Models for Immigration Management Schemes

8/8/2019 Models for Immigration Management Schemes

1/32

Models for ImmigrationManagement Schemes

Comparison and analysis of existing approachesand a perspective for future reforms

Kay Hailbronner

Director

Konstanz Center for International and European Law

on Immigration and Asylum

Rey Koslowski

Fellow

Transatlantic Academy

Associate Professor

University at Albany

IMMIGRATION PAPER SERIE S


2/32

2008 Te German Marshall Fund o the United States. All rights reserved.

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in writing rom the German Marshall Fund o the United States (GMF). Please direct inquiries to:

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E [email protected]

Tis publication can be downloaded or ree at http://www.gmus.org/publications/index.cm. Limited print

copies are also available. o request a copy, send an e-mail to [email protected].

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sarily represent the view o GMF. Comments rom readers are welcome; reply to the mailing address above or by

e-mail to [email protected].

About GMF

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3/32

Models or Immigration Management Schemes

Comparison and analysis of existing approaches and aperspective for future reforms

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4/32


5/32

Models or Immigration Management Schemes:

Comparison and Analysis o Existing Approaches and a Perspective or Future Reorms

3

Introduction

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6/32

he German Marshall Fund o the United States4

2.1. Immigration and immigration policy

I w U N

w

,

w j

E N A ( b 1) b

w

b .

A w j

- ,

, ,

w k w. W

U S, C, A, A,

Nw Z

E 19 20 ,

w

E

.

z

b w

Selective immigration policies:Different approaches

Rank 1990 2005

1 U S A 23.3 U S A 38.4

2 R F 11.5 R F 12.1

3 I 7.4 G 10.1

4 Uk 7.1 Uk 6.8

5 Pk 6.6 F 6.5

6 G 5.9 S Ab 6.4

7 F 5.9 C 6.1

8 S Ab 4.7 I 5.7

9 C 4.3 U K 5.4

10 A 4.0 S 4.8

Table 1: The ten countries with the highest number of international migrants (in millions)

S: M Sk: 2005 R, U N D E S A, PD, POP/DB/MIG/R.2005/D, Fb 2006.

2

w

. O w

, W W I

II, b -

w . I -

w , w

, w , , .

E

, , ,

z

b. F

Ever since the

development of

the international

system of states,

states have, to

varying degrees,

attempted to

shape the size

and composition

of migration

across their

borders.


7/32



5

Selective

migration

policies are

proliferating

among migrant

destination

countries of

the developed

world.

E,

b b z

, b

, A,

w W W II.

M E

b b

. I b

w W E

w 1970, w . W

E

19 20 , E

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w

b wk

U.S., C, A ,

w w

. D 1970, 1980, 1990, E b

- b j

-

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L w,

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w.

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w kw

b

w z

bj w

. A F P N Skz,

, W w [ ]....W w .1

S

w. U S, C, A,

Nw Z, G, U K,

F, N, I, Cz

Rb

, -k ,

, ,

b. E w -

R . I 2005, -P

V P

w b w

. W wk

w w

.2

S b

b

w -

k / b k

1 Q b H S, Skz U Nw Lw EF Wk, Te elegraph, Fb 7, 2006.

2 Q b N V, Outlook on Migration PolicyReform in Russia, : IOM, M PEE C A, 2006, . 78.


8/32


k . C

C, A,

U K, F w

w wb

b b k .

O k k-

b b k

b w

b jb.

2.2. Planned immigration: Admissionfollowing economic forecasts

C A w

b , w

k, , wk

, w

. Canadas 1976

I A b

: , (),

b

, ,

k. C

b :

(25); b E /

F (24); (21); (10);

C (10), b (10)

100 . I w

67 b

. I

55-60

200,000 250,000

C .3Australia

b 1973 .

