OIM - Assessment of the Mauritian Diaspora Scheme de 2026

ASSESSMENT OF THE MAURITIAN DIASPORA SCHEMEThe opinions expressed in this publication are those of the authors and do not necessarily reflect the views of the International Organization for Migration (IOM). The designations employed and the presentation of material throughout the publication do not imply expression of any opinion whatsoever on the part of IOM concerning the legal status of any country, territory, city or area, or of its authorities, or concerning its frontiers or boundaries. IOM is committed to the principle that humane and orderly migration benefits migrants and society. As an intergovernmental organization, IOM acts with its partners in the international community to: assist in meeting the operational challenges of migration; advance understanding of migration issues; encourage social and economic development through migration; and uphold the human dignity and well-being of migrants.

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Diaspora Scheme. IOM, Port Louis.

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ASSESSMENT OF THE

MAURITIAN DIASPORA SCHEMECONTENTS Acronyms v Executive summary vi

1. Introduction

1

1.1. Background and context 1

2. Assessment scope and methodology

7

2.1. Assessment scope and purpose 7

2.2. Methodology 9

2.3. Limitations of the evaluation methodology 12

3. Key findings

15

3.1. Relevance and cross-cutting themes 15

3.2. Coherence 31

3.3. Efficiency 37

3.4. Effectiveness and impact 40

3.5. Sustainability 53

4. Examples of return programmes from other countries

59

4.1. Organisation for Economic Co-operation and Development study on tax relief programmes 60

4.2. Poland: Tax relief for return and reintegration 61

4.3. Italy: Return schemes 62

4.4. Spain: Return to Spain Plan, subsidies and special taxes 63

4.5. Malaysia: Returning Expert Programme 65

4.6. Cabo Verde: Emigrant investment policies/programmes 66

4.7. Lithuania: Returnee programmes 67

4.8. Portugal: Programa Regressar and other tax relief programmes 68

4.9. Trinidad and Tobago: Tax and duty waivers for returning nationals 70

4.10. Jamaica: Tax and duty waivers and guide for return 70

4.11. China: Talent attraction policies 71

68

4.9. Trinidad and Tobago: Tax and duty waivers for returning nationals 70

4.10. Jamaica: Tax and duty waivers and guide for return 70

4.11. China: Talent attraction policies 71

4.12. Serbia: Tax exemptions for skilled employees 72

5. Recommendations

73 Bibliography 81 iii

ASSESSMENT OF THE MAURITIAN DIASPORA SCHEMELIST OF TABLES

AND TEXT BOXES

Table 1. Organisation for Economic Co-operation and Development – Development Assistance Committee standard criteria and assessment indicators 9 Table 2. List of informants for the assessment 11 Table 3. Current sector of work of surveyed certificate holders 17 Table 4. Levels of agreement or disagreement with the statement “Overall, I am glad that I applied for the Scheme” 22 Table 5. Perceived beneficial impact of the Mauritian Diaspora Scheme 22 Table 6. Incentives utilized by surveyed certificate holders 25 Table 7. Levels of agreement or disagreement with the statement “Overall, the incentives offered are relevant to me, when considering my needs/priorities” 26 Table 8. Levels of agreement or disagreement with the statement “I was able to access the certificate incentives from the applicable governmental agencies/ institutions with ease” 26 Table 9. Features or benefits that would make the Mauritian Diaspora Scheme more appealing to diaspora members 30 Table 10. Intentions to move or return to Mauritius 31 Table 11. Likelihood of participating in the Mauritian Diaspora Scheme if the changes suggested were implemented 31 Table 12. Surveyed certificate holders’ feedback on the application process 38 Table 13. Intentions to move to or return to Mauritius prior to awareness of the Diaspora Certificate Scheme 42 Table 14.

