Escolar Documentos
Profissional Documentos
Cultura Documentos
.. . . . . .
... .. .......
. . . . .
.. ..
. . . . ...
.. . ..
. .. ...
..
.. .. ...
..
...
...
....
.................. ...................
.
...
. .... .. ......... ..
...
. . . ....... .
.. . Bellagio Dialogue....on . . . . . . Migration . . .
....
. . . . . ..
....... . . . . . . . . . .......... . . . . . . . . .
....
. . . . . . . . . . . . . ..
..... . . . .... . ..... ...
....
. . . . . . . . . . .
. . .
.....
.... . . . . ....
. . . .
..
. . ...
........
...
.. . . ..
.
....
.
....
.. . . A R ep ort to
. .
....
....
.
. .
.. .............
. t h e.....Ge . . . . . .r m a n M a rsha l l ..Fu n...d
....
.....
. . .
.. . . . . . . . . . . . . ..........
. . . . . . . . .
. .. .. . . . . . .es
....
.. ....... of t h e...Un . . . . .ited Stat
. . . . . .
. . . .. . . . . . . . .
....
....
.... .......
..
.....
.
....
. . .
. . . ... ....
....
....
.....
. .. . ....
. . .
.....
. . ....
......
. . . . ....
. .
.....
. . . . ....
.. . . ..
......
. .
..
...
.......
.
...
...
.......
....
....
© 2007 The German Marshall Fund of the United States. All rights reserved.
No part of this publication may be reproduced or transmitted in any form or by any means without permission in
writing from the German Marshall Fund of the United States (GMF). Please direct inquiries to:
About GMF
The German Marshall Fund of the United States (GMF) is a nonpartisan American public policy and grantmaking
institution dedicated to promoting greater cooperation and understanding between the United States and Europe.
GMF does this by supporting individuals and institutions working on transatlantic issues, by convening leaders
to discuss the most pressing transatlantic themes, and by examining ways in which transatlantic cooperation can
address a variety of global policy challenges. In addition, GMF supports a number of initiatives to strengthen
democracies.
Founded in 1972 through a gift from Germany as a permanent memorial to Marshall Plan assistance, GMF main-
tains a strong presence on both sides of the Atlantic. In addition to its headquarters in Washington, DC, GMF has
seven offices in Europe: Berlin, Bratislava, Paris, Brussels, Belgrade, Ankara, and Bucharest.
This report benefited substantially from the contributions and work of The Rockfeller Foundation and the
Bellagio Study and Conference Center. GMF thanks The Rockfeller Foundation for its support.
About The Rockefeller Foundation and the Bellagio Study and Conference Center
The Rockefeller Foundation was established in 1913 by John D. Rockefeller Sr. to “promote the well-being” of
humanity by addressing the root causes of serious problems. It is one of the United States’ largest private founda-
tions, working internationally to expand opportunities for poor and vulnerable people and to help ensure that
the benefits of globalization are shared more equitably. The Bellagio Study and Conference Center is central to
this commitment, and its programs encourage critical thinking about and creative responses to some of the most
pressing issues of our time, especially those directed at alleviating poverty and vulnerability. The Center hosts
more than 140 fellows and 50 conferences each year.
