their families abroad

Improved labor market insertion of migrants Language and literacy training/ Administrative training/ in host countriesTime for finding first job; labor market participation rate/ Inter-cultural training/ Training on hiring practices/ unemployment rate compared to nationals; Expectation management wage rates compared to nationals)

(Skill mis-match indicator) Improved human capital of migrant workers (Skill level progress indicator; narrowing wage gaps compared to nationals)

(Exposure to shocks – risk vulnerability assessments)

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RECEIVING

Employment:

Migrant Training Schemes:

Facilitate labor market insertion and long term employability of migrant workers and their children

Language and literacy training/ Administrative support / Improved employment rates for migrants Training on hiring practices / Mentoring schemes/ and their children from the short to long run Facilitated access to social networks for employment/ Targeted support to migrant entrepreneurs/ Supporting socially and geographically excluded immigrants’ children in achieving better education and labor market outcomes through language training, soft skills and job placement

Skill Matching & Development:

Skill Matching & Development:

Skill Matching & Development:

Facilitate skills matching on host countries’ labor markets while fostering human capital formation at all skill levels for migrant workers and their families

Monitoring of flows and information systems for skills matching/ Admissions through labor market tests/ Admissions through points system/ Skills recognition mechanisms: qualification frameworks and university quality assurance networks at the regional or global level/ Skills acquisition and upgrading through vocational training/ On-the-job training and apprenticeship schemes/ “Education to residency schemes”: recruitment of international students who complete their studies in the host country/ Active placement in partnership with local firms for facilitated labor market integration

Improved matching between migrants’ skills and firm’s skill needs in host countries’ labor markets and improved human capital for migrant workers and their families

Social Protection:

Labor Regulation and Social Protection:

Vulnerability:

Ensure fair treatment, respect of basic Fair access to education and job opportunities through rights and social protection of migrant antidiscrimination legislation/ Reducing costs of formal recruitment and ensuring quick delivery of work workers and their families permits to remove barriers to formal employment of Avoid benefit arbitrage migrant workers and provide the right incentives for regular migration / Protection of migrant workers in the Ensure neutrality with regard to employment context including terms and conditions of mobility decisions employment, enforcement of workplace procedures to guarantee minimum employment standards and migrant protection against abuses/ Access to national social protection systems for migrant workers and their families/ Family reunification procedures

Employability:

Decreased vulnerability of migrant workers and their families against social risks; Increased equity in access to education and employment opportunities

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RETURNING

Employment:

Migrant Training schemes - Voluntary Return Assistance Programs including:

Employability:

Skill Matching & Development:

Skill Matching & Development:

Skill Matching & Development:

Leverage the human capital of return migrants in countries of origin

Skills recognition mechanisms for return migrants: taking into account the professional experience of migrants abroad/ Incentives to attract needed skilled workers back in their countries of origin

Improved matching between return migrants’ skills acquired through the migration process and firm’s skill needs in their countries of origin

Social Protection:

Labor Regulation and Social Protection:

Vulnerability:

Improve access to health and pension benefits for return migrants and their families

Portability of social benefits (pensions and health): Increased coverage and effective access to bilateral and multilateral agreements/ fair treatment of health and pension benefits for return temporary migrant workers migrants

Facilitate labor market insertion of migrants upon return in their country of origin

Improved labor market insertion of migrants upon return in their country of origin Information and assistance with respect to administrative and logistic procedures for return/ Assistance to professional reinsertion in the country of origin/ Profiling return migrants in order to tailor return assistance to their specific needs/ Entrepreneurship support for return migrants

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CIRCULATING Employment:

Migrant Training schemes:

Employability:

Facilitate long term employability of circular migrant workers both in countries of origin and countries of destination

Language and literacy training/ Administrative training/ Improved labor market insertion of circular Inter-cultural training/ Training on hiring practices/ migrant workers both in countries of origin Expectation management/ Entrepreneurship support and countries of destination

Skill Matching & Development:

Skill Matching & Development:

Skill Matching & Development:

Facilitate skills matching on host countries’ and sending countries’ labor markets while fostering human capital formation of migrant workers at all skill levels

Paid traineeship schemes and on-the-job training/ Job placement/ Exchange programs and academic fellowships for professors and students

Improved matching between migrants’ skills and firm’s skill needs in host and sending countries’ labor markets and improved human capital for migrant workers

Social Protection:

Labor Regulation and Social Protection:

Vulnerability:

Propose adequate regulatory frameworks and social protection measures for circular migrants and their families

Seasonal or temporary migration schemes for temporary labor needs/ Adapted and flexible work permit systems for circular migration including work contracts and residence permits/ Portability of social benefits (pensions and health): bilateral and multilateral agreements/ fair treatment of temporary migrant workers/ Protection against specific risks and abuses faced by temporary workers in the recruitment process and at the worksite

Decreased vulnerability of circular migrant workers and their families against the specific risks they face across the migration cycle

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III. Mapping Framework Over recent years research on labor migration has substantially increased across the world and for the Mediterranean region leading to many institutions producing highly relevant results on the topic on the Northern and Southern rim. Within this research on migration, the focus on managing migration has also expanded with a much better understanding of the issues at stake, but much less on sound empirical evidence of the working of actual policies and programs. The Guidance Workshop on Managing Migration that took place in Marseille on March 8-9 had 3 key objectives and expected outcomes that determined also its staging: 1.

2.

3.

Stock-taking: Who is doing what in the area of managing migration in the region?

Outcome: A mapping of activities under a proposed framework.

Gap analysis: What are the perceived knowledge gaps and what are the perceived priority gaps that should be addressed first?

Outcome: An agreed list of proposed priority research areas.

Way forward: How are we going to close the research gap?

Outcome: A tentative list of who will address what key research priorities and a process on how to close the remainder.

These three objectives were first tested in a series of preparatory meetings with key players in the field of Migration Management that took place via audio conferences, video conferences and personal meetings from early November 2009 to early February 2010. The workshop then brought together partners from international organizations and policy-near migration research institutions in North and South. The agenda of the two day workshop was developed around migration management issues at the phases of sending, receiving, returning and circulation. Building on the inputs from the workshop discussion, the preparatory meetings, and the information provided by participants in the proposed stock taking matrix, the following sections provide a mapping of existing activities, identified knowledge gaps and proposed way forward to address the key priorities.

III.1 Stock taking Each institution/researcher participating in the Guidance Workshop on Managing Migration was asked to fill in a stock taking matrix template aimed at identifying more precisely who does what in this vast policy field and thus better prepare the mapping and stock taking exercise proposed for the workshop.

The completed matrix is displayed in a separate annex. As a living document it can be revised and completed upon participant’s request. Building on the information provided in the matrix, this section provides an overview of existing activities by the main players involved.

Consortium for Applied Research on International Migration (CARIM) - European University Institute CARIM was created at the European University Institute in 2004 and is co-financed by the European Commission, DG AidCo, under the thematic programme for cooperation with third countries in the areas of migration and asylum. CARIM aims to observe, analyze, and forecast migration in 17 countries of the Southern & Eastern Mediterranean (SEM) and Sub-Saharan Africa (SSA): Algeria, Chad, Egypt, Israel, Jordan, Lebanon, Libya, Mali, Mauritania, Morocco, Niger, Palestine, Senegal, Sudan, Syria, Tunisia, and Turkey. All are studied as origin, transit and destination countries. A key value added of CARIM is to have built a network of researchers and practitioners around the Mediterranean and in Sub-Saharan countries, constituting a workforce of around 70 migration experts working in the 17 countries in SEM 20

and SSA. CARIM studies migration in a systematic approach based on three dimensions: (1) migration from (emigration), migration to (immigration), and migration through (transit migration); (2) a number of topics systematically studied in all 17 countries covered, including: irregular migration, transit migration, circular migration, gender and migration, high skilled migration, border management, etc. ; (3) all topics covered are studied in a multidisciplinary fashion along the lines of three modules: economic and demographic (statistics), legal, socio-political. This systematic approach aims at covering the multiple facets of migration in the region, in a comparative and multidisciplinary manner. The method adopted to influence policy-making in the region is based on the following three steps: (1) Expert meetings, (2) Dissemination and discussion with policy makers in the region, (3) Publications (ca.

