Bringing Migration Into Development Partnerships and Vice Versa

Towards a Global Compact for Migration: A Development Perspective A Series to Inform the Debate

July 2018 Issue No. 4

Mind the Gap Bringing Migration into Development Partnerships and Vice Versa

By Kate Hooper and Kathleen Newland

Executive Summary The 2014 surge in unaccompanied children arriving at the U.S.-Mexico border, the 2015–16 migration crisis in Europe, and other recent spikes in irregular migration have prompted many destination-country governments to look beyond border management for ways to address the underlying drivers of such movements. Governments have committed large sums to these efforts, including the 3.2 billion euros policymakers committed for the EU Emergency Trust Fund for Africa at the Valetta Summit in November 2015 and the U.S. decision to com- mit USD 750 million for the Alliance for Prosperity in El Salvador, Guatemala, and Honduras in - tion into development programming and vice versa. fiscal year 2016. In short, policymakers are thinking about how they can incorporate migra Greater collaboration between migration-management and development actors carries some - gration, such as instability and limited economic opportunities, hinges on the support, knowl- clearedge, benefits.and resources The ability of development of governments actors. to For address example, factors the thatJoint drive Valletta displacement Action Plan and signed mi by European and African heads of state sets out an ambitious agenda for tackling the drivers of migration and displacement, promoting legal migration, improving protection for those in

The ability of signatory states to follow through on these commitments will depend both on need, disrupting human trafficking and smuggling, and improving returns and reintegration. Trust Fund for Africa, and on development actors’ expertise in partnering constructively with European development budgets, which provide most of the financing for the EU Emergency

developingrecognition countries.that migration In turn, can migration make important is becoming contributions a growing to priority development. in development work, reflecting both the events of recent years and the 2030 Agenda for Sustainable Development’s But coordinating the work of development and migration-management actors in partnerships with countries of origin comes with risks. Recent migration partnerships have focused heavily on tackling irregular migration and policy implementation, crisis response, and effecting returns of unauthorized migrants. labor-market regulation, which could have an These priorities can be sensitive subjects for impact on migration dynamics. A third area partner countries—particularly those that is facilitation of skilled migration and the ef- rely on remittances from their diasporas and fective transfer of skills as tools for economic have not been able to spur adequate domes- growth, with initiatives striving to create a tic job creation—and they may undermine “triple win” in which migrants, origin coun- development cooperation in other areas, including the core mission of poverty allevia- from migration. tion. The divergent approaches migration- tries, and destination countries all benefit management and development actors take - to establishing and managing partnerships dination between development and migra- present another challenge. While develop- Intion-management order to reap the actors—from benefits of greater sharing coor ment agencies have long sought to mitigate expertise to realizing economies of scale— the power imbalance between donor and recipient countries, some migration-man- - agement actors see this asymmetry as an policymakerscessful cooperation must firstlies intackle setting the mutually challenges opportunity to enforce support for their thatagreed have goals kept for these cooperation two fields that apart. balance Suc priorities. A “more-for-more” approach uses development and migration priorities and in increased assistance to reward countries establishing realistic expectations about the that make progress on migration goals—and, likely outcomes and the timeline for results. more recently, a “less-for-less” approach foresees reductions for countries that do not. Such transactional strategies stand in sharp contrast to the partnership approach that I. Introduction characterizes most development cooperation, and they may risk further destabilizing The 2015–16 migration and refugee crises in fragile states and undermining development Europe and elsewhere have prompted many priorities. destination-country governments to look beyond the measures necessary to deter, or Despite these challenges, cooperation be- to receive and integrate, new arrivals. New tween development and migration-manage- policy thinking has increasingly focused ment actors on common priorities could add on assessing where and how governments value in several areas. For example, address- should invest to address the structural facing barriers to economic growth is a long- tors, such as weak governance and economic held priority for development actors that can stagnation, that drive irregular migration in

from other government departments and renewed push to incorporate migration aims benefitthe private from sector. the growing These additional input and sourcesfunding theinto first development place. As aprogramming, result, there has and been vice a of support and expertise present new op- versa. portunities to address economic development more comprehensively, including by This shift can be seen in a range of destina- improving investment conditions in priority countries, boosting access to concessional 2015 address to the European Parliament, tionGerman countries Chancellor and regions. Angela MerkelIn an October called for addressing trade barriers. Resilience-build- Europe to “tailor our foreign and develop- financinging in origin for or middle-income transit countries countries, is another and ment policy far more closely to the goals of priority of development agencies; it too could

of agencies working on capacities such as resolvingto increase conflicts funding and for combatingthese goals. the1 The factors fol- benefit from the experience and resources that cause people to flee their homes,” and 2 Mind the Gap: Bringing Migration into Development Partnerships and Vice Versa Policy Brief

lowing month, at the Valletta Summit, European ensure the successful socioeconomic integration and African leaders launched the EU Emergency of returning migrants in their countries of origin Trust Fund for Africa, which has to date pooled or transit.”7 This is a tall order for development 3.4 billion euros in EU and national funds to policy, and risks diverting resources from the address the drivers of migration from Africa to primary development objectives articulated in Europe.2 the SDGs adopted by all members of the United

goals will slip from the development coopera- committed USD 750 million from the U.S. budget Nations.tion agenda It is, any however, time soon; unlikely for example, that migration the In the same period, the Obama administration management of irregular migration is likely for Prosperity in El Salvador, Guatemala, and to be a priority in the upcoming negotiation forHonduras fiscal year as part 2016 of toits support broader the response Alliance to a re- of a successor to the Cotonou Agreement, the surgence of unauthorized migration from these 2000–20 treaty in which the European Union countries—consisting primarily of children and and 79 developing countries in Africa, the Carib- families—across the southern U.S. border.3 And in 2017, the U.S. Secretaries of State and Home- on a variety of development priorities.8 bean, and the Pacific region pledged cooperation At a national level, development agencies are land“the TrumpSecurity administration and the president is committed of the Inter- to mak- also placing greater emphasis on migration, Americaning this initiative Development a pillar Bank of its confirmed broader strategy that launching new migration-related initiatives and to combat illegal immigration.”4 revisiting existing projects to see if there are opportunities to link them more explicitly to Yet greater collaboration between migration- migration.9 But as development actors incor- management and development actors can also porate migration into their work with partner create tension. Unlike the Millennium Develop- countries, and as migration actors pay closer ment Goals that preceded them, the UN Sus- attention to development cooperation in theirs, tainable Development Goals (SDGs) unveiled questions remain about how these actors can in September 2015 as part of the 2030 Agenda for Sustainable Development included migra- concern is that bringing migration goals into tion targets. SDG 10.7 calls for all countries to workdevelopment together cooperation most effectively. can complicate One common rela - facilitate “safe, orderly, regular, and responsible tionships between partner countries that have migration and mobility of people, including been carefully cultivated over years or decades, through the implementation of planned and potentially undermining long-term development well-managed migration policies.”5 The 2030 goals by introducing a transactional element Agenda also recognizes the important contri- that seems to trade off migration cooperation for butions of migrants to inclusive growth and development assistance. Conversely, critics see sustainable development.6 certain development approaches as undermining the livelihoods of the rural poor and thereby The 2017 European Consensus on Development increasing migration pressures in some regions. focus among policymakers on stemming irregu- This policy brief explores the rationale for closer buildslar migration. on SDG The10.7, document but also reflects explicitly the notes growing cooperation between development and migra- that “through development policy, the EU and its Member States will address the root causes of irregular migration and will, inter alia, contrib- tioncommon actors, interest including where the coordination potential benefits and joint and ute to the sustainable integration of migrants in risksefforts of between doing so. such It also actors identifies may prove key areas most of host countries and host communities and help fruitful.

