COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Maximising the Development Impact of Migration The EU contribution for the UN High-level Dialogue and next steps towards broadening the development-migration nexus
Date: 2013-05-21
Institutions: European Commission
Subjects: EU migration policy, economic growth, human rights, illegal migration, international cooperation, trafficking in human beings

EUROPEAN 
COMMISSION 

Brussels, 21.5.2013  
COM(2013) 292 final 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

Maximising the Development Impact of Migration 

The EU contribution for the UN High-level Dialogue and next steps towards broadening 
the development-migration nexus 

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   EN 

 
 
 
 
 
  
 
 
COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

Maximising the Development Impact of Migration 

The EU contribution for the UN High-level Dialogue and next steps towards broadening 
the development-migration nexus 

1. 

INTRODUCTION 

The  High-level  Dialogue  (HLD)  on  International  Migration  and  Development  in  September 
2006 was the first-ever high-level event organised by the United Nations General Assembly 
devoted exclusively to discussing the multidimensional aspects of international migration and 
development. The second HLD will take place on 3-4 October 2013. 

Migration is increasingly coming into sharp focus on the global agenda and is recognised as a 
powerful vehicle for boosting development in both countries of origin and destination. This is 
illustrated inter alia by the 2012 report of the UN System Task Team on the Post-2015 UN 
Development Agenda, ‘Realizing the Future We Want for All’, which recognises migration as 
a  key  dimension  of  global  population  dynamics  and  an  enabler  for  inclusive  economic  and 
social development. 

The  increased  regional  and  global  mobility  of  persons,  the  structural  changes  in  the  global 
economy,  and  the  current  economic  crisis  generate  new  opportunities  and  challenges  for 
countries of origin, transit and destination. The 2013 HLD provides a unique opportunity to 
work  towards  a  global  agenda  for  effective,  inclusive  migration  governance  and  identify 
measures  that  promote  the  role  of  migrants  as  agents  of  innovation  and  development.  The 
overall theme of the 2013 HLD is ‘Identifying concrete measures to strengthen coherence and 
cooperation at all levels, with a view to enhancing the benefits of international migration for 
migrants  and  countries  alike  and  its  important  links  to  development,  while  reducing  its 
negative implications’1.  

Maximising the positive impact of migration on development is an important policy priority 
for  the  EU,  as  demonstrated  by  its  dual  policy  framework  in  this  area.  Migration  and 
development  is  one  of  the  four  priority  areas  of  the  Global  Approach  to  Migration  and 
Mobility  (GAMM)2,  which  provides  the  overarching  framework  for  the  EU  external 
migration policy. Migration is also a specific priority in the EU Agenda for Change3, which 
outlines the EU development policy framework. The migrant’s perspective is a central feature 
of the GAMM, and enhancing the human rights of migrants is a priority across all EU actions 
on migration and development. 

The purpose of this Communication is twofold. It provides the basis for a common position of 
the  EU  and  its  Member  States  (hereafter  the  EU)  at  the  HLD,  including  key  messages  for 
enhanced global cooperation. Section 2-5 is therefore structured according to the themes that 
will  be  discussed  at  the  four  round  tables  of  the  HLD.  Furthermore,  in  section  6  the 
Communication  proposes  how  the  EU  could  broaden  the  link  between  migration  and 
development in its own policies and practices, and take steps to give systematic attention to 

1  
2  
3  

UN General Assembly Resolution 67/219 of 21 December 2012. 
COM(2011) 743 final: Communication on The Global Approach to Migration and Mobility  
COM(2011)  637  final:  Communication  on  Increasing  the  Impact  of  EU  Development  Policy:  an 
Agenda for Change 

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the role migration and mobility play in the process of sustainable development. This section 
therefore  responds  to  the  Council’s  request  for  a  more  ‘ambitious  and  forward-looking’ 
approach to migration and development at EU level, as formulated in the Council conclusions 
of 29 May 2012 on the GAMM. 

2. 

ROUNDTABLE  1:  ASSESSING  THE  EFFECTS  OF  INTERNATIONAL  MIGRATION  ON 
SUSTAINABLE DEVELOPMENT AND IDENTIFYING RELEVANT PRIORITIES IN VIEW OF 
THE PREPARATION OF THE POST-2015 DEVELOPMENT FRAMEWORK 

2.1. 

The need for a broader view of the link between migration and development 

The discourse on migration and development has traditionally focused on a limited number of 
issues,  including  remittances,  diaspora,  brain  drain  and  circular  migration,  with  priority 
attached  to  migration  towards  OECD  countries,  rather  than  migration  between  low-  and 
middle-income  countries.  Policies  and  their  implementation  in  these  ‘traditional’  areas, 
including at EU level, can still be improved4, but it is necessary to go a step further, as this 
approach is insufficient to address comprehensively all issues at stake. 

All countries in the world are experiencing population movements and this trend is likely to 
accentuate. Of the estimated 214 million international migrants in the world today, most (150 
million)  are  citizens  of  non-OECD  countries.  Most  international  migration  occurs  within 
regions,  mainly  in  the  developing  world.  For  example,  it  is  estimated  that  over  80 %  of  all 
African migrants reside in other African countries. 

Furthermore,  migration  within  developing  countries  is  an  important  yet  often  ignored 
phenomenon, producing opportunities and challenges similar to international migration.  

