Navigating Through an External Agenda and Internal Preferences
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Navigating through an external agenda and internal preferences: the case of Ghana’s National Migration Policy Master’s thesis submitted by Nadine Segadlo at August 2018 m m i Nadine Segadlo 6166334 Utrecht University Faculty of Geosciences International Development Studies Supervisor: Dr. Gery Nijenhuis August 2018 m ii Acknowledgements This study has been supported and inspired by a great number of individuals that I would like to express my gratitude to. The quality of research was possible through the support given by my supervisor of the Master’s programme in International Development Studies at Utrecht University, Dr. Gery Nijenhuis, who helped me to approach an issue of international development with the lens of a political scientist. She was always available for questions and provided me with very constructive feedback during all stages of the research and writing process. Her comments continuously motivated and challenged me. Likewise, I am very grateful to my second supervisor at the Department of Politics and Public Administration at the University of Konstanz, Dr. Sonja Grimm, for her inputs to my research proposal and the trust and support she has given me after my time in Ghana. The field research of this study would not have been possible without the enormous support received from Deutsches Institut für Entwicklungspolitik (DIE, German Development Institute) which served as cooperation partner during the research process. Special thanks goes to Dr. Julia Leininger and Dr. Eva Dick for the provision of first contacts. I want to especially express my gratitude to Dr. Benjamin Schraven for his trustful, enriching and supportive advices. The quality of this research benefited hugely from his knowledge in the field of migration in West Africa, his personal field work experiences in Ghana, his access to information, his contacts and network of migration experts in Ghana. His support opened many doors for me in Accra. Critical for the preparation of the field research was Dr. Stephen Adaawen who put me in contact with staff from the Centre for Migration Studies at the University of Ghana that led me to the most important supporter within Ghana: Dr. Delali Badasu. Her in-depth knowledge and great network of the migration landscape in Ghana contributed enormously to the success of this research. Her guidance, trust and care was the greatest possible backing and encouragement I could get whilst in Accra. Furthermore, I am also very thankful to the staff of the Centre for Migration Studies at the University of Ghana for their hospitality and the provision of office space. I also want to highlight the support received from my former colleagues at the Support for Decentralization Reforms (SfDR) programme of GIZ Ghana through the provision of contacts and information on conducting research in Ghana. Moreover, I want to appreciate my sincere appreciation and gratitude towards my interview partners. Their knowledge, openness, patience, trust and encouragement is the core pillar of this research. I wish to particularly thank Professor Mariama Awumbila, former head of the Centre for Migration studies, Dr. S.O. Archer, former Director Policy Planning, Monitoring and Evaluation (PPME) at the Ministry of Employment and Labour Relation (MoELR), Dr. Osman Alhassan, Institute of African Studies, University of Ghana, and Patience Quaye, Assistant Commissioner of Police. I owe a great debt of gratitude to Ato Amoah from Migrant Watch & Skilled Revolution Front, and Eric Opoku Ware, Sahara Hustlers Association, for their detailed and honest insights into the realities of irregular migration through the Sahara as well as the challenges faced by small civil society organisations in Ghana. Finally, without the endless support of my friends and family I would not be where I am today. I thank you very much. Medaase paa! iii Abstract In the context of international migration from African countries to Europe the EU widely applies the strategy of curbing irregular migration. EU efforts focus on combating the root causes of migration and flight and achieving African compliance on return and readmission. This approach ignores the interests of countries of origin. It also undermines what countries of origin do to deal with migration in their states. In West Africa, the regional organisation ECOWAS strongly promotes migration management, and introduced the 2008 ECOWAS Common Approach on Migration with guidelines for migration governance in the region. Ghana, as one of the first ECOWAS member states, adopted a National Migration Policy (NMP) in 2016. The country has a long migration history, has experienced different migration trends and is affected by various migration streams. As little is known about the country’s policy responses to migration management, this study investigates migration policy-making in Ghana. It specifically examines the case of the NMP for Ghana and aims at uncovering stakeholder involvement in the policy process as well as its determinants. Guided by an analytical framework derived from theoretical considerations of the advocacy coalition framework, the framework of institutions, actors and ideas and an extensive literature review, the study uses a qualitative approach. The results are based on 14 weeks of field research in Ghana in which 40 experts were interviewed. Together with an analysis of a plethora of secondary data the study finds that interests in the policy and the resources stakeholders possess, which then form the basis for their power, mainly account for stakeholders’ involvement in the policy process leading to the NMP for Ghana. The research further reveals that the NMP does not primarily respond to a perceived problem related to migration in Ghana: the internal migration flows from deprived to less deprived areas. Rather it largely pursues the interests of the EU, who is the main financer of the policy, to foster migration control. The results of the study therefore suggest that in the case of Ghana’s NMP internal interests were outweighed by the external agenda of the EU in the policy formulation process. iv Table of contents Acknowledgements .................................................................................................................. iii Abstract .................................................................................................................................... iv Table of contents ....................................................................................................................... v List of figures .......................................................................................................................... vii List of tables ............................................................................................................................ vii List of abbreviations .............................................................................................................. viii 1. INTRODUCTION ................................................................................................................ 1 1.1 Topic and research question ............................................................................................. 1 1.2 Relevance and research deficit ......................................................................................... 2 2. THEORETICAL FRAMEWORK AND LITERATURE REVIEW ............................... 4 2.1 Policy cycle ....................................................................................................................... 4 2.2 Policy context ................................................................................................................... 5 2.2.1 Exploring the policy context with stakeholder analysis............................................. 5 2.3 An advocacy coalition framework approach to stakeholder analysis ............................... 6 2.4 Institutions in the policy-making process ......................................................................... 9 2.5 Developing an analytical framework for this study ........................................................ 10 3. RESEARCH DESIGN AND METHODOLOGY ............................................................ 13 3.1 Operationalisation ........................................................................................................... 13 3.2 Case selection ................................................................................................................. 15 3.3 Data collection methods ................................................................................................. 15 3.4 The interviews ................................................................................................................ 17 3.5 Method of analysis .......................................................................................................... 18 3.6 Reflections on the positionality of the researcher .......................................................... 18 3.7 Limitations of the research ............................................................................................. 19 4. THEMATIC FRAMEWORK: MIGRATION IN GHANA ........................................... 20 4.1 History of migration in Ghana ........................................................................................ 20 4.1.1 Phase 1: Ghana – an immigration country ............................................................... 20 4.1.2 Phase 2: Shift towards emigration country .............................................................