Exchanging Knowledge,Enhancing Capacities,Developing Mechanisms: IOM's Role in the Implementation of the EU–Russia Readmission Agreement

Research on European Union (EU)–Russia cooperation in migration issues often neglects important actors involved in these seemingly bilateral arrangements. This paper questions the role that the International Organisation for Migration (IOM) has been playing in the EU–Russia cooperation in migration management. The analysis is situated in the theoretical framework describing international organisations (IOs) as bureaucracies and within the discussions about international migration governance and migration management. The paper describes the context of the EU–Russia migration management cooperation and identifies the major activities of IOM in Russia. Treating IOs as bureaucracies that pursue their own interests, the paper argues that, far from being a mere implementing body, IOM is an actor that, to a significant extent, has shaped the outcome of EU–Russia migration dialogue. At the same time, it is the context of this bilateral cooperation that has allowed IOM to strengthen its position vis-à-vis both Russia and the EU and to be successful in the competition with other IOs.     

Between humanitarian assistance and migration management: on civil actors’ role in voluntary return from Belgium

Whilst European governments have increasingly externalised restrictive migration policies to civil actors, the latter’s main interests lie in improving or defending immigrants’ well-being. This raises the crucial question as to how civil actors deal with the puzzling position they find themselves in: to what extent do they execute or transform their funders’ policy objectives? And which mechanisms enable them to do so? This article contributes to answering these questions by detailing the historical shifts in the roles played by civil actors in the Assisted Voluntary Return programme in Belgium. Most importantly, the article argues that the considerable autonomy these civil actors achieved resulted in two seemingly opposite effects. On the one hand, they developed a wealth of expertise in ensuring the quality of return, thereby transforming the national government’s goals of managing migration into humanitarian ones. On the other hand, in recent developments their autonomy paradoxically became instrumental to migration management, not so much by changing their practices or values, but by changing their functioning within the wider field of migration policies. The article concludes by proposing the metaphor of ‘immunisation’ as an apt way of describing civil actors’ practical and functionally role in migration management.     

Enabling,structuring and creating elite transnational lifestyles: intermediaries of the super-rich and the elite mobilities industry

ABSTRACT

This article considers how the migration industries lens can be usefully employed in understanding how professional intermediaries enable, structure, and create transnational migration lifestyles of the super-rich. In particular, we examine how intermediaries and their services (1) enable the continued sustenance of transnational migration lifestyles for this group of elites; and (2) structure and create elite transnational lifestyles. This article primarily draws on interviews with professional intermediaries who service the super-rich, and content analysis of their websites and brochures. Inspired by insights from the new mobilities paradigm (and in particular the politics of mobility), we argue for an expanded conceptualisation of the migration industries beyond the literature’s current focus on labour recruitment and migration management. Specifically, we suggest thinking of the migration industries as a collection of actors and services that enable, structure, and create different types of ‘migrants’, their spaces and their highly uneven transnational mobilities – including that of the super-rich and their elite transnational lifestyles. We conclude with suggestions for a research agenda that may help to better understand the role of intermediaries in the creation of differentiated mobilities.     

Strengthening migration governance: the UN as ‘wingman’*

ABSTRACT

The plight of desperate migrants crossing the Mediterranean reached an inflection point in 2015 when an estimated 800 migrants drowned in a single day, painfully exposing dysfunctions in how States, regions, and the international community as a whole seek to govern a world with increased mobility of persons. By examining the response to the migration and refugee crises of recent years through the lens of the United Nations (UN), this article describes how States and the UN system are challenged to reconsider traditional hierarchies of power and influence since unilateral State action will not solve the migration problem. Migration solutions, particularly those providing greater protections for migrants in vulnerable situations, will require ‘coalitions of the willing’ between States, inter-governmental organisations, local governments and non-state actors. Still emerging, such coalitions are interdependent; and their objectives will be the result of negotiating and bargaining amongst their members. They reflect multi-level governance in the collective handling of migration, revealing a more complex interaction, one in which local authorities and non-state actors are in some instances bypassing State-led interventions. For its part, the UN – armed with recent institutional changes that provide it with more centralised ‘orchestration’ capacities – is best suited to serve in a ‘wingman’ function, buttressing rather than leading such coalitions.     

Multilevelling EU external governance: the role of international organizations in the diffusion of EU migration policies

ABSTRACT

The thematic and geographical expansion of EU migration policies has gone along with an increasing mobilisation of pertinent international organisations such as the IOM and UNHCR. Combining insights from the external governance approach with IR debates on international institutional complexity, this article examines the dynamics behind this ‘multilevelling’ of EU external policies. Three strategies of institutional interplay are distinguished: counterweight, whereby international organisations act as independent complement or corrector to EU policy; subcontracting, referring to the outsourcing of EU project implementation to international organisations; and rule transmission, a process in which international organisations engage in transferring EU rules to third countries. Whereas greater organisational authority and autonomy have allowed the UNHCR to keep an independent voice as counterweight to EU action, both the UNHCR and IOM have become increasingly involved in the implementation of the EU's ‘global approach’ to migration via subcontracting and rule transmission. In sum, these processes shed a new light on the role of the EU within the international migration regime complex.     