Beyond the close link with migration, development also fosters and relies on mobility (short-
term visits of business people, workers, students, tourists, people visiting their families, etc.). 
Mobility is an essential element in strengthening the role of urban centres in the global South 
as development hubs and nodes of economic, social and cultural exchange, and contributes to 
the integration of developing economies into regional and global markets. 

Forced migration remains a global challenge. The large majority of the world’s total refugee 
population  of  over  15  million  lives  in  developing  countries,  often  in  protracted  situations, 
which presents significant challenges for host communities. But the presence of refugees and 
other forced migrants can also result in new opportunities and benefits for national and local 
economies through refugees’ human capital, including by providing labour skills and creating 
demand  for  goods  and  services.  Measures  to  harness  the  potential  of  refugees  to  drive 
development  improve  their  self-reliance,  and  thereby  strengthen  the  quality  of  refugees’ 
protection to the benefit of also the host countries. 

Climate change and environmental degradation are already exerting an increasing influence 
on  migration  and  mobility,  with  current  evidence  suggesting  that  in  the  future  most 
movements will occur either within or between developing countries5.  

Migration  and  mobility  have  a  profound  impact  in  both  positive  and  negative  terms  on 
progress towards sustainable economic, social and environmental development of both low- 
and middle-income countries of origin and destination: 

4 

5 

The  Commission  Staff  Working  Document  on  Migration  and  Development  (SEC(2011)  1353  final) 
attached to the Commission Communication on the Global Approach to Migration and Mobility of 18 
November 2011 includes a number of suggestions in this area. 
SWD(2013)  138  final:  Commission  Staff  Working  Document  on  Climate  Change,  Environmental 
Degradation, and Migration 

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• 

• 

For  countries  of  origin,  the  economic  benefits  of  migration  are  well-documented 
and  include  contributions  to  poverty  reduction  through  remittance  transfers  and 
diaspora investment initiatives. Financial, human and social capital from the diaspora 
can  also  directly  contribute  to  meeting  social  development  goals,  including  the 
Millennium  Development  Goals  (MDGs)  on  health  and  education.  Likewise, 
remittances and other migrant contributions can help improve adaptation to adverse 
impacts  of  climate  change  in  communities  of  origin.  Job  opportunities  abroad  can 
also help motivate the young to acquire the appropriate skills. However, the human 
development  implications  are  complex,  as  demonstrated  by  concerns  about  brain 
drain  and  the  negative  social  consequences  of  migration  for  those  left  behind.  For 
example, migration may have a negative impact on health MDGs by contributing to 
brain drain and to the unequal global distribution of health workers.  

For  destination  countries,  well-managed  migration  can  help  bridge  labour  market 
gaps,  provide  labour  to  fuel  structural  economic  transformation,  drive  innovation 
through  migrants’  dynamism,  and  contribute  to  social  security  systems.  Migration 
and mobility may pose challenges for managing urbanisation, but they are also vital 
for  the  functioning  of  cities  as  centres  of  growth.  In  the  absence  of  effective 
governance,  the  costs  of  migration  may  be  significant,  and  can  include  social 
tensions with host populations – often exploited by populist forces – and pressure on 
scarce  resources.  Uncontrolled  migration  may  also  aggravate  security  threats, 
especially in fragile states. 

Migration  is  therefore  both  an  opportunity  and  a  challenge  for  development.  It  has 
undoubtedly  had  a  positive  impact  on  efforts  to  achieve  many  of  the  MDGs.  However,  the 
detrimental  effects  of  poorly-managed  migration  may  also  undermine  progress  towards 
sustainable development. 

2.2.  Migration and the post-2015 development framework 

The  Commission  welcomes  the  growing  interest  in  adding  development  enablers  such  as 
migration  and  mobility  to  the  UN  post-2015  development  agenda6.  It  also  welcomes 
discussion on whether it is possible to develop indicators on the quality of various aspects of 
migration governance. Every effort must be made to ensure that HLD input on these issues is 
relevant for and brought into this broader post-2015 process. 

In  this  context,  discussions  on  population  dynamics  in  the  post-2015  agenda  and  the 
International  Conference  on  Population  and  Demography  Beyond  2014  review  are  good 
opportunities  to  address  the  challenges  and  opportunities  that  migration  and  mobility  create 
for  development,  including  links  with  global  labour  market  developments,  broader 
demographic  trends  in  different  regions  and  population  movements  within  developing 
countries.  

2.3. 

Key messages to the HLD 

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Migration  and  mobility  must  be  recognised  as  ‘enabling  factors’  for  development. 
They should be addressed by development actors at all levels and introduced into the 
post-2015  development  framework.  Promoting  effective  migration  governance  is 
essential to maximise the positive and minimise the negative impacts of migration on 
development. 

The  European  Commission's  position  on  the  post-2015  development  agenda  is  further  elaborated  in 
COM(2013)  92  final:  Communication  on  "A  Decent  Life  For  All:  Ending  Poverty  and  Giving  the 
World a Sustainable Future" 

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• 

• 

3. 

The  development  and  migration  agenda  should  be  broadened7.  The  growing 
importance  of  migratory  flows  within  and  between  developing  countries  should  be 
recognised,  and  their  positive  and  negative  links  with  economic  and  social 
development should be addressed in national and regional development policies. 