250 titles including a Mediterranean Report, research reports and analytical and synthetic notes, and Migration Profiles). CARIM also organizes the Florence School on Mediterranean Migration and Development. Besides CARIM, the European University Institute is hosting the METOIKOS project, cofunded by the European Commission DG-JLS, which studies the links between circular migration and processes of integration (in the country of destination) and reintegration (in the source country) of circular migrants and their families in three regions of Europe (south-eastern Europe/Balkans; southwestern Europe/Maghreb; central-eastern Europe). The EUI has also conducted the MIREM “Return Migration to the Maghreb” project, with the main objective of providing a more in-depth consideration of the challenges linked to return migration as well as its impact on development. Analyses and userfriendly tools have been provided to understand further the impact of return migration on the Maghreb countries. Finally , the project on “Labor Markets Performance and Migration Flows in Arab Mediterranean Countries: Determinants and Effects “, financed by the European Commission DG-ECFIN and completed in 2009, provides an analysis of the key labor market determinants of migration flows from selected Arab Mediterranean Countries (Algeria, Egypt, Jordan, Lebanon, Morocco, Syria, Tunisia and the Occupied Palestinian Territories), with a particular emphasis on demographic pressures, wage differentials and relative income disparities with the EU, employment policies, labor market flexibility and unemployment rates. This analysis includes the impact of migration on Arab Mediterranean Countries (AMCs) labor markets; and proposes a series of specific recommendations to improve the design of EU’s migration policies towards AMCs and policy options available to them for the management of mismatches between labor supply and demand.

Centre de Recherche en Economie Appliquée pour le Développement, Alger (CREAD) CREAD is a research center created in 1975 and sponsored by the Algerian Ministry of Higher Education and Scientific Research. It produces empirical data and analysis in different areas of social sciences, with a special focus on economics and sociology. It aims at analyzing the evolutions of society and tendencies among socio-economic actors, including migrants and their families. In the sending phase, CREAD is involved in sensitizing youth departure from Algeria to Italy, specifically on human smuggling. On return migration, CREAD has contributed to the MIREM project at the EUI (2007), to a project on return migration of sub-Saharan migrants from Algeria (CISP/SARP/CREAD, 2006) and to the Informed Migrant project with the IOM (2006). CREAD is also involved in surveys on Algerian migrant’s households, foreigners in Algeria, and Algerian diaspora involved in social remittances.

DIAL, IRD (Research Institute for Development), Paris DIAL is a research center funded by IRD (Research Institute for Development) and the French Development Agency (AFD), involved in several migration projects. DIAL has produced a research paper on the future of migration from North Africa to OECD Countries, assessing the likely evolution of the various factors (economic, demographic and environmental) which could influence the movement of people out of Algeria, Morocco and Tunisia in the next twenty years, either in the form of intra-regional migration or to OECD countries). DIAL has also participated to the MIREM project headed by Jean-Pierre 21

Cassarino on return migration in Morocco, Tunisia, and Algeria, and delivered research papers on return migrants and entrepreneurship and on return migrants and social mobility. Finally, DIAL’s MIDDAS Project on Senegalese migration include surveys among Senegalese migrants in 4 destination countries (France, Italy, Mauritania and Côte d'Ivoire) and will provide information on channels through which migrants send remittances.

The Egyptian Society for Migration Studies, Cairo The Egyptian Society for Migration Studies (EGYMIG) was founded in January 2008 as a research center aiming to promote and enhance research on different aspects of Egyptian migration. Among its activities, EGYMIG has published a Directory of Egyptian Bodies and Institutions Abroad (2008) which aims at linking the Egyptians abroad with the homeland in order to strengthen development links.

EGYMIG is also involved in awareness raising activities on migration-related issues, notably on Youth and Illegal Migration. It has published a book to raise awareness of the Egyptian youth on the risks and of illegal immigration, and to guide them to the procedures of legal migration, and the work opportunities available for youth in Egypt before envisaging emigration (A Message to Egyptian Youth: How to Immigrate Legally, 2008).

European Commission (EC) Through initiatives such as the Stockholm program, mobility partnerships and migration profiles, the EC tackles migration management from a very broad angle. For the time being European governments tend to focus excessively on curving illegal migration but the Stockholm program signals the recognition and need to move toward a constructive and positive approach of legal labor migration in a concerted dialogue with Southern Mediterranean countries. In this regard, the EC is funding the 5M Euros “EuroMed Migration II” project with the aim to strengthen the Euro-Mediterranean cooperation in the management of migration, so as to build up the Mediterranean partners' capacity to provide an effective, targeted and comprehensive solution for the various forms of migration. That includes: setting up mechanisms to promote opportunities for legal migration, support for measures to promote the linkage between migration and development and the stepping up of activities to stamp out people trafficking and illegal immigration, and to manage mixed flows. Within the framework of the EU-Africa migration partnership, the EU, in close cooperation with the Malian Government, has established the Bamako Centre for labor migration. On the specific topic of circular migration, the EC is funding several projects of temporary and circular labor migration management, notably between the provinces of Benslimane in Morocco and Huelva in Spain and between Portugal and Ukraine, but also the Metoikos project at the European University Institute, which aims at studying the links between different types of circular migration and processes of integration and reintegration, identifying the main challenges and opportunities involved in circular migration for sending countries, receiving countries and migrants (and their families), and developing new conceptual instruments for the analysis of circular migration and integration and of policy recommendations. The EC is also sponsoring a number of studies on key migration topics, including integration of migrants and their children in European labour markets, admission procedures and costs of recruiting migrants for EU employers, impact of the rise in immigrant unemployment on public finances, labor markets performance and migration flows in Arab Mediterranean Countries, migration and the economic crisis, and the determinants and economic impacts of migration into the EU. Furthermore, DG EMPL has established an ongoing network of labor migration and integration experts with IOM. The aim of this network is to explore the impact of migration on Employment in the European Union and outcome of policies on labor market integration of Migrants in the European Union. Finally, EUROSTAT is compiling a data base on migration and remittances in the European Union (2010). In parallel, the European Commission is working on the establishment of a Euro-African Remittances Institute.

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European Training Foundation (ETF) ETF is mainly working on the sending phase, on issues related to skills development and matching. On the knowledge production side, ETF has led a research project on Migration & Skills with field surveys in five different countries, namely Egypt, Tunisia, Albania, Moldova and Ukraine. Its aim was to analyse the links between migration and skills, skill composition of migrants and the role of migration on skills development. An upcoming joint publication with the World Bank (Social Protection Department) will summarize the main findings and conclusions of these country studies. At the operational level, ETF is involved in sectoral skills need analysis for the Egyptian Ministry of Manpower in relation to labor migration between Egypt and Italy. The sectors included in this Italy-funded project are construction and tourism. ETF is also involved in skills recognition for labor market development and emigration management within the mobility partnership recently signed between the EU and Moldova (2008-2011).

ETF is working only on the skills recognition component for a better labor market matching under legal migration schemes with the perspective of circularity and return. The main idea of ETF’s work in Egypt and Moldova is to improve the available information on supply and demand of skills in these countries in order to facilitate the matching both on the domestic labor market and in relation with migration to the EU. Finally, ETF is closely collaborating with the World Bank at the CMI on skills recognition at the regional level in the Mediterranean. The core idea behind skills recognition is more transparent professional qualifications, involving both certified and non-certified skills learned at school and on-thejob.