In the shadow of fortress Europe? Impacts of European migration governance on Slovenia,Croatia and Macedonia

ABSTRACT

This article analyses European integration's effects on migration and border security governance in Slovenia, Croatia and Macedonia in the context of ‘governed interdependence’. We show how transgovernmental networks comprising national and EU actors, plus a range of other participants, blur the distinction between the domestic and international to enable interactions between domestic and international policy elites that transmit EU priorities into national policy. Governments are shown to be ‘willing pupils’ and ‘policy takers’, adapting to EU policy as a pre-condition for membership. This strengthened rather than weakened central state actors, particularly interior ministries. Thus, in a quintessentially ‘national’ policy area, there has been a re-scaling and re-constitution of migration and border security policy. To support this analysis, social network analysis is used to outline the composition of governance networks and analyse interactions and power relations therein.     

On the threshold: becoming Romanian Roma,everyday racism and residency rights in transition

ABSTRACT

This article examines the reaction of welfare state actors and ‘Romanian Roma’ migrants to the political environment on migration in the UK. Based on the ethnographic fieldwork between January 2013 and March 2014, the article focuses on how processes of everyday racism infused understandings of the legal framework for European migrants’ residency rights. The article first explores how state actors developed ideas about ‘Romanian Roma families’ as opposed to ‘Romanian-not-Roma families’ in a context marked by pervasive uncertainty about legal entitlements, welfare restructuring and decreasing resources. Second, I draw on new migrants’ accounts to identify their perceptions and understandings of discrimination placed within their previous experiences of racism and state violence. The article argues that processes of racialisation are subtly enfolded into everyday life shaping the narratives through which both welfare state actors and new migrants understand their situated experiences and future plans. The article reveals the small and mundane practices that reproduce racialised hierarchies which maintain the notion of ‘Roma’ as a group with particular proclivities and the affects for their socio-legal status as European migrants in the UK.     

Calculating the migration industries: knowing the successful expatriate in the Global Mobility Industry

ABSTRACT

This paper argues that we need to pay more theoretical attention to the ways in which migration industries come into being, how they produce a need for themselves within the management of migration processes. Using the example of the Global Mobility Industry (GMI), an industry that supports expatriate migration, the paper suggests that we can theorise migration industries as being part of the knowledge economy. It shows how the GMI is produced around the practices of knowing the successful expatriate which work to ‘calculate’ what expatriate migration should look like. In doing so, the paper shows the way in which the calculative practice of compartmentalisation, in producing knowledge about expatriate migration, produces a need for the GMI. This illustrates the importance of widening our understanding of the economy when researching the migration industries.     

Sacred remittances: money,migration and the moral economy of development in a transnational African church

While remittances have come to play an important part in debates about migration and development, the link between religion, migration and transnational financial flows has yet to be understood in its full complexity. Drawing upon a multi-sited ethnography of a transnational African church, this article addresses this overlooked dimension of migrant transnationalism by analysing how religious donations converted into ‘sacred remittances’ produce a moral economy of religious life shaped by a politics of belongings at various scales. The article discusses the social meaning that diasporic actors attach to religious donations sent to the homeland (the Congo) and how this compares to the practice of sending remittances to family members. The article also argues that transnational circulation of sacralised money operates within a field of meanings and practices associated with moral expectations, entitlements and differentiated regimes of value. Sacred remittances, as ‘global money’, may generate a diversity of transnational linkages between donors and recipients but they remain embedded in landscapes of status and power.     

Contested control at the margins of the state

ABSTRACT

While the fact that the implementation of migration policies fails to perfectly manage migration is well known, the actual dynamics of policy implementation have received little attention to date. A serious engagement with this phenomenon requires a move beyond policy texts and political intentions, and towards a ‘migration regime’ perspective that pays attention to the inherent contradictions, conflicts of interest and competing logics within migration control practices. This collection posits a multi-actor perspective that includes state agents, migrants and non-state actors alike and proposes three key factors that require a closer examination: competing institutional logics, discretionary practices and migrants’ agency. Based on original empirical research, the contributions of this collection ‘zoom in’ on specific asymmetrical negotiations over the right to enter or remain in Europe, and focus on the institutional logics and interplay between the different actors involved.     