O 120,060 A

3 CIC 2006, F F 2005 I Ow:P R, Cz I- C. R : ://www...//b/2005/..

20042005 , 77,880 w b k

.4

I Ob 2001, B

b H-Sk M

P, w w

b w q

5 w

b w . I M 2006,

H O

-k w

k wk w jb .6 L Fb 2008,

b 80 - wk

United Kingdom

; w wk k

, ,

k .7

I 2006, France

w

k w k

k. F

I M P N

Skz , q ,

A , w w

k E.8 w

w b - k

4 Bb B, L Hw, S R. E G Sk M C, D I M A, M 2006

5 C. U.K.: I R R,Migration News,V. 9, N. 1 (J 2002).

6 H O, A P-B S: Mk M Wk B. R A 12, 2006 : ://www...k/F/k/C_P1..

7 H O, -b , R M 4,2008 : ://www.b...k/b//b/.

8 Q b K B, F k -, International Herald ribune, Fb 10, 2006.

Canada and

Australia were

pioneers of

immigration

policies based

on point

systems.


9/32



7

Point systems

may take

fundamentally

different

approaches to

migrant selection

,I , w, Skz ,

b

.9 J 2006 I

I A w -

-k wk,

w b F

wk. F w

w F w

jb, w

w b wk . A

-k - w b

k wk .

W b

,

w

b

.

P k

bw C A .

C z wb

, b (E F), wk

w w w- b

w b

b b

b k . 10 I ,

A b

1996

k- b b k

9 Q b S, 2006.

10 D Hb, Sk I C: C,P O, C A1, Bb B, LHw S R, ., E GSk M C, Cw A,Cb 2006, . 185.

E b .11

A b

wb D I

M A (DIMA)

k Sk O

L E N S O

L bw 40-60

, w b

. DIMA

w

b

k b k- b k-. R k

A

w

Sk M Db.

2.3. Demand-driven immigration:

Admission following employers needs

Uk C A w

U K F, U.S. G

b

k

b z .

I U S, k

b w

wk b w

w j

.

U S k k-

b, -

. G

U S w . E

b

11 L Hw, Labour Market Outcomes for MigrantProfessionals: Canada and Australia Compared(Ow: SC 2006).


10/32


The German

concept of

economic

immigration

is mostly

demand-driven

and hence

employment-

based.

Sbq 1998 2000 H1-B ( b 2) b

, q 65,000. I 2005,

U.S. C

20,000 H1-B

w

U.S. . H1-B b

-k wk w

w b, H1-B

j ,

w w. M

H-1B w

- US bw 20 50

H-1B j

( )

1990.12

b w -k w

U S

.

I b A 2008,

163,000

65,000 H1-B b 2009 . q 20,000 H1-B

w U.S. w

. U.S. Cz I S

q. I ,

A 10, 2008, U.S. S J C (RX)

Gb C A

2008, w w 115,000

2009 2011

b

30,000 (U.S. S 2008). I k

w b k b

12 L B. Lw, H-1B Wk: E P, Wk P N. 12, M 12-13, 2000, C C I S, U C, SD, 2000.

, b b jb .

S b q

( -)

b G

-

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G, w E ,

C. I, G

-

-b. A

b b-w q

G

k .

E b

, w k

, , k, .

U.S.C

-

k b

U.S. w b

-k .

I A 1990

( ) w

b

140,000. H1

b b

jb b

w b 1990

A b b H1-B (

65,000) b

jb -, - wb, w

j

. H-

q -

H1-B w

b 1990.


11/32



9

An attempt to

resurrect some

version of the

proposal by

the new U.S.

administration

and Congress

is likely.

b w

b -

U Sk

U S

w j

. w

b -b

( )

450,000 , ,

b k. I,

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Pw k U.S. C -

k

C A

(W H, 2007). P

2006-2007, w, b

k w k,

k , w

b b

-.

Germany - . F, , w

b k

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b k .

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w U.S. C P- Bk

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w H1-B

k. b w

b

- b

U.S. S K (DMA) J

MC (RAZ) b P-

Ob. I b w

w

w,

w w

b w U.S. C U.S.

.

G P- Ob

C I R A

2007 (U.S. S 2007) D

P P

Ob ,

b w U.S.

C k. b

k b U.S. S J 28, 2007. H

b w, w

z -k

H-1B

H-1B w

U.S.