The interlinkages between climate change, environmental degradation and migration 
require enhanced consideration, notably within a development context. 

ROUNDTABLE  2:  MEASURES  TO  ENSURE  RESPECT  FOR  AND  PROTECTION  OF  THE 
HUMAN RIGHTS OF ALL MIGRANTS, WITH PARTICULAR REFERENCE TO WOMEN AND 
CHILDREN  AS  WELL  AS  TO  PREVENT  AND  COMBAT  THE  SMUGGLING  OF  MIGRANTS 
AND  TRAFFICKING  IN  PERSONS  AND  TO  ENSURE  ORDERLY,  REGULAR  AND  SAFE 
MIGRATION 

3.1. 

Human rights of all migrants 

Respect for the rights of migrants and refugees is a key component of EU policies. The EU 
has advanced policies on protecting migrants’ rights. In the last decade, the EU has adopted a 
series of directives aimed at ensuring equal treatment in areas such as employment, education 
and training. Equality is enshrined in the European Convention on Human Rights and in the 
Charter  of  Fundamental  Rights  of  the  EU,  which  apply  both  to  EU  citizens  and  to  non-EU 
nationals. 

EU  migration  rules  have  imposed  unparalleled  standards  on  social  security  rights  for 
migrants.  For  example,  after  five  years  of  legal  residence,  provided  they  meet  certain 
conditions,  non-EU  nationals  acquire  the  same  social  security,  social  assistance  and  social 
protection rights as EU nationals have8. 

The  EU  is  committed  to  fight  racism,  xenophobia  and  discrimination  of  migrants  and  of 
people  with  a  migrant  background  (such  as  second  and  third  generations  migrants),  and  to 
ensure fair treatment of non-EU nationals, and to promote an integration policy that grants 
rights  and  obligations  comparable  to  those  of  EU  citizens.  The  EU  has  developed  several 
instruments  to  support  the  integration  of  legally-residing  migrants,  including  the  European 
Fund for Integration, a European website on integration, the European Integration Forum and 
the ‘Handbook on Integration for policy-makers and practitioners’. 

The EU is committed to promoting the same high standards in its external migration policy. 
Strengthening the protection of the human rights of migrants is a cross-cutting priority in 
its cooperation with non-EU countries. The EU is committed to help strengthening integration 
policies and to promoting the protection of migrants’ and refugees’ rights in and by partner 
countries. This includes strengthening access to fundamental and other rights, such as access 
to education and healthcare, the right to work, and the right of free movement, the eradication 
of statelessness, the elimination of arbitrary detention of migrants, access to justice and equal 
treatment with nationals on employment issues. 

Upholding  the  rights  of  migrants  is  addressed  through  a  comprehensive  international  legal 
and  normative  framework.  Core  texts  which  must  be  applied  for  migrants  as  well  as 
nationals include the Universal Declaration of Human Rights, the International Covenants on 
Civil  and  Political  Rights  and  on  Economic,  Social  and  Cultural  Rights,  the  1951  Geneva 
Convention Relating to the Status of Refugees and the 1967 Protocol to that Convention, the 
1954 Convention relating to the Status of Stateless Persons, the 1961 UN Convention on the 

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8  

Steps to be taken at EU level in this regard are described in section 6. 
Article 11 of Council Directive 2003/109/EC concerning the status of third-country nationals who are 
long term residents, OJ L16, 23.1.2004. 

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Reduction of Statelessness, Convention on Rights of the Child, the two UN Palermo Protocols 
on  Smuggling  of  Migrants  and  Trafficking  in  Persons,  the  International  Convention  on  the 
Elimination of All Forms of Racial Discrimination, the UN Convention against Torture, and 
the  ILO  Convention  on  decent  work  for  domestic  workers.  However,  significant  efforts  are 
still  required  to  better  implement  internationally  agreed  frameworks  and  enforce  the 
protection  of  human  rights  of  migrants,  in  particular  at  national  and  regional  levels.  In  this 
context,  it  would  be  important  to  develop  policies  and  take  actions  to  promote  the  human 
rights of people in an irregular situation.  

EU  Member  States  have  not  signed  the  1990  UN  Convention  on  the  Protection  of  the 
Rights  of  All  Migrant  Workers  and  Members  of  Their  Families.  The  insufficient 
distinction in the Convention between the economic and social rights of regular and irregular 
migrant  workers  is  not  in  line  with  national  and  EU  policies,  and  has  therefore  become  a 
fundamental  obstacle.  However,  when  it  comes  to  substance,  EU  instruments  provide  far-
reaching  protection  for  both  regular  and  irregular  migrants,  and  safeguards  that  are  often 
broader  than  those  provided  by  the  Convention.  In  the  longer  term,  there  may  be  scope  for 
reviewing  the  current  composite  normative  framework,  including  the  option  of  working 
towards  a  new  convention  that  addresses  the  rights  of  all  migrant  workers,  adapted  to  the 
realities and challenges of the 21st century. 

Orderly, regular and safe migration 

3.2. 
The  Commission  launched  the  EU  Immigration  Portal9  in  2011  to  inform  migrants  about 
their  rights  and  about  immigration  procedures.  The  portal  provides  information  for  non-EU 
nationals interested in moving to the EU. It offers practical information about procedures in 
every Member State for each category of migrant. The EU is also considering supporting the 
establishment  of  dedicated  Migration  and  Mobility  Resource  Centres  in  certain  partner 
countries with the aim to facilitate pre-departure, return and reintegration measures. 

