OIM - Estrategia Institucional de la OIM sobre Migración y Desarrollo Sostenible

IOM INSTITUTIONAL STRATEGY

ON MIGRATION AND SUSTAINABLE DEVELOPMENT 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 the meeting of 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. ____________________________________________ Publisher: International Organization for Migration 17 route des Morillons P.O. Box 17 1211 Geneva 19 Switzerland

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PUB2020/027/L

IOM INSTITUTIONAL STRATEGY

ON MIGRATION AND

SUSTAINABLE DEVELOPMENT

CONTENTS

I. THE OPPORTUNITY 1

II. THE MIGRATION AND SUSTAINABLE

DEVELOPMENT NEXUS 5

III. IOM’S APPROACH 15

IV. HOW WE WILL DELIVER 29

V. LOOKING FORWARD 37

IOM INSTITUTIONAL STRATEGY ON MIGRATION AND SUSTAINABLE DEVELOPMENT E

I. THE OPPORTUNITY Migration is shaping our world at every turn. In an era of deepening globalization, increased digitalization and rapid urbanization, migration touches all States and people more than ever before.

2 IOM INSTITUTIONAL STRATEGY ON MIGRATION AND SUSTAINABLE DEVELOPMENT

I. THE OPPORTUNITY Migration is shaping our world at every turn. In an era of deepening globalization, increased digitalization and rapid urbanization, migration touches all states and people more than ever before.

The inclusion of migration in the 2030 Agenda for Sustainable Development presents a momentous opportunity to assess the impact of migration on a range of development issues and to understand better how development can impact on migration and migrants. The central reference to migration in the 2030 Agenda is target 10.7 under the goal “Reduce inequality in and among countries.” It is a call to “facilitate orderly, safe, regular and responsible migration and mobility of people, including through the implementation of planned and well-managed migration policies.” However, migration and migrants are directly relevant to the implementation of all the Sustainable Development Goals (SDGs) and many of their targets. The SDGs, and the commitment to leave no one behind and to reach the furthest behind, will not be achieved without due consideration of migration.1 As the global discourse on migration and development has advanced, the international architecture in which IOM operates has also changed. IOM’s entry into the UN System in 2016 brought the organization into the United Nations Sustainable Development Group whose mandate is to support the implementation of the 2030 Agenda for Sustainable Development. IOM now has a clear responsibility to articulate its activities and mandate in relation to the 2030 Agenda, to report on its activities to support Member States in achieving the commitments therein and to contribute to the global discussions on migration and sustainable development. The UN Development System (UNDS) reform brings substantial changes to the way the UN operates in-country, but also at regional and global levels, with the

2030 Agenda now positioned as the central and overarching framework guiding the UN’s development activities. In this new context, IOM must harness the opportunity that the reform brings and work in partnership across the UNDS and beyond to maximize the potential of migration to achieve sustainable development outcomes. This includes strengthening the organization’s collaborative muscles so 1 IOM (2018), Migration and the 2030 Agenda: A Guide for Practitioners. IOM INSTITUTIONAL STRATEGY ON MIGRATION AND SUSTAINABLE DEVELOPMENT 3 that it can operate successfully within the enhanced coordination and pooled funding mechanisms that have been put in place through the reform. In addition to the UNDS reform, IOM also has a responsibility to respond to the New Way of Working which aims to enhance humanitarian-development collaboration. Through the articulation of collective humanitarian, development and peace outcomes there is an opportunity to promote comprehensive and coherent responses to address the drivers of vulnerability and to end protracted crisis and displacement. This initiative promotes multi-year programming, joint approaches towards collective outcomes – often articulated as milestones towards national SDG targets – and enhancement of local capacities for improved resilience. Finally, the adoption of the Global Compact for Safe, Orderly and Regular Migration presents a significant opportunity to leverage the positive relationship between migration and development. The Global Compact for Migration is anchored in the 2030 Agenda and serves as a roadmap to help achieve the migration dimensions of the SDGs. As coordinator and secretariat of the UN Network on Migration (UNNM), IOM can use its convening power to ensure that the activities of the UN system maximize the development potential of migration. All these developments are front and centre to IOM’s operations and place significant new responsibilities on the organization. IOM’s Strategic Vision provides the direction of travel to respond to these opportunities and this Migration and Sustainable Development Strategy is one component of this overall approach.

