Gains from international migration: Promoting circular migration

1. Gains from international migration: Promoting circular migration Netherlands Migration Institute,International Conference on Return Migration and Development, 22-23 November 2004, Rotterdam Presentation by Piyasiri WickramasekaraSenior Migration SpecialistInternational Migration Programme (MIGRANT)International Labour Office, Geneva Email: wickramasekara@ilo.org

2. Structure of the presentation • Key messages & ILO perspectives • Terminology • The case for circulation • Checklist of Dos and Donts • Good practices in circular migration

3. ILO Perspectives • Mobility and migration are positive forces in the global economy which can yield benefits to both source and host economies. Migrants are a development resource for source country. • Gains from skilled mobility should be equitably shared between labour-sending and –receiving economies, and pro-active policies are necessary.. • Circulation of skills can be a major policy thrust to avoid adverse impact of skill outflows (brain drain). • GATS Mode 4 has considerable potential for circular flows, but it needs much more support and commitment on the part of receiving countries. • Respect for migrant rights is essential for ensuring and sharing benefits from migration.

4. Terminology • Brain drain, exchange, gain, circulation, exchange, brain waste • Mobility and circulation are better concepts in a context of globalization. Mobility across borders or internationally. • Temporary migration, return migration, and circular migration; no conflict between return and circulation. Return is a subset of circulation • Component of 6 Rs of policy responses to skilled migration • Element of ILO multilateral framework of best practices. • Circulation applies to all workers, but most discussion has been on the skilled group

5. Retention • Described as the best strategy in the long run • High economic growth and creation of opportunties at home (necessary but not sufficient – Canadian brain drain to USA) • Overall conducive environment: research, science and technology policy • Higher educational/research opportunities at home • Political stability, democracy, good governance and respect for human rights • Ability to exploit ICT to tap global opportunities from home base

6. Return migration • Evaluation difficult because no systems exist for monitoring of return or circulation • Overall benefits depend on the type of return and home conditions • Has adverse impact on inflow of remittances • Problems with assisted or special returns: • equity, cost effectiveness and sustainability

7. Case for mobility and circulation • Right to leave a home country and the right to return are fundamental human rights: but no corresponding right of entry. • Greater skills mobility confers mutual benefits to source and host countries. • Access to skills; remittances • Results in greater labour market efficiency and welfare gains. • Migration possibilities serve to promote investment in human capital in source countries. • Helps counter effects of ageing and population decline and maintain social security systems in receiving countries.

8. Case for mobility and circulation- 2 • Return is a static concept while mobility and circulation are better able to capture dynamics of current migration: multilateral movements. Castles- From migrant workers to transnational citizens. • Not all will return; it captures both those who return and those who remain abroad. China & India - brain banks abroad • Circulation implies two way flows of benefits or situation conducive to 2-way flows: continuing remittances (financial & intellectual)

9. Models of circulation • Globalization has made circulation much easier with lower transport and comm. costs. • Internal migration; major example of circular migration; China 100 million workers on the move • Temporary migration on the rise in many regions: Australia, 2001 88900 permanent & 340,200 temprorary visas -Europe; • Asia: Middle-east model; contract labour migration; limited migrant rights • Skill migration models: US H1B, Cultural exchange J visa; German Green card model; UK work and training model • Seasonal worker models; Canada, Europe. • Virtual circulation through exchange of idea, expertise; replenishment of lost skills of one country by third countries: Canada, Australia, New Zealand

10. Circulation • Important because few developing countries can create conditions conducive to return and retention in the short and medium term • Types of circulation of skills: • Transnational entrepreneurs (AnnaLee Saxenian’s research) (parallel Silicon valleys – Bangalore, Bombay, Beijing, Shanghai, Taipei ) • Scientists/ academics networks • South African Network of Skills Abroad; RBD-Thai Reverse Brain Drain project • Service providers (GATS mode 4: movement of natural persons) • Many linkages with the Transnational community options

11. GATS Mode 4: the movement of natural persons • General Agreement on Trade in Services: mode 4: movement of natural persons • Temporary travel for a limited period by workers to perform a specific service abroad in connection with provision of services • Benefits of GATS: analysts predict large global welfare gains from liberalising labour mobility – much more than from trade; developing countries have surplus skills. • Obstacles to GATS – Mode 4 only 6% of all commitments. • Limited commitments by developed countries; immigration barriers; bias towards multinationals and skilled workers • Areas for improvement • Standardising and expanding occupations; • Creation of special immigration category: GATS visa • Diologue between trade and migration experts • Protection of workers who move: ILO has to review the issues.

12. Barriers to mobility and circulation • Immigration laws do not reflect labour market needs – mainly reflect concern on preventing entry from developing countries and curbing irregular migration • Visa regimes which discourage circulation. • Security concerns especially post 9/11 • Limited R & D facilities in source countries • Language and cultural barriers • Limited recognition of qualification across borders • Constraints on acquired rights of social security ands their portability; many contributions not returned to migrants. • Limited progress in economic integration • Limited information: on communities overseas, returnees, investment opportunities.

13. Good practices in promoting brain gain & circulation: Checklist of Do’s

14. Checklist of Don’ts

15. Good practices – some examples • Many of these incorporated under NMI project under Activity 4: exchange and development linkages. • Promotion of business travel under APEC. Business Mobility Group and Business Travel Card • Dual citizenship – why not multiple (transnational)? • Multilaeral frameworks and rules • World Commissionn on the Social Dimention of Globalization; Global Commission on International Migration, GATS, ILO Plan of Action on migrant workers, The Berne Initiative. • Bilateral and multilateral agreements: seasonal worker programmes: Italy Albania labour agreements. • Mtutal recognition of qualification arrangements

16. Elements of good practice- 2 • Policy recognition and institutionalizing migration-development linkages • African Union • Separate Ministries for overseas communities (Senegal and Mali). • Trainee schemes: • UK Training and Work Experience Scheme (TWES). • Migrant trainee schemes – Japan, Korea (in practice not successful) • Flexible practices; Sri Lanka five year leave (no pay) to public servants • Circulation-friendly visa regimes:since 1997, French immigration law; provision for facilitating student returns, family visits. • Information and Networking; databases of TNCs.- many initatives of scientific diasporas; SANSA, Kosen21 Korean science network • Africa: ‘Flight of the flamingos’- movement of R& D workers. Manage mobility: use analogy from the sports field. Prof. football

17. Conclusion • Good practices in return migration & development can feed into the multilateral framwork of good practices of the ILO Plan of Acction on migration (adopted at International Labour Conference 2004) • ILO stands ready to work with you in this important area. ****** Thank You ******