Fondation Hassan II pour les Marocains Résidents a l’Etranger, Rabat The Foundation Hassan II for Moroccans Living Abroad is a State sponsored institution in charge of improving the life conditions of the Moroccan community abroad and reinforcing the links between Moroccan migrants and Morocco. It comprises an Observatory built on a network of experts, researchers and scholars in charge of informing policy making through relevant empirical research. In partnership with IOM the Observatory of the Moroccan Community Living Abroad collects data and information to analyze the evolution of living conditions of Moroccan citizens living abroad.

Forum Euroméditerranéen des Instituts de Sciences Economiques (FEMISE), Marseille FEMISE is a Euro-Mediterranean network of economic research institutes representing the 37 partners of the Barcelona Process. The association was established in 2005 and is sponsored by the European Commission within the framework of the MEDA regional program since 1997. It is coordinated by the Institut de la Méditerranée (France) and the Economic Research Forum (Egypt). FEMISE conducts policy research and make recommendations with respect to economic relations between European countries and their Southern Mediterranean partners. FEMISE has sponsored various studies on migration patterns and policy implications in the Euro-Mediterranean region, including the impacts of migration on development of Southern Mediterranean countries, the determinants and impacts of remittances on several Southern Mediterranean countries, and migration patterns from MENA to the EU and policy implications. FEMISE will be organizing a seminar on the impacts of migration on development in the second semester of 2010. This seminar will be attended by experts in the field, but most importantly by policy makers from both shores of the Mediterranean. FEMISE is also involved in a research project led

by IOM (ending in June 2010) to produce two comparative policy reviews on “The Impact of Migration on Employment in the European Union” and “The Outcomes of Policies on Labor Market Integration of Migrants in the European Union”. Finally, as a partner of CMI, FEMISE leads a research project on “Skill Development to Promote the Emergence of Knowledge Based Economies”. This project aims to develop a regional qualifications framework that would facilitate transparency, access, progression and quality of qualifications, and will be an important tool to facilitate the mobility of workers and bridge the skills gap between formal and non-formal education and labor market needs.

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French Development Agency (AFD) The AFD is mainly working on leveraging the impacts of remittances (individual and collective) on countries of origin. It is currently launching a website which compares costs of remittance transfers for 16 francophone countries (www.envoidargent.org). On the operational side, the AFD is working with the Moroccan Ministry in charge of the Moroccans Living Abroad (Ministère des Marocains Résidents à l’Etranger – MRE) for technical assistance on Morocco’s strategy to support and leverage the investments, projects and skills of return migrants or migrants living in Europe and investing in productive or community development projects in Morocco.

International Labor Organization (ILO) The ILO has a strong focus on multilateral normative frameworks to guide member states in improved labor migration management and social protection for migrant workers according to a set of principles and guidelines aiming at fostering better employment opportunities in the region. It also delivers technical assistance on migration management to sending countries in North and West Africa, notably through its capacity building project “Improving institutional capacity to govern labor migration in North and West Africa”, with the financial support of the Spanish government (November 2008 – March 2010).

This Programme aims to enhance capacities of constituents and social partners to govern labour migration in a regional perspective, to maximize benefits from international labour migration for development of both countries of origin and destination and to protect migrant workers. The ILO also intervenes on Spanish funding in capacity building for public labor services and pre-departure training for migration flows between Senegal and Spain. Training through the ITC ILO Turing has been delivered on socio-professional reintegration for return migrants in Maghreb countries. On integration issues, the ILO is preparing projects on the facilitation of labor market integration through the development of a migration toolkit (including advise for business creation), on improving the employability of young unemployed and candidates for migration, and studies on migrants’ skills recognition and development in the sectors of agriculture, construction and restaurant services. On the key issue of social protection of migrant workers, the ILO is involved through the MIGSEC project in building knowledge and capacities on strategies /mechanisms for extending social security coverage to African migrant workers and their families. This work is leading to a series of technical reports on this topic. On the research side, the ILO is currently implementing a research project to expand the knowledge base on Decent Work in Mediterranean Countries, covering the issue of “migration for decent work, economic growth and development” with the ILO International Migration Program. Qualitative research on labor migration and return in Mali, Senegal and Mauritania is underway. The ILO has also contributed to the Handbook on Establishing Effective Labor Migration Policies, along with IOM and OSCE. Finally, the International Migration Program is involved in the CARIM network at the European University Institute.

International Migration Institute (IMI), University of Oxford The International Migration Institute (IMI) was established in 2006 as part of the James Martin 21 st Century School at the University of Oxford. IMI works in collaboration with researchers and policymakers from the South and the North to develop new theoretical and methodological tools to improve migration research and develop a long-term and comprehensive understanding of international migration processes in relation to international development. IMI’s research focuses on two core research programs: (1) The “Global Migration in the 21st Century” program, aiming to improve our understanding of the multi-level forces driving current and future migration processes. This research program synthesize insights from four interrelated projects: (a) DEMIG: the determinants of international migration, providing a theoretical and empirical assessment of policy, origin and destination effects on international migration flows; (b) THEMIS: Theorizing the Evolution of European 24

Migration Systems, exploring the conditions under which long term well-established migration systems emerge in some cases; (c) EUMAGINE: Imagining Europe from the Outside, a project that analyzes the impact of perceptions of human rights and democracy on international migration aspirations and decisions in Senegal, Morocco, Turkey, and Ukraine; and (d) GMF: Global Migration Futures, a project aiming to develop long-term scenarios of future global migration trends and showing how these are likely to affect societies in the 21st century. (2) The “African Migration Program” (AMP) aims to improve our understanding of migration within, to and from the continent, in partnership with African scholars to support research and improve research capacity in African institutions studying migration. This program particularly looks at integrating research from different regions of the continent, bridging geographical divisions between sub-Saharan and North Africa and bridging the linguistic and cultural divide between Anglophone, Francophone and Arabic academic traditions. Activities include the promotion of workshops on African Migration and the creation of online tools mapping existing expertise and facilitating collaboration.

International Organization for Migration (IOM) The IOM has an extensive and hands-on operational experience worldwide in diverse migration policy fields, including pre-departure training, job search assistance and voluntary return assistance. The IOM’s Labor Migration activities aim to help governments understand better the implications and development potential of organized labor migration and good labor migration management. Policy and programmatic advice in this field is given both to sending and receiving countries through workshops and meetings with government officials. Another important task performed by IOM is capacity building: design of labor migration training modules tailored to governments’ requests and needs, as well as the promotion of the policy dialogue between receiving and sending countries on labor migration (the so called “Colombo Process” and the “Abu Dhabi Dialogue”). The Handbook on Establishing Effective Labor Migration Policies, published jointly with the ILO and the OSCE in 2006, with a special Mediterranean Edition in 2007, reflects upon this experience. It provides comprehensive guidance to governments for establishing better labor migration policies both in sending and receiving countries. It adopts a proactive stance in successfully managing labor migration flows and covers a large number of policy areas in the field. The IOM is also working jointly with the UNDP, ILO and UNICEF to produce a handbook on how to mainstream migration in poverty reduction strategies and national development plans. The IOM is working closely with the European Commission on migration profiles (among many other initiatives), starting with Moldova but with a view to extending this analysis to 12-15 other countries according to EU objectives. The next step will be to identify pilot countries to apply this knowledge in the field. The IOM is involved in the YEM initiative (Youth Employment and Migration) funded by Spain and jointly implemented by the IOM, the ILO and several UN agencies including the UNDP. The IOM is in charge of the migration part and to date is working with two Mediterranean countries: Albania and Croatia. The purpose of this initiative is to improve the employment prospects of young potential migrants in these two countries, notably by finding for them suitable employment niches in other European countries.

Finally, the IOM is implementing a number of labor migration projects in the Euro-Mediterranean region, including the Integrated Migration Information System (IMIS), a job-matching mechanism between Egypt and Italy (see also the discussion on M&Es below).

