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International Migration Statistics MIGRATION STATISTICS GUIDELINES FOR IMPROUING DATA COllECTIDN SYSTEMS R.E. Bilsborrow, Graeme Hugo, A.S. Obérai and Ha nia Zlotnik A study published with the financial support of the UNITED NATIONS POPULATION FUND [UNFPA] INTERNATIONAL LABOUR OFFICE-GENEVA Copyright © International Labour Organization 1997 First published 1997 Publications of the International Labour Office enjoy copyright under Protocol 2 of the Universal Copyright Convention. Nevertheless, short excerpts from them may be reproduced without authorization, on condition that the source is indicated. For rights of reproduction or translation, application should be made to the Publications Bureau (Rights and Permissions), International Labour Office, CH-1211 Geneva 22, Switzerland. The International Labour Office welcomes such applications. Libraries, institutions and other users registered in the United Kingdom with the Copyright Licensing Agency, 90 Tottenham Court Road, London W1P 9HE (Fax: +44 171 436 3986), in the United States with the Copyright Clearance Center, 222 Rosewood Drive, Danvers, MA 01923 (Fax: +1 508 750 4470), or in other countries with associated Reproduction Rights Organizations, may make photocopies in accordance with the licences issued to them for this purpose. R. E. Bilsborrow, Graeme Hugo, A.S. Obérai and Hania Zlotnik International migration statistics: Guidelines for improving data collection systems Geneva, International Labour Office, 1997 /Guide/, /international migration/, /migrant/, /data collecting/, /measurement/, /methodology/, /developed country/, /developing country/. 14.09.2 ISBN 92-2-109517-7 ILO Cataloguing in Publication Data The designations employed in ILO publications, which are in conformity with United Nations practice, and the presentation of material therein do not imply the expression of any opinion whatsoever on the part of the International Labour Office concerning the legal status of any country, area or territory or of its authorities, or concerning the delimitation of its frontiers. The responsibility for opinions expressed in signed articles, studies and other contributions rests solely with their authors, and publication does not constitute an endorsement by the International Labour Office of the opinions expressed in them. Reference to names of firms and commercial products and processes does not imply their endorsement by the International Labour Office, and any failure to mention a particular firm, commercial product or process is not a sign of disapproval. ILO publications can be obtained through major booksellers or ILO local offices in many countries, or direct from ILO Publications, International Labour Office, CH-1211 Geneva 22, Switzerland. Catalogues or lists of new publications are available free of charge from the above address. Printed in Singapore PREFACE The sweeping economic and political reforms taking place in the world today have not only created the prospect of dramatic changes'in labour migra- tion patterns, but have also affected the whole approach to migration policies. Policy-makers are now showing much greater interest in migration issues, together with a greater willingness to bring these issues to the core of policy dialogue and international cooperation. While concerns about international population movements have in- creased in recent years, adequate and reliable data for understanding the processes shaping such movements and for developing an appropriate policy response are still lacking. Recent concerns about international migration stem from two major factors. First, increasing globalization of economic networks, rapid population growth in the South, and growing poverty have led to increased pressures towards emigration. More than 70 million people, mostly from developing countries, are now working (legally or illegally) in other countries. Second, increasing unemployment, mounting nationalism and xenophobic sentiments have led to social tensions in the migrant-receiving countries in the North and have encouraged many governments to adopt more restrictive immigration policies. Some of these perceptions about the causes and consequences of inter- national migration are not necessarily based on sound analysis. Rather, they often reflect a broader social unease stemming from poverty and growing social and economic imbalances. They sometimes develop in reaction to migration episodes that, even if of limited dimensions, have been quite visible and striking in the eyes of the public and of the media. There is thus a growing interest among governments and scholars, in both North and South, in quantifying the volume of international migration flows and in assessing their economic and social implications. The carving up of the world into distinct regional blocs, the liberalization of trade, and the relocation of production units in labour supply countries are also likely to have important implications for intra-regional and inter-regional migration flows, and for types of labour movement. It will be necessary, therefore, to study the impact of these changes on future migration trends. International migration statistics Unfortunately, the limited availability of migration statistics poses a severe constraint on conducting any systematic analysis of the social (e.g. migrants' adjustment, cultural assimilation, role and status of women), demo- graphic (e.g. population growth, age and sex structure of the population) or economic (e.g. labour market, technological change, savings and investment, balance of payments, income distribution) impacts of migration in either the sending or receiving countries. In the absence of such an analysis, the discussion on migration is often at a speculative level and its consequences are analysed more in terms of impressions than in terms of impact. Policy formulation therefore rests, unfortunately but unavoidably, on a shaky basis. The major objective of this volume is therefore to strengthen national capacities for generating the relevant and more meaningful data (on migration flows, return migration, remittances, etc.) required for migration policy analysis. Within this framework, it has three immediate objectives: first, to provide a critical review of the adequacy of current sources of data on international migration; second, to discuss the conceptual and analytical issues related to the measurement of stocks and flows of international migrants, and the problems related to the international comparability of migration data; third, to suggest improved methods of data collection (through administrative records, popula- tion censuses, sample surveys, etc.) and ways of enhancing the international comparability of migration statistics. The volume has been prepared with the financial support of the United Nations Population Fund (UNFPA) as part of the activities of the ILO's Interdepartmental Project on Migrant Workers implemented in 22 selected countries during the biennium 1994-95.1 One component of this project was concerned with increasing the capacity of sending and receiving countries to collect and process reliable statistics on movements of migrant workers. Another was to develop, in the Office, basic statistics on international migration for the purposes of analysis and dissemination. Besides collecting core data on migration flows/stocks and related socio- economic information, the Office collected methodological information on sources, concepts and definitions.2 This information was used to assess current sources and methods of data collection and to identify gaps and shortcomings (special consideration being given to data on socio-economic and demographic characteristics, skills, wages, remittances, gender, and regional breakdown of migrant workers). Based on a critical review of existing sources of data in the 22 countries covered by the Interdepartmental Project, as well as on experience of data col- lection in many other countries, the present guidelines were prepared in order to pave the way for an improved data collection system on international migration. Many people have contributed to this volume. It is difficult to single out individuals, but a large number of officials working in national statistical agencies and government departments dealing with emigration/immigration have provided useful information on problems of migration statistics and on their experience of handling data collection issues. Particular thanks go to VI Preface Ms. Linda Gordon of the United States Immigration and Naturalization Service. Significant inputs and materials were provided by colleagues working on similar issues in regional and other international organizations such as the Organisation for Economic Co-operation and Development (Mr. Georges Lemaitre), the Statistical Office of the European Community (Ms. Thana Chris- santhaki and Mr. Curt Grundstrom), the Economic Commission for Europe (Mr. John Kelly), the International Monetary Fund (Mr. Jack Bame and Mr. Mohinder Gill), the United Nations Statistics Division (Mr. K. Gnanase- karan, Ms. Cristina Hannig, Mr. Jan van Tongeren and Mr. Viet Vu) and the Economic and Social Commission for Asia and the Pacific (Mr. Jagdish Kumar). We are indebted to all of them. A special word of acknowledgement is reserved for Mr. Bela Hovy, Statistician, Office of the United Nations High Commissioner for Refugees (UNHCR), who contributed an earlier version of Chapter V on "Data collection systems providing information on asylum-seekers and refugees". Several colleagues at the ILO have contributed to the evolution of
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