Table of Contents
Introduction................................................................................3
Economic Dimensions..................................................................3
Conclusion............................................................................... 11
Bellagio Fellows....................................................................... 12
Introduction Economic Dimensions
In June and July 2006, the German Marshall Fund of the The discussion at Bellagio focused on the question of how
United States, in partnership with the Rockefeller Foundation, to better manage the flow of migrants across borders so as to
convened the Bellagio Dialogue on Migration, a four-week increase the benefits of international migration and create a
program of workshops, cultural events, and keynote addresses mutually advantageous outcome — or what the participants
to examine and advance thinking on the challenges that called a “win-win-win” scenario — for source countries,
international migration poses to Europe, the United States, destination countries, and migrants themselves. It was clear
and migrant countries of origin. Starting with the idea that sig- from the discussion at the workshops that the impacts on these
nificant migration to and from the United States and Europe respective actors varied considerably depending on the extent
will continue into the foreseeable future, the Bellagio Dialogue to which cooperation on critical issues had occurred. How
on Migration brought together more than 150 policymak- individuals and countries respond and the benefits that they
ers, academics, civil servants, community-based practitioners, accrue is conditioned by the degree to which migration is seen
foundation representatives, and artists from 15 countries to as a collective problem with identifiable economic roots. As
identify effective approaches to some of these challenges. globalization intensifies, migrants exit their countries of origin
in search of more economic opportunity. At Bellagio, all par-
The Bellagio Dialogue explored wide-ranging and multifaceted ticipants emphasized that there was a necessity for more inten-
issues associated with international migration in order to glean sive communication and greater policy coherence between the
insights, share best-practices, and propose an agenda for future actors involved in the migration debate. Furthermore, many
research. The approach of the month-long project was to treat agreed with then Congressman Jim Kolbe’s (R-AZ) assertion
migration as an enduring phenomenon and seek to make it at the closing conference, “the case is clear: compassion and
work better for all those who are affected by it. To that end, economic interests can — indeed, must — coexist.”1
the month-long dialogue undertook the question of interna-
tional migration by dividing it into three broad categories: the As an example, within receiving or destination countries,
economic dimensions of migration for sending and receiving research presented at Bellagio suggests that economics plays
countries; the social dimensions of migration facing newcom- a significant role in social integration. While gross economic
ers and their host societies; and the intersection of migration, disparities may reinforce differences and perpetuate the mar-
security, and rights. While each facet of migration was dis- ginalization of migrant groups, effective economic integra-
cussed by different groups of participants, it became clear that tion that comes as a result of policy action can facilitate social
the division of immigration into the various issue areas was an incorporation and reduce negative impacts in localities and
artificial one and that real solutions would require a compre- regions. Upon arrival in their host countries, migrants inevita-
hensive approach. bly become part of the domestic labor force, and, as such, may
contribute to increased labor market flexibility. This provides
Over the course of the month, participants assessed the effects both obstacles and opportunities for governments in receiving
of global forces such as economic competitiveness on interna- countries, neither of which is being addressed effectively at
tional migration; confronted the challenges of managing diver- this time.
sity in Western democracies, including integration, religious
pluralism, and equal opportunity; and evaluated the balance
between national security and immigrant rights. This report
is intended to capture the key debates, dilemmas, and tensions 1
All quotes included in this document are taken from on-the-record
that emerged from this uniquely structured dialogue. events including the armchair discussions and keynote addresses
throughout the month and the closing conference. All workshops
sessions were held under Chatham House Rule and comments made
during those sessions are not attributed to individual participants.
FINAL REPORT | 3
Impact of migration on developing countries These latter points were especially important when the debate
It is in the self-interest of migrant-receiving countries to be turned to harnessing the power of “diasporas” and increasing
selective about the quantity and the quality of labor migration the opportunity for return migration, or “circularity.”
that they permit to enter their workforce. Seen in the context
of international competitiveness, it makes good economic Some participants observed that the Mode Four commitments
sense to target a limited, but specific, number of highly-skilled outlined in the General Agreement on Trade in Services (GATS)
migrants for entry as they can fill employment gaps, contribute — introduced by India during the Doha Round — could be
to economic productivity, and enhance the outputs of both considered a critical link between trade, migration, and devel-
businesses and the nation as a whole. However, as participants opmental policies. Although created by India specifically to
argued, this demand-driven model of picking the best and the address its national needs in the service industry, it conceptually
brightest comes at the expense of sending countries because it provides an initial framework for the temporary movement of
leads to the loss of their most skilled workers. Institutionalized persons across borders to provide specific, time-constrained
brain drain of this type significantly thins the talent pool avail- employment activities of nearly any type. It addresses the need
able in sending countries and clearly threatens the prospects of developed countries to respond to domestic labor require-
for both political and economic development. Even among un- ments and yet encourages the return of workers — including
skilled migrants, it is frequently the most entrepreneurial who the financial means and skills they acquired while working
leave, a dynamic that only further depletes sending countries abroad — back to the country of origin. Moreover, it could
of their best human capital. Here, the flow of knowledge and reduce the pressure driving illegal immigration by providing an
skills among countries is uni-directional and the distribution alternative through temporary channels. In essence, it generates
of advantages is unbalanced. the “virtual circle” needed to address the range of problems as-
sociated with the international migration of skills.