3 Migration Policy Institute II. Why Bring Migration into tors, who provide the know-how and much of the funding that underpin such initiatives.11 Development Partnerships, Development professionals and policymakers or Vice Versa? have considerable experience working with the countries to which migration policymakers now give priority (for example, those in become a top domestic and foreign policy pri- the Middle East and North Africa region and in Overority thefor manypast several governments. years, migration Concerns has about the Northern Triangle of Central America). De- irregular migration to Europe, for example, velopment professionals’ established working have spurred European policymakers to step relationships with national and local govern- up funding to combat the “root causes” of ments and civil-society organizations, as well migration, a catch-all term that spans much of as their familiarity with on-the-ground condi- the conventional development agenda, from tions, are essential to any successful partner- investments in jobs and training, infrastruc- ship. The outcome of the 2015 Valletta Summit ture, and services to improving governance on Migration illustrates this deep reliance on 10 Many of these development actors (see Box 1). efforts rely on the work of development ac- and rebuilding after conflict. Box 1. Implementing the Joint Valletta Action Plan The November 2015 summit in Malta brought together European and African heads of state to discuss cooperation on migration. These leaders adopted the Joint Valletta Action Plan (JVAP), which focused on five priority areas:

addressing the root causes of migration and displacement;

enhancing cooperation on legal migration;

improving protection for refugees and asylum seekers;

tackling human trafficking and smuggling; and

improving cooperation on return, readmission, and reintegration.

Implementing this action plan hinges on development funds, and the support and knowledge of development actors. At the summit, leaders launched the EU Emergency Trust Fund for Africa, which pools 3.2 billion euros in EU and national funds to address the drivers of migration, instability, and displacement in North Africa, the Horn of Africa, and the Sahel/Lake Chad region. Most of this money comes from development budgets, where the primary focus of projects is on aims such as economic development, job creation, stability, and good governance. National development agencies (including those of France, Germany, Italy, and Spain), UN agencies, and international nongovernmental organizations are key implementing partners for these projects.

Sources: European Council, “Valletta Summit on Migration, 11-12/11/2015,” updated May 2, 2018, www.consilium.europa. eu/en/meetings/international-summit/2015/11/11-12/; European Commission, “The EU Emergency Trust Fund for Africa—EU MS and Other Donors Contributions (Pledges and Received Contributions),” updated May 7, 2018, https://ec.europa.eu/trustfundforafrica/sites/euetfa/files/contributions_0.pdf; European Commission, “EU Emergency Trust Fund for Africa” (brief, Brussels, November 24, 2017), https://ec.europa.eu/europeaid/sites/devco/files/eu- emergency-trust-fund-africa-20171124-3_en.pdf; European Commission, The EU Emergency Trust Fund for Africa: 2016 Annual Report (Brussels: European Commission, 2016), https://ec.europa.eu/europeaid/sites/devco/files/eutf_2016_ annual_report_final_en.pdf.

4 Mind the Gap: Bringing Migration into Development Partnerships and Vice Versa Policy Brief

A focus on improving conditions in origin or from those that incorporate concrete pledges, transit countries is now shared by develop- such as temporary labor agreements setting ment agencies and many countries’ migration quotas and procedures, to those that articulate departments. This convergence offers clear op- policymakers’ intentions, such as readmis- portunities to build synergies between these sion agreements as a prerequisite for deeper cooperation between a country of origin and more directly into development work requires country of destination. policycoordination fields. Often,among bringing different migration departments goals to avoid working at cross purposes. For example, Recent migration partnerships are distin- a development ministry might be working to guished by their scope and ambitions, which boost job opportunities in a partner country, include a growing focus on development inter- while the ministry of trade erects barriers to ventions. As well as mobilizing more resources exports from the same country, thereby reduc- and political will to support these partnering employment. are moving away from offering their partners ships, destination-country migration officials advance interagency collaboration as a key and towards a more comprehensive approach Theprinciple Swiss in government its international was one migration of the first policy. to benefitsthat seeks such to address as visa liberalization border enforcement, in isolation, returns, and the drivers of migration simulta- neously14—though some controversially link InMigration, 2011, it articulatedthe Federal aDepartment whole-of-government of Foreign the distribution of development assistance to approachAffairs, and that the gave Swiss the Agency Federal for Office Development for progress on migration-management objectives and Cooperation joint responsibility for coordinating migration policy across all govern- also working more closely with other agencies ment departments.12 The approach made culti- (see(such Section as those III.B.). responsible Migration for departments development, are vating partnerships with countries of origin humanitarian assistance, and foreign policy) and transit based on a balanced consideration and trying to engage the private sector and of the interests of both parties one of the three civil society.15 Yet migration partnerships are pillars of migration policy. “Migration from a often decidedly asymmetrical, more focused development perspective” was the logical ex- on achieving the migration goals of donor pression of this and was adopted as one of the countries than those of the recipients of as- 13 sistance.

A.five priorityWhat areas Does for Development Swiss migration Bring policy. to The domestic political salience of international Migration Partnerships? migration has encouraged many development cooperation agencies to expand their Partnerships with origin and transit coun- migration-related work. The Netherlands, tries have long been part of some destination for example, launched the Emergency Aid countries’ strategies to manage migration. Fund in 2014 and the Addressing Root Causes - Fund in 2016, and allocated more funds to tion with southern Mediterranean countries its development budget to support refugees Examplessuch as Morocco, include Tunisia, Spain and and Italy’s Libya coopera since the and the communities that host them and to 1990s, and the United States’ longstanding co- tackle youth unemployment in Africa.16 The operation with Mexico. They are usually based government of Sweden has also instructed the on a nonbinding agreement, such as a memo- - randum of understanding, that sets out the tion Agency to explore ways to bring migration areas for potential cooperation and intended Swedishinto its work International more systematically. Development17 And Coopera the support as well as outcomes (e.g., technical assistance for and deeper cooperation between aligned its assistance programs in El Salvador, border-control agencies). Agreements range U.S.Guatemala, Agency andfor International Honduras with Development the Alliance has

5 Migration Policy Institute for Prosperity.18 Germany’s Federal Ministry of come to the understanding that migration needs Economic Cooperation and Development (BMZ) to be factored into development planning, both has expanded its support for voluntary returns as a resource and a potential source of vulner- and reintegration, while launching three special ability. initiatives to address the drivers of displacement and the onward movement of refugees Development cooperation initiatives have taken and migrants. These initiatives, created in 2014, focused on supporting refugees and host com- while mitigating its risks. For some, this has munities, promoting stability in the Middle East stepsentailed to understandsupporting datamigration gathering and itsand benefits, analysis and North Africa region, and improving food of migration trends in countries of origin; in par- security.19 ticular, the European Union has helped countries for BMZ and The other German German Agency ministries for International and ad- the basis of policies to draw out development Cooperationvises on migration (GIZ), andwhich development, implements also programs runs of origin create migration profiles that can form- programs that aim to address drivers of migra- terns. Several donor countries have also funded tion, such as a youth employment training proj- benefitsreturn-of-talent from country-specific programs implemented migration by pat the ect in Tunisia.20 - the development agenda is the assumption that successful development In all of thesecooperation cases, aprograms subtext to UNhave Development often proved Program to be expensive or by the and Internation some- will help to reduce migration pressures, thereby alwhat Organization disappointing. for Migration—although Greater emphasis is nowthese easing the challenges of migration management. placed on national programs to connect with members of the diaspora, without depending on their physical return.