Mixed movements, in which people with various backgrounds and needs are using the same 
routes and means of transport, create challenges for states with regard to screening the needs 
of the different groups. It is crucial that authorities, while managing these flows, ensure that 
people  who  need  international  protection  get  it;  and  that  irregular  migrants  are  treated  with 
dignity and are not criminalised. 

Migrants  in  an  irregular  situation  are  often  more  vulnerable  to  exploitation  and  abuse. 
Irregular  migration  limits  the  potential  of  migrants  to  support  their  countries  of  origin  and 
increases the likelihood of negative development outcomes for destination countries. 

The  EU  is  strongly  committed  to  enforcing  legislation  and  policies  intended  to  reduce 
irregular  immigration.  It  fosters  routes  for  legal  migration  and  aims  to  prevent  and  combat 
irregular  migration,  including  through  border  management  and  return  and  readmission 
policies.  The  EU  also  takes  action  to  sanction  those  who  abuse  migrants.  The  Employer 
Sanctions  Directive  of  2009  is  a  key  instrument  that  includes  provisions  to  reduce  legal 
ambiguity and prevent the exploitation of irregular migrants. This Directive does not provide 
for any sanctions against irregularly-staying migrant workers, but focuses on employers who 
abuse migrants in vulnerable situations. 

The  EU  also  assists  developing  countries  in  strengthening  their  policies  and  capacities  to 
ensure  orderly,  regular  and  safe  migration.  It  supports  the  decent  work  agenda  and  social 
protection  and  encourages  policies  to  facilitate  regional  labour  mobility.  It  also  promotes 
Integrated  Border  Management  as  a  means  of  establishing  open  and  secure  borders  and 
promoting the respect of rights at the border, including the right to seek asylum. 

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http://ec.europa.eu/immigration. 

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Further  international  attention  should  be  given  to  the  assistance  and  protection  needs  of 
migrants  caught  up  in  dire  humanitarian  and  life-threatening  situations  and  distress, 
whether en route or during stay in host countries. Particular consideration should be given to 
women and children or others who are in a particularly vulnerable situation. 

3.3. 

Trafficking in Human Beings  

The  EU’s  commitment  to  prevent  and  combat  migrant  smuggling  as  well  as  work  towards 
eradicating  trafficking  in  human  beings  (THB)  has  been  reflected  in  numerous  initiatives, 
measures  and  funding  programmes  in  place  since  the  1990s.  The  2011  adoption  of  the 
Directive  on  preventing  and  combating  trafficking  in  human  beings  and  protecting  its 
victims10  constituted  a  major  step  forward.  The  Directive  not  only  focuses  on  law 
enforcement,  but  also  aims  to  prevent  crime  and  ensure  that  victims  of  trafficking  are 
protected and given an opportunity to recover and reintegrate into society. Furthermore, the 
EU’s 2012 strategy on the Eradication of Trafficking in Human Beings11 included measures to 
ensure  better  cooperation  and  coordination  among  those  working  in  the  field  of  THB, 
including  governments,  civil  society  and  international  organisations.  Future  actions  will 
include  funding  of  research  and  projects,  establishing  platforms,  developing  guidelines  and 
best practices, training, etc. 

THB is also a priority  for  the EU’s external cooperation, and is systematically addressed in 
agreements and partnerships with non-EU countries and in all EU dialogues on migration and 
mobility. 

3.4. 

Key messages to the HLD 

• 

• 

• 

• 

• 

10 
11 

All States should ensure the protection of the human rights of migrants as a cross-
cutting  policy  priority,  and  should  uphold  the  relevant  international  human  rights 
instruments.  

All states should respect the dignity and uphold the fundamental and human rights of 
migrants, regardless of the migrants’ legal status. They should make a commitment 
to  protect  and  empower  asylum-seekers  and  vulnerable  migrants,  such  as 
unaccompanied minors, victims of trafficking, women and children.  

All  states  should  develop  national  policies  for  integrating  migrants  into  their 
societies  and  for  preventing  and  counteracting  xenophobia  and  discrimination, 
including  for  people  with  a  migrant  background.  They  should  take  firm  action 
against  all  forms  of  exploitative  employment  of  both  legal  and  irregular  migrants, 
including by implementing effective sanctions against employers of irregular foreign 
workers. 

All  states  should  ratify  and  implement  the  international  instruments  on  fighting 
smuggling  and  trafficking  in  human  beings.  National  and  regional  anti-human 
trafficking policies should be established or upgraded and cooperation on prevention, 
prosecution  of  traffickers  and  the  protection  of  victims  of  trafficking  should  be 
reinforced.  

importance  of  providing  (potential)  migrants  with 

The 
information  about 
immigration procedures, their rights and the economic and social conditions in the 
intended country of destination should be underlined. 

2011/36/EU. 
COM(2012) 286 final. 

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4. 

ROUNDTABLE  3:  STRENGTHENING  PARTNERSHIPS  AND  COOPERATION  ON 
INTERNATIONAL  MIGRATION,  MECHANISMS  TO  EFFECTIVELY 
INTEGRATING 
MIGRATION  INTO  DEVELOPMENT  POLICIES  AND  PROMOTING  COHERENCE  AT  ALL 
LEVELS 

4.1. 