4 I. THE OPPORTUNITY

II. THE MIGRATION

AND SUSTAINABLE DEVELOPMENT NEXUS Migration can be a powerful driver

of sustainable development for migrants and their communities in countries of origin, transit and destination. However, as much as migration has an impact on development, migration is also affected by development.

IOM INSTITUTIONAL STRATEGY ON MIGRATION AND SUSTAINABLE DEVELOPMENT 5

II. THE MIGRATION AND

SUSTAINABLE DEVELOPMENT NEXUS Migration can be a powerful driver of sustainable development for migrants and their communities in countries of origin, transit and destination. However, as much as migration has an impact on development, migration is also affected by development. Development can encourage migration There is an increasing understanding that migration can be an expression of the opportunities provided through human development when occurring in a safe, orderly and regular manner. People may migrate to access better economic, employment and educational opportunities for themselves and their families. In general, economic growth and improved livelihoods both encourage migration aspirations and ease constraints to movement. Increases in personal income make migration more affordable and families are more able to exchange up-front costs for large but delayed income gains from migration. The evidence shows that countries earning USD 8,000–10,000 per capita annually produce three times more emigrants than countries earning USD 2,000 or less.2 Similarly, better quality education can increase both the ability to migrate (as many immigration systems require a base level of education) and the desire to do so, through a broader life outlook and increased aspirations. Increased emigration is also encouraged by the fertility transition. A decline in mortality accompanies growth, with related drops in fertility only coming later. Combined with the economic dimensions mentioned above, developing countries tend to have limited capacities to integrate their young people into the labour market. Other factors that need to be considered include social and transnational networks, trade relationships, global competitions for talents, private sector needs and existing regular migration channels. 2 Clemens, MA and HM Postel (2018), “Deterring Emigration with Foreign Aid: An Overview of Evidence from Low-Income Countries.” Population and Development Review 44:4.

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Migration can be a consequence of development deficiencies and crises Development deficiencies, including a lack of employment opportunities, the marginalization or discrimination of socioeconomic or ethnic groups and inadequate

service provision can have a decisive impact on people’s real and perceived future life prospects in a country or a community and thus lead to a decision to move. These are often connected to underlying structural conditions such as poor governance, acute and chronic poverty, and conflict and insecurity. Migration can also be a consequence of crises, both natural and human-made. The effects of natural-hazard and conflict-induced crises have grown in scale and scope in recent years. Between 2008 and 2015, an average of 25.4 million people per year were displaced by disasters within and across borders, the large majority of which (85%) were climate-related disasters.3 In these situations, mobility often occurs irregularly, but it can also be central to enabling people to save their lives, access basic services and assistance, to enhance livelihood opportunities and/or allow people to preserve or increase available resources and opportunities.4 In the medium to long-term, increased fragility, population growth and greater inequality could result in more populations being forcibly displaced and more people deciding to move in search of better opportunities. There could be a rise in both regular and irregular migration as a growing young population struggle to meet their aspirations at home or in their regions. The South Asia region alone will need to create more than 13 million jobs every year to keep pace with its demographics. In sub-Saharan Africa, despite a smaller population, the challenge will be even greater—15 million jobs will need to be created each year.5 Migration can contribute to positive development outcomes at different levels... With the right enabling conditions, migration can help achieve development outcomes and fulfil the aspirations of those who move and the societies they join, as well as those who stay behind. These dynamics play out and are felt at different levels. Individual and community level effects are most commonly considered. The SDGs and the Global Compact for Migration provide the policy frameworks to coordinate action at all levels – individual, community, national, regional and global – to support prosperity, growth 3 ODI (2016), Climate change, migration and the 2030 Agenda for Sustainable Development.

4 IOM (2016), The Progressive Resolution of Displacement Situations. 5 World Bank (2019), http://blogs.worldbank.org/voices/jobs-challenge-bigger-ever-poorest-countries. 8 II. THE MIGRATION AND SUSTAINABLE DEVELOPMENT NEXUS and opportunities for everyone. This section and the next is structured in a manner which illustrates migration and sustainable development outcomes and challenges at different stages in the migratory journey in order to be able to incorporate different local contextual factors. This is a necessary starting point for designing future interventions. Individual/Micro:6 Migration can be a powerful personal development and poverty reduction strategy for migrants and their families. It can help improve well-being through increased income and consumption and access to better services. It may shape personal and family plans in the area of education, skills, income generation and livelihood opportunities. It can help families in times of crisis by strengthening their ability to cope with natural, economic, political and security risks and shocks. For migrants in situations of vulnerability as may be the case for some women and girls, youth, children and non-accompanied children, migration can be a source of empowerment enabling them to pursue educational or career aspirations. Moreover, migration can lead to improved health and education access and outcomes for migrants and their families. Local/Meso7 at Origin: Migration can make an important contribution to economic development in countries of origin through remittances, investment, trade, and knowledge exchange. These can lead to economic growth, reduced unemployment, and increased wages; remittances and other forms of diaspora finance can also be mobilized to improve infrastructure and services. Moreover, migration can foster innovation in communities of origin through social remittances, skills transfers and return migration. Local/Meso at Destination: Migrants can also have positive development impacts in their destination territories/country. They often fill labour gaps which can lead to higher wages and employment for native workers. Migrants can open new markets and business opportunities linking their countries of destination and of origin. Productivity