suggested were implemented 31 Table 12. Surveyed certificate holders’ feedback on the application process 38 Table 13. Intentions to move to or return to Mauritius prior to awareness of the Diaspora Certificate Scheme 42 Table 14. Consideration of moving to or returning to Mauritius if the Diaspora Certificate Scheme did not exist 42 Table 15. Extent of influence of the Diaspora Certificate Scheme incentives on decisions to move or return to Mauritius 42 Table 16. Sources of information on the Mauritian Diaspora Scheme 44 Table 17. Professional outcomes of moving to Mauritius 46 Table 18. Local community or industry reception of respondents’ business or professional activities 48 Table 19. Level of agreement or disagreement with the statement “Returning/moving to Mauritius has had a positive impact on my family” 51 Table 20. Main factors influencing the decision to move to or return to Mauritius, aside from the Diaspora Certificate Scheme incentives 52 Table 21. Likelihood of remaining in Mauritius for the foreseeable future 54 Table 22. General channels of information and news about Mauritius and/or the Mauritian diaspora 58 Text box 1. Labour-market and economic studies 19 Text box 2. IOM-led feasibility study to establish a diaspora skills platform for Mauritius 34 iv

ASSESSMENT OF THE MAURITIAN DIASPORA SCHEMEACRONYMS

EDB Economic Development Board FDI foreign direct investment HRDC Human Resource Development Council ICT information and communications technology IFC International Finance Corporation MRA Mauritius Revenue Authority MUR Mauritian rupee MoE Ministry of Education, Tertiary Education, Science and Technology MoFA Ministry of Foreign Affairs, Regional Integration and International Trade MoH Ministry of Health and Wellness MoL Ministry of Labour, Human Resource Development and Training NTF National Training Fund NSDP

MoE Ministry of Education, Tertiary Education, Science and Technology MoFA Ministry of Foreign Affairs, Regional Integration and International Trade MoH Ministry of Health and Wellness MoL Ministry of Labour, Human Resource Development and Training NTF National Training Fund NSDP National Skills Development Programme OECD DAC Organisation for Economic Co-operation and Development, Development Assistance Committee PLN Polish złoty PMO Prime Minister’s Office RSD Serbian dinar SDG Sustainable Development Goal SME small and medium-sized enterprise TTD Trinidad and Tobago dollar UNDP United Nations Development Programme v ASSESSMENT OF THE MAURITIAN DIASPORA SCHEMEEXECUTIVE SUMMARY This assessment report is produced for relevant focal points representing the IOM Mauritius and Seychelles country office and the UNDP Mauritius Programme Team. The report captures key findings and recommendations attained through the assessment of the Mauritian Diaspora Scheme, as part of the IOM–UNDP joint regional programme Promoting Regional Integration through Diaspora Capital (IOM and UNDP, 2024). The assessment covers the full implementation of the Mauritian Diaspora Scheme, specifically taking into account revisions made to the Scheme guidelines and regulations between 2015 and at present. Importantly, the assessment also considers the broader government approach to diaspora engagement, recognizing the Mauritian Diaspora Scheme as one intervention among several complementary initiatives aimed at fostering stronger connections with the Mauritian diaspora. The objective of the assessment of the Mauritian Diaspora Scheme was to analyse the Scheme’s overall relevance, effectiveness, efficiency, coherence, impact and sustainability to produce key findings, lessons learned, good practices and recommendations that can support stakeholders in addressing immediate issues and long-term strategic goals related to the outcomes of the Mauritian Diaspora Scheme. Importantly, the assessment was not designed as a formal evaluation but rather as an opportunity for national authorities to gain insights into the perception of the Scheme among key stakeholders, including national authorities, certificate holders and other diaspora members. The assessment