Partnership and cooperation 

Effective international partnerships between countries are essential to maximise the positive 
impacts of migration on countries of origin, destination and on migrants themselves. 

The EU engages in comprehensive dialogue and cooperation with a broad range of non-EU 
countries  and  regions.  Such  cooperation  covers  all  four  equally  important  areas  of  the 
GAMM: i) enhancing legal migration and facilitating mobility, ii) preventing and combatting 
irregular migration and trafficking in human beings, iii) maximising the development impact 
of migration and mobility and iv) promoting international protection. 

routes.  Two  specific  bilateral 

The EU has established regional and bilateral dialogues on migration and mobility with its 
neighbours  and  other  priority  partners,  allowing  the  identification  of  joint  priorities  for 
frameworks,  Mobility 
cooperation  along  migration 
Partnerships and Common Agendas on Migration and Mobility, have been put in place to 
enable  deeper  and  tailor-made  policy  dialogues  and  operational  cooperation  on  all  GAMM 
areas  with  partner  countries.  Relevant  legal  instruments  are  being  negotiated  and 
implemented,  including  visa-facilitation  agreements  (together  with  readmission  agreements) 
to  facilitate  people-to-people  contacts  between  the  EU  and  its  priority  partners.  Numerous 
programmes and activities are being financed 

All  policy  dialogues  on  migration  and  development  should  be  inclusive  and,  where 
appropriate,  involve  non-governmental  actors  such  as  the  private  sector,  employers’  and 
workers’  organisations,  academia  and  civil  society,  as  well  as  migrants’  and  human  rights 
organisations. 

4.2. 

Integrating migration into development policies 

Integrating immigration and emigration aspects into development strategies at all levels is a 
vital  first  step  to  promoting  governance  frameworks  for  maximising  the  development 
potential of migration and mobility. However, progress remains inadequate, in particular at 
the level of partner country strategies, such as Poverty Reduction Strategy Papers (PRSPs). 

‘Mainstreaming migration’ into national development strategies needs to be further promoted. 
By taking the development model, objectives and priorities of partner countries as a starting 
point,  exercises  to  embed  migration  into  national  and  sectorial  development  strategies  can 
significantly  improve  ownership,  sustainability  and  coherence  of  actions  to  maximise  the 
development impact of migration. Actions should be based on a multi-stakeholder approach, 
bringing together all relevant ministries. 

Further  progress  is  also  required  at  the  donor  level,  including  the  Commission.  The 
Commission  has  taken  great  strides  towards  integrating  migration  as  a  priority  area  for 
external cooperation, committing almost EUR 1 billion to more than 400 migration-related 
projects between 2004 and 2012. EU external cooperation has achieved significant results on 
capacity  building  for  migration  management  in  line  with  EU  external  migration  policy  and 
poverty reduction objectives. 

However, given the reality of increased human mobility, further efforts are required to ensure 
that  EU  development  initiatives  in  sectors  such  as  employment,  human  rights,  trade, 
agriculture  and  environment  are  based  on  full  recognition  of  the  potential  of  well-managed 
migration and mobility as development enablers. 

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To support work on developing a shared understanding of the importance of migration among 
development  actors,  more  data  is  needed  on  how  migration  can  drive  or  hinder  progress 
towards achieving development goals, especially in sectors most influenced by demographics 
and  labour  issues.  Tools  to  translate  this  knowledge  into  operational  guidance  are  also 
needed; otherwise political commitments on mainstreaming migration will remain unfulfilled. 

The Commission pioneered the use of migration profiles for development programming in 
2005 as effective tools to develop comparable data and support policy-making on migration. 
Short  migration  profiles  can  provide  useful  sources  of  comparable  data  on  migration  flows, 
e.g. by using  the  core indicators developed by the Global Migration Group (GMG) and the 
guide on ‘Migration Profiles – making the most of the process’. 

In recent years, the EU has strongly supported ‘Extended Migration Profiles’, which bring 
together  all  stakeholders  in  a  country-specific  process.  Ownership  is  in  the  hands  of  the 
partner  country  and  sustainability  is  ensured  through  related  capacity-building.  The 
Commission  is  committed  to  supporting  partner  countries  that  want  to  use  Extended 
Migration Profiles to better understand the full impact of migration on their economic, social 
and environmental development as a basis for more targeted policy actions. 

Effective  policy  coherence  is  of  key  importance  for  effective  integration  of  migration  into 
development  policies  and  should  be  pursued  at  and  between  all  relevant  levels,  including 
national frameworks such as the PRSPs, but also at regional, local and multilateral levels. The 
EU  itself  can  provide  a  good  example  of  how  regional  cooperation  can  promote  Policy 
Coherence for Development (PCD)  on  migration.  The  obligation  for  PCD  is  embedded  in 
the  EU  Treaty  and  a  number  of  operational  tools  have  been  developed  to  implement  this, 
including bi-annual reporting12. 