and innovation are often positively correlated with a diverse labour force. Local/Meso in Transit: Similar positive effects can be felt in transit countries, if institutional frameworks permit. The presence of migrants – albeit temporary – can bring increased consumption and economic activity, innovation, and cultural contact. Institutional/Macro8 in Destination, Transit and Origin: Migration can alleviate demographic decline, helping countries that have ageing societies and working age 6 The microlevel includes migrants, their families and households. 7 The mesolevel includes services access and uptake, local economic development status, local culture and practices. This is where social change occurs. 8 The macrolevel includes the economy, national policy/ legislation and politics. IOM INSTITUTIONAL STRATEGY ON MIGRATION AND SUSTAINABLE DEVELOPMENT 9 populations that are stagnating or decreasing. Migrants can have positive effects on labour productivity and GDP per head. Migration can also have net positive fiscal benefits. Beyond these economic impacts, migration can also contribute to societal gains, including in poor and fragile contexts. For example, migrants can play a significant role in post-conflict reconstruction and recovery. ...but these benefits are not guaranteed When migration policies or other relevant policies do not consider the needs of migrants or the effects of migration, migrants can be put at risk, communities can come under strain and development gains can be jeopardized. Individual/Micro: Migrants may be unable to fulfil their full potential due to constraints in countries and communities of origin, transit and destination. Major limiting factors include mobility restrictions, lack of access to decent work and basic services, including health and education, and migration-intensified vulnerabilities, including social exclusion. When people are forced to move, whether due to natural or human-made crises, it often occurs irregularly and in a more insecure manner. In these situations, migrants often risk their lives and can be exposed to vulnerability, exploitation and abuse. They may also lose land and property rights. Individuals who migrate to escape crisis or fragile contexts are also far more likely to face destitution upon arrival or in transit,

placing a burden on social welfare resources. Local/Meso at Origin: Without decent work and sustainable livelihoods, migrants are less able to contribute to poverty reduction and prosperity in their home communities which also impacts on human development outcomes. Restrictions on family reunification in countries of destination can also mean that families are left behind. Moreover, irregular or forced mobility will hinder the ability of communities of origin to maximize the benefit from migration undertaken by community members. Local/Meso at Destination: When migrants are unable to access basic services and social protection systems in destination countries their potential to make a positive contribution to society is hampered. Lack of access to the formal labour and housing market can lead to an expansion of informal sectors and dwellings with downward pressures on the local labour market in certain sectors. Migrants working in the informal sector are without protection, leaving them even more vulnerable and easy targets for exploitation and employment malpractices. In the absence of effective integration policies, social dumping along with socialcultural challenges can undermine social cohesion and generate social tensions. Migrants may not be granted equitable access to affordable health care or local health systems may not have adequate capacity 10 II. THE MIGRATION AND SUSTAINABLE DEVELOPMENT NEXUS to meet migrant health needs. Migrants living in cities as a result of displacement can spend years in increasingly protracted situations9 with restricted opportunities for durable solutions, limiting their potential to contribute to society. Vulnerable migrants residing in cities can face similar challenges. A sudden influx of large numbers of persons as a result of displacement can also pose development challenges for host communities. These can range from an increased strain on access to basic services and accommodation to unplanned urban expansion and environmental degradation. Socially, the large influx of populations to an urban area can change the demographic profile of those areas, fuelling ethnic, cultural or racial tensions or those related to the balance of power/voting patterns. Local/Meso in Transit: The anticipated shorter stay of migrants can lead to an increased likelihood of being shut out of the labour market, lack of access to services