F Y 1998 1999 2000 2001 2002 2003 2004 2005 2006

V C 65,000 115,000 115,000 195,000 195,000 195,000 65,000 65,000 65,000

V H 240,947 302,326 355,605 384,191 370,490 360,498 386,821 407,418 431,853

Table 2: H1-B visas

S: 2006 Yearbook of Immigration Statistics, D H S, b 26.


12/32


2011, 2014 B R). W

b k

b

b E U, b

b k EU

C E E

U K, I, EU b

, b b k

w EU z. G A, w,

b j

C E E

, .

R A 2004

(q )

q ,

w kw,

,

w

w 86,400

E .14 I ,

w -

w b

1,000,000 E ( 500,000E 2007).

A , b I

C I R 2001,

b k b b.

C

b b

, w-

w z. I

, C

14 T w bj b.A bj , b - .

k w

k wk w

q.

q

q b k

G q EU z

b

. A z

q

b , b

b .

W w

w

wk 1973,

bz k

-k . I 2000, G

q

b

b wk

20,000 I .

w b

100,000 G k

( ). B 2003, 15,658

w .13

2004,

A A 1990,

G b k

q k -EU

,

w . w

EU b w j w E

U (w

w EU b

13 S A, D S Ab D, F-Eb-S, B 2008, . 13.

In 2000,

the German

government made

a first attempt

at recruiting a

specified category

of qualified

foreigners.


13/32



11

The new

provisions of

the Residence

Act have not yet

had a significant

impact upon

the desired

immigration

of qualified

foreigners.

- k w k ,

29,466 k

w 2006 17,612 2005. M

w 2006

R (3,828) B (1,147). Hw,

b b wk

( EU

b q) b

wk.

I 2007 2008, G

q b G b q

wk b

w :17

1. Lw

q S 19

R A 86,400 E 63,600

E.

2. Pb w

G

q q k

b w .

3. P (w

) b k

G b.

4. P b k

w

G

, w wk q w G.

17 A P G J 16, 2008,B-D. (P D) 16/10288.

b b

.15

A

j,

-

w

2004/2007. R A

k k

b k

. q

b

k

. G w

E U b

. I

w

jb b b G q

EU z ( )

w. , k bw

w b

( 3.2.).

w R A

q . O 1,123

-q

w w

,

G.16 F -

b , 3,973 w . U

S 18 R A,

15 I C, R S, . 7.

16 F 1.1.2005 1.1.2007, . Mb 2006, . 82.


14/32


w -

b CDU S D

P (SPD) w

G,

w

. z w

EU b ,

b, w j

b 2011 2014 ( B

R)

b k.

5. F

q

( G

kw q).

w

q

G w

j . Lb P (FDP)

w C D U

(CDU) z

w k ,

Table 3:Newly Arriving Immigrants in Germany, Sorted by Purpose of Residence (2006)

E(), 18AG

Hq, 19AG

S, 21AG

SWk*, 18, 19BV

CWk*, 39BV

A, 60AG

19,466 80 642 303,492 20,001 21,029

FR, 27-36AG

S, 16AG

OEP, 16, 17AG

S, 4BVFG

JwI, 23AG

50,300 53,554 9,080 7,747 1,079

S: Mb 2006

* N 18 AG q EU N.

The opinions

on the potential

effect of these

new measures

to meet the

demand for

highly qualified

foreigners in the

German economy

are split within

the major

political parties.


15/32



13

w b.18

w -k U S,

w EU b A

C,

w

b k b

w -k -

b

w

b b k

b .

A - -k b w

w

jb . M,

w

w b

wk

wk

-

. G ,

b

-k q , ,

. k .

I ,

bj k

w b k

wk jb. I ,

w b b -b

, ,

18 Hz W, T C G C I F I S G, I Mb H Sk (P: OECD 2001), . 323.

3.1. Advantages and drawbacks of planned

and demand-driven approaches

( ) b k

.

w

b, b b

k

wk

. F ,

b C C

wb - b

q b

b

. w

k

w C,

w,

w q

-k

k b .

D b , k

. F , G

w .

w I wk G

k z,

I

w

U S ( H1-B j b

) w

j

3Comparing approaches toselective immigration policies

Despite

destination

countries best

efforts, skilled

migrants may

not necessarily

respond to the

selective migratio

strategies of the

receiving country


16/32


wk, , wk

195,000 w

w w. I 2000,

w k k w w w

- w

, w k

k bbb.

