Isabelle Marie Bateman

December 12, 2003

Final Paper

 

Migration for Development in Africa (MIDA)

A Program with the International Organization for Migration

 

Introduction:

The relationship between migration and development is a relationship under the scope of many academics and policy makers. In Africa, the effects of migration on development are wide-ranging. Many parts of the African continent are currently affected by a shortage of qualified human resources. Large-scale departures of executives and university graduates have contributed to this shortage and lead to what is referred to as “brain drain.” Brain drain is the phenomenon that occurs when highly educated nationals leave the country of origin in search of opportunities abroad, thereby decreasing the skilled labor force of this country of origin. According to the International Organization for Migration (IOM),

Thousands of African professionals such as medical doctors, nurses, accountants, engineers, managers, teachers, etc. leave Africa each year. The main reason for their departure has been to improve their living conditions, either by pursuing studies or by seeking better paid jobs. Others depart from insecurity and/or unstable political and socio-economic conditions.”[1]

 

Although this brain drain may hamper development, more attention has been paid to the potential benefits migration can have in terms of stimulating development in the countries of origin. Migrants who return from abroad often bring skills, knowledge and professional networks from the more developed country to the less developed source country.[2] Migrants also send remittances back to their home communities which can lead to increased spending capacity of families and translate into an additional demand for local and national products and hence, development. [3]

The Migration for Development in Africa (MIDA) program of IOM was begun to address these affects migration has on development in Africa. It is “a capacity-building program, which helps to mobilize competencies acquired by African nationals for the benefit of Africa’s development.”[4] Many Africans in the diaspora are applying their qualifications and skills in developed countries, skills that can be brought back into the mainstream of development in Africa. The goal of MIDA is to facilitate such a process.

 

Analysis of Objectives, Outcomes, and Performance Indicators:

               The and outcomes of the MIDA program are expected to produce verifiable performance measures within two years of the program’s implementation.[5] The performance indicators are measures to determine whether the objectives were met. For each objective, a set of performance indicators must be established.

 

 

Objective 1: To reduce the effect of “brain drain.”

Critique/Analysis: This objective does not specify what is meant by “brain drain.” Nor does in clarify what would be seen if objective were to be achieved. There is no implicit time frame or an indication of how it could be measured. Moreover, an objective cannot solely be to reduce brain drain. The IOM cannot by itself reverse “brain drain,” it has to induce some outcomes that will contribute significantly to the reduction of “brain drain.”

Reformulation of Objective:

To reduce the effect of “brain drain,” a phenomenon that occurs when highly educated nationals leave country of origin in search of opportunities abroad, thereby decreasing the skilled labor force, so that, having made use of the networks and database:

a)     Highly skilled nationals seek opportunities at home

b)     Migrants return home to enter skilled labor force

c)     Skills, knowledge, and resources of educated nationals are filtered back into source country.

Outcomes:

1. 1.      Establishment of networks joining Africans in the Diaspora with organizations, companies, and businesses in the countries of origin.
2. 2.      Formulation of an employment database available to Africans abroad.

Performance Indicators:

Number of return migrants in a country, number of job opportunities filled by return migrants, and number of networks among professional Africans in the Diaspora and professionals in Africa forged.

 

 

Objective 2: To forge partnerships and strengthen synergies between governments and technical cooperation agencies in African and host countries as well as with associations of Africans in the diaspora.

Critique/Analysis: This is an action, not an objective. It does not clarify what would be seen if the objective were to be achieved. Again, time frame is missing and ways to measure are not laid out.

Reformulation of Objective: To establish partnerships between governments and technical cooperation agencies in African and host countries as well as with associations of Africans in the Diaspora so that:

a)     Lines of communication are established

b)     Resources, skills and knowledge are transferred

c)     Capacity building mechanisms are in the works

Outcomes:

1. 1.      Utilization of a list of technical cooperation agencies to be included in partnership.
2. 2.      Coordination with established partnerships between these agencies and African governments.
3. 3.      Use of assessment process determining what skills are necessary to promote capacity building and forge partnerships with organizations that can facilitate development of such skills.

Performance Indicators: Number of partnerships established, number of employers who have indicated transfer of skill after implementation of program

 

 

Objective 3: To transfer and utilize skills, experience and/or resources of Africans in the diaspora to the source country

Analysis/Critique: This objective is again an activity. In fact, this objective is included in both objective one and two. Later, in specific objectives, where activities are discussed, will this activity be detailed. This is part of MIDA’s effort to reduce the effects of brain drain. Migrants are often well educated and therefore are keepers of the types of skills and resources that could be beneficial to the development of their source country. Therefore, this goal will have to be achieved through the mechanisms laid out in the planning brochure as well as a certain degree of collaboration with other organizations.