Mauritian Diaspora Scheme. Importantly, the assessment was not designed as a formal evaluation but rather as an opportunity for national authorities to gain insights into the perception of the Scheme among key stakeholders, including national authorities, certificate holders and other diaspora members. The assessment aims to inform and support the future expansion of the Scheme and the development of other diaspora initiatives, helping to strengthen connections with the Mauritian diaspora and enhance their engagement in national development efforts. To conduct the assessment, the researchers used the OECD DAC standardized criteria for evaluations and assessments. The assessment covered the following criteria: Relevance Assess the extent to which the Scheme objectives and intended results remain valid and pertinent, either as originally planned or as subsequently modified, and in alignment with broader diaspora engagement goals. Coherence Examine the extent to which other interventions (particularly policies) support or undermine the Scheme. This includes both internal coherence and external coherence. Efficiency Analyse how well resources (funds, expertise, time, etc.) have been utilized to undertake activities and convert inputs into outputs. Effectiveness Evaluate the extent to which the Scheme has achieved its objectives and intended results, considering their relative importance. Impact Assess how the Scheme has contributed to changes in diaspora engagement approaches in Mauritius – whether intended or unintended, direct or indirect, positive or negative – and what the Scheme was expected to achieve. Sustainability Evaluate the durability of the Scheme’s results and the continuation of its benefits once external support ceases. vi ASSESSMENT OF THE MAURITIAN DIASPORA SCHEMEOrganized using the OECD DAC criteria, the assessment includes the following key findings. The final sections of this report (see sections 4 and 5) provide a detailed list of case examples of return programming led by other governments, and recommendations derived from the evaluation. RELEVANCE  Key finding 1: Interviewed Government of Mauritius representatives shared that the Scheme design aligns broadly with national priorities for economic development, as outlined in the Government’s strategic plans (i.e. the National Migration and Development Policy, Vision

evaluation. RELEVANCE  Key finding 1: Interviewed Government of Mauritius representatives shared that the Scheme design aligns broadly with national priorities for economic development, as outlined in the Government’s strategic plans (i.e. the National Migration and Development Policy, Vision 2030 and sector‑specific strategies). Although attracting Mauritian diaspora to in-demand sectors outlined in the Scheme has been successful, the researchers found that there is an opportunity to enhance linkages with priority sector development efforts to improve alignment across relevant strategic plans and associated actions.  Key finding 2: Overall, among the diaspora survey respondents, certificate holders and diaspora members not participating in the Mauritian Diaspora Scheme reported a positive perception of the Scheme. The majority of certificate holders said they were glad they applied for the Scheme while diaspora members generally perceived the Scheme as beneficial for them.  Key finding 3: When considering the eligibility criteria under the Scheme, most certificate holders who participated in the survey and interviews did not express any concerns. However, there were key recommendations shared by key informants from the Government of Mauritius and some certificate holders that would improve the relevance of the Scheme criteria, such as reconsidering the minimum salary threshold, the application of Scheme categories and adjusting processes to update the list of roles under the Scheme.  Key finding 4: The incentives under the Scheme were considered beneficial by certificate holders. They emphasized that the incentives allowed them to balance out the trade-off between higher salaries in their previous countries of residence and their reduced salaries in Mauritius. They also shared that the incentives made the costs associated with their move and their cost of living in Mauritius more affordable. Certificate holders nonetheless shared that the incentives could be extended or expanded, to increase their financial capacities to stay in Mauritius and purchase property. However, the suggestions brought forward could result in negative impacts, namely perceptions of fairness towards local populations who do not have access to incentives like extensive tax exemption periods. vii

