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Cirkulär Migration Och Utveckling, SOU 2010:40 Cirkulär migration och utveckling – kartläggning av cirkulära rörelsemönster och diskussion om hur migrationens utvecklingspotential kan främjas Delbetänkande av Kommittén för cirkulär migration och utveckling Stockholm 2010 SOU 2010:40 SOU och Ds kan köpas från Fritzes kundtjänst. För remissutsändningar av SOU och Ds svarar Fritzes Offentliga Publikationer på uppdrag av Regeringskansliets förvaltningsavdelning. Beställningsadress: Fritzes kundtjänst 106 47 Stockholm Orderfax: 08-598 191 91 Ordertel: 08-598 191 90 E-post: [email protected] Internet: www.fritzes.se Svara på remiss. Hur och varför. Statsrådsberedningen (SB PM 2003:2, reviderad 2009-05-02) – En liten broschyr som underlättar arbetet för den som ska svara på remiss. Broschyren är gratis och kan laddas ner eller beställas på http://www.regeringen.se/remiss Textbearbetning och layout har utförts av Regeringskansliet, FA/kommittéservice Tryckt av Elanders Sverige AB Stockholm 2010 ISBN 978-91-38-23400-6 ISSN 0375-250X Till statsrådet Tobias Billström Den 2 juli 2009 beslutade regeringen om direktiv (dir. 2009:53) som gav en parlamentarisk kommitté i uppdrag att identifiera vilka faktorer som påverkar migranters möjligheter att röra sig mellan Sverige och sina ursprungsländer. I uppdraget ingår även att kart- lägga migranternas rörelsemönster och analysera hur ökad rörlighet kan bidra till utveckling i migranternas ursprungsländer samt ge positiva effekter i Sverige. Kommittén ska även redovisa vilka för- utsättningar som i dag finns för cirkulär migration till och från Sverige. Med utgångspunkt i denna kartläggning och analys ska kommittén föreslå eventuella författningsändringar och andra åtgärder som bidrar till att underlätta cirkulär migration till respek- tive från Sverige i syfte att öka de positiva utvecklingseffekterna av dessa rörelsemönster. En grundläggande utgångspunkt för utred- ningsarbetet ska vara att inom ramen för den reglerade invandr- ingen i största möjliga mån undanröja hinder för ökad rörlighet. Statsrådet Billström förordnade den 2 juli 2009 riksdags- ledamoten Mikaela Valtersson (mp) som ordförande i kommittén. Statsrådet Billström förordade den 6 oktober 2009 riksdagsleda- möterna Mikael Cederbratt (m). Fredrick Federley (c), Anna Kinberg Batra (m), Kalle Larsson (v), Ulf Nilsson (fp), Désirée Pethrus Engström (kd), Maria Stenberg (s) samt Göte Wahlström (s) som ledamöter i kommittén. Genom beslut den 6 oktober 2009 förordnade statsrådet Billström departementssekreterarna Stephen Dippel och Anna Envall, rådgivaren Esse Nilsson, rättssakkunniga Susanna Pohl Söderman, kanslirådet Anna Santesson, ämnesrådet Eva Tobisson, verksamhetschefen Monika Wendleby samt departementssekreteraren Esbjörn Åkesson som experter i kommittén. Genom beslut den 12 mars 2010 entledigades departementssekreteraren Anna Envall från sin expertfunktion i kommittén och vid samma tillfälle förordnades i stället departementssekreteraren Jens Ölander. Den 17 augusti 2009 anställdes departementsrådet Peter Springfeldt som huvudsekreterare i kommittén. Som sekreterare anställdes den 15 oktober 2009 Anna Tillander vars anställning genom beslut den 18 februari 2009 förlängdes. Den 4 januari 2009 anställdes departe- mentssekreteraren Helena Reitberger som sekreterare. Kommittén, som har antagit namnet Kommittén för cirkulär migration och utveckling (CiMU), överlämnar härmed delbe- tänkandet Cirkulär migration och utveckling – Kartläggning av cir- kulära rörelsemönster och diskussion om hur migrationens utveck- lingspotential kan främjas (SOU 2010:40). Delbetänkandet inne- håller framför allt en kartläggning av cirkulär migration och dess koppling till utveckling. I ett avslutande kapitel drar kommittén slutsatser av kartläggningen och visar vilken inriktning det fortsatta arbetet ska ges. Kommittén redovisar ett slutbetänkande i mars år 2011. Stockholm i maj 2010 Mikaela Valtersson Mikael Cederbratt Fredrick Federley Anna Kinberg Batra Kalle Larsson Ulf Nilsson Désirée Pethrus Engström Maria Stenberg Göte Wahlström /Peter Springfeldt Helena Reitberger Anna Tillander Innehåll Begreppsförklaringar .......................................................... 13 Förkortningar..................................................................... 19 Sammanfattning ................................................................ 21 Summary .......................................................................... 33 1 Utgångspunkter och avgränsningar............................... 45 1.1 Utgångspunkter ....................................................................... 45 Migration spelar en viktig roll i ett lands utveckling ............. 45 Migration har alltid funnits och spelar en allt viktigare roll i och med globaliseringen. Detta påverkar alla länder och kräver både ett nationellt och internationellt förhållningssätt .................................... 