Institute for the Study of Labor, Bonn (IZA) IZA is a private, independent research institute, which conducts nationally and internationally oriented labor market research, in close cooperation with the economics department at the University of Bonn, Germany. Beyond fundamental research, IZA offers policy advice on today's labor market issues and provides relevant information to the general public. Specifically on migration, IZA has conducted a number of studies, starting with “Social and Labor Market Integration of Ethnic Minorities” (2006-2008), 25

to provide the European Commission High Level Group on the social and labor market integration of minorities with an expert analysis of mechanisms to overcome the barriers that members of ethnic minorities, including immigrant ethnic minorities, in Europe may face in gaining access to employment.

Another study on the “Economics and Persistence of Migrant Ethnicity” (2004-2006) defines migrant ethnicity, measures ethnic capital, and identifies the parameters for immigrants’ success or failure in the field of economy and society. The study “Geographic Mobility in the European Union: Optimizing its Economic and Social Benefits” (2007-2008) presents a picture of the extent of geographic mobility in the European Union, its evolution over time and of the characteristics of individuals affected by mobility, and investigates how geographic mobility in the European Union can be optimized. IZA is currently working on “EU Enlargement and the Labor Markets” (2006-present), assessing the effects of the 2004 and 2007 EU enlargements on the labor markets of the fifteen original member states as well as the ten new members from Central and Eastern Europe, and evaluating the different immigration policies adopted by the original member states towards immigrants from the new member states. IZA is also working on a study on “Active Inclusion of Immigrants” (2009-2010), with the aim to provide the European Commission with expert assessment of the main trends in the situation of migrants with regards to social assistance and access to social services, in-depth analysis of the main determinants of these trends, and rigorous account of the mutual interaction of migration policies and social assistance policies. A study on “High-Skilled Immigration Policy in Europe” (2009-present) uses an expert opinion survey collected by IZA in 2009 to document that Europe needs skilled migrants, and skill mismatch is to be expected. Finally, through its organizational unit IDSC, IZA is compiling a number of datasets covering migration and immigrant integration (2003-present).

International Training Center (ITC) of the ILO, Turin ITC-ILO assists countries in their social and economic development through learning and training activities. As part of its work to help implement ILO’s Decent Work Agenda, ITC-ILO runs a program on international labor migration which focuses on knowledge-driven training courses and other learning events for ILO constituents (government representatives, employers’ organizations and trade unions), civil society organizations, international development agencies and researchers dealing with labor migration. By involving governments and social partners on an equal basis, ITC-ILO aims to contribute to dialogue and knowledge-sharing among the parties involved, with the objective of sustaining decent work, developing skills and protecting migrant workers. ITC-ILO’s capacity building activities encompass a broad range of policy issues, including data collection and statistics on labor migration, different aspects of governing international labor migration , managing immigrants’ integration and social diversity, fostering the social and professional reintegration of return migrants, and extending social protection to migrant workers and their families. ITC-ILO also delivers tailor-made training courses in the field according to the needs of its constituents.

Migration Policy Institute (MPI) The MPI is the world leading think tank on migration. It produces data and papers on a wide range of migration policy issues both in the US and Europe. Through its Transatlantic Council on Migration, the MPI has created a high level policy forum on migration issues between Europe and the US, building on its extensive network of top tier decision makers and analysts in the field of migration. Moreover, by leading the Global Migration Council at Davos MPI’s president Demetrious Papademetriou also tries to involve the business community in the active promotion of smarter migration management policies.

Organization of Economic Co-operation and Development (OECD) The OECD’s International Migration Division has carried out a comprehensive overview of migration management interventions in its last International Migration Outlook (2009). More specifically, the 26

OECD has developed an advanced comparative knowledge on the integration of immigrants in the labor markets of host countries/cities and the related policy interventions both at the national and local levels. The OECD Local Economic and Employment Development program has a special focus on migrants’ integration and skill development strategies at the local level, working both on labor market integration of immigrants and their children, and on local skills strategies and skills upgrading for lowqualified workers in local labor markets. Following a case study approach, OECD-LEED has collected information on different local practices and arrangements for labor market integration of migrants, skill recognition and upgrading, and skills development programs involving several local stakeholders including migrant communities. It aims to build on these case studies to develop an integrated approach to workforce development, skills upgrading and migration management at the local level.

OECD Development Center The OECD Development Center has a clear focus on the development impacts of migration policies for sending countries and is involved in innovative empirical work on South-South migration and linkages between migration and labor market outcomes and processes in Central America, South America and West Africa. The OECD Development Center is engaged in the effort to better conceptualize migration management in relation with development outcomes, with an undergoing reflection on how migration management can benefit both receiving and sending countries. The early work of the OECD Development Center on migration management was on the link between Migration and Development and the need for policy coherence in those areas. It led to the report “Gaining from Migration” in 2007, which has had a critical impact on research and policy making circles worldwide. This report argues that the objectives of international migration stakeholders are not necessarily at odds and makes a detailed analysis of the European case on labor market integration, circular migration and diaspora networks.

The OECD Development Center has also participated with the OCED International Migration Division to the “Horizontal Project on Managing Labor Migration to Support Economic Growth” (completed in 2008). The OECD Development Centre provided input on return migration and migration management from the perspective of the sending countries, based on three case studies on return migration (Albania, Mexico, and Moldova) and three papers on migration management (Mexico, Indonesia and the Mediterranean region) covering the following three topics: voluntary return, entrepreneurship and portability of social security. The OECD Development Center is currently involved in the “Effective Partnerships for Better Migration Management and Development” project, which explores two topics: impact of circular migration on sending countries’ labor markets and migration management, in two regions: Central America and West Africa. This project will cover key issues in the sending phase. Finally, the OECD Development Center is carrying out a data collection effort on South-South migration in Latin America, mainly focused on Argentina, Venezuela and Costa Rica. This work aims at exploring the linkages between migration and labor market outcomes and processes, including the analysis of the occupations and skills of migrants in local labor markets. The database will be published during 2010, complementing the OECD Database on Immigrants in OECD Countries. ÖIF: Austrian Integration Fund The Austrian Integration Fund provides professional services related to migrants’ integration. It works for linguistic, professional and social integration of people who have been granted asylum and migrants on the basis of their rights and responsibilities in Austria. Among its key activities, the Austrian Integration Fund is sponsoring a mentoring project for migrants. “Mentoring for Migrants” is a joint initiative of the Austrian Integration Fund, the Austrian Federal Economic Chamber, and the AMS job market service. The goal is to bring together experienced individuals from the business world – mentors – and people from a migrant background – mentees – and support them in their integration into the Austrian job market. The project is carried out in Vienna and Upper Austria.

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United Nations Development Program (UNDP) In a Human Development perspective, UNDP sponsors a broad range of interventions in various regions of the world and across the migration cycle. UNDP is involved in the sending and receiving phases to support migrants in reducing the vulnerabilities they face in the migration process. UNDP sponsors information campaigns and pre-departure interventions to prevent trafficking and help migrants to better cope with the major risks related to irregular migration. The gender dimension is key in UNDP’s approach to protecting migrants against specific vulnerabilities related to migration, as exemplified by prevention projects to improve health prospects for women migrant workers from the Philippines or a project of promotion of the rights of migrant women workers in Uzbekistan. On return and circular migration, UNDP has a wide range of projects to leverage the impact of remittances on development, facilitate return and help reinforcing linkages between expatriates and their home countries for a greater contribution of diasporas in the economic development of their home country, notably through brain gain initiatives. In this regard, the TOKTEN (Transfer of Knowledge Through Expatriate Nationals) project aims to facilitate brain circulation for the benefit of African countries, tapping into the pool of African expatriate nationals willing to bring their expertise acquired abroad to their countries of origin through temporary consulting assignments. UNDP is also involved in capacity building activities for better migration management, migrant’s integration and border assistance. On the research side, UNDP has published the 2009 Human Development Report: “Overcoming barriers: Human Mobility and Development”, which argues that a human development approach can be a means to redress some of the underlying issues that erode the potential benefits of mobility and/or forced migration. UNDP has also contributed to the UN-IOM Handbook on Mainstreaming Migration in National Development Strategies to be published in 2010. This publication is intended to be a practical tool for governments of developing countries to mainstream migration into poverty reduction strategies. Several recent National and Regional Human Development Reports also explore the links between migration and development from the point of view of human development.