the incentives could be extended or expanded, to increase their financial capacities to stay in Mauritius and purchase property. However, the suggestions brought forward could result in negative impacts, namely perceptions of fairness towards local populations who do not have access to incentives like extensive tax exemption periods. vii ASSESSMENT OF THE MAURITIAN DIASPORA SCHEME Key finding 5: Certificate holders shared several recommendations that would improve the relevance of the Scheme related to supporting their integration in Mauritius. These recommendations primarily focus on having stronger reintegration-related programming, such as orientation procedures (e.g. sharing information on how to access services like education and health care for their families), and establishing networking opportunities that would support social and professional integration. COHERENCE  Key finding 6: The EDB Diaspora Technical Committee offers a functional structure to lead the review and selection processes for applicants. It is considered well represented, with members from institutions/agencies whose mandates align with the objectives of the Mauritian Diaspora Scheme. The Committee adheres to regulations by formalizing the review and recommendation process, which ensures a systematic approach to the approval of diaspora applications.  Key finding 7: There are clear synergies between diaspora engagement efforts and the work of other national bodies, such as the HRDC and the MoL. Furthermore, the Higher Education Commission has conducted an assessment of labour-market gaps, and the assessment report is being developed. The integration of diaspora expertise into ongoing national skills development programmes (e.g. the NTF or the NSDP) presents additional opportunities to address labour-market gaps beyond those under the scope of the Scheme. To support such efforts, a feasibility assessment should be conducted to determine whether an appropriate platform exists to promote alternative opportunities for diaspora members.  Key finding 8: The Mauritian Diaspora Scheme aligns well with key international frameworks, such as the Global Compact for Safe, Orderly and Regular Migration and the IOM 3Es framework for diaspora

to promote alternative opportunities for diaspora members.  Key finding 8: The Mauritian Diaspora Scheme aligns well with key international frameworks, such as the Global Compact for Safe, Orderly and Regular Migration and the IOM 3Es framework for diaspora engagement (Enable, Engage and Empower). These frameworks underscore the importance of enabling diaspora communities to contribute to sustainable development. Moreover, the Scheme is unique and can offer other governments key learning opportunities in designing and implementing their own diaspora engagement initiatives.  Key finding 9: Efforts to endorse the draft diaspora engagement policy can better equip the Government of Mauritius to address possible fragmentation in the coordination of diaspora-related initiatives across different ministries and national bodies. While the Mauritian Diaspora Scheme provides a framework for highly skilled professionals, there is a need for a more cohesive approach that aligns with broader national development strategies. viii ASSESSMENT OF THE MAURITIAN DIASPORA SCHEMEEFFICIENCY  Key finding 10: The internal management of the Scheme’s application review and related processes across government ministries and departments in Mauritius following approval were considered relatively efficient by key informants from the Government of Mauritius. The vast majority of certificate holders shared similar perceptions of the efficiency of application processes. There were some points of concern raised by certificate holders on communication with the EDB, the usability of the application website and the clarity of application instructions. Regarding appeal processes, certificate holders who were successful in gaining approval shared that there is a need for increased transparency in the reasons for application rejections to support their appeal efforts. Under the appeal process captured in the 2023 iteration of the Scheme, this information is now available to rejected applicants upon request. The majority of respondents who changed their occupations did not report their job changes to the EDB, potentially indicating that these certificate holders were not aware of this requirement, even though this is stated in the Scheme terms and conditions.  Key finding 11:

information is now available to rejected applicants upon request. The majority of respondents who changed their occupations did not report their job changes to the EDB, potentially indicating that these certificate holders were not aware of this requirement, even though this is stated in the Scheme terms and conditions.  Key finding 11: There are monitoring tools and practices to track the uptake and operational components of the Scheme, such as the use of incentives by certificate holders. However, there is an opportunity to expand on evaluation-related data captured on the extent of achievement of the Scheme’s goal to attract diaspora professionals to contribute to Mauritius’ development. EFFECTIVENESS  Key finding 12: Surveyed certificate holders shared that the Scheme played a notable role in promoting their decision to move or return to Mauritius, demonstrating the effectiveness of the Scheme towards the goal of attracting diaspora professionals.  Key finding 13: Surveyed and interviewed certificate holders shared that the incentives provided by the Scheme were effective in influencing their return. Nonetheless, key informants from the Government and certificate holders shared that the Scheme would be more effective in attracting diaspora if the list of sectors and roles were expanded, the Scheme categories allowed individuals to have activities across multiple categories, the salary criteria were reduced and the Scheme were promoted more actively among the diaspora. ix ASSESSMENT OF THE MAURITIAN DIASPORA SCHEMEIMPACT  Key finding 14: Certificate holders had mixed perceptions of the contributions of the Scheme to economic development, yet they acknowledged that it had already contributed economically to an extent through the recruitment of qualified diaspora professionals to address existing labour and skills gaps in Mauritius. Interviewed certificate holders also shared that the design and implementation of the Scheme were not optimized to facilitate skill and knowledge transfer effectively and, subsequently, the development of target sectors. However, it is important to note that the 2023 iteration of the Scheme does not include a requirement for certificate holders to support knowledge or skill transfer as a criterion for