46 Migration påverkar utvecklingen i såväl ursprungs- som destinationslandet både i direkt och indirekt form .... 46 Reformen med möjlighet till arbetskraftsinvandring till Sverige från länderna utanför EU/EES har givit värdefulla bidrag till den svenska arbetsmarknaden........................................................... 47 Det finns många olika former av cirkulär migration ............. 47 En diaspora påverkar utvecklingen i sitt hemland ................. 47 Invandring är inte lösningen på en åldrande befolkning, men påverkar befolkningens åldersstruktur i positiv riktning.............................................................. 48 1.2 Avgränsningar och förtydliganden ......................................... 48 5 Innehåll SOU 2010:40 Utvecklingen i Sverige och i utvecklingsländer utanför EU/EES .........................................................................48 Svenska medborgare och deras cirkulära migration ...............49 Personer som inte själva har invandrat, men vars föräldrar har invandrat, har i många fall ett starkt engagemang för sina föräldrars födelseland ................49 Kommittén koncentrerar sin kartläggning och analys till migrationsrörelser som inkluderar Sverige..................50 Utstationerade arbetstagare berörs endast i begränsad omfattning.....................................................................50 Några ursprungsländer behandlas mer utförligt och används som exempel i framställningen ......................50 Koncentrationen ligger på laglig invandring...........................50 2 Migration har under lång tid påverkat Sveriges befolkning..................................................................51 2.1 Varför flyttar man till ett annat land? .....................................51 2.2 Sveriges migrationshistoria – från utvandrings-till invandringsland.........................................................................53 2.3 Sveriges befolkning blir allt äldre ............................................57 3 Kartläggning av migration och cirkulär migration i Sverige ......................................................................59 3.1 Vad är cirkulär migration? .......................................................59 Definitioner på cirkulär migration ..........................................61 Kriterierna för cirkulär migration vidgas – utvecklingsdimensionen betonas .................................63 Permanenta eller temporära migranter – vistelsetiden avgör...............................................................................64 Virtuell cirkulär migration.......................................................64 Styrd eller spontan cirkulär migration ....................................65 Från gästarbetare till cirkulär migrant – två exempel.............66 Mer fakta behövs för att förstå den cirkulära migrationen ...................................................................69 Kommitténs syn på cirkulär migration ...................................70 3.2 Hur kan man beskriva cirkulär migration med statistik? ......71 3.3 Befolkningen – basen för cirkulär migration..........................72 6 SOU 2010:40 Innehåll Befolkningen i Sverige – alla är potentiella cirkulärmigranter .......................................................... 72 Utrikes födda – har redan migrerat minst en gång och utgör nu diasporor i Sverige......................................... 73 Cirkulärmigranter i Sverige – vad kännetecknar dem?.......... 75 3.4 En svensk diaspora................................................................... 80 Hur många svenskar finns utomlands? .................................. 80 Hur många migranter finns det utomlands som har bott en period i Sverige?....................................................... 82 3.5 Flyttningen – ett nytt beslut bakom varje flyttning .............. 84 In- och utvandringen till Sverige............................................. 84 Cirkulärmigranters flyttningar in och ut ur Sverige – 850 000 personers berörs.............................................. 85 Flyttrörelser av cirkulärflyttare............................................... 87 Vad säger statistiken om migranter och flyttningar?............. 88 4 Speciella kategorier av migranter i Sverige .................... 89 4.1 Olika anledningar och möjligheter till att vara bosatt i Sverige....................................................................................... 89 4.2 Arbetskraftsinvandrare med tidsbegränsade tillstånd ........... 91 Speciella grupper av arbetstagare enligt de nya reglerna........ 92 Vilka yrken hade de som kom till Sverige?............................. 95 Vilka länder kom arbetskraftsinvandrarna ifrån?..................
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