Development  planning  carried  out  by  local  authorities  warrants  greater  attention  in 
discussions  on  migration  and  development.  The  role  of  city  administrations  is  pivotal,  as 
increasing migration and urbanisation are linked issues which have a significant impact on 
societies worldwide. Cities have the potential to act as catalysts of social change. But cities in 
the  global  South  also  face  significant  challenges,  including  in  achieving  sustainable 
urbanisation.  The  exchange  of  knowledge  and  experience  between  cities  on  issues  such  as 
labour  market  access,  integration,  urban  planning  and  infrastructure,  notably  as  ways  of 
promoting the contributions migrants can make to the city/region, should be encouraged, e.g. 
by creating a dedicated worldwide network of cities and urban regions on these issues. 

4.3.  Multilateral coherence in migration governance 

The Commission recognises the significant contribution made by the Special Representative 
to  the  Secretary  General  on  international  migration  and  development  (SRSG)  to  promoting 
migration-development  issues  as  well  as  the  potential  role  of  the  GMG  as  the  inter-agency 
coordination  body  on  migration.  Stepping  up  coordination  on  migration  related  issues 
between all relevant UN agencies could make a serious contribution to a more coherent global 
policy on migration and development. The International Organization for Migration (IOM), as 
the  leading  international  organisation  active  in  this  field  should  take  a  proactive  role  to 
enhance  coordination  with  the  UN  system.  The  SRSG  can  play  an  important  role  for  that 
purpose, notably to ensure effective interface  management  within the UN  system,  including 
with the GMG.The Global Forum on Migration and Development (GFMD) has proved to be a 
valuable  forum  for  frank  and  open  discussions  and  has  strengthened  the  dialogue  and 
exchange  with  civil  society,  including  migrant  organisations.  It  has  established  trust  among 

12  

Commission  Staff  Working  Paper  entitled  "EU  2011  Report  on  Policy  Coherence  for  Development” 
SEC(2011) 1627 final. 

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participating  stakeholders  thanks  to  the  informal  character  of  the  process,  which  should  be 
maintained.  Further  progress  could  be  made  regarding  follow-up  to  and  monitoring  the 
implementation  of  GFMD  recommendations.  Also,  in  line  with  the  priorities  of  the  2014 
GFMD  Chair,  further  efforts  should  be  made  to  strengthen  the  development  focus  of  the 
GFMD. 

The EU will continue to be an active and determined partner in multilateral cooperation. As a 
legal  entity  with  specific  competences  in  the  field  of  migration  and  development,  and  in 
accordance  with  its  Lisbon  Treaty,  the  EU  should  play  an  appropriate  role  in  all  relevant 
international migration bodies. 

4.4. 

Key messages to the HLD 

• 

• 

• 

• 

5. 

All  states  should  engage  in  international  dialogue  and  cooperation  with  relevant 
partners to identify shared priorities and strengthen bilateral and regional migration 
governance.  Effective  engagement  of  civil  society  in  global,  regional,  national  and 
local planning on migration and development must also be pursued. 

Donors  and  other  development  actors  should  effectively  integrate  migration  and 
mobility issues into their development policies and instruments. Further evidence on 
the  links  between  human  mobility  and  development  should  be  collected,  and 
operational tools to support migration mainstreaming further developed. 

In order to maximise the benefits of migration for development, more work is needed 
to provide a sufficient knowledge base. Consensus should be sought on the types of 
data and reporting needed to provide reliable and comparable overviews of migration 
issues  at  regional  and  global  levels.  Mechanisms  for  sharing  national  data,  such  as 
migration profiles, should be explored. Initiatives to support developing countries in 
strengthening  their  capacity  to  collect  and  analyse  data  on  the  links  between 
migration,  mobility  and  development  should  be  encouraged.  Effective  coordination 
in the area of data collection and research at global level should be promoted.    

UN agencies and international organisations should commit to a fully integrated and 
coordinated  international  migration  agenda,  in  order  to  minimise  overlapping 
competencies and waste of scarce resources. 

ROUNDTABLE  4:  INTERNATIONAL  AND  REGIONAL  LABOUR  MOBILITY  AND  ITS 
IMPACT ON DEVELOPMENT 

5.1. 

Labour mobility 

The  EU  is  a  unique  example  of  how  regional  integration  can  be  achieved  and  how  it 
contributes  to  development.  It  has  built  a  single  economic  space  and  a  single  area  of  free 
movement, where more than 480 million European citizens can travel, study, work and reside. 
The  EU  is  progressively  building  an  integrated  EU  labour  market  and  has  established 
systems for the recognition of professional qualifications and the transferability of social and 
pension  rights  between  Member  States.  Intra-EU  labour  mobility  has  produced  numerous 
benefits,  including  further  economic  convergence  and  sharing  of  skills  between  Member 
States,  more  intra-EU  remittance  transfers  and  less  pressure  on  labour  markets  facing  high 
unemployment. EU law instruments13 grant non-EU nationals mobility rights that allow them 
to live and to work in another Member State. 

13 

The Long-Term Residence Directive (2003/109/EC) or the Blue Card Directive (2009/50/EC). 

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In  the  highly  competitive  and  globalised  economy  of  today,  and  despite  the  current  high 
unemployment figures in the EU, inward labour migration of non-EU nationals will also have 
a role in the EU’s efforts to develop a highly-skilled, adaptable workforce that can meet the 
challenges of demographic and economic change. The EU is committed to making best use of 
its domestic workforce, including migrants already legally residing in the EU, while opening 
pathways  for  legal  economic  migration  in  areas  in  which  labour  and  skills  shortages  are 
emerging. 