B. What Does Migration Bring to Many high-income countries have programs Development Cooperation? for the temporary admission of low-skilled workers, and some design these with develop- “Mainstreaming migration into development ment impacts in mind. New Zealand’s Recog- policy” has become something of a mantra for nized Seasonal Employer scheme is one of the development practitioners since about 2010.21 most prominent, and features of it have been incorporated in other temporary migration ar- rangements.23 Access to labor markets abroad Asdonors funds and for the official governments development of developing assistance multiplies the earnings of low-skilled workers (ODA)countries never have seeming turned to to be migrant adequate, and bothdiaspora in developing countries, and their remittances populations as development resources—sources accomplish (if not always on a permanent of badly needed foreign exchange, direct invest- basis) one of the primary goals of development ment, business linkages, social and economic policy: poverty reduction. However, remittance- innovations, access to networks of knowledge, dependent countries and households are at the and more.22 Globally, migrants’ remittances are mercy of migration and labor-market policies in destination countries. When Saudi Arabia de- the balance of payments of remittance-receiving cides to “Saudi-ize” its labor force, or the United aboutcountries, three provide times as the large foreign as ODA; currency they tosupport pay States decides to return hundreds of thousand of for critical imports, and help these countries holders of Temporary Protected Status to their qualify for better terms on international credit poverty-stricken countries of origin,24 the perils markets. Returning migrants have in some coun- of relying on remittance income can be felt helped to provide a critical mass of talent and tries,skills including,to support India, industrial China, development. and South Korea, For all immediately.to convert remittance One of the income tasks ofand development experience cooperation,gained in work still abroad in progress, into sustainable is to find ways sources in both origin and destination countries have of livelihood in countries of origin by opening of these reasons and more, development officials 6 Mind the Gap: Bringing Migration into Development Partnerships and Vice Versa Policy Brief

realistic investment and employment opportuni- potential of migration as a means of furthering ties for migrant households. efforts to address the conditions in partner - development.countries that Meanwhile,drive migration migration are motivated officials’ pri- ernments are exploring ways to build develop- marily by a desire to deter irregular migration, Inment practice, into migration there are partnerships, several reasons and why vice gov including displacement and secondary migra- - tion. As a result, enforcing borders and enacting mies of scale: as migration becomes a top politi- returns are top priorities for many migration versa.cal priority One factor and receives is the desire more tofunding, realize it econo makes sense for policymakers to explore ways to link with the priorities both of origin and transit efforts across government agencies and maxi- agencies—aimscountries and of thatthe developmentcan be difficult actors to reconcile that mize the impact of their work. Another, related partner with them. factor is coordination: as governments scale up their migration-related work, coordinating these This misalignment of aims can be traced back efforts effectively—whether by creating joint to the different perspectives migration-manage- initiatives or encouraging regular interagency ment and development actors take on mobil- consultations—is paramount. A third factor is ity. While recent migration partnerships have the need for relevant expertise: as discussed vowed both to tackle irregular migration and above, efforts to address some of the main driv- to expand opportunities for legal migration, in ers of migration hinge on the expertise of devel- practice, they focus far more heavily on the for- opment professionals, while some development mer. The EU Migration Partnership Framework, efforts (e.g., the facilitation of skills development for example, includes opening up legal migra- and transfer) hinge on the availability of legal tion opportunities for refugees and migrants - as one of its goals, but efforts launched in its tion is, however, far from simple, given that the migrationpriorities ofopportunities. development Improving and migration coordina actors Niger, Nigeria, and Senegal) have so far centered often diverge. namesquarely in five on borderpartner enforcement countries (Ethiopia, and returns. Mali,25 This focus threatens to undermine longstanding efforts to promote regional mobility in Africa, including the African Union’s goal of establishing III. How Can Development and free movement by 2063 and the free-movement regime of the Economic Community of West Migration Actors Reconcile - Differing Priorities? opment actors have supported.26 With much African States (ECOWAS), both of which devel While there are clear merits to closer collabora- of migration,27 tion between migration and development actors, evidencefocus on strengthening pointing to the borders development with develop benefits- balancing their priorities remains a challenge ment actors’ poverty it can bealleviation difficult agenda.to reconcile the and can stymie cooperation. Successful cooperation requires that migration and development The issue of returns is the major arena in which actors reconcile their goals and approaches to migration-management and development partnership and clarify ownership of initiatives. policymakers clash. Returning migrants without legal grounds to stay in a country is part of effective migration management and high on the policy agenda for migration agencies. Rates of A. Goals return from many countries are low, and destination-country governments often see partner- Broadly speaking, development profession- ships with origin countries as a useful avenue als focus on improving conditions in partner for improving them.28 Development agencies, countries—and in some cases, on harnessing the on the other hand, are more likely to emphasize

7 Migration Policy Institute in their work, including through regular oppor- and are aware that large-scale returns to a poor tunities for dialogue between partner govern- thecountry benefits can ofdeprive migration the country for countries of critically of origin ments to encourage shared ownership of these important resources and networks for develop- partnerships. The 2005 Paris Declaration on Aid ment. Returns are a sensitive subject for many partner countries, and pushing them to cooper- principles for effective development aid: owner- ate on such an unpopular issue can introduce Effectiveness,ship by partner for countries, example, alignment set out five of guiding donor tensions into relations at home and abroad, support with national development priorities, undermining cooperation in other areas such as harmonization of donor efforts to avoid duplica- development. This can prove counterproductive tion, a focus on development results and how even for migration purposes. For example, Mali they are measured, and mutual accountability blocked efforts by France to return its nationals for these results.31 after domestic political opposition to cooperation on returns gained momentum.29 Efforts to balance partner countries’ goals and pursue shared objectives are less advanced in The formidable challenge of addressing these issues, coupled with political pressure in desti- a reputation for being focused on destination- nation countries to quickly and effectively curb thecountry migration objectives, field. withMigration origin partnerships and transit coun have- irregular migration, often leads to migration tries expected to comply with their terms to se- partnerships with a heavy enforcement focus.30 32 As the Swiss Agency for Development and Cooperation noted in the inherent to policies and programming related curestrategic financial framework assistance. for its Global Program on It is important to understand the tradeoffs Migration and Development, “the high political becomes too one-sided, a partner country may sensitivity around migration in Switzerland and towalk border away security from the and relationship, returns. If ora partnership enter an other countries increases the risk for develop- agreement with little intention of implementing ment aid to face instrumentalization and related it. Migration and development actors thus need calls for ‘conditionality mechanisms’.”33 The ten- to be clear about the goals of their cooperation dency to use development aid to serve migra- and ensure that their work with migrants’ coun- tion aims, and to make such assistance condi- tries of origin remains focused on improving tional on the compliance of recipient countries, conditions in those countries. is behind suggestions that EU policymakers apply the European Neighborhood Policy “more for more” principle—which rewards countries that make progress on agreed goals with more B. Approach assistance and closer partnerships—to migration issues, from antismuggling efforts to border Another practical issue is the different ap- management and returns. But the implication proaches migration and development actors is that countries that do not cooperate may take to forming and managing partnerships have their development support frozen or even with other countries. This includes how the reduced—a “less for less” response called for terms of cooperation are set, the subsequent by some Austrian policymakers, for example— management of the relationship, and the meth- which risks further destabilizing fragile states.34 ods used to encourage their cooperation. Attaching such conditions to development assistance included in migration partnerships often By virtue of funding migration and development works against core development objectives. partnerships, it is easy for donor governments to take the reins when setting the terms for While differences of approach can sometimes cooperation. This can result in deeply asym- prove instructive, as when development agen- metrical partnerships. Development agencies cies provide insight into how to build robust have sought to mitigate this power asymmetry relationships with origin and transit countries