Slippery discrimination: a review of the drivers of migrant and minority housing disadvantage

ABSTRACT

This paper aims to identify housing disadvantages faced by migrants and ethnic minorities; the legal, policy and market forces that shape them; how they have developed over time; how they are manifest nationally and locally; and how they are being responded to locally by those concerned with mitigating them. The paper thereby intends to provide a foundation to inform future research and policy and to engage with local actors to develop ways of overcoming migrant housing disadvantage and challenging discrimination. The paper finds that the interplay of legal changes, which have increasingly differentiated migrants since the 1940s, and shifting housing markets, has driven exclusion of migrants and minorities such that considerable disadvantage is revealed by analysis of census data. However, attention to local specificity provides evidence of positive responses. Examples are presented in relation to access to affordable housing, enactment of homelessness duties and community actions. Methodologically, this paper highlights the importance of simultaneous consideration of migration and ethnicity as markers of difference and exclusion, and the potential of co-production approaches for socially meaningful research concerned with inequalities.     

How cities shape refugee centres: ‘deservingness’ and ‘good aid’ in a Sicilian town

While scholars have devoted increasing attention to the dynamics at play within refugee centres, analyses have often been driven by the ‘exceptionality’ of these institutions, overlooking the ways in which what happens inside the centres is largely connected to what goes on outside of them. Building on ethnographic fieldwork in a Sicilian refugee centre and the surrounding town, this paper investigates the extent to which economic, historical and political configurations inform how local actors conceptualise aid and how they interact with refugees on a daily basis. Overall, the study found that both centre workers and the general population mobilise moral arguments that can only be understood in light of dynamics that are external to the centre itself. These findings ultimately point to the extent to which state-level dysfunctions influence popular images of what a ‘deserving’ refugee might look like as well as local understandings of the ‘right way’ of providing help.     

Oiling the wheels? Flexible labour markets and the migration industry

ABSTRACT

The growing commercialisation of migration, often through a multiplicity of labour market intermediaries, is an issue of increasing academic interest. We seek to contribute to an emerging research agenda on the migration industries by exploring how one of the key actors that constitutes it, recruitment agencies, sits at the nexus between flexible labour market structures and migrant labour. Interviews with U.K. labour providers and low-wage employers form the evidence base for an analysis of the strategies developed by recruiters to derive commercial gain from connecting the so-called ‘supply’ and ‘demand’ sides of the flexible international labour market. We seek to contribute to understandings of the analytical categories within migration systems by illustrating how the migration industry interacts with other key stakeholders to structure international migration.     

The microfoundations of diaspora politics: unpacking the state and disaggregating the diaspora

ABSTRACT

Recognising the need to unpack ?the ‘state’ and? ?problematise? the term? ‘diaspora’, in this special issue we examine the various actors within (and beyond) the state that participate in the design and implementation of diaspora policies, as well as the mechanisms through which ???diasporas?? are constructed by governments, political parties, diaspora entrepreneurs, or international organisations?. Ex??tant theories are often hard-pressed to capture the empirical variation and often end up identifying ‘exceptions’. We?? theorise these ‘exceptions’ through three interrelated? conceptual moves: First, ??we focus on? ??underst?udie?d? aspects of the relationships between states as well as organised non-state actors and their citizens or co-ethnics? abroad (??or at home – in cases of return migration).? Second, ??we? ??examine dyads of ?origin states and specific diasporic communities differentiated by time of emigration, place of residence, socio-economic status, migratory status, generation, or skills. T?hird??,? ?we ?consider? migration in its multiple spatial and temporal phases (emigration, immigration, transit, return??)? and ?how the???y?? inter?sect to?? constitute diasporic identities?? and policies. ??These? conceptual moves contribute to comparative research in the field and allow us to identify the mechanisms? connect?ing structural variable??s with ? specific policies by states ?(and other actors?) as well as responses? by the relevant ?diasporic ?communi?ties??.     

Italy: the ‘illegality factory’? Theory and practice of refugees’ reception in Sicily

ABSTRACT

The recent surge of migrants crossing the Mediterranean in search of protection has presented a major challenge for the whole European Union. What has been labelled as a ‘refugee crisis’ is first and foremost a crisis of international politics and the result of inadequate response mechanisms at local level. This paper focuses on the case of Sicily, the second main area of arrival, after Greece, when migration to the Mediterranean reached its peak. With a long history of immigration, since 2015 the Italian island has seen the implementation of a new approach based on ‘hotspots’: designated areas for the separation of those deemed as economic migrants from ‘genuine asylum seekers’. In the view of some, this has made Italy into a model of migration management, as opposed to the chaotic situation of the Greek islands. The hotspot approach, however, has been also criticised for being engrained on practices that many deem unlawful, actively producing discrimination and condemning many migrants to an illegal status on the Italian soil. Informed by findings from an international research project (EVI-MED), this paper examines this complex scenario, exploring the social, legal and human implications of the refugees’ reception system in Italy.     

The public and the private in guestworker schemes: examples from Malaysia and the U.S.