and increased social tensions with local communities. Migrant women and girls are often at risk of physical, sexual and psychological abuse or violence along migration routes. Children and babies born along migratory routes can also be particularly vulnerable. Institutional/Macro in Destination, Transit and Origin: Without rule of law, citizenship access, social/economic inclusion, fight against xenophobia and other institutional dimensions, mobile populations and communities run the risk of being marginalized and this can contribute to further poverty traps. A lack of legal channels for migration can lead migrants to engage smugglers, inadvertently contributing to organized crime, feeding corruption and undermining rule of law – all of which are destabilizing factors, especially in already fragile environments. Lack of or limited policy coherence across sectors and between levels of government also inhibits development benefits from being felt. The impact of migration on development is experienced first and foremost at the local level. Yet cities, local and regional authorities remain by and large ill-equipped in terms of capacities and financial resource in a context where migration policies are largely driven by the national level with little coordination with decentralized levels of governance. Moreover, when policy operates in silos key opportunities to reach all potential beneficiaries and maximize migration’s development potential are lost.

The missing link: challenges, complexities and governance frameworks Without evidence-based policies, strong institutional frameworks, clear objectives and a long-term perspective these risks will go unaddressed. But first, we must acknowledge

9 IOM (2016), The Progressive Resolution of Displacement Situations. IOM INSTITUTIONAL STRATEGY ON MIGRATION AND SUSTAINABLE DEVELOPMENT 11 the challenges and complexities that are associated with the migration and sustainable development nexus and recognize that existing governance frameworks do not support maximizing the benefits. In recent years, there has been a tendency for development aid to be increasingly seen as a strategy to reduce migration, through addressing what are believed to be the “root causes” of migration. As shown in various studies, improvements per development

indicators generally lead to an increase in mobility in the short term; although it is recognized that in conflict-affected and fragile contexts, an improvement in security conditions and stability can have immediate impacts on the pressure to leave out of need. Over a longer period of time, with improvements in institutional factors in countries of origin, prospective migrants are more likely to be able to pursue their aspirations at home or make an informed choice and migrate in an orderly and regular manner, rather than opting for migration (often irregular) out of necessity. The extent to which development policies and development assistance influences migration patterns has only recently become the focus of study. Research over the last fifteen years, particularly at the individual and household level, confirms that the relationship between migration and development is far from straightforward.10 It depends on the dynamics between individual migrants, their communities in countries of origin and destination and migration governance. Though migration and development has historically been the entry point for greater international cooperation on migration governance, contact between these two communities has been limited to date. This is due to several factors, including a lack of overlap between mandates as well as diverging timelines. When programming development interventions, migration is rarely considered despite it being understood as a cross-cutting issue. Moreover, many development projects are country focused, while migration is a transboundary issue and by definition involves multiple locations. Additionally, development programming is predominantly financed and implemented per state territory, which means international migrants and migration often do not fit into the traditional development architecture. In the case of migration management programming, similar challenges exist. Traditionally migration management programming has been designed and developed with a focus on the priorities of countries of destination rather than countries of origin. Even in that context, policies and programmes are not always effectively orientated towards enhancing the potential development impacts for the destination country or the migrants that reside there. Migration programming, especially for migration 10 Migration Policy Institute (2018), Moving Beyond Root Causes: The Complicated Relationship between Development and Migration.

12 II. THE MIGRATION AND SUSTAINABLE DEVELOPMENT NEXUS

management and forced displacement, is also often viewed through a short-term lens whereas development outcomes are pursued over the long-term. Both development-focused and migration-specific interventions should be better designed, coordinated and evaluated to maximize the benefits of the nexus. Successful cooperation will require mutually agreed goals and priorities, balancing development and migration objectives as well as realistic expectations about likely outcomes and the expected results timeline.11 Policy coherence between migration and development interventions should be a key lens moving forward. There is also an urgent need to improve the collection and use of migration data to enable policymakers devise evidence-based policies. 11 Hooper, K. and K. Newland (2018), Migration Policy Institute, ‘Mind the Gap: Bringing Migration into Development Partnerships and Vice Versa’.

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III. IOM’S APPROACH IOM’s approach is to maximize the potential of migration to achieve sustainable development outcomes for migrants and societies alike.

This recognizes that migration, when it is well-managed, can be both a development strategy and a development outcome.

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16 IOM INSTITUTIONAL STRATEGY ON MIGRATION AND SUSTAINABLE DEVELOPMENT

III. IOM’S APPROACH IOM’s approach is to maximize the potential of migration to achieve sustainable development outcomes for migrants and societies alike. This recognizes that migration, when it is well-managed, can be both a development strategy and a development outcome. Migration and sustainable development are multidimensional and interdependent. Maximizing the benefits of migration requires a comprehensive approach.