III.2 Gap analysis This section summarizes and reflects upon the outcomes of the very productive workshop discussions on the perceived knowledge gaps and priority research areas to address under each phase of the migration cycle.

Phase 1- Sending Migration and Skills A priority research area in the sending phase is the identification of skills matching and development mechanisms for win-win situations. Technically, this requires an enhanced information base on skill imbalances both in sending and receiving countries, and mechanisms of skills harmonization and recognition. The issue of skills matching and development is both an issue of relevance and quality of skills, which can vary importantly by countries and sectors. Harmonization mechanisms deal with the quality of skills while skills matching and recognition mechanisms deal with their relevance for employers both in sending and receiving countries. Non-formal skills are also valuable and can be very relevant to fulfil employers’ needs. Harmonization in the quality of skills requires deeper reforms of national education and training systems according to regional or international standards. The priority in harmonization is professional training and higher education since high skilled migrants are ultimately the ones facing the highest difficulties in skill recognition. Finally, we lack empirical studies to better 28

identify skills shortages and understand the impact of migration on levels of human capital in sending countries. Such studies would be essential to articulate the interests of sending countries in the area of migration and skills while making sure that migration does not undermine the dynamism of their domestic labor markets in the long run. In short, we need more data and research to substantiate brain drain and brain gain stories.

Pre-departure training 50 000 migrants are trained annually through IOM’s pre-departure training programs, which main objectives are to facilitate and bring down the costs of migrants’ integration while assisting migrants in developing realistic expectations. If well designed and implemented, pre-departure training programs can foster faster and more productive participation of migrant workers in receiving countries’ labor markets. Conceptually, pre-departure training tackles asymmetric information issues and information empowers migrants and helps them to better manage social risk. Even if basic figures on participants have been collected and qualitative monitoring has been performed, no rigorous impact evaluation methods have been used so far to evaluate the effectiveness of these projects and assess their content.

Rigorous M&Es of pre-departure training programs would allow identifying the effectiveness of their different components in order to improve their overall outcome in the medium to long run. Diaspora organisations could also intervene in pre-departure training and facilitate integration of newcomers since their members have already experienced the difficulties faced by newcomers at the beginning of the migration process. Finally, the question of who finances and who implements pre-departure training is crucial. Facilitated labor market insertion ultimately benefits receiving countries, the migrants themselves, and the sending countries as migrants return. This calls for sponsoring by receiving countries with a private contribution from the migrants and/or their employers themselves. In terms of governance and implementation, ti was suggested to think of one-stop-shops for skills recognition and pre-departure training as a cost effective way of facilitating labor market insertion and skills development of migrants.

Determinants and impacts of migration on sending countries In order to fully reflect the point of view of sending countries in a comprehensive migration management system, we must take into account two essential empirical issues: the determinants of departure and the impacts of migration on sending countries at various levels (households, communities, national level). Emigration has significant impacts on poverty, human capital and inequality in sending countries but little empirical evidence is available. Thinking about the determinants and impacts of migration on sending countries implies exploring the interactions between the migration process and local labor market processes. We need to understand better why people migrate from the region against the background of the characteristics of domestic and regional labor markets. So far we have very scarce knowledge on how labor market characteristics and processes affect migration decisions. Improving our understanding of the determinants and impacts of migration would help sending countries in better articulating their interests in migration management, based on a clear empirical basis. Empirical research on the interaction between domestic labor markets and migration patterns is therefore relevant to better formulate the interests of sending countries in migration management matters, especially in terms of labor market dynamism. Particularly concerning for sending countries are the overlaps between labor market shortages on their own domestic markets and on receiving countries’ labor markets. Brain drain is not the only issue since such overlaps can happen at low skill levels, in the construction sector for example. Emigration also has a broader impact on social cohesion in sending countries, which is often neglected.

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Phase 2- Receiving The drivers of labor market insertion Receiving countries are not equally able to integrate migrants, depending on the structure of local labor, financial and output markets, perceptions of natives, administrative and political systems, etc.

Integration also depends on migrants’ profiles. It is therefore essential to understand better the drivers of labor market insertion for migrant workers. The OECD has produced extensive policy research on immigrant’s integration at the national and local levels, stressing the importance of labor market regulation, access to social protection and skills formation, social capital, and language training as key drivers of labor market integration for migrants and their families. We already know that language training is an essential ingredient for successful integration of newcomers but no language training program has been evaluated so far. In addition to language, skills recognition and adaptation is very important for facilitated labor market insertion but we still lack regional mechanisms of skills recognition for migrant workers in Europe. Moreover, except through local or sectoral case studies, it is extremely complicated to measure the skills mismatch. Finally, we need to ask the question of effectiveness of current integration policies that differ across countries. Most migrants report that interventions for increased integration are desired but we do not know what work and what does not, and under what circumstances.

Nation building and labor market insertion Migration Management and in particular the integration phase relate intrinsically to nation building both for receiving and sending countries. Do socio-cultural integration models have an impact on labor market insertion? Are attitudes towards migrants related to labor market needs for migrants? Or reversely can attitudes impact on labor market integration? Empirical evidence by IZA shows that negative attitudes towards migrants affect negatively the political equilibrium and ultimately labor market insertion of migrants. However, labor market insertion is not necessarily linked to perceptions.

The most powerful far right movements are in The Netherlands and Austria where unemployment rates are among the lowest in Europe. Migration might affect the kinds of jobs available in receiving countries and migration management interventions are not always neutral for native workers. However there is limited evidence that native workers are crowded out by newcomers or impact their wages. Very often national workers have higher reservation wages and do not accept certain jobs taken by the migrants.

We still lack empirical evidence on this priority research area. Given the influence of natives over the political process in their respective countries, it is important to understand the impacts of migration on their welfare and job prospects, also considering their perceptions about these processes. This is especially true in the current context of global crisis, with its strong negative impact on employment for both natives and migrant workers.

Managing integration at the local level At the local level, the OECD Local Economic and Employment Development (LEED) Program and Eurocities have produced extensive comparative case studies on policy interventions by local governments for better integration of immigrants in local labor markets. Studying integration at the local level is a relevant approach to explore those issues given the practical role played by local authorities in the real life for the integration of migrant workers and their families. Indeed, local governments are ultimately left with the arduous task (and limited resources) of dealing with the cultural, social and religious diversity created by the migration process, and with the difficulties faced by immigrants and their families in terms of employment and education. OECD-LEED has already identified three pillars for a good local strategy of integration: (1) networking and mentoring to improve linkages between migrants and potential employers, (2) recognition of skills and qualifications, (3) skills 30

adaptation: making vocational training more flexible for bridging between migrants’ existing skills and labor market needs. But we still lack a sound common conceptual framework and monitoring and evaluation methods to go further than the current inventory of local practices. Along with interested partners, the CMI’s Labor Mobility team could bring M&Es into capacity building activities or pilot interventions proposed to selected local authorities or migrant NGOs. This work could benefit Southern Mediterranean cities, also affected by large flows of internal and external migrants in some cases.

Newcomers and their children: different integration issues We can observe different patterns of integration for migrants and their children. Migrant’s children or grandchildren often underperform in terms of labor market insertion and educational outcomes.