With increasing international (labour) mobility, work needs to be stepped up in areas such as 
recognition  of  foreign  qualifications,  exploring  the  portability  of  pension  rights  and  other 
welfare entitlements, including, where possible, at international level. For example, the Social 
Protection  Inter-Agency  Board,  which  was  agreed  by  the  G20  in  2011,  should  consider 
addressing the issue of social protection of migrants. 

Regional labour mobility is also a key migration feature in developing regions, representing 
a vital livelihood strategy. Labour mobility contributes to a better match between supply and 
demand on the labour market. As shifts in the distribution of global wealth progress, several 
developing countries are increasingly becoming destination countries for inter-regional labour 
migration.  Indeed,  the  global  economic  crisis  caused  increased  labour  mobility  from  EU 
Member  States  to  certain  Latin  American  and  African  countries.  However,  governance 
frameworks for labour migration in many low- and middle-income destination countries are 
still  weak  and  should  be  strengthened  to  promote  the  development  impact  of  migration  and 
ensure adequate protection and decent working standards for migrant workers. 

Specific attention should also be given to the role of regional organisations in this area, as 
they are well-placed to improve the governance of regional labour mobility. The EU is keen 
to share its experience in managing labour mobility, including with regional organisations in 
low- and middle income countries. 

5.2. 

Key messages to the HLD 

• 

• 

• 

• 

• 

14  

All states should review existing barriers to human mobility, with a view to remove 
barriers which are not justified from a security point of view and are unnecessarily 
hindering  economic  competitiveness  and  regional  integration.  Particular  attention 
should be paid to facilitating access of bona fide travellers and reducing the costs of 
obtaining  documents  and  recruitment  fees.  In  this  context,  the  convening  of  a 
conference on international labour mobility and development in the framework of the 
UN should be considered. 

Processes  and  regional  organisations  involved  in  promoting  orderly  intra-regional 
migration and mobility between developing countries should be supported. 

Intra-regional 
labour  mobility,  skills  development  programmes  and  skills 
certification  and  recognition  schemes  should  be  promoted,  especially  in  sectors 
where there is a shortage of trained personnel and which could benefit from migrant 
workers. In parallel, reliable overviews of trends in skills needs across regions14 are 
needed, to inform the skills development programmes and mobility opportunities. 

Circular  migration  should  be  facilitated  to  promote  the  economic  and  social 
development of countries of origin and destination. 

Effective access to social security in host countries as well as the portability of social 
and  pension  rights  should  be  promoted,  including  via  bilateral  or  regional 

The  EU  has  put  in  place  a  Skills  Panorama  for  this  purpose  (under  further  development): 
http://euskillspanorama.ec.europa.eu/.  

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agreements,  as  this  could  facilitate  mobility  and  circular  migration  as  well  as 
serving as a disincentive for irregular work. 

6. 

WHAT  THE  EU  SHOULD  DO:  NEXT  STEPS  FOR  BROADENING  THE  DEVELOPMENT-
MIGRATION NEXUS 

The  above  key  messages  are  addressed  to  the  global  community.  However,  a  lot  can  and 
should be done within the context of the EU’s own policies and programmes. 

Under the EU’s external migration policy, significant progress has already been achieved in 
maximising the impact of migration to the EU for the development of countries of origin. The 
EU  is  committed  to  continuing  work  on  ‘traditional’  areas  of  the  agenda  (remittances, 
diaspora, brain drain, circular migration). 

that  future  EU  action  on  migration  and  development  becomes 

However, the challenges and opportunities partner countries face regarding the development-
migration nexus are broader and more complex than those addressed so far. The Commission 
will  ensure 
truly 
comprehensive,  addressing  the  full  range  of  positive  and  negative  impacts  of  the  various 
forms  that  migration  can  have  on  sustainable  economic,  social  and  environmental 
development in low- and middle-income countries of origin and destination. This requires 
a shift in focus, to place development concerns at the heart of action. Translating this holistic 
approach into action requires measures, notably in the context of EU development policy, that 
better address a number of issues, including by: 

• 

• 

• 

• 

• 

• 

Extending action under the ‘traditional’ areas of migration and development to 
the  South-South  context,  especially  by  identifying  means  to  facilitate  remittance 
flows between developing countries and supporting research to better understand the 
role  of  diasporas  residing  in  low-  and  middle-income  countries  as  development 
actors in their countries of origin. 

Exploring ways to reduce costs and increase the benefits of migration and mobility 
for  low-  and  middle-income  countries  of  destination,  with  a  particular  focus  on 
intra-regional  flows.  In  this  regard,  coherence  between  national  employment 
policies and active labour migration should be promoted. 

Deepening  understanding  of  the  social  and  economic  consequences  of  migration 
for  development,  especially  in  sectors  such  as  health,  education,  employment  and 
agriculture. 

Taking steps to fully integrate forced migration into the development-migration 
agenda and ensure that refugees and other forced migrants are included in long-term 
development  planning.  In  particular,  the  Commission  will  work  towards  and 
advocate  for  the  integration  of  protracted  refugee  situations  into  the  development 
agenda to ensure that their situation and possible positive contribution is considered 
by host governments so as to prevent future displacements and strengthen efforts to 
find durable solutions. 

