Building migration strategies: Insights from EMN and OECD Countries

With migration strategies being developed, the EMN and OECD* joint inform “Designing Migration Strategies” presents an overview of different approaches across 28 EMN Member and Observer Countries and selected OECD Countries. The inform highlights variations and provides insight into how different countries implement, monitor, evaluate and adapt their strategies. Some countries have developed overarching strategies, while others have established sectoral strategies. Several countries also link their national strategies to EU and international strategies. Challenges and good examples in various aspects of strategy work are highlighted.

Why are migration strategies important?

Over the past five decades, international migration has increased. The number of international migrants was estimated at 281 million for 2020. In addition, the number of forcibly displaced people is rising as a result of conflict and violence, persecution and human rights violations. Globally, the number of forcibly displaced people was estimated at 117.3 million in 2023. This increase in international migration brings with it the need to establish a functioning migration system that addresses the opportunities and challenges of migration. Migration strategies play a vital role – contributing to concrete and effective governance in practice.

What is a migration strategy?

A migration strategy is a framework document issued by a government. The document sets out a strategic approach to the development of migration policy. The strategy sets out the government’s priorities in the field of migration and explains ‘why’ and ‘in what direction’ the country’s migration management should develop.

The EMN-OECD joint inform defines a migration strategy as a formal policy framework for the medium and long term. Accordingly, the migration strategy differs from a political statement on a policy direction or migration objectives within a programme. The EMN-OECD joint inform also distinguishes between overarching and sectoral migration strategies.

• An overarching strategy covers all (or several) relevant areas of migration. This type of strategy includes, for example: regular and irregular migration, addressing labour market shortages, asylum, reception, integration and return.
• A sectoral strategy, on the other hand, covers a specific area such as integration, asylum or labour immigration.

Migration strategies: From analysis to action

Migration strategies strengthen inter-agency cooperation and contribute to better coordination between different policy areas. Strategies improve understanding of migration within the system and facilitate communication with the public. Furthermore, the strategy process provides scope for stakeholders to discuss, improve and adapt governance and decision-making structures. A migration strategy is often accompanied by an action plan aimed at translating strategic objectives into concrete results.

The comparative inform concludes that migration strategies are a crucial part of migration governance and migration management. Strategies can facilitate the formulation of clear objectives and clarify the division of responsibilities. They contribute to an increased capacity to establish effective asylum and migration systems that comply with EU law and international law.

European perspective

The inform shows that a total of 22 EMN Member Countries have established one or more migration strategies. Of these countries, 11 have both an overarching strategy and at least one sectoral strategy. While 10 countries have only sectoral strategies, three EMN Countries lack migration strategies entirely.

Although several factors come into play, a country’s geographical location could be a factor when migration strategies are formulated. From this perspective, the EMN Countries Bulgaria, Italy and Greece may be of interest. Several EMN Countries also link national strategies to EU and international strategies.

• Bulgaria. Despite a challenging political situation, with seven snap elections held in four years, Bulgaria has managed to produce an overarching migration strategy. This is being developed by a national council (the National Council on Migration, Borders, Asylum and Integration) and serves as an example of a combination of broad and specific strategic objectives. The policy aims to develop a sustainable national migration policy that ensures effective border and migration management, adapts labour immigration to market needs, ensures international protection and deepens European and international cooperation.
  
  The National Council evaluates the implementation of the migration strategy and proposes updates and reforms to the strategy. This work is conducted in dialogue with national and international stakeholders and civil society and is supported by comprehensive monitoring and analysis of the regional, European and global processes that influence migration.
• Italy and Greece. Italy’s strategic guidelines are linked to the UN’s Sustainable Development Goals (Agenda 2030), the UN’s 2016 New York Declaration for Refugees and Migrants, as well as the principles and criteria for development aid drawn up by the OECD. Greece’s National Strategy for the Social Integration of Asylum Seekers and Internation Protection Beneficiariesis, for example, based on the EU Action Plan for Integration and Inclusion 2021–2027.

Experiences from OECD Countries

The EMN-OECD inform provides a number of examples of experiences from OECD Countries. Among other things, the report highlights how selected OECD Countries are working to revise and update their migration strategies.

• Japan is shifting its focus from flexible labour immigration to the need for increased immigration. Through so-called “Basic Plans on Immigration Control”, Japan’s Ministry of Justice establishes five-year plans aimed at providing guidance and support for major legal reforms. Since 1992, Japan has launched six five-year plans, and changes to the country’s migration policy are announced in these “Basic Plans”. The fourth plan (2010), for example, introduced a points-based system for highly skilled labour immigration. These plans provide an insight into the development of the country’s migration policy over time.
• Canada’s consultation process. In 2023, Canada launched a consultation process entailing a review and examination of the country’s migration system. This process identified guiding factors for the country’s migration policy priorities and measures. The work included dialogue meetings with a broad spectrum of stakeholders in various parts of the country.

Challenges and good practices

Among the challenges in developing migration strategies, difficulties with prioritisation, gathering input from the target group and reconciling the views of different stakeholders are highlighted. A complex and changing migration context also complicates the implementation of these strategies.

Despite a challenging and difficult-to-navigate migration context, a number of good examples are highlighted, such as enhanced inter-agency cooperation and better coordination, as well as collaboration between different actors to improve the integration and protection of migrants and diaspora groups.