Participants at Bellagio emphasized that as long as sending and
receiving countries do not align national policies affecting mi- However, some participants noted that current commit-
gration, these dilemmas will persist in the current global politi- ments on Mode Four made by developed countries are mainly
cal economy. Although not a specific topic of the workshops, targeted at high-skilled workers and have limited value for de-
discussion inevitably revolved around the failure of current veloping countries whose comparative advantage mainly lies in
developmental policies and the need for more effective incen- low- and medium-skilled services. Other participants argued
tives to keep those individuals vital to the process of political that the importance of the temporary movement of workers
stability and economic growth at home. If one accepts the has not been recognized by the Organisation of Economic
argument that the loss of each worker in the sending country Co-operation and Development (OECD) countries since their
significantly impacts the potential for that country to achieve immigration policies are mainly aimed at permanent migra-
its developmental goals, policymakers in migrant countries of tion and rarely include temporary stay provisions.
origin are challenged to determine what conditions would en-
courage skilled and unskilled individuals alike to stay in their Diasporas
communities and contribute to the welfare of their country. Diasporas, or populations of migrants from a single country
living abroad, potentially create a vibrant network of connec-
In general terms, participants agreed that the solution must tions between the social, economic, and political contexts in
emphasize economic opportunity and increased standards of their countries of origin and destination. Because diasporas
living in the sending countries, but how to achieve this is still constitute a direct link between the two contexts, academics,
being debated even among experts in the developmental com- governments, and development agencies have increasingly
munity. Questions concerning the need for capacity-building touted the possibility that they can serve as a source or catalyst
and the ability of developing countries to absorb human and for economic development. As evidence, a number of partici-
financial resources were discussed, but remained unresolved. pants at Bellagio pointed to the vast quantity of remittances
There were participants who were less Participants at Bellagio emphasized that the
enthusiastic about the power and durability of diasporas policies that underlie these practices have increasingly come un-
and more concerned about “moral hazard” questions. These der fire as a result of several concerns. First, there are national
individuals cautioned that allowing diasporas to be a first line security concerns that derive from easy entry and exit across
of response for the problems of development would actually national borders. Second, there are workforce training concerns,
foster an unhealthy dependence by communities and regions specifically those that emanate from countries not using the
on external forces and would, moreover, relieve governments talent that its education system has created. This problem has
in developing countries of their responsibility to address criti- been made more pronounced as labor unions in developed
cal policy questions on their own. Some participants, while countries have pointed to data suggesting that the importation
accepting the viability of transfers of private funds for public of labor from developing countries has led to a rapid, down-
projects related to development, voiced strong opposition to ward spiral in wages in both skilled and unskilled industries. Fi-
these funds being appropriated by governments due to the nally, there are ongoing questions that migrant workers trained
possibility of corruption and waste. Finally, there were seri- in developed countries may move to other countries — home
ous concerns about the capacity of diasporas to contribute to or otherwise — taking their knowledge, skills, and resources
political and economic instability. with them, in the process increasing the comparative advantage
of other countries.
FINAL REPORT | 5
The tension that exists on this latter issue — that which exists ingly important. This reflects the paradox identified in one
between the sharing of intellectual and financial capital be- meeting that while group identities (and associated ideas of
tween developed and developing countries, remains one of the belonging and solidarity) are historically contingent, they are
most critical issues on the policy agenda at this time. Solutions at once entrenched and weighty.
must be developed that recognize the importance of collective
economic welfare, the wisdom of integrating streams of knowl- In the United States and Europe, the presence of migrants
edge and resources for the common good, and the potential generates concerns among the host society and politicians
for co-development strategies. Participants emphasized that about national loyalties and the security issues that accompany
these strategic goals can only be accomplished through more uncertainty about loyalties. Some participants shared the con-
coherent and consistent policy engagement by developed and cern that in a globalized world, even a formal national affilia-
developing countries, and that this effort had not yet occurred tion doesn’t guarantee an individual’s loyalty to a state. Other
to a significant degree. participants challenged this line of thinking, asserting that the
national loyalty of migrants didn’t have to be an either-or deci-
Migrant Integration and sion between where they had come from and where they had
the Question of National settled, but that it was possible to have loyalties to more than
FINAL REPORT | 7
or national group. Beyond the ability to speak the language of ture was a difficult one, even for Muslim migrants themselves.