Newcomers often have better labor market integration prospects than their children when they come to fulfil specific labor market needs in receiving countries. Even though their children become citizens of the country, they often face disadvantages in terms of social exclusion and discrimination. However, it could be that the first generation has higher employment rates than the second generation because newcomers are willing to accept lower quality jobs at lower wages. We currently do not know enough on the specific integration issues faced by migrant’s descendents and about successful policy measures to overcome them.

Phase 3- Returning Profiling return migrants The first key issue to address in order to design relevant return policy interventions is the identification of return migrants’ profiles and needs. The MIREM (Return Migration to the Maghreb) project at EUI was a first attempt in this direction. In this profiling exercise, it is essential to understand the motives of return, the social and educational characteristics of return migrants, and the specific difficulties they face when planning and realising their return project. Another question is how to reach return migrants and identify their needs correctly. This is a priority research area and we still lack sound empirical evidence on the profiles of returnees, the motives/incentives for returning, and the determinants of a successful voluntary return project. As exemplified by the MIREM project, the sampling methodology is essential in order to fulfil this knowledge gap.

Return incentives and obstacles Ultimately, the main policy objective of voluntary assisted return is to make the most of returnees’ skills to improve productivity and growth in countries of origin. This requires well designed policy packages both for returnees and their families. Linked with the profiling exercise, we need a better understanding of why people want to go back home in an unforced manner and what are the obstacles for return.

Since return interventions deal with lack of information and related uncertainties in the return projects of migrants, building a sound empirical base on return migration is essential. Usually, migrants accumulate human capital abroad but lose their social capital upon return if they stay abroad for long periods of time. Policy interventions to facilitate labor market insertion of return migrants or support business creation by return migrants should leverage this acquired human capital while compensating for the loss of social capital. Another major constraint faced by return migrants is access to finance, even when migrants save abroad. This is particularly important for return migrants willing to set up a business in their home country. Another key issue for successful professional reinsertion of return migrants is the institutional environment and the opportunities of investment in their country of origin. Language can also become an issue for the integration of return migrants, especially for their children. Finally, we can conjecture that portability of pensions and healthcare should play a fundamental role in return 31

decisions. Return migration was not a relevant issue until reently. It is becoming important because return is on the rise and will be rising more in the future given the amount of aging migrants. We are left with clear policy principles but very little evidence on return migration to inform policy. Given the state of knowledge, there is a broad open field for policy oriented research on return migration. The Migration Policy Center of the EUI has already started to fill the empirical gap with its MIREM project but a lot remains to be done to improve policy interventions in this area. It would be highly useful to carry out in-depth surveys on return migration patterns, including profiling return migrants, analyzing the motives/incentives for returning or not returning, the importance of portability of pensions and healthcare in return decisions, labor market integration of returnees, the impacts of return on development but also on communities and households themselves, etc. A number of bilateral donor institutions such as DFID, GTZ, and AFD are involved in corridor arrangements and evaluating their experience may provide valuable information. Collecting further data on return through corridor studies would allow building an empirical base for return interventions and work on portability of social benefits simultaneously.

ALMPs for return migrants A specific question on return policy is how ALMPs can contribute to the success of voluntary return in terms of labor market reinsertion? Existing ALMPs may have to be adapted to the specific profiles and needs of returnees without crowding out native workers. A possibility to better adapt ALMPs to return migrants would be to include them in the MILES framework of the World Bank which has a multi-sector approach that attempts to identify the binding constraints for productive employment creation. Skills matching and entrepreneurship support are the two main areas of intervention for facilitated return.

Phase 4- Circulating Challenges and opportunities Even though circular migration is seen as a key dimension of the EU approach on migration management, policy interventions in this area remain highly controversial given the lack of clear conceptual understanding of the issue. A first step in improving our understanding of circular migration management sould be to take stock of existing approaches and start a conceptualization effort within the broader result framework for good migration management. To complement this conceptual effort there is a need to investigate practical ways to allow and enhance circular migration. In this regard, monitoring and evaluation of existing temporary and circular migration schemes would bring critical results. Finally, more in depth analysis is needed on the incentive structure behind circular migration, notably through relevant field surveys. Within the EU-sponsored METOIKOS project, CARIM will study the links between circular migration and processes of integration (in receiving countries) and reintegration (in countries of origin) of circular migrants and their families in three peripheral regions of Europe, including Southern Europe and the Maghreb. The output of this project will be critical to improve our understanding of circular migration challenges and opportunities for policy making.

Conceptual issues Circular migration can be viewed alternatively as a spontaneous migration pattern or as a special type of policy scheme. In both cases, it requires a specific effort of conceptualization. Such a conceptualization effort needs to be useful for policy purposes and a critical starting point are the differences between circular, temporary and short term migration. We can also distinguish three main policy schemes to manage circular migration: (1) fill in temporary labor market needs by temporary migrants: only work if there is an easy connection between the countries involved (ex of Spain and Morocco), (2) try to fill 32

permanent posts with temporary migrants (done by private hiring agencies like ADECO), (3) support high-skilled diaspora networks like Indian engineers working both in Silicon Valley and Bangalore.

Empirically, we need to connect the determinants of circular migration to transnational social networks.

South-South circular migration patterns are also important. For instance, Gulf countries have clear strategies to use circular migration with their neighbours. In the Euro-Mediterranean region, we currently lack a common policy framework to encourage circularity in the medium to long run. EU Mobility Partnerships could provide this framework at the political level.

Policy issues The main policy issue is to create a clear incentive structure to make the most of circular migration for all the key stakeholders, including migrants, firms and countries involved. For example, restrictive migration policies seemingly deter circular migration patterns. Circular migration must benefit the migrants, their countries of origin and their countries of destination. The issue is how to ensure that at the policy level, given the asymmetries of power between States in the North and in the South of the Mediterranean. Currently, circular migration is implicitly seen as a means to avoid the challenges of immigrants’ integration for receiving countries. This does not take into account the interests of other stakeholders. It will be important to explore and point out the value added of circular migration schemes for all key stakeholders otherwise there will be no willingness to endorse it. Circular migration does not have to be a substitute for other forms of migration; it is relevant only if it brings a new advantage for everyone. Finally, circular migration requires specific social protection arrangements, notably the establishment of portability of social benefits for circular migrant workers.

III.3. Way forward This conclusive section draws the contours of the priority research agenda for improved migration management in the region, as determined jointly with the key players involved in the mapping process.

Conceptualization The first step in improving migration management in the region is to build a common conceptual framework displaying the rationale, objectives, methods and expected outcomes of policy interventions across the migration cycle. Such a common conceptual framework is currently lacking. In order to become operational for testing the impact of migration management interventions on development outcomes through rigorous methods of monitoring and evaluation (M&Es) it must contain measurable output and outcome indicators. At the EU level, the Stockholm Program calls for such an operational result framework. Given its nature and goals, CMI can be instrumental in building it. The OECD Development Center is also involved in this conceptual effort through his work on policy coherence in Migration and Development, taking into account the interests of both sending and receiving countries.

The main issue in moving towards a common conceptual framework for good migration management is to accommodate conflicting interests and reach win-win situations. As explained above, the interests of all the stakeholders, including migrants and their families, sending countries and receiving countries must be carefully identified and articulated. Conciliating the interests of everyone is highly desirable but not always feasible. So far the perspective of Southern Mediterranean countries in migration management has been virtually absent from the debate. Southern Mediterranean countries therefore need to do also their homework and clearly state their interests in a concerted migration management system. CMI could lead this conceptual effort with inputs from interested partner institutions working on the topic.