D . W

b -k

b w

k wk , -k wk b

w b k

q k -k

wk b wk

z. M

b

q k

wk b b

b jb

wk. M,

G q

b wk , w, w wk

H1-B q

b wk.

b w

. I G,

b k,

q b

w w k

wk b j

k . I , b

b b

. , k

w

w

b .

k k.19

I , w

k

k wk

. I , -k

q

.

b

w P.D.

b q ,

,

.

A k

k b k

, k (

w b) b

b k b

w ,

w z. F , -k

Nw Z

A b jb,

q Nw Z z.20 S,

-k b C bq k jb

b U.S. k.

- b

. F,

w b

;

, kw w w

.

b . F , U.S.

b bb H1-B 195,000 -k

19 Bb B, L Hw S R,E G Sk M C, D- I M A, M 2006.

20 R Kwk w w Nw Z D Lb O, Db 2006.

Demand

is also a

function

of price.


17/32



15

Therefore, labor

markets are

potentially global

with prices that,

if there were no

government barrie

to international

labor mobility,

would reflect glob

competition for an

given position.

$26/ wk b $110/, wk b q.22 H,

-

b

q b. Ow,

-k wk b b

w b . I

bw k w ,

b,

b

-k wk w

b b , .

3.2. Planning demand: Most models combine

elements of both approaches

P-

b b. F ,

A

1996 b

E N S O

L

w A

. M, b C

A w b k

w b

k jb

; k H1-B

j .

E C A

b

w- U S wb

b

j .

22 G C W F. R J., I S H- , Te Baltimore Sun, Fb 21, 2000.

I k -k

b wk.

E jb

w. F jb k

jb b

.

b jb. ., w

b

. , b k

b w , w

b b b, w

b .

-k

U S

w w

wb, b

, jb

b . C

jb b w

, w

.

I , w

b b

w (

U.S. z

b). S H-1B wk

U

S,

b wk.21 S

w H1-B wk

j w

wk bw w b. S

wk b q. O

H1-B wk

21 N M , H- C Lb, Te WashingtonPost, Sb 12, 2000.


18/32


R, G w b k

b -, -, - b

k . I b

, ,

(L).

b b .

w b b

b w j -

- b k . A

,

. S

, w, b k w

E U. R ,

,

.

b w b

w . M,

k . R

b q

k q

. Hw,

w b b EU

z .

I w, b k C b

w

, U S b

b k

w w

. S, C

q

b ,

, z w U

S b

jb, b ,

w z . G

A

,

bw C U S b

C U S. G

G

b b

b k b

, bw U

S C b U

S. U K F bw A G.

Germany is

between the

ideal types

of the United

States and

Canada but

very close to

the United

States.


19/32



17

b. W k w z , b,

, ,

- ;

b

w

. H, b

, b

w w b

b

z .

4.1. Economic elements in family reunification

and humanitarian immigration

H-k

w b

w b k k -k

, ,

w

b -k .

I w

j b ; w,

-q w, q

, jb q

k.

R w

k. W

,

b ,

j , b , q

k.

A w

, E,

A clear distinctio

between differen

immigration

streams is not

always possible

and it may well

be asked if it is

always necessary

or desirable.

-

: ,

(), (b)

b. I, w, w b

, ,

. ,

b

. I ,

b k

j E . I G,

1973,

. I ,

b

1990. I 1992,

G k w 438,000

k 400,000

G

S U. Hw,

bw

w b w b k

w b.

Nw

b

z w

.

bw

EU b

q .

M, b w

w

k

w

. I

,

w q j .

Hw,

4Crosscurrents in differentimmigration streams


20/32


b k w

. A

b b w

E Ub

w

j b

, b

. W

w j E

U ,

,

U S C b . I

2007, 75,300 w b

14 , U

S (48,300), C (11,200), A (9,600),

Sw (1,800), Nw (1,100), Nw Z

(740).23 I E ,

w k wk,

U S, k

wk z w

b 150

b

.R U S

wk b

wk

k .

A E

, Sw Nw,

b, kw k

b. I , U

S b kw

w b

k.