Scheme were not optimized to facilitate skill and knowledge transfer effectively and, subsequently, the development of target sectors. However, it is important to note that the 2023 iteration of the Scheme does not include a requirement for certificate holders to support knowledge or skill transfer as a criterion for the assessment of diaspora applications.  Key finding 15: Professional integration outcomes, as reported by certificate holders, were very positive. Certificate holders indicated that the Scheme allowed them to expand their professional networks, advance their careers and experience professional/business growth. The majority of respondents also perceived that their professional and business activities were well received by the local community. However, almost half of the survey respondents and all interviewed certificate holders shared that they experienced notable professional integration challenges, such as adapting to the work culture in Mauritius, navigating bureaucratic and outdated processes, having their expertise recognized and facing resistance when trying to promote improvements within their fields of expertise.  Key finding 16: Overall, certificate holders shared positive perceptions related to their personal integration and impacts on their quality of life as well as that of their families, such as better work–life balance, living standards and stronger connections with their families and culture. Although there are, of course, several factors that would contribute to these perceptions, such as family reunification, it is important to consider the influential role that the Scheme played in prompting their decisions to return or move to Mauritius. SUSTAINABILITY  Key finding 17: While the Mauritian Diaspora Scheme is seen as having long‑term benefits for its participants, informants expressed important considerations about its adaptability and sustainability, including important financial considerations and support needed for diaspora members’ overall return and reintegration. Additionally, there are opportunities for the Government of Mauritius to design and consider strategies that directly target younger diaspora members and retirees, opportunities that promote networking among certificate holders, periodic assessments of labour-market outcomes for certificate holders, and clearer communication and more accessible information about the Scheme for diaspora members. x

there are opportunities for the Government of Mauritius to design and consider strategies that directly target younger diaspora members and retirees, opportunities that promote networking among certificate holders, periodic assessments of labour-market outcomes for certificate holders, and clearer communication and more accessible information about the Scheme for diaspora members. x

ASSESSMENT OF THE MAURITIAN DIASPORA SCHEME1

INTRODUCTION 1.1. BACKGROUND AND CONTEXT This assessment report is produced for relevant focal points representing the IOM Mauritius and Seychelles country office and the UNDP Mauritius Programme Team. The report captures key findings and recommendations attained through the assessment of the Mauritian Diaspora Scheme, as part of the IOM–UNDP joint regional programme Promoting Regional Integration through Diaspora Capital (IOM and UNDP, 2024). The assessment covered the full implementation of the Mauritian Diaspora Scheme, specifically taking into account revisions made to the Scheme guidelines and regulations between 2015 and at present. Importantly, the assessment also evaluates the broader government approach to diaspora engagement, recognizing the Mauritian Diaspora Scheme as one intervention among several complementary initiatives aimed at fostering stronger connections with the Mauritian diaspora. The Government of Mauritius recognizes the valuable role Mauritians in the diaspora play in national development efforts and, therefore, has strategically employed various programmes to foster engagement and collaboration. In line with its commitment to maximizing the potential of the Mauritian diaspora, the Government of Mauritius, for example, adopted the 2018 National Migration and Development Policy. Among others, the Policy aims to maximize the impact of migration on the country’s economic development by harnessing the financial, intellectual, political, cultural and social capital of the diaspora. It provides an institutional framework to coordinate efforts for greater diaspora engagement among the PMO, line ministries, government agencies and partners, including international organizations (IOM, 2021). To achieve the Policy objectives, the Government of Mauritius developed an action plan in 2018, designating specific ministries, government agencies and private-sector organizations to implement various Policy objectives (ibid.). This coordinated approach ensures that all