While discussions of state involvement in migration generally focus on restriction, states are actively involved in the promotion of labour migration through guestworker programmes, among other examples. While these programmes are state-sponsored, they often rely heavily on private actors in order to function. Drawing on the examples of the H-2 visa in the United States and the recruitment of foreign workers to Malaysia, this paper examines the common elements of state direction of migration combined with a focus on temporariness and an outsourcing of recruitment and supervision that are present in both guestworker schemes. In drawing on the geographically, economically, and politically distinct contexts of the U.S. and Malaysia we look to how these schemes contain a mixture of state and private authority which permits an especially potent form of control over the lives of guestworkers that is greater than what either state or private actors could produce individually. Such control raises important questions about the nature of public/private governance within migration more broadly.     

Navigating the migration industry: migrants moving through an African-European web of facilitation/control

ABSTRACT

This paper approaches the African-European migration industry as a complex web of relations in which different actors liaise, objectives oppose each other, and roles overlap. Starting from this notion, the question emerges: How do migrants navigate this fuzzy web of migration facilitation/control? To answer this question, this paper uses a ‘trajectory ethnography’ that follows the im/mobility processes of migrants from West – and Central Africa to, and inside, Europe. In so doing, it particularly focuses on two practices that are related to the concept of social navigation. First, it concerns débrouillardise, a term that points to the power of improvisation, creativity and hustling. Second, it regards social negotiation, a term referring to the process of how migrants ‘massage’ their relations with important actors in the field. The findings stress the relational dimension of the migration industry in the sense that the functioning of one actor depends so much on the intentions and efforts of others. I conclude that we could enhance our knowledge on migration industries with studies that constantly shift between the perspective of the migrant, the social network, the facilitator and controller. Such a dynamic approach unpacks further the multiple efforts that produce migrant im/mobility.     

One of us? Reaction formation and inclusion as a strategy in the ethnic state

Many states question how to manage burgeoning migration. This is particularly problematic for ethnic states whose foundation myths imagine the state as the home for the nation. In this paper, we argue that ethnic states engage a type of defense mechanism, ‘reaction formation’, as part of migration policy to distract attention from threats to the claimed ethnic homogeneity that undergirds the reason for the state's existence. Using Israel as a case of a planned ethnic state, we show how a state develops a spectrum of membership models to incorporate ‘others’ into the nation-state. We suggest that Israel could conceivably devise some arrangement to incorporate the several hundred thousand labor migrants currently resident there. We argue that the state is reluctant to recognize these migrants as ‘Israeli’ because to do so would reveal a hidden truth: Israel may be becoming more Israeli than Jewish and, thus, the recognition of labor migrants and their children provokes questions about Israel's very reason for existence, that is, being a Jewish state.     

Racism and xenophobia experienced by Polish migrants in the UK before and after Brexit vote

In recent years the public discourses on Polish migration in the UK have rapidly turned hostile, especially in the context of economic crisis in 2008, and subsequently after the EU referendum in 2016. While initially Poles have been perceived as a ‘desirable’ migrant group and labelled as ‘invisible’ due to their whiteness, this perception shifted to the representation of these migrants as taking jobs from British workers, putting a strain on public services and welfare. While racist and xenophobic violence has been particularly noted following the Brexit vote, Polish migrants experienced various forms of racist abuse before that. This paper draws on narrative interviews with Polish migrant women illustrating their experiences of racism and xenophobia in Greater Manchester before and after the Brexit vote, and how they make sense of anti-Polish discourses and attitudes. This paper illustrates the importance of the interplay between the media and political discourses, class, race and the local context in shaping relations between Polish migrants and the local population.     

Activism of immigrants in vulnerable conditions and radical-left allies: a case study of Italy’s Struggle of the Crane

As interest in immigrant mobilisations in hostile national environments grows among migration scholars, the reasons why immigrants in vulnerable conditions engage in radicalised mobilisation at the local level and why they make alliances with controversial non-institutional radical-left actors need to be further explained. This study examines the conditions of mobilisation and radicalisation by undocumented immigrants in Brescia (a mid-sized city in Northern Italy) through the lens of a contentious moment that took place for two months in 2010, known as the Struggle of the Crane (Lotta della gru). It addresses two questions: why have undocumented immigrants in Brescia been mobilised to contentious political activism? And, why have they created partnerships with non-institutional radical-left organisations, rather than institutional non-state organisations, such as the Church and traditional trade unions? In addition to the hostile national context, discrimination and repression by local authorities triggered the motivation for mobilisation and nourished the radicalisation of the struggle and its endurance. Additionally, competing discourses and practices over immigrants’ access to rights and deservingness by multiple non-state actors played a key role in shaping alliances. The long-lasting alliance with the radical left since the 1990s was renewed and reinforced in 2010 by immigrants’ growing distrust towards institutional non-state actors.