8 Mind the Gap: Bringing Migration into Development Partnerships and Vice Versa Policy Brief

based on shared priorities, they often hinder tor actors on investments in education and vo- cooperation between development-cooperation cational training, the creation of jobs in priority agencies and migration-management agencies.35 sectors or industries, and support for entrepre- neurship. But moving the needle on economic approaches to relationship building, migra- growth requires massive and sustained invest- Intion addition and development to divergent policymakers underlying goals often and have ments coupled with efforts to address structural different expectations about the timeframe in issues, such as weak governance, trade barriers, which results are expected. While development and poor infrastructure. The scale of the chal- interventions are planned over a multi-year lenge is far beyond the capacity of any agency to basis, migration agreements are usually ex- resolve on its own. pected to produce swift reductions in irregular migration or improvement in the return of failed As migration-management actors turn their at- asylum seekers, for example. This disconnect tention to creating alternative livelihood options may mean that migration policymakers, in a for would-be migrants, this presents develop- push to achieve short-term aims, adopt more ment actors with opportunities to expand their hardline tactics (such as negative conditionality) that may be anathema to development actors. of additional funding from donor governments Successful cooperation thus hinges on agreeing work in two ways. The first comes in the form to a coherent strategy and clear expectations support of economic development projects in that recognize and seek to balance the divergent andkey origininternational or transit financial countries institutions, (such as thoseoften in the Middle East and Northern Africa, and in the Northern Triangle of Central America).36 The instincts of these two fields. second opportunity comes from the growing engagement of other areas of government (such IV. Where Can Cooperation as trade and foreign policy) and the private sector on development issues, which points to a Add Value? chance to address barriers to economic growth more systematically. The European Consensus With these challenges in mind, it is possible on Development, for example, acknowledged to identify several areas where migration- that addressing the root causes of migration will management and development actors share require a multifaceted approach that includes common priorities and where working together improving investment, trade, and innovation could add value for both parties. This includes conditions in partner countries.37 interventions in origin or transit countries to (1) address barriers to economic growth; (2) build These shifts in migration and development resilience; (3) promote better reintegration out- policy priorities have prompted donors to revis- comes; and (4) facilitate skilled migration. it—and step up—their investments in priority countries, including by:

Improving investment conditions A. Addressing Barriers to Economic in priority countries. Engaging the Growth private sector and encouraging investment in developing countries is crucial Barriers to economic growth and a dearth of to economic growth, but investors are economic opportunities in partner countries often reluctant to enter risky markets. represent an area of shared interest because The growing engagement of donor gov- such conditions both hinder development and ernments provides new opportunities drive emigration. Development actors have to support private investment by mitigating some of the risks (through guar- with government, civil-society, and private-sec- antees or insurance, for example) and extensive experience in this field, collaborating 9 Migration Policy Institute by improving investment conditions. tions on migration issues provides an opportunity to address this. The to the 2015–16 European migration new Global Concessional Financing Onecrisis European was the launch Commission of the Externalresponse Facility established by the World Bank, the United Nations, and the the European Fund for Sustainable InvestmentDevelopment. Plan, With which an initial introduced budget concessional financing to middle- of 3.35 billion euros, the fund aims Islamicincome Developmentcountries (such Bank as Jordan offers and to encourage private-sector invest- Lebanon) that host large numbers of ment in African countries and other refugees. Although limited to refugee- states neighboring Europe by offering hosting countries, the facility offers guaranteed funding from interna- much-needed medium-to-long-term tional financial institutions (e.g., support for infrastructure projects development banks) to governments and efforts to improve the delivery and private-sector actors for develop- of public services, which can help ad- ment projects.38 dress structural barriers to economic growth.41 It also manages the Neighborhoodoffer blended finance Investment for public Facility and Improving trade conditions in andprivate Africa projects. Investment Meanwhile, Facility, in whichJuly priority countries. The increased 2017, the G20 launched its Compact engagement of destination govern- for Africa, which aims to form investments may also make it possible to ment compacts between African address trade barriers between desti- countries, G20 countries, and internation and origin or transit coun- national financial institutions. These tries—barriers to economic growth investment compacts—initially, to be that are beyond the purview of development agencies alone. Devel- Ghana, Morocco, Rwanda, Senegal, opment actors have provided support formedand Tunisia—assess with Côte d’Ivoire, systemic Ethiopia, bar- for economic integration, for example riers to private investment (e.g., by offering technical assistance dur- regulatory constraints), then design ing the rollout of Regional Economic and implement a reform program to Communities. BMZ’s support for address these issues.39 42 To bolster such efforts, migration-management Boosting access to concessional ECOWASactors can is lend one theirexample. expertise on financing for middle-income visa liberalization and facilitating countries. Middle-income countries the mobility of professionals, for can struggle to access affordable example. And as migration becomes financing for large infrastructure a political priority for destination projects or other investments in their governments and other agencies economies. This gap was particularly engage with these issues, this could apparent in Jordan and Lebanon, provide greater impetus for address- as they struggled to access financing a wider range of barriers to trade, ing that would allow them to scale including those within countries, up infrastructure and extend ser- between neighboring countries, and vices to their rapidly growing Syrian between developing and developed refugee populations.40 The growing countries or regional blocs (such as engagement of donor governments the European Union). and international financial institu-