the host society, illiteracy among migrants, especially low- Muslims living in Islamic countries are not frequently con-
skilled workers, presents a major impediment and perpetu- fronted with this question, and therefore must work toward
ates gaps between an educated native-born population and their own understanding of the relationship between religion
uneducated migrant groups. and culture upon entering their new surroundings. In the
West, they are immediately faced with the conundrum of how
Creating equal opportunity for migrants was identified as to stay true to Muslim values and also integrate into the non-
another major component of integration. In education, this Muslim society. As Abdo pointed out, most Muslim migrants
can be done by mitigating inequalities in elementary and sec- have never experienced being a minority population in their
ondary education and emphasizing the importance of higher home countries, so the entire concept of “integration” is an-
education. Equality of opportunity in housing can be achieved tithetical to their experience. The sharp differences presented
by developing stronger policies that account for the important by life in the Western cultures of the United States and Europe
role that housing plays: because having has led some second-generation migrant
stable housing is necessary for success in The economic youth to reject their parents’ traditional
other areas — such as maintaining a job interpretation of Islam as outdated, fault-
integration of every
— ensuring the availability of affordable ing it for blurring the distinction between
housing is a key to integration. Partici- generation of migrants religion and culture. This has earned them
pants noted the close ties among housing, is the first step the title “rejectionist generation” by some
urban planning, and geographical integra- toward the successful sheikhs (Islamic scholars). While this
tion: best-practices include policies that perspective of second-generation youth
incorporation of
promote new immigrants to live among portrayed them as progressive in thinking
migrants into a host
the native-born population and thereby about the integration of two cultures, oth-
prevent ghettoization. society, and education er participants presented a more complex
is critical to economic perspective of the situation, in which the
Secularization vs. Religious integration. second-generation is not recognized as the
Tolerance: Navigating the bridge between Muslim and host society,
relationship between Islam (and but finds itself betwixt and between, not
Muslims) and their Western Host Societies fully accepted nor feeling itself a part of either group.
Central to the discussion of integrating migrants into their
host societies was the specific question of integrating Muslim Questions also arose about the usefulness of drawing distinc-
migrant populations into their Western host societies. The tions between religion and culture, and whether religion itself
debate focused on the idea that both Muslims and their host created an insurmountable obstacle to integration. While the
societies must display a certain degree of flexibility and accom- current public debate still questions whether Islam and democ-
modation. Secularization versus tolerance got to the heart of racy are compatible, the overwhelming consensus at Bellagio
the relationship between religion and Muslim integration. was that Islam and democratic principles are not diametrically
opposed. Many agreed with Deputy Mayor of Amsterdam
Policymakers in the group were quick to assert that it is not up Aboutaleb’s idea that “religion is not a jacket that you take off
to politicians to debate the content of any faith, and that they when you enter the office, it’s part of your identity,” and that it
were concerned with questions including how to navigate the was not the religious principles, but different cultural practices
line between norms and values, enforcing laws while tolerat- that presented the greatest obstacles to integration. German
ing different beliefs. Geneive Abdo, an American journalist MEP Cem Özdemir warned that integration problems tend to
who has worked with Muslim populations across the United get reduced to the religion issue, but that it’s too simplistic to
States, argued that the distinction between religion and cul- only look at the problems through the lens of religion.
FINAL REPORT | 9
Many participants felt that it would be in the interest of these Balancing security and rights for asylum-seekers
countries’ security to bring the illegal, undocumented popula- As Western Europe and North America erect tougher barri-
tion out of the shadows and establish an accurate record of ers to migration, bona-fide asylum seekers find it increasingly
who is in the country. difficult to find refuge. Among the reasons for this dramatic
decline are measures taken by states to curb potential abuse
The Biometric Dilemma of the asylum system. Procedures and requirements to deter
In an environment of heightened security, biometric identifiers economic migrants and individuals posing security threats
are increasingly looked at as an effective means of preventing from gaining asylum have also made it more difficult for
the unwanted entry into a country of foreigners who may pose those genuinely fleeing persecution. More intense screening
a threat. Because biometric identification is based on unique by consular offices, biometric controls, visa restrictions, more
physical attributes (such as a fingerprint or retinal scan), many pre-departure requirements for travel and more airline liaison
have lauded them as an effective solution to identity document officers to detect those without proper documentation have all
fraud that allow people to cross borders illegally. made it more difficult for asylum seekers to enter the countries
in which they seek refuge in the post 9/11 security context.
Yet the embrace of biometric identifiers comes with substantial In addition, states have designated certain countries of either
costs that are not immediately apparent to those concerned origin or transit as “safe,” enabling receiving states to return
with protecting the border. asylum seekers to those countries. As one participant noted,
from the perspective of UN High Commissioner for Refugees
From the standpoint of accurately identifying threats, nothing (UNHCR), the concern is that the increased restrictions on
is more precise than biometric data. Yet critics of biometrics asylum seekers force them “underground.” In these cases, asy-
argue that concerns about privacy, data security, and limited lum seekers obtain fraudulent documents and resort to other
data threats all argue against an over-reliance on biometric unauthorized means to circumvent restrictions.