The realization of this will rest on three outcomes that are defined below. These flow from IOM’s Strategic Vision and cut across each of the strategic priorities – resilience, mobility and governance – that have been identified.

1. Human mobility is increasingly a choice. Migration is a natural expression of people’s desire to choose how and where to lead their lives,12 which is a fundamental component of human development. However, in certain circumstances human mobility is not a choice and in this case the gains that are associated with migration are often not distributed equally nor are they guaranteed. This requires addressing the adverse drivers that force people to move out of desperation. It involves building resilience and coping capacities of populations along the mobility path – both prior to travel and at different points along the journey. It also means creating opportunities so that people can move safely and regularly to fulfil their personal aspirations. Tackling the inequalities that compel people to move, but that also provide some, over others, with a greater ability to move is important.

2. Migrants and their families are empowered as development actors.

Migrants can face many barriers to reaching their development potential. These include language and cultural barriers, unfair recruitment processes that pull them

into debt, exploitation or even forced labour, precarious working conditions and limited access to basic services such as health, education and social protection. Migrants, particularly women and girls, can be exposed to multiple, intersecting forms of discrimination, exclusion and exploitation which can impede their ability to contribute to sustainable development outcomes. It is therefore important to ensure respect, protection and fulfilment of the human rights of all migrants across all stages of the migration process, including in times of crisis, so that 12 UNDP (2009), Human Development Report, Overcoming Barriers: Human mobility and development. IOM INSTITUTIONAL STRATEGY ON MIGRATION AND SUSTAINABLE DEVELOPMENT 17 no one is left behind. It requires conducive conditions that enable migrants to fully integrate in society and contribute effectively to their receiving and origin communities. This includes ensuring access to sustainable livelihoods and decent work, with jobs that match qualifications and skills. Being and staying healthy is also a fundamental precondition for migrants to be productive and contribute to the social and economic development of communities of origin and destination.

3. Migration is increasingly well governed. The ability to successfully govern migration depends directly on the political, socioeconomic, developmental and migration governance structures in place at the international, national and subnational level, as well as the stability and security situation in countries. Respect for the rule of law, due process and access to justice are fundamental to all aspects of migration governance. Migration is a transboundary issue that also needs to be understood as a continuum, spanning across countries and policy interventions.

This requires international, regional and bilateral cooperation, recognizing that no State can address migration on its own. The migration-SDG connections reach far beyond implementing migration policies and entail integrating migration across governance sectors. Broad, multi-stakeholder partnerships that include governments, local communities, civil society, the private sector, and migrants themselves are needed to govern migration in all its dimensions. Countries that can govern from a systems perspective, rather than through discrete silos, will be

able to make faster progress on the SDGs. Timely, reliable and comparable data on migration will also help policymakers devise evidence-based policies to address the migration aspects of the SDGs. 18 III. IOM’S APPROACH IOM’s Theory of Change for Migration and Sustainable Development: n t o f the 2030 Agenda f m e or ev e S u st hi ai g the ac rtnership Inequalities D at a a n d en via bl e D e tin Pa d e n v e l por c e o p m p Migration is u Human mobility e S is increasingly T h e p o t e n t i a l o f increasingly n t well governed e a choice migration is g maximized for the n achievement of a h sustainable c e development t outcomes for a g n i mm il c d sm oi cg iera tin et ss a a ln ikd e redneG apaC n c m a r a t n e Migrants and their families d yti g or p ytil am un qor -i v n E are empowered tn e m poleve h gi H Our Approach As per IOM’s Constitution, IOM is mandated to work towards maximizing the positive linkages between migration and economic, social and cultural development. In accordance with national policies and priorities, this Strategy further signals IOM’s commitment to the realization of the Sustainable Development Goals vis-a-vis our Member States and key stakeholders in the UN system and beyond. It will guide the organization’s approach to supporting the implementation of the 2030 Agenda and other relevant multilateral development frameworks such as the Addis Ababa Action Plan, the Paris Climate Change Agreement, the Sendai Framework for Disaster Risk

Reduction, the New Urban Agenda, the SAMOA Pathway and the Global Compact for Safe, Orderly and Regular Migration.

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Our approach supports the logic of IOM’s Migration Governance Framework (MiGOF), the Migration Crisis Operational Framework (MCOF) and other operational frameworks and