Open door… at closed borders

The term “circular migration” is used more and more often in studies of current migration processes. It reflects the intensified mobility of people under the conditions of globalization. Migration has now lost much of its previously linear direction and is acquiring a cyclical character: people leave their country in search of a better life, go to another one, and then return periodically, all the while remaining ready to leave again.

Within the European continent this tendency became more distinct after the collapse of the so-called communist bloc in Eastern Europe. It has been accompanied by intensive migration flows to developed West European countries, mainly EU countries. The mass arrival of East Europeans in these countries in pursuit of better working conditions and salaries considerably impacted the formation of a special type of labor migration, which not only was formalized on a legislative level (in the EU and member states), but also led to the creation of new notions and interpretations. One of them was circular migration. It is mainly distinguished by its temporary character and an obligatory return back home. At this, the “return” is not a mechanical consequence of “leaving” but the migrant’s conscious, constructive choice: having gained some professional and personal experience, in addition to economic potential, the migrant is really able to work not only for himself but also for the development of his own country.

The obvious wish to institutionalize the mechanism of circular migration was first observed in the memorandum of the European Commission of May 16, 2007 (COM 248) “Circular Migration and Mobility Partnerships between the European Union and Third Countries.” This approach is dictated by real problems caused by the intensification of migration pressure in EU countries and is directed first of all at preventing illegal migration. The principle of institutionalized mobility allows EU countries to be more efficient in providing for the needs of the job market by coordinating “demand and supply” and some typologies of labor force. “Third” countries, mostly the non-EU member countries of Eastern and Southern Europe and the countries of the South Mediterranean, are guaranteed a regime of economic assistance, for example, by means of regional development models and decentralized cooperation; in addition, introducing the circular migration mechanism should limit the negative consequences of the so-called drain brain, the emigration of highly-qualified professionals and labor force. At this, the sides undertake a number of responsibilities: EU countries must guarantee access to the job market, and ensure mobility for citizens of “third” countries, specifically through a mechanism of establishing privileged immigration quotas; the donor countries ensure readmission of their citizens after their work abroad finishes, and they are also obliged to control their borders thoroughly and counteract illegal migration.

Apart from the “framework” recommendations of the European Commission, at the moment there is no legal document which, on the general European level, would address the mechanism of circular migration. At present, signing such documents is only possible between separate countries, since the job market remains the prerogative of national legislations. Besides, the immigration typology in each European country has its own peculiarities, making a unified approach to these problems impossible. Each member country of the EU signs corresponding bilateral agreements with “third” countries at its own discretion and in view of the needs of its internal market: first of all an agreement on readmission and agreements on migrant flow regulation. As a rule, such documents are concluded with the countries that are the main sources of migrants. For example, Italy has such agreements with Morocco, Egypt and Moldova (an agreement with Tunisia is in the works), but none with Ukraine. And this despite the fact that Italy is among the EU countries that accepts the biggest number of Ukrainians.

Agreements on the regulation of migration flows, in addition to establishing privileged quotas for some labor categories, presuppose an information exchange on the actual needs of the market and the availability of specialists ready to leave temporarily to work abroad; a preparation of a corresponding database; the reinforcement of mechanisms of selecting qualified workers through programs for professional training, studying the language of the destination country, etc. In practice the principle of circular migration means the EU’s partial and selective opening of the borders for citizens of “third” countries with a simultaneous reinforcement of the immigration legislation in certain European countries.

There are some market niches where the mechanism of circular migration has been extensively used for a long time now, regardless of the European Commission’s recommendations. This concerns so-called seasonal work, above all in agriculture, the hotel and tourism sphere, and to a great extent in construction work, where the demand for workers grows considerably in spring and summer. Highly qualified specialists are another category for which the EU plans to widely use the principle of circular migration. In developed European countries there is a particular demand for engineers, programmers, scientists, etc. As it is known, in 2011 the European Union is introducing the Blue Card, an analog to the American Green Card — a single residence and work permit for highly qualified immigrants.

The Blue Card will give one the right to a decent salary (no less than three minimal wages in the accepting country), to social benefits, and a possibility to reunite with one’s family. To get the document one needs a higher education certificate, at least three years of work experience in a given field, an application from the employer in the EU country, and a reference on the absence of previous convictions. At this, each EU country will establish its own annual quotas for the entry of foreign specialists depending on the needs of the market, and will guarantee priority employment for EU citizens, including new members. Initiating the Blue Card is the first actual case of applying the mechanism of circular migration in the EU’s immigration legislation.

Circular migration should be regarded not as an abstract principle but as an efficient mechanism for decentralized cooperation. One of the examples is BrainNetWorking (2007-10), which was addressed to young, professionally-qualified specialists from Ukraine, Moldova and Russia. They were offered an internship at Italian and Spanish companies, so as to later set up their own business in their countries of origin.

Another example of cooperation between Italy and Ukraine is the project “Consolidating the Potential of Local Authorities in Ukraine in Improving Migration and Social-Educational Policy Benefiting Children, Women and Local Citizens” 2009-10 (it involved programs of temporary employment for Ukrainian women in Italy).

Another important aspect is linguistic-cultural and social integration in the countries of residence. Uncertainty and a lack of long-term perspectives, which can persist for many years, can lead to the situation when the migrant is unable and actually doesn’t try to overcome the “culture shock,” which results from arriving in a new environment. According to psychologists, it is a natural and inevitable reaction at the initial stages of migration, but eventually a permanent “culture shock” can have a negative impact on the individual’s personality and identity.

The integration of labor migrants in the new countries of residence and their reintegration after returning home is a complex and multilevel problem requiring thorough research, especially in the context of the new phenomenon of circular migration. Otherwise the “double” presence of migrants (in the country of origin and residence), which is ardently supported by the advocates of circular migration, risks to alienate a big number of people.