10 Mind the Gap: Bringing Migration into Development Partnerships and Vice Versa Policy Brief

B. Building Resilience in Origin and Transit for government, civil-society, and nongovern- Countries mental organizations) is linked to lower levels of migration, particularly among people with lower Another area where development and migra- levels of education.45 This suggests an area for tion-management actors could work produc- possible collaboration between development tively together is in strengthening the resilience actors, whose experience supporting better of origin and transit countries. Essentially, this is governance initiatives dates back to the 1980s, and migration-management actors, who can withstand stresses that can range from natural bring new perspectives on institution-building crisis-proofing: helping communities prepare to and managing institutions. The growing engage- political instability, and economic turmoil.43 The ment of other government departments, such disastersaims of resilience-building to manmade crises efforts such asthus conflict, run the as foreign affairs and trade, on migration issues also offers new insights into the national and resolution to improving governance—efforts international political factors behind weak gov- gamutthat both from serve increasing development food security goals and to mayconflict ernance as well as the necessary reforms.46 reduce incentives for irregular migration. Development actors can also put their gover- Cooperation between development and mi- nance expertise to work helping developing gration-management actors can add value in countries build capacity to manage their own several ways. As migration becomes a growing migration policies, in furtherance of SDG 10.7. political priority, donor governments are allocat- This includes efforts to support national actors ing more money to efforts to promote resilience in developing migration policies, strengthen- in key origin and transit countries.44 And while ing migration-management institutions, and development actors have extensive experience encouraging international cooperation on designing and implementing resilience-building projects, migration-management actors bring new perspectives to these efforts. They may, for migration-related issues. One example is the example, bring to bear new approaches to man- Khartoum Process, which brings together EU- aging institutions or developing high-quality policymakersing and smuggling, and government including through officials better from early warning systems that can help agencies themigration Horn of management. Africa to address This humanincludes traffick efforts to prepare and mobilize resources for emerging crises. Migration agencies and other govern- and policies, to improve information-sharing, develop or strengthen antitrafficking legislation the focus of development projects can also help Development agencies have played a key role in mentcoordinate offices investments working on in issues resilience that are with not more often andfunding to bolster and implementing protections for these trafficked efforts. people.47 More forward-looking thinking on topics such as the general development cooperation to strengthen future of work and the implications for regional public administration, internal policy coherence, and global labor markets. and policy development can also pay dividends in more effective planning, negotiation, and Efforts to improve governance are one example implementation of migration partnerships. This kind of capacity building is a crucial part of from increased cooperation between devel- helping origin or transit countries participate in ofopment resilience-building and migration-management projects that could actors. benefit migration partnerships on more equal footing, Effective governance is key to maximizing the - impact of other interventions, such as economic tions under international law. assistance. What’s more, the symptoms of poor as well as enabling them to fulfill their obliga governance—such as corruption, inadequate infrastructure, limited public services, and inef- fective economic management—can contrib- C. Investing in Reintegration Services ute to migrants’ decisions to leave in search of As migration-management actors step up their efforts to return unauthorized migrants, devel- opportunities elsewhere. One 2017 study found 11 that governance aid (defined broadly as support Migration Policy Institute opment actors can provide crucial expertise on D. Facilitating Skilled Migration how to help returnees reintegrate effectively— and in doing so, provide much-needed support While efforts to slow irregular migration have for overburdened communities in countries been the primary focus following the 2015–16 of origin. While returns themselves are gener- migration crisis, another area where develop- ally the responsibility of interior and/or justice ment and migration-management actors could ministries, some development agencies have cooperate to add value is in facilitating skilled experience running reintegration services for migration as a tool for economic growth. As returnees. many destination-country governments grap- ple with ageing populations and reduced tax contributions, with their implications for the losing important remittances, the challenge of workforce and public services, migration and Inreintegrating addition to returningfear of political migrants backlash into already and of development actors could put forth policies weak labor markets may make countries of that encourage skilled migration in a way that origin wary of cooperating on returns. Currently, the reintegration support offered to returning which migrants, origin countries, and destina- migrants is rudimentary; cash payments and benefits all parties—the so-called triple win49 The in initial job-seeking services, some of the most common forms of support, can only go so far in tion countries all benefit from migration. addressing the challenges returnees face when GIZthe participatinghas piloted several migrants. “triple These win” include, projects for that trying to rejoin a community and labor market aimexample, to benefit working countries with the of origin,German Germany, Federal Emand- they may have left years before. As many des- ployment Agency to recruit and train caregiv- tination countries give high priority to returns, ers from Bosnia-Herzegovina, the Philippines, Serbia, and Tunisia to work in Germany, which is - facing a shortage of such workers.50 developmenting to contribute actors valuable may find reintegration themselves exper in a - difficulttise and position,avoiding jeopardizingwalking a line longstanding between want Migration agencies are the gatekeepers that relationships with the returned migrants’ origin admit migrants to a country, but development countries and communities. actors have a wealth of experience that could help ensure migrants’ skills are transferable and Development actors are well placed to offer - migration actors their expertise on facilitating tion. Development actors have a long history of successful reintegration and minimizing the dis- maximizeworking with the origindevelopment countries benefits on policies of migra that ruption of returns to origin countries. This may allow migrants to build skills and put them to involve administering reintegration services use as they move across borders (see Box 2). directly or advising migration agencies on how These policies fall into several categories:51 (1) to link up the initial assistance they provide to those that help migrants develop high-quality longer-term employment and education ser- and portable skills in countries of origin; (2) - those that improve the recognition of migrants’ ment and migration work in this area is the Ger- skills and experience in destination countries; vices. One example of this linking-up of develop (3) those that help returning migrants rejoin the origin-country labor market; and (4) those that man Returning to New Opportunities initiative, encourage diasporas to share their skills and whichto offer expands similar serviceson existing to thoseGIZ/BMZ returning work withto expertise with their countries of origin. But if return migrants in Albania, Kosovo, and Serbia- there are few legal migration opportunities for ria, Senegal, and Tunisia. The initiative provides professionals from developing countries, these Afghanistan,migrants with Egypt, information Ghana, onIraq, services Morocco, that Nige can efforts to encourage the acquisition and transfer support their reintegration, is opening migrant counselling centers, and is increasing funding of skills can be difficult to sustain. projects in these countries.48 12for GIZ-run vocational training and employment Mind the Gap: Bringing Migration into Development Partnerships and Vice Versa Policy Brief

Box 2. Global Skill Partnerships

One idea that is gaining traction in discussions of how skilled mobility can further development aims is the creation of Global Skill Partnerships. Described by Michael Clemens of the Center for Global Development, such partnerships are bilateral agreements that equip workers in developing countries for skilled jobs at home or in destination countries. Training costs are much lower in sending countries, and by supporting training institutions that have migrant and nonmigrant tracks, donor countries can help create a pool of workers to fill labor-market gaps in both countries. Such efforts can also help to circumvent problems of accreditation by ensuring that training is compatible with destination-country standards and qualifications. For example, the Australia-Pacific Technical Col- lege offers Australian vocational qualifications through a number of training institutions in the Pacific Islands as part of its dual remit to build skills and encourage migration to Australia.

Design questions remain, however. This includes how costs should be divided between governments, employers, and the migrants and nonmigrants who receive training; what incentives should be used to encourage participation; how origin- and destination-country training standards can be reconciled to satisfy training institutions and employers in both countries; and how to address other prerequi- sites to practicing in a particular field (such as host-country language proficiency and work experience). The limited experience with skills partnerships to date has been somewhat disappointing, in some cases because of linguistic and cultural barriers to labor-market integration and in others because most graduates chose not to migrate—hobbling one leg of triple-win programs. While this model offers clear development benefits, encouraging mobility appears to be more of a challenge.

Sources: Kate Hooper, The Development Benefits of Skills Partnerships and Skilled Migration (Washington, DC: Migration Policy Institute, forthcoming); Richard Johanson, Richard Curtain, Peter Moock, and Virginia Simmons, Independent Review of the Australia-Pacific Technical College (Canberra: Australian Government, Departnent of Foreign Affairs and Trade, 2014), http://dfat.gov.au/about-us/publications/Documents/aptc-independent-review. pdf; Michael Clemens, “Global Skill Partnerships: A Proposal for Technical Training in a Mobile World” (brief, Center for Global Development, Washington, DC, October 11, 2017), www.cgdev.org/publication/global-skill- partnerships-proposal-technical-training-in-mobile-world-brief.

The question of how to facilitate skilled migration and promote effective skills transfers is example is the Porsche Training and Recruit- only going to become more relevant as the professionalment Center credentialsAsia in Manila, or certifications. which trains youngOne international migrant population grows and Filipinos to work as service or bodywork destination countries look to migration to technicians for Porsche, Volkswagen, or Audi in address labor shortages. Some of the most suc- the Middle East.52 As demographic and migra- cessful projects have brought together a wide tion trends turn destination-country govern- array of actors in terms of destination-origin ments’ attention to such issues, policymakers cooperation and working across policy portfoli- can learn from the work development agencies os, as well as incorporating employers, educa- have done on skills transferability, welcome the tional institutions, and civil-society actors into involvement of other government and nongov- discussions. Employers have played a particu- ernment actors, and, crucially, link these efforts larly central role in some promising efforts in to legal migration opportunities. this field, such as those that offer transferable