E w

. A b -

23 U N H C R,2007 Gb: R, A-k, R, I D- S P, G: 2008, .11.

, , b

w w

b b EU-. ,

EU b (w

U K, I, Dk

E C

) . F

, b k .

b

k- , b

kw q G, N, F,

b EU b

. S b

b

de facto . I

, w,

EU- w j

.

4.2. Circular migration

G w EU b

Swz w

()

. I w wk

(- -wk) 1950

1960 w ,

wk w k

. I, b

- w

w q k wk

b

wk, w w

b b . A,

wk G. F

b

G

.

w

What was

thought to

be temporary

migration

eventually

became

permanent

migration.


21/32



19

b. b k b

b

.

wk w w

w

b w,

.26 A

w

w w

b

, w,

. C b

b

b

. N w

b b

, b

b.27 ,

wk w q,

,

. A

b b

(w EU

b )

.28 O b

wk

/

k

26 A M. M B Q

E E S U ,. M R. E E FS U, W Bk 2007, . 110.

27 C. D , Ewk M: G-b M, ://www.-b./wb//47_1037. .

28 S M/Q, . 107.

The assumption

that migrant

workers will

always prefer

to move

permanently

to a country of

immigration may

well be wrong.

b.

E

wk.

, w,

b

. I bz

k wk b ,

, ,

. U ,

. P w b

wk bw K

M w

P wk

.24

b k

b F

G, E P

I A.25 C ,

w

, . W

kw k q b

wk,

b . A ,

w wk

24

Gb C I M, M w: Nw , 2005, . 17.; D R A/K Nw, C- M D: , P R W Fw, M P I, A 2007, . 3.

25 J 2008, . 5 (Ab ://www.2008./PFUE////PFUE-10_2008/PFUE-15.10.2008/C_-); C E C, D-b 14, 2007.


22/32


2006-2007. W E k b

wk E U

b

, U.S. k

w

. I , B

w

U S w wk

b wk

de facto z.

W w k

b

. P w

wk w

U S. C U.S.

D H S (DHS)

U.S.-VISI b -

( b

w ), w

kw wk

j 40

12 U

S w . A,

w

w w

. F

,

k

. w ,

j ,

( ).

Pk

b k

b . I , w

b 62

U S 64

U.S. policymakers

primarily viewed

temporary

migration as an

alternative to

illegal migration.

wk . I ,

w b

w b

.

F ,

b b

w

. Fq, w b

q b. EU R

D 2005/7129

, w w.

, w b

b EU b

w z ,

w w E U

j. S

j w

w

. C b j

w

wk .

A

, U.S.

w

wk ,

H1-B 1990. M , U.S.

k k b

U.S. C

wk k k

k b

29 C D 2005/71 12 Ob 2005, Of J EU L 289/15, Nb 3, 2005.


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21

Adjusted status

indicates the

extent to which

high-skilled

labor migration

to the United

States yields

large number

of permanent

migrants.

EU b (F,G, I, N, P, U

K)

,

b

b

. O 26

E 27

U S

b b q

.30

4.3. Adjustment of status

,

wk b

b w

j

30 ransatlantic rends: Immigration 2008, .13. ( Nb 17, 2008 : ://www..//.?=183

. U S b wk

b

1990, b

, H1-B , j

w -k

b U S

b . G

H1-B

b

b H1-B wk ,

w

b w

. A U S

w-

-k wk b 4 ,

wk

U S C A.

F E

A 25 33

C 23 11

U K .. 20

U S A 52 89

Table 4: Changes in status from temporary to permanent 2005

percent of immigrants in group having changed status

S: International Migration Outlook: SOPEMI 2007 Edition (P: O E C- D, 2007).


24/32


jb w .

N, ,

k

w b

. Hw,

b . A

(- )

S 19 R A

( q ). A q

k q kw G

.

O

bj

w

. I

b k w b

w b

, q w k,

, . I w b

b

.

Germany as well

as other European

countries uphold

a strict separation

between a

residence title

granted for a

specific purpose

and a residence

title for taking up

employment.

b

w

b

. G E

bw

k . I ,

j

.