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Data collection There is now a broad consensus on the necessity to improve the empirical evidence on migration flows and processes in the region, and this requires more, comparable and public data. While data collection on the topic has become more widespread, data availability is often limited by non-disclosure policies by national governments. This informational challenge needs to be overcome if policy making in this area is to be enhanced. Furthermore, data on international migration is a global public good and is best produced through a joint effort, focusing first on how existing data collection systems can be used to deliver better data more quickly. For non-EU countries the ILO and the World Bank may have a comparative advantage in leading this data collection effort, building on existing labor force and household surveys, respectively. The EC is active in both areas and should take the lead. But all partners have a stake in improving the migration aspect of labor force and household surveys and should be instrumental in revising them in different countries in the region. Relevant questions to include in migration modules in enhanced labor force or household surveys need to be identified ex ante through relevant empirical research and a rigorous conceptual effort. Furthermore, an ambitious empirical effort is being undertaken under the EU-sponsored migration profiles, in which other agencies like ETF or the IOM are involved, with the aim to provide a structured analysis of the economic implications of migration flows for selected countries. Those profiles include a wide range of data on labor markets, skills, unemployment, remittances, etc. and thus promise to give a broad picture of migration-related issues for the countries involved. The EU Commission is planning to extend this work on migration profiles to other countries, potentially including Southern Mediterranean countries. Finally, given the current lack of data on migration flows in the region, the M&Es’ work at CMI will have to rely on pilot surveys that will generate new data on migration.

Empirical research to inform migration management interventions Four main gap areas for further empirical research to inform migration management have been identified by the workshop participants: (1) the determinants/causes of migration, (2) the impacts of migration on sending and receiving countries, notably in relation with labor market processes and performance, (3) migrants’ profiles, (4) skills development and matching. The first two areas are essential to better articulate the interests of sending countries in migration management. The third area is important to better target migration management interventions. The last area of migration and skills is relevant across all phases of the migration cycle and is linked with employment and education policies. There is an urgent necessity to improve the assessment and monitoring of labor market needs and create efficient mechanisms for skills matching and development both at the local and regional levels. This requires extensive data on labor market needs in sending and receiving countries, but also an integrated approach of migration and skills, as adopted by ETF for instance. Sectoral surveys and country case studies on skills matching and development in relation to migration management (as performed by ETF in Egypt and Moldova) are thus highly needed. All four areas should be studied in the context of Arab Mediterranean Countries and in relation to neighbouring countries in Europe and the Gulf. Research institutes and networks like EUI-CARIM would have a comparative advantage in leading such an empirical effort. Furthermore, and for the medium term, PIAAC (Programme for the International Assessment of Adult Competencies) under preparation by the OECD for member countries (and hopefully implemented a.s.a.p. also in countries on the southern rim) should provide a much better understanding and measurement of cognitive and non-cognitive skills.

Monitoring and Evaluation (M&Es) In order to move forward on the labor mobility agenda, there is a clear need for a sound evidence base for improved policy making. M&Es can contribute to building this sound empirical base and ultimately 34

developing a solid conceptual framework for good management of labor migration. International agencies like the IOM have an extensive operational experience in migration projects but very few rigorous impact evaluations have been undertaken in this field. Consequently, there is currently no sound information available on the effectiveness of migration management interventions. This is an important knowledge gap to fill so that governments are able to understand better which labor migration management tools work and which do not work. Though several institutions claim to perform project evaluations, it mostly refers to non-scientific project auditing and does not correspond to rigorous impact evaluations as promoted and sponsored by the World Bank for instance. In this sense, rigorous M&Es can be seen as a cultural shift in policy making and international institutions. The ad-hoc Working Group on Policy Coherence, Data and Research of the Global Forum on Migration and Development (GFMD) has also clearly identified the need for systematic evaluation of policies and programs on migration and development and the related need for better indicators to measure the relationship between migration and development and the impact of policy interventions. As a follow up action, the GFMD will organize a workshop in the summer 2010 to take stock of existing evaluations in the field of migration and development policies and programs, and develop early indicators of migration and development outcomes. The Stockholm Program also refers explicitly to the need of rigorously evaluating the implementation of migration policy interventions. Building on the preliminary work of GFMD and the priorities set by the Stockholm Program, CMI aims at taking the lead in operationalizing M&Es in the area of labor market and migration policies. This will be one of the main comparative advantages of this center. As a multi-partner platform for joint learning in the Euro-Mediterranean region, it will build both on the World Bank’s recognized expertise and leadership in rigorous impact evaluation methods and on the extensive operational experience of institutions like the IOM in migration projects.

Incentive structure and public awareness The Euro-Mediterranean region lacks a clear and efficient incentive structure for legal labor migration. In the present situation, labor migration policies and schemes are not sufficiently readable for migrants and potential migrants; this is likely to have an influence on the size and skill composition of migrant flows to Europe compared to other countries (such as Australia, Canada, New Zealand and the USA).

Improving the incentive structure goes along with an efficient delivery of information, notably through public campaigns. There is a pressing need to understand better the impact of such information campaigns among migrants and potential migrants. A key question is how to reach potential migrants before they attempt to move in order to better inform their migration decisions? This question is also true for migrants who have already reached their destination but lack information on existing schemes to facilitate their socio-economic integration or voluntary return. A clear, transparent and timeconsistent incentive structure complemented by efficient information campaigns can do a lot to reduce irregular migration flows and improve the overall prospects of legal labor migrants.

Portability of social benefits Portability of social benefits, in particular for pension and health care, is seen by all partners as a critical issue for improving labor mobility across professions, space and time. It is an issue of great relevance within regions (and under increasing attention within the EU and other regional organizations such as MERCOSUR in Latin America and CARICOM in the Caribbean) and the EU is also leading efforts to enhance social security cooperation within the Euro-Mediterranean Partnership. While some progress in the understanding of issues has been made in recent years, what is also missing in this area is a conceptual framework and empirical knowledge based on sound analytics and economic considerations.

Worldwide and in the EU the discussion is so far led by legal experts in social law. The World Bank has undertaken some limited but widely recognized work in this area in which one can build. As the leading 35

international institution in conceptual thinking and empirical work on social protection issues it has a comparative advantage to take the lead in this area.

Funding Only part of the identified priority research areas can be financed by existing or expected resources within the partner organizations. For the main share these institutions (including CIM) will need to approach interested parties for core and project financing. To this end CMI will contact over the next months possible donors on the northern and southern rim such as the European Commission, development agencies, and institutions in Gulf countries for their potential interest in sponsoring the research agenda. If successful, the acquisitioned resources would serve the implementation of the agenda in a joint manner but with lead institutions for decentralized production.

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Selected References Given the scope and purpose of this note, we provide a short selected list of reference publications on migration management frameworks and policy interventions at the global and regional level, including the development perspective.

Global Frameworks for Migration Management The following publications aim to build broad encompassing policy frameworks to facilitate inter-state cooperation on migration management policies at the global level. Based on a process of consultations among States from all regions, with the advice and support of relevant regional and international organizations, NGOs and migration experts, The Berne Initiative provides common understandings, principles and effective practices of migration management. The Report of the Global Commission on International Migration proposes a set overarching principles for action, supported by recommendations to guide states and the international community in formulating relevant policy interventions to maximize the positive outcomes of migration flows in the global economy. After reviewing the contemporary global migratory patterns linked to economic purposes, the IOM’s World Migration Report 2008 aims to identify policy options that can participate in developing global strategies to improve the matching between supply and demand of migrant workers in a safe, human and orderly way. Finally, the paper by Randall (2010) assesses the role of regional consultative processes in migration governance at the regional and international level.

The Berne Initiative. 2004. International Agenda for Migration Management: Common understandings and effective practices for a planned, balanced, and comprehensive approach to the management of migration. Geneva: IOM Migration Policy and Research Department (Berne’s Initiative Secretariat).

Available at http://publications.iom.int/bookstore/index.php?main_page=product_info&cPath=19&products_id=19 0 [Last accessed on April 14, 2010].