13 Migration Policy Institute As migration rises to the top of the policy V. Conclusion agenda for destination-country governments, development actors will gain new resources and Migration crises in Europe, the Americas, and opportunities but also new expectations about elsewhere have spurred renewed interest the ability of development cooperation to reduce among destination-country governments in ways to incorporate migration into development and development actors are well coordinated, work and vice versa. Migration partnerships are migrationthis infusion pressures. of resources If the and efforts political of migration sup- growing in scope and ambition, bringing in more port could bolster efforts to address barriers to resources and adopting a more comprehen- economic growth, build the resilience of origin sive approach that includes both enforcement countries, invest in reintegration services, and measures and efforts to address the root causes facilitate skilled migration. of migration through targeted development interventions. Meanwhile, development actors Yet even if concerted efforts are made to recon- are placing a greater emphasis on migration in cile the mandates, priorities, and objectives of their work, both in terms of their thematic pro- migration and development actors, some ten- initiatives. for migration policy need to have realistic expec- gramming and their country- or region-specific sionstations are of likelywhat todevelopment persist. Officials interventions responsible can Coordinating the divergent goals and approach- accomplish in the short term and resist the urge es of migration and development actors remains to look to development as a “cure” for migration. For their part, development policymakers need so. Greater coordination allows governments to to maintain the integrity of development strate- arealize challenge, economies but there of scale, are clear maximize benefits the to impact doing gies while identifying the goals they share with of their investments, and bring together experts migration policymakers. This could produce a on these issues. Such coordination might, for ex- new kind of triple win—for migration manage- - ment, development cooperation, and people on tise about conditions on the ground and ideas the move. ample,about how benefit to construct from development equitable partnershipsactors’ exper around the principles of ownership and trust, and from migration actors’ experience building effective migration-management institutions.

Coordinating the divergent goals and approaches of migration and development actors remains a challenge, but there are clear benefits to doing so.

14 Mind the Gap: Bringing Migration into Development Partnerships and Vice Versa Policy Brief

Endnotes 1 - www.bundeskanzlerin.de/Content/EN/ Reden/2015/2015-10-07-merkel-ep_en.htmlOffice of the German Federal Chancellor, “Statement. by Federal Chancellor Angela Merkel to the Euro pean Parliament” (statement, Strasbourg, October 7, 2015), 2 European Commission, “EU Emergency Trust Fund for Africa” (factsheet, May 7, 2018), https://ec.europa.eu/ trustfundforafrica/sites/euetfa/files/eu_emergency_trust_fund_for_africa_07-05-2018.pdf. 3 Presidents of El Salvador, Guatemala, and Honduras, and the Vice President of the United States of America inThe Relation White House,to the PlanOffice of of the the Alliance Press Secretary, for Prosperity “The inBlair the House North Communique:Triangle” (statement, Joint Communique February 24, of 2016), the https://obamawhitehouse.archives.gov/the-press-office/2016/02/25/blair-house-communique-joint-communique-presidents-el-salvador-guatemala. 4 - sure Security in Central America,” Miami Herald, June 15, 2017, www.miamiherald.com/opinion/op-ed/ar- ticle156273314.htmlRex Tillerson, John F. .Kelly, and Luis Alberto Moreno, “Exclusive: White House Building Prosperity to En 5 United Nations, “Sustainable Development Goals: Goal 10,” accessed May 17, 2018, https://sustainabledevelopment.un.org/sdg10. 6 2015, https://sustainabledevelopment.un.org/post2015/transformingourworld. United Nations, “Transforming Our World: The 2030 Agenda for Sustainable Development,” September 25, 7 (joint statement by the Council and the representatives of the governments of the Member States meet- ingEuropean within Commission,the Council, the “The European New European Parliament, Consensus and the on European Development: Commission, ‘Our World, Brussels, Our Dignity, June 26, Our 2017), Future’” https://ec.europa.eu/europeaid/sites/devco/files/european-consensus-on-development-final-20170626_ en.pdf. 8 European Commission, “European Commission Recommends Draft Negotiating Directives for a Modernized Partnership with Countries of Africa, the Caribbean, and the Pacific” (press release, Brussels, December 12, 2017), . 9 Making Waves: Implications of the Irregular Mi- http://europa.eu/rapid/press-release_MEMO-17-5225_en.htm gration and Refugee Situation on Official Development Assistance Spending and Practices in Europe (Stockholm: ExpertgruppenFor a detailed discussion, för biståndsanalys, see Anna 2017),Knoll and http://ecdpm.org/wp-content/uploads/ECDPM-EBA-Making- Andrew Sheriff, . 10 For a full discussion of how development policies can shape migration patterns, see Susan Fratzke with Waves-Migration-Refugee-ODA-Europe-2017.pdf Brian Salant, Moving Beyond “Root Causes”: The Complicated Relationship between Development and Migra- tion www.migrationpolicy.org/research/moving-beyond-root-causes-complicated-relationship-between-development-and-migration. (Washington, DC: Migration Policy Institute, 2018), 11 Where violent conflict or criminality are major causes of migration, security actors may also play a major role. For example, the fiscal year 2016 commitment of USD 750 million to the Alliance for Prosperity was accom-

U.S. Foreign Assistance to Latinpanied America by USD and 349 the million Caribbean: in support Recent for Trends the Central and FY2016 American Appropriations Regional Security (Washington, Initiative. DC: See Congressional the White ResearchHouse, Office Service, of the 2016), Press 10, Secretary, https://fas.org/sgp/crs/row/R44113.pdf “The Blair House Communique”; Peter. J. Meyer, 12 Report on International Coop- erationThese agencies on Migration co-chair (IMZ the Report) Committee (Bern: of Swiss the Interdepartmental Federal Department Working of Foreign Group Affairs, on International 2011), www.eda.admin. Cooperation ch/dam/eda/en/documents/aussenpolitik/menschenrechte-menschliche-sicherheit/bericht-internationale-on Migration (IMZ Committee). See Swiss Federal Department of Foreign Affairs, migrationszusammenarbeit_en.pdf.