data in security systems. The success of biometric data at iden-
tifying individuals is based on the fact that a person’s biometric Given the current barriers to the effective functioning of the
information is a unique identifier. When this unique identify- asylum system, some participants suggested that states pursue
ing information is collected and stored, it presents yet another alternative means to fulfill international obligations to offer
security risk: if stolen and misused, the integrity of the data is asylum to refugees. One alternative is to identify refugees be-
forever compromised. It is not possible to issue a new set of fore permitting them to flee the country of persecution, which
fingerprints the way it would be a new passport or credit card can be done by local authorities, who attest to the fact that
number. This is of particular concern when biometric data is certain individuals do have a reasonable fear of persecution, or
shared among security agencies. As a result, the shift to height- by UNHCR offices within the countries that are being fled. In
ened security such as biometrics engenders the need for ever some countries, this practice has already been in place for some
increasing security. Second, biometric data is incredibly effec- time (and is permitted under U.S. domestic law). Similarly, a
tive at correctly identifying persons who are already known to “refugee visa” issued by foreign embassies and consular offices
be security threats, but they are useless unless the identity of a within the country of persecution could be tested through
foreigner posing a threat is already known. Due to the fact that a pilot program. A more challenging proposal was to train
new terrorists are continuously being recruited, this will always immigration control officers to better identify those fleeing
be a major shortcoming of a biometric system. persecution. The viability of these options depends first on the
political will to develop new programs and then on the success
of establishing and promoting these programs.
FINAL REPORT | 11
Bellagio Fellows
Throughout the Bellagio Dialogue, a group of nine resident focused on internal consistency in the regulation of migration
fellows from different fields worked on individual projects and the integration of foreigners and newcomers in Europe.
focusing on various facets of migration. The fellows also
contributed to the off-the-record conversations that took place Terri Givens, of the University of Texas at Austin, began work
in the thematic workshops, and lent continuity to the ongo- on a book on the politics of immigration and race in Europe,
ing programming through their extended participation in the which examines the politics of religion, particularly anti-
Bellagio Dialogue. Fellows undertook the following projects Semitism and Islamophobia. The book explores whether or
during their time at Bellagio: not there is a politics of race in Europe, and how it compares
to the politics of race in the United States. Givens argues that
Manolo Abella, of the Centre on Migration, Policy and Soci- a politics of race has developed in Europe and that it is driven
ety at the University of Oxford, prepared the second edition of by rhetoric that has evolved around immigration policy. As
his 1997 book, Sending Workers Abroad: a Manual for Low and case studies, she examines the nature of race politics in France,
Middle-Income Countries. The updated version will include a Germany, and the UK.
discussion of the many subjects that have emerged as critical
policy issues for authorities in countries of origin since the Elzbieta Gozdziak, of Georgetown University continued
publication of the first edition. Of special note is a section on work on her book, Poultry, Apples, and New Immigrants in
managing the migration of skilled workers. the Shenandoah Valley: A Reflection of a National Trend. The
book focuses on new migrant settlement patterns, particularly
Rainer Bauböck, of the Austrian Academy of Sciences in around industries that provide jobs to migrants in suburbs and
Vienna, worked on his manuscript Exit Plus Voice: Emigrant rural areas, and examines both the new integration challenges
Political Participation, which comparatively analyzes the phe- that these communities face, and how they are able to integrate.
nomenon of emigrant political participation in their countries
of origin. Rey Koslowski, of the Rockefeller College of Public Affairs
and Policy in Albany, NY, examined the use of information
Joseph Chamie, of the Center for Migration Studies in New technologies used to control migration, evaluating both the
York, worked on a research paper on illegal migration, includ- effectiveness and effects of virtual borders. His time at Bellagio
ing its magnitude and dynamics, past and present options for was part of an extended project investigating the role of IT in
dealing with illegal migration, and an assessment of possible border security in several European countries.
government policies and actions likely to be adopted in the
near future that may effectively address the question of what to Nina Clara Tiesler, of the Institute of Social Science at the
do about illegal aliens. University of Lisbon, worked on an article on “Muslim-related
issues and policies in post-9/11 Europe.” She also continued
Marie-Claire Foblets, of Leuven University in Belgium, ongoing work on the Europeanization of Islam and Islamiza-
conducted research on “Inconsistencies in the regulation of tion of European discourses, focusing on Portugal as a unique
migration and integration in Europe,” which comparatively case for Muslim integration because it focuses primarily on
addresses causes and possible remedies of this problem. She ethnic categories and not on religious affiliation.