Further exploring and addressing the links between climate change, environmental 
degradation and migration, including the importance of climate change adaptation 
and  Disaster  Risk  Reduction  (DRR)  in  reducing  displacement,  and  the  role  of 
migration as a strategy to strengthening adaptation and DRR. 

Further  exploring  the  links  between  mobility  and  development,  including  the 
relationship  between  internal  and  international  mobility  and  between  mobility  and 
urbanisation. 

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In  addition,  under  the  GAMM  and  the  Agenda  for  Change,  the  Commission  will  promote 
migration governance and effective policy coherence at all levels, to harness the potential 
of migration and mobility as development enablers. In particular, the Commission will: 

i. 

ii. 

iii. 

Promote  the  mainstreaming  of  migration  into  development  strategies.  As  regards 
the  EU’s  own  development  cooperation,  the  Commission  will  continue  targeted 
thematic  funding  and  will  redouble  its  efforts  to  integrate  the  migration  dimension 
into  development  initiatives  in  other  sectors  wherever  relevant.  In  addition,  it  is 
ready  to  assist  developing  countries  with  migration  mainstreaming,  including  by 
supporting Extended Migration Profiles and national migration strategies. 

Strengthen  migration  governance  and  cooperation  in  and  between  developing 
countries,  in  particular  at  regional  level,  to  improve  development  outcomes  for 
countries  of  origin,  transit  and  destination.  The  Commission  is  ready  to  support 
capacity  building  in  all  relevant  areas,  including  by  sharing  its  expertise  on 
protecting migrants’ human rights, integration, labour migration systems, asylum and 
international  protection,  tackling  human  smuggling  and  trafficking,  Integrated 
Border Management, etc. Such measures should be fully in line with the migration-
related objectives of relevant development strategies. 

Further promote the migrant-centred approach as a cross-cutting priority of all EU 
actions  on  migration  and  development,  which  must  aim  to  support  migrants  in 
becoming  more  effective  development  actors.  Initiatives  should  be  based  on  an 
awareness  of  the  impact  of  these  actions  at  individual  and  community  level, 
including on migrants themselves, host communities and those left behind. 

The Commission will report on progress made on the initiatives outlined above in its GAMM 
Report,  published  every  other  year,  as  well  as  in  its  reporting  on  the  implementation  of  the 
Agenda for Change. 

7. 

CONCLUSION 

The EU has created an area of free movement of people between the countries of Europe that 
is seen as a source of inspiration by many across the globe. In the spirit of partnership, it has 
pioneered an external migration policy that is balanced and comprehensive. It is the world’s 
leading donor of  development  assistance and will continue to provide substantial support in 
the years to come. The EU stands ready to share its experience with interested countries and 
organisations.  The  EU  expresses  the  hope  that  the  2013  HLD  will  mark  the  beginning  of  a 
new era of global cooperation on migration and development. 

The Commission calls on all relevant agencies and international organisations in the field of 
migration  and  development  to  pursue  a  more  coherent,  comprehensive  and  better 
coordinated  approach  at  global  level.  It  is  necessary  to  enable  the  global  community  to 
capitalise  on  opportunities  and  to  tackle  the  challenges  associated  with  international 
migration. In today’s globalised world, all countries face similar challenges, also in relation to 
migration and development. Yet, countries will approach the situation in different ways, since 
their  priorities,  size  and  demographic  and  economic  characteristics  vary.  International 
cooperation is therefore necessary to ensure that people moving in search of a better life are 
able to exercise their rights in a safe environment. 

The  Commission  calls  on  development  policy  makers  and  practitioners  to  step  up  their 
engagement  in  strengthening  the  development-migration  nexus,  both  by  better  integrating 
through  stronger 
migration  and  mobility 
participation in relevant international fora. Development processes rely on mobility, which is 

in  development  programming  and 

issues 

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necessary to ensure efficient labour matching and facilitates transfers of social, financial and 
human capital. Development also fosters mobility, providing greater resources for people to 
migrate in search of opportunities. A number of processes will further drive mobility in the 
future,  including  global  wealth  shifts,  regional  and  global  economic  integration,  and 
environmental  degradation  related  to  climate  change.  If  it  is  to  be  fit  for  the  21st  century, 
development  thinking  must  therefore  fully  integrate  the  role  of  migration  and  mobility  as 
development  enablers,  and  recognise  the  essential  role  of  effective  migration  governance  in 
limiting the potential negative impacts of migration on development. 

Finally,  the  Commission  calls  on  migration  policy  makers  and  practitioners  to  take  full 
account  of  development  concerns  in  migration  policy  and  step  up  their  responsibility  in 
ensuring respect for and protection of the human rights of all migrants through all dimensions 
of migration governance. Migration and mobility is about freedom. It is about giving each and 
every  individual  the  opportunity  and  the  ability  to  influence  his  or  her  life  situation, 
economically  and  socially.  The  impact  of  respecting  human  rights  goes  far  beyond  the 
individual migrant, as it also benefits both the home society and the society in which migrants 
live and work. Empowering individuals to accede their rights is a winning strategy, both for 
effective migration governance and for sustainable development. 

The  2013  HLD  should  contribute  towards  meeting  today’s  global  challenges,  especially  by 
promoting  the  inclusion  of  migration  and  mobility  as  a  visible  cross-cutting  priority  in  the 
post-2015 development framework, and a recognised enabler of global development. 

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