15 Migration Policy Institute 13 The other four are regular migration, protection, irregular migration and trafficking, and global governance of migration. See Swiss Agency for Development and Cooperation (SDC), Strategic Framework 2013-2017: Global Programme Migration and Development (Bern: SDC, 2013), www.eda.admin.ch/dam/deza/en/documents/ themen/migration/strategic-framework-migration-2013-2017_EN.pdf. 14 Building Partnerships to Respond to the Next Decade’s Migration Challenges www.migrationpolicy.org/research/building- partnerships-respond-next-decades-migration-challengesDemetrios G. Papademetriou and Kate Hooper, . (Washington, DC: Migration Policy Institute, 2017), 15 Engagement of civil society can be quite fitful. The Trust Funds and Facility for Refugees introduced in response to the 2015–16 migration crisis were designed to pool and distribute money more quickly, but they sidestep the procurement process (through which civil-society actors can apply to deliver services) and instead rely on implementing partners they are already familiar with (such as national development agencies, UN agencies and other international organizations, and large, well-established nongovernmental organizations). 16 Government of Netherlands, “Addressing Root Causes Fund” (announcement, Amsterdam, January 15, 2016), www.government.nl/binaries/government/documents/publications/2016/01/15/addressing-root-causes-fund/announcement-addressing-root-causes-fund-english.pdf OECD Development Co-operation Peer Reviews: The Netherlands 2017 - lishing, 2017), www.oecd.org/netherlands/oecd-development-co-operation-peer-reviews-the-netherlands-; Organization for Economic Cooperation and 2017-9789264278363-en.htmDevelopment (OECD), Making Waves, 200–01. (Paris: OECD Pub 17 Making Waves, 176. ; Knoll and Sheriff, 18 www.usaid.gov/el- Knoll and Sheriff, salvador/our-work 2017,U.S. Agency www.usaid.gov/honduras/cdcs for International Development. (USAID), “Our Work,” updated January 2, 2018, ; USAID, “Country Development Cooperation Strategy: Honduras,” updated November 20, 19 German Federal Ministry for Economic Cooperation and Development (BMZ), “Tackling the Root Causes of Displacement, Stabilising Host Regions, Supporting Refugees,” accessed December 5, 2017, www.bmz.de/en/ issues/Sonderinitiative-Fluchtursachen-bekaempfen-Fluechtlinge-reintegrieren/deutsche_politik/index.html; Making Waves, 146–50. 20 Knoll and Sheriff, Abroad: Project Triple Win Serves as Success Model” (press release, Nuremberg, July 31, 2017), www.arbeitsagentur.de/en/press/en-2017-17-specialists-for-germanyGerman Federal Employment Agency, “Specialists for Germany: BA and. GIZ Gain the 1,000th Carer from 21 See, for example, Global Migration Group, Mainstreaming Migration into Development Planning: A Handbook for Policymakers and Practitioners www.globalmi- grationgroup.org/system/files/uploads/UNCT_Corner/theme7/mainstreamingmigration.pdf. (Geneva: International Organization for Migration, 2010), 22 Diasporas: New Partners in Global Development Policy (Washington, DC: Migration www.migrationpolicy.org/research/diasporas-new-partners-global-development-policySee Kathleen Newland,. ed., Policy Institute and USAID, 2010), 23 Welcome to Work? Legal Migration pathways for Low-Skilled Work- ers www.migrationpolicy.org/research/welcome-work- legal-migration-pathways-low-skilled-workersSee Kathleen Newland and Andrea Riester, . (Washington, DC: Migration Policy Institute, 2018), 24 World Bank, People Move, May 14, 2015, http://blogs.worldbank.org/peoplemove/will-nationalization-policies-saudi-arabia-impact-migrants-and-remittance-flowsKirsten Schuettler, “Will Nationalization Policies in Saudi Arabia; Muzaffar Impact Chishti, Migrants Jessica and Bolter, Remittance and Sarah Flows?” Pierce, “Tens of Thousands in United States Face Uncertain Future, as Temporary Protected Status Deadlines Loom,” Migration Information Source, December 1, 2017, www.migrationpolicy.org/article/tens-thousands-united- states-face-uncertain-future-temporary-protected-status-deadlines-loom. 25 European Commission, “Migration Partnership Framework: A New Approach to Better Manage Migration” (fact sheet, Brussels, accessed May 17, 2018), https://eeas.europa.eu/sites/eeas/files/factsheet_ec_format_ migration_partnership_framework_update_2.pdf.

16 Mind the Gap: Bringing Migration into Development Partnerships and Vice Versa Policy Brief

For example, the German Agency for International Cooperation (GIZ) currently offers support to the Economic developingCommunity a of Common West African External States Tariff (ECOWAS) and a regional Commission tax policy); in the and areas peace of capacity and security building (e.g., (e.g., civilian establishing input in a regional monitoring and evaluation system for ECOWAS-implemented projects); trade and customs (e.g., Commission” (fact sheet, Bonn, 2017), www.giz.de/en/downloads/giz2017-en-fact%20sheet-ecowas.pdf. peacekeeping missions and developing early warning systems). See GIZ, “West Africa: Support to the ECOWAS 27 For a discussion of the impact of remittances on poverty, for example, see Dilip Ratha, The Impact of Remit- tances on Economic Growth and Poverty Reduction www. migrationpolicy.org/research/impact-remittances-economic-growth-and-poverty-reduction. (Washington, DC: Migration Policy Institute, 2013), 28 For a discussion, see: Nassim Majidi, From Forced Migration to Forced Returns in Afghanistan: Policy and Pro- gram Considerations www.migrationpolicy.org/research/ forced-migration-forced-returns-afghanistan; Elizabeth Collett and Aliyyah Ahad, EU Migration Partnerships: A Work in Progress (Washington, DC: Migration Policy Institute, 2017),www.migrationpolicy.org/research/ eu-migration-partnerships-work-progress. (Brussels: Migration Policy Institute Europe, 2017), 29 BBC News, “Mali Sends Back Migrants Deported by France,” BBC News, December 30, 2016, www.bbc.co.uk/ news/world-africa-38467244. 30 For example, the European Union’s Mobility Partnerships—which preceded the Migration Partnership Frame- work launched in June 2016—in practice focused on migration management. EU Member States offered few legal migration opportunities (such as visa liberalization or temporary labor migration options), and partici- pating partner countries were required to cooperate on illegal migration and returns. See European Com- mission, “Circular Migration and Mobility Partnerships between the European Union and Third Countries” ; Ag- Improving the(MEMO/07/197, Governance of Brussels, International 16 May Migration 2007), http://europa.eu/rapid/press-release_MEMO-07-197_en.pdf - ton,nieszka DC andWeinar, Gütersloh, “EU Mobility Germany Partnerships: A Model for International Cooperation on Migration?” in , eds. Migration Policy Institute and Bertelsmann Stiftung (Washing 31 www.oecd.org/dac/effective- : Migration Policy Institute Bertelsmann Stiftung, 2011). ness/parisdeclarationandaccraagendaforaction.htm. OECD, “Paris Declaration and Accra Agenda for Action,” accessed May 17, 2018, 32 - gration Cooperation,” in Global Migration Movements: Contributions from International Cooperation on Flight andDemetrios Migration, G. Papademetriou eds. Hans-Joachim and KatePreuss, Hooper, Dirk Messner,“Reconsidering and Christophe the Partnership Beier (Berlin: Approach Springer in International VS, forthcom Mi- ing 2018). 33 SDC, Strategic Framework 2013-2017, 6. 34 Collett and Ahad, EU Migration Partnerships. 35 Reconsidering the Principles of Partnership” (discussion note prepared for the 17th plenary meeting of the See Melanie Axiotis and Peter Bonin, “Migration Partnerships for Sustainable International Cooperation: 36 This includes projects to stimulate job creation in certain industries (e.g., agriculture), improving access to Transatlantic Council on Migration, Migration Policy Institute, February 2–3, Oslo, 2017). microfinancing, and providing education or vocational training to vulnerable populations (e.g., young people, women, pastoralists, migrants, or refugees), particularly in regions with high levels of migration. See Euro- pean Commission, The EU Emergency Trust Fund for Africa: 2016 Annual Report (Brussels: European Commis- sion, 2016), https://ec.europa.eu/europeaid/sites/devco/files/eutf_2016_annual_report_final_en.pdf. 37 European Commission, “The New European Consensus on Development.” 38 sheet, Strasbourg, September 14, 2016), . European Commission, “State of the Union: European External Investment Plan: Questions and Answers” (fact 39 G20, “About the Compact with Africa,” accessed May 17, 2018, www.compactwithafrica.org/content/compac- http://europa.eu/rapid/press-release_MEMO-16-3006_en.htm twithafrica/home/about.html.