,

G 2005

k

b.

b jb

b k. b

w . F

w q q

G w

. I w

b k q b w

q G

. , j

w


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23

b . I z b .

E C, w

C

, b

, w . A

C w

, w

.

D C

, ,

z . I P P L M 2005,34

C kw

b

.35 ,

.36

- wk ,

Ob 2007,

- . A

, - w

, w

w

b k. -

b

q

EU b . b-

- ,

wk ,

, .

34 COM (2005) 669 .

35 b b w 2001, . COM(2001) 386 . A b M- S, D Ewkz EU, B-B2006, . 333-343.

36 F C , .Eb E, Bw Kz Ab, Z A A-k (ZAR) 2008, . 81-86.

I domaine rserv .

Hw,

wk E U

b

. I

k G

EU b

b EU b. W

,

b E ,

b

b EU b b

E C

w b .

5.1. Immigration policy at the

European Union level

R EU b

bb

E . q w

b

- b

b . A

E

, F R

D31 D C

N w EU b

- b,32 b

w -

k b k.33

E C, w b

,

31 D 2003/86/EC, O.J. 2003 L 251/12.

32 D 2003/109/EC, O.J. 2003 L 16/44.

33 F , . S P, EU JHA Lw, O 2006, .213-231.

5International context of immigrationmanagement policymaking

Regulation of

legal migration

to EU member

states is

probably

the most

controversial

aspect of

European

migration policy.


26/32


w w , U S.38

W ,

, w,

bw w .

C wk ,

-k wk

EU b . w b

. Hw,

w w

wk w w b .

b b

b .

A q

, b

w

. B q

q

w w b b

b k EU b .

Hw, k b

, q

b

. ,

wk

b jb .

E

conditio sine qua non . M,

b b .

E U b

w b

38 C. COM (2007) 637 , . 3.

wk b

w w w

b , w

, w

b b . I

b w wk

w b b b

E .

R b EU b

. M k b, w

,

C w E U

b -

- b .

K

q C,

w

b b . O

, F

b

. , b w b w .

B wk , C

-k wk, wk,

, -

.37 M ,

-k wk, w w

b Ob 2007, q U.S.

b EU b .

j b. I C

-q w

37 T wk -k wk w b b C Ob 2007; wk . T w wb b 2009. C. C R , COM (2005) 669, . 14 .

The initial

decision whether

and to what

extent there is a

need for workers

from third

countries will

remain with the

member states.


27/32



25

w D 2003/109 b -

w b b

.41 F, b

bj

b b

b b . ,

b bw EU

b U.S.

j .

5.2. Competition for high-skilled immigration:

U.S.-EU and intra-EU

A w z

ww -

q , q

b w .

I 50 k

Mb U

S C, w 5.5

EU b .42 I

w b b

z, -

b

b k.43

Hw,

b w E U

w U S

b

b . G

, E

U b .

41

D b 18 b .

42 E.. Ew K, MEP, - EP D H k 5 Nb 2008.

43 C. Jkb Wzk, W E, B PB, I 2006/3.

It must be

said that the

differences

between the EU

blue card and

the U.S. green

card amount to

far more than

just a difference

in color.

b . Hw, , EU b

w w

w b b

. B

wk jb

q .

D

-q wk

b- wk ,

b b .

w z j b

b C E P

I A.39 Hw,

C

. I ,

z b w

w b

w b

w b . E

, w

k b 1.5 b . W F

b ,

b b

2008.

S EU b w

w

-EU

- . I ,

bj b b

b D

L- R (2003/109/EC), w b z w w

.40 B C-D

39 C. P , . 5. Ab ://www.2008./PFUE////PFUE-10_2008/PFUE-15.10.2008/C_.

40 C. Sj B-S, CML R. 2005, 1011.


28/32


29/32



27

b

k, w,

b

k

.

bw

w

b . b

;

.

b

-k w

EU b k

b .

EU b w

w b

b k -

.

A w

.

w

: w

. - .

C

k

; U S

-,

.

w

b. D-, jb

wk .

I E, U K F

;

G -

.

I ,

G U S w

; w k

.

6Conclusions


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Models for Immigration Management Schemes