GCIM (Global Commission on International Migration). 2005. Migration in an interconnected world: new directions for action. Geneva: GCIM. Available at http://www.gcim.org/en/finalreport.html [Last accessed on April 14, 2010].

IOM (International Organization for Migration). 2008. World Migration Report 2008: Managing Labour Mobility in the Evolving Global Economy. Geneva: IOM. Available at http://iom.ch/jahia/Jahia/cache/offonce/pid/1674;jsessionid=12DED3BCAF0901AD1DDDD2BA4E3976E5 .worker02?entryId=20275 [Last accessed on April 14, 2010].

Hansell, Randall. 2010. An assessment of Principal Regional Consultative Processes on Migration. IOM Migration Research Series No. 38. Geneva: IOM. Available at http://www.gfmdathens2009.org/fileadmin/material/docs/roundtables/RT3_2.pdf [Last accessed on April 14, 2010].

Migration Management from the Development Perspective 37

The OECD Development Center has been pioneering the work on Migration Management from the point of view of developing countries, calling for increased policy coherence within OECD countries between development co-operation policies and other policies in the areas of trade, agriculture, security, migration, etc. The following publications also explore policy tools available to developing countries to increase the benefits and minimize the risks associated with international migration. The general message is that a global migration management system should not be seen as an immigration system but instead as a sustainable system of international labor mobility for the benefits of all, including receiving countries, sending countries and the migrants themselves. This is especially true in the EuroMediterranean context, where migration can contribute to economic growth and increased productivity both in Europe and Arab Mediterranean Countries. The Human Development Report 2009 proposes a package of reforms to maximize the human development impacts of migration, addressing two key dimensions of the global mobility agenda: admissions and treatment of migrant workers. Both the OECD Development Center and the UNDP advocate for interlinking migration management and development strategies at the national, regional and global level.

Kasteli, Louka T., Robert E.B. Lucas, and Theodora Xenogiani. 2006. Policies for Migration and Development: A European Perspective. OECD Development Centre Policy Brief No. 30. Paris: OECD Development Center. Available at http://www.oecd.org/dataoecd/55/37/37862315.pdf [Last accessed on April 14, 2010].

Dayton-Johnson, Jeff, Louka T. Kasteli, Gregory Maniatis, Rainer M端nz, and Demetrios Papademetriou.

2007. Gaining from migration: Towards a New Mobility System. Paris: OECD and OECD Development Centre. Available at http://www.migrationpolicy.org/pubs/Gaining_from_Migration.pdf [Last accessed on April 14, 2010].

Dayton-Johnson, Jeff, Denis Drechsler, and Jason Gagnon. 2008. Managing Migration: Policy Options and Development Impacts. Draft Summary. Paris: OECD Development Center.

UNDP (United Nations Development Program). 2009. Overcoming Barriers: Human Mobility and Development: Human Development Report 2009. New York: UN. Available at http://hdr.undp.org/en/reports/global/hdr2009/ [Last accessed on April 14, 2010].

Reference Guides to Migration Management Policy Interventions The two following publications can be considered as reference guides to migration management interventions since they provide a detailed and exhaustive overview of available policy tools. The joint publication by IOM, ILO and OSCE, with a special Mediterranean Edition, provides comprehensive guidance to governments for better labor migration management both in sending and receiving countries. It adopts a proactive stance in successfully managing migration flows and covers a large number of policy areas in the field. The OECD 2009 International Migration Outlook also reviews different key areas of labor migration policy interventions and ultimately provides a road map for improved migration management to support economic growth mainly in OECD countries but also taking into account the interests of sending countries by exploring the links between migration and development.

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OECD (Organisation for Economic Cooperation and Development). 2009. International Migration Outlook, SOPEMI 2009. Paris: OECD. Available at http://www.oecd.org/document/4/0,3343,en_2649_33931_43009971_1_1_1_37415,00.html [Last access on April 14, 2010].

OSCE (Organization for Security and Co-operation in Europe), IOM (International Organization for Migration), and ILO (International Labour Office). 2007. Handbook on Establishing Effective Labour Migration Policies, Mediterranean Edition. Vienna: OSCE; Geneva: IOM and ILO. Available at http://www.osce.org/item/19187.html [Last access on April 14, 2010].

The EU Framework of Migration Policy The following documents from the European Commission present the up-to-date EU framework for migration policy. The Stockholm Programme is a multi-annual program which has been adopted by the European Council for the period 2010-2014. In those documents, the EU acknowledges the importance of improved migration management for economic growth and shared development with its poorer Neighbors. Migration Profiles and Mobility Partnerships are concrete tools to improve the information base and inter-state cooperation for better managing migration between the EU and sending countries.

Taking into account the underlying political economy of migration policy, the background paper by Gregory Maniatis for the Swedish Presidency 2009 conference on Labour Migration makes the case for developing a common understanding of what constitutes intelligent migration policies for the different stakeholders, including sending and receiving countries, migrants and firm.

EC (European Commission). 2006. The global approach to migration one year on: towards a comprehensive European migration policy. COM (2006) 735 final. Brussels: EC. Available at http://ec.europa.eu/development/icenter/repository/COMM_PDF_COM_2006_0735_F_EN_ACTE.pdf [Last accessed on April 14, 2010].

EC (European Commission). 2008. A common immigration policy for Europe: principles, actions and tools.

COM (2008) 359 final. Brussels: EC. Available at http://eurlex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2008:0359:FIN:EN:PDF [Last accessed on April 14, 2010].

EC (European Commission). 2009. The Stockholm Programme – An open and secure Europe serving and protecting the citizen. Brussels: EC. Available at http://www.se2009.eu/polopoly_fs/1.26419!menu/standard/file/Klar_Stockholmsprogram.pdf [Last accessed on April 14, 2010].

Maniatis, Gregory. 2009. “Building a common understanding about more effective migration policies in the European Union.” Paper prepared for the EU Swedish Presidency conference on Labour Migration and its Development Potential in the Age of Mobility, Malmö, Sweden, 15-16 October 2009. Available at http://www.se2009.eu/polopoly_fs/1.18089!menu/standard/file/Maniatis_bak.pdf [Last accessed on April 14, 2010].

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World Bank publications on International Migration and Policy in the Euro-Mediterranean Region The World Bank publications on International Migration and Policy in the Euro-Mediterranean Region stress the importance of formulating mutually benefiting migration management strategies given the demographic and economic imbalances between Europe and its Southern Mediterranean Neighbors.

Besides providing comprehensive analysis of the socio-demographic context and the main challenges at stake, they present concrete policy schemes and arrangements to explore win-win solutions allowing sending and receiving countries, but also the migrants to gain from increased mobility of labor and skills around the Mediterranean.

Holzmann, Robert, and Rainer M端nz. 2004. Challenges and Opportunities of International Migration for the EU, Its Member States, Neighboring Countries and Regions: A Policy Note. Washington, D.C.: World Bank; Stockholm: Institute for Futures Studies. Available at http://web.worldbank.org/WBSITE/EXTERNAL/TOPICS/EXTSOCIALPROTECTION/EXTLM/0,,print:Y~isCUR L:Y~contentMDK:20338384~menuPK:642317~pagePK:148956~piPK:216618~theSitePK:390615,00.html [Last accessed on April 14, 2010].

World Bank. 2009. Shaping the Future: A Long-Term Perspective of People and Job Mobility for the Middle East and North Africa. Washington, D.C.: World Bank. Available at http://web.worldbank.org/WBSITE/EXTERNAL/COUNTRIES/MENAEXT/0,,contentMDK:22101938~pageP K:146736~piPK:226340~theSitePK:256299,00.html [Last accessed on April 14, 2010].

World Bank. Forthcoming. Migration from North Africa to Europe: Development Impact, Challenges and Policy Options. Washington, D.C.: World Bank.

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