17 Migration Policy Institute 40 World Bank, “Concessional Financing Facility Funds Projects to Support Refugees and Host Communities www.worldbank.org/en/news/press- release/2016/07/28/concessional-financing-facility-funds-projects-to-support-refugees. Impacted by the Syrian Crisis” (press release, Beirut, July 28, 2016), 41 Global Concessional Financing Facility, “About Us,” accessed May 17, 2018, http://globalcff.org/about-us/. 42 www.giz.de/en/worldwide/20759.html. GIZ, “Support Programme for the ECOWAS Commission,” accessed May 17, 2018, 43 Daniel F. Runde and Conor M. Savoy, “Resilience: A Critical Framework for Development,” Center for Strategic www.csis.org/analysis/resilience-critical-framework-development. 44 See, for example, the different resilience-building projects funded by the EU Emergency Trust Fund Africa. See and International Studies, June 17, 2014, European Commission, The EU Emergency Trust Fund for Africa: 2016 Annual Report. 45 - - burg,Jonas VA,Gamso March and 3, Farhod 2017), Yuldashev,http://aiddata.org/publications/targeted-foreign-aid-and-international-migration- “Targeted Foreign Aid and International Migration: Is Development Pro is-development-promotion-an-effective-immigration-policymotion an Effective Immigration Policy?” (AidData working .paper 37, College of William and Mary, Williams 46 For a discussion of the evolution of governance support, see Thomas Carothers and Diane de Gramont, Aiding Governance in Developing Countries: Progress Amid Uncertainties (Washington, DC: Carnegie Endowment for http://carnegieendowment.org/files/aiding_governance.pdf. 47 International Peace, 2011), For example, GIZ implements the Khartoum Process’ Better Migration Management Programme, funded by thatthe EU aim Emergency to manage Trust labor Fund migration, for Africa reintegrate and BMZ. returnees, In this region, and improve the European protection Development systems. SeeFund European and the Commission,Development “TheCooperation European Instrument Union Emergency have funded Trust several Fund forother Stability migration-related and Addressing programs, the Root including Causes ofthose

Window – T05 – EUTF – HoA – REG – 09,” accessed May 17, 2018, https://ec.europa.eu/trustfundforafrica/ sites/euetfa/files/rider_t05-eutf-hoa-reg-09_-_better_migration_management_3.pdfIrregular Migration and Displaced Persons in Africa: Action Fiche for the implementation. of the Horn of Africa 48 Programme,” accessed May 17, 2018, www.bmz.de/en/issues/Sonderinitiative-Fluchtursachen-bekaempfen- Fluechtlinge-reintegrieren/deutsche_politik/aktionsfeld_4/index.jspBMZ, “Encouraging People to Return Voluntarily, with Support from the; Global Returning Forum to on New Migration Opportunities and Devel -

Development Policies and Practices Database, August 29, 2017, www.gfmd.org/pfp/ppd/5714. opment (GFMD), “The German Returnees Programme ‘Returning to New Opportunities,’” GFMD Migration and 49 Steffen Angenendt, Jessica Bither, Astrid Ziebarth, Creating a Triple Win through Labor Market Policy?: Lessons from Germany (Washington, DC and Stuttgart: German Marshall Fund of the United States and the Robert Bosch Stiftung, 2015), www.bosch-stiftung.de/sites/default/files/documents/2018-04/MSG_Report_labor_ migration_Germany-Angenendt_Bither_Ziebarth_Jan2015.pdf. 50 www.giz.de/en/worldwide/41533.html. GIZ, “Sustainable Recruitment of Nurses (Triple Win),” accessed June 12, 2018, 51 Reaching a “Fair Deal” on Talent: Emigration, Circulation, and Human Capital in Countries of Origin www.migrationpolicy.org/ research/reaching-fair-deal-talent-emigration-circulation-and-human-capital-countries-originKate Hooper and Madeleine Sumption, . (Washington, DC: Migration Policy Institute, 2016), 52 Volkswagen, “Porsche Launches Educational Training Project for Young People” (news release, Stuttgart and Johannesburg, November 30, 2016), www.volkswagenag.com/en/news/2016/11/Ausbildungsprojekt_ Porsche.html.

18 Mind the Gap: Bringing Migration into Development Partnerships and Vice Versa Policy Brief

About the Authors

Kate Hooper

refugee and immigrantis an Associate integration Policy policies, Analyst andwith economic the Migration migration. Policy Institute (MPI) International Program, where her research areas include forced migration, Previously, Ms. Hooper interned with the Centre for Social Justice, where she pro-

vided research support on UK social policy and deprivation issues, and a political communications firm in Westminster, United Kingdom. -

She holds a master’s degree with honors from the University of Chicago’s Committee on Interna tional Relations, and a bachelor of the arts degree in history from the University of Oxford. She also holds a certificate in international political economy from the London School of Economics.

Kathleen Newland relationship between migration and development, the governance of international is a Senior Fellow and Co-Founder of MPI. Her focus is on the-

migration, and refugee protection. She is also the Founding Director of the Inter - national diaspora Engagement Alliance (IdEA) during its incubation phase at MPI from 2011 to 2013; IdEA was established as a partnership among MPI, the U.S. De partment of State, and U.S. Agency for International Development. She is a Member of the MPI Board of Trustees.

Previously, at the Carnegie Endowment for International Peace, she was a Senior Associate and then Co-Director of the International Migration Policy Program (1994–2001). She sits on the Board of OverseersMigrants and of the Refugees. International She also Rescue is a Chair Committee Emerita and of the the Women’s boards of Commission directors of forUSA Refugee for UNHCR, Women theand Stimson Children. Center, Kids in Need of Defense (KIND), and the Foundation for The Hague Process on

Prior to joining the Migration Program at the Carnegie Endowment in 1994, Ms. Newland worked as an independent consultant for such clients as the UN High Commissioner for Refugees (UNHCR), the

Newland was on the faculty of the London School of Economics. During that time, she also co-found- World Bank, and the office of the Secretary-General of the United Nations. From 1988 to 1992, Ms. awareness of international humanitarian issues. From 1982 to 1988, she worked at the United Na- edtions (with University Lord David in Tokyo Owen) as andSpecial directed Assistant Humanitas, to the Rector. an educational She began trust her dedicatedcareer as ato researcher increasing at

WorldwatchMs. Newland Institute is author in or 1974. editor of nine books, including All at Sea: The Policy Challenges of Rescue, Interception, and Long-Term Response to Maritime Migration Developing a Road Map for Engaging Diasporas in Development: A Handbook for Policymakers and Practitioners in Home and Host Countries (MPI, 2016); Diasporas: New Part- ners in Global Development Policy No Refuge: The Challenge of Internal Displacement (United Nations, 2003); (MPI and and The International State of the Organization World’s Refugees for Migration, (UNHCR, 2012); 1993). She has also written 17 shorter monographs as well as numerous(MPI, 2010); policy papers, articles, and book chapters.

Ms. Newland is a graduate of Harvard University and the Woodrow Wilson School at Princeton Uni- versity. She did additional graduate work at the London School of Economics.

19 Migration Policy Institute Acknowledgments

This publication results from a partnership between the Migration Policy Institute (MPI) and the- Deutschewards the Gesellschaft Global Compact für Internationale for Migration: ZusammenarbeitA Development Perspective,” (GIZ) GmbH, which supported aims toby enrich the German the Federalconversation Ministry around for Economic migration Cooperation and development and Development in the context (BMZ). of the It ongoing is part ofdiscussions the series on“To the Global Compact for Migration.

Theadvice authors of Michelle are grateful Mittelstadt, to GIZ the and research BMZ for assistance their support of Tessa for this Coggio, brief. the The skillful brief benefitted editing of Laurenfrom inputShaw, fromand the MPI layout and GIZ expertise colleagues, of Sara including Staedicke. reviews from Melanie Axiotis and Tina Mahler, the

Cover Design and Layout: Sara Staedicke, MPI

No part of this publication may be reproduced or transmitted in any form by any means, electronic or mechanical, including photocopy, or any information storage and retrieval system, without permission from the Migration Policy Institute. A full-text PDF of this document is available for free download from www.migrationpolicy.org.

Information for reproducing excerpts from this publication can be found at www.migrationpolicy.org/about/copy- right-policy. Inquiries can also be directed to: [email protected].

Suggested citation: Hooper, Kate and Kathleen Newland. 2018. Mind the Gap: Bringing Migration into Development Partnerships and Vice Versa. Washington, DC: Migration Policy Institute.

20 Mind the Gap: Bringing Migration into Development Partnerships and Vice Versa

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