agencies and partners, including international organizations (IOM, 2021). To achieve the Policy objectives, the Government of Mauritius developed an action plan in 2018, designating specific ministries, government agencies and private-sector organizations to implement various Policy objectives (ibid.). This coordinated approach ensures that all stakeholders are aligned in their efforts to engage migrants, including the diaspora, effectively, leveraging their diverse contributions for the country’s development. Moreover, the Migration Steering Committee, chaired by the PMO, ensures vertical and horizontal coherence on migration‐related policy issues, including diaspora engagement. 1 ASSESSMENT OF THE MAURITIAN DIASPORA SCHEMEAccording to the National Voluntary Review of the Republic of Mauritius Implementation of the Global Compact for Safe, Orderly and Regular Migration (hereinafter the Global Compact) (United Nations Network on Migration, 2021): “The involvement of so many government agencies [in the Diaspora Scheme structure] is a signal to the seriousness of government intentions to attract talent back into the country. This is because the Mauritian diaspora is a precious asset that can contribute positively to the economy and development goals of the country.” Indeed, over the longer term, the Government of Mauritius seeks to develop tailored platforms that effectively cater to the unique needs and aspirations of its diaspora population. These efforts are designed to tap into the expertise, knowledge, skills, capital and resources of the diaspora, particularly those engaged in scholarly, academic, entrepreneurial and research pursuits. By prioritizing education and employment as key focus areas, the Government underscores its commitment to harnessing the potential of its diaspora for national development. As part of these efforts, in 2015, the Government of Mauritius introduced the Mauritian Diaspora Scheme, overseen by the EDB. The Scheme was designed to attract skilled professionals from the Mauritian diaspora to contribute to the country’s economic development. To achieve this, the Scheme provides key benefits and incentives to encourage return among the diaspora, which include tax exemptions, duty-free concessions and permanent residence permits. Within the Scheme, individuals can apply for participation under one of three categories, namely

the Mauritian diaspora to contribute to the country’s economic development. To achieve this, the Scheme provides key benefits and incentives to encourage return among the diaspora, which include tax exemptions, duty-free concessions and permanent residence permits. Within the Scheme, individuals can apply for participation under one of three categories, namely professionals, self-employed (including individuals seeking to launch a business in Mauritius) and young professionals (on 1 April 2023, new regulations promulgated the introduction of this new category, allowing a submission of an application in conjunction with another application that demonstrates the applicant’s classification in one of the other two existing categories (i.e.  professional and self-employed)). Eligible diaspora includes those with a valid Mauritian passport, or the children or grandchildren of a diaspora member with a valid passport. IOM and United Nations Development Programme Since 1951, IOM has been the leading organization working directly with government, intergovernmental and non-governmental actors as well as with migrants to promote safe, humane and regular migration for the benefit of all (IOM, n.d.). More specifically, IOM provides operational support, technical and policy guidance to governments, and direct assistance to migrants, their families and communities. Moreover, IOM actively adopts both whole‑of‑government and whole-of-society approaches across the full spectrum of migration to promote synergy and coherence in migration governance frameworks and management systems (United Nations, 2018). IOM approaches are further rooted in the belief that the human rights of all persons, regardless of migratory status, should be upheld and promoted and that they should be afforded the protection and assistance that they require. 2

1. INTRODUCTIONThe IOM Strategic Plan 2024–2028 outlines the Organization’s commitment to promoting safe, orderly and regular migration in order to contribute to national progress