 

 

Objective 4: To improve the national management of capacity through better allocation of human resources available.

Critique/Analysis: This again does not give a picture of what the desired result will look like. What is meant exactly by “better allocation of human resources available?” There is no time frame and no indication of measurability.

Reformulation of Objective: To achieve improved national management of capacity whereby human resources are allocated in a way so that available qualified nationals are assigned to pertinent positions.

Outcomes:

1. 1.      Utilization of established data bank of identified needs in the national management of capacity building.
2. 2.      Utilization of data bank of identified qualified nationals seeking jobs.
3. 3.      African nationals from abroad are matched with organizations, employers, and Africans in the source country based on their skills and experience.

Performance Indicators: Number of or percentage of African nationals matched with capacity building jobs, use of established of data bank of identified needs.

 

 

Objective 5: To enhance job creation and employment opportunities through increased investments.

Critique/Analysis: This also does not indicate what situation will be like when objective is achieved. There is no time frame. How does MIDA see investments increase?

Reformulation of Objective: To establish awareness campaign and incentives for investment so to enhance job creation and employment opportunities.

Outcomes:

1. 1.      Use of compiled job assignments, job vacancies and investment opportunities open to migrants.
2. 2.      Evidence of increased awareness of such job opportunities.

Performance Indicators: Amount of investment, number of new jobs, and number of new MIDA candidates.

 

 

Objective 6: To make implementation of development programs more cost-effective through the management of qualified nationals.

Critique/Analysis: Awkward wording does not give an indication of what would be seen if objective were to be achieved. Not clear as to what they are referring to when say “through the management of qualified nationals.” This needs to be more specific. There is no time frame.

Reformulated Objective: To establish a cost-effective implementation of development programs through effective management of qualified nationals, by way of integrating these nationals into development plans where their skills and knowledge of culture are best suited to carry out such programs.

Outcomes:

1. 1.      Utilization of data base of what development programs indicating what skills these programs are in need of.
2. 2.      Utilization of established networks with NGO’s involved in development projects recommending employment of qualified nationals.

Performance Indicators: Number of development programs established, number of MIDA candidates employed by these development organizations.

 

Program Overview:

 

Who is Involved?

The MIDA program requires the participation of three groups of people, those in African communities, those in the African Diaspora, and IOM professionals. Migrants in the Diaspora are the agents and contribute to the development of their source country of origin while maintaining all they have personally acquired in their country of residence. The program no longer necessarily means the systematic return of migrants but rather is interested in facilitating “brain circulation” or “brain gain” among migrants and those in African communities as opposed to the “brain drain” that was mentioned above.

IOM’s partner institutions also play their part. See pages 15-17 of the MIDA brochure.[6]

 

Current Projects:

Many African countries have expressed interest in participating in the MIDA program and have put MIDA in their NIP. In November of 2001, IOM implemented a MIDA project in the Great Lakes region of Africa. The MIDA Great Lakes program looked at Burundi, Rwanda and the Democratic Republic of the Congo and the nationals of these countries who live in Belgium. “IOM makes it possible for professionals who reside in Belgium to return to their home countries and offer technical short-term assistance and expertise in highly technical fields ranging from agriculture, banking, engineering, economics, environmental protection and social educational sciences.”[7] Due to the colonial and political history, Belgium has close ties with the DRC, Burundi and Rwanda. Rwanda remains the largest beneficiary of Belgian external aid. Because of the concern about possible misuse of direct budgetary support and its fear of fueling the conflict in Rwanda, Belgium has concentrated on programs rather than on direct budgetary support.[8] The MIDA program is an example of this Belgian policy.

Funding:

               IOM’s MIDA program funding has been established through “the establishment of a budget-line for MIDA in the National Budget, within the National Indicative Program (NIP) and the allocation of funds making it possible to seek the support of the European Development Fund (EDF).”[9] IOM will also cooperate with governments of countries of origin to ensure that they create the appropriate administrative and financial structures and procedures. Moreover, joint action among regional bodies in Africa including ECOWAS (Economic Community of West African States), EAC (East African Community), SADC (Southern Africa Development Community), and UMA (Maghreb Arab Union) is aimed at raising funds for the MIDA Program. Funding is also being sought from “sources at bilateral, regional or broad multilateral levels. IOM has already approached the ACBF (Africa Capacity Building Foundation) and the ADB (African Development Bank).”[10] For specific MIDA projects, funding also comes from the member states involved. The funding required for 2003 is USD 564,589. Its overall needs are USD 2,034,744.[11]

 

Over-Time Examination of Performance

Achievement of Objectives:

               The impact of MIDA’s projects, budget and human resources can be examined through the evaluation of the MIDA Great Lakes project. According to a report on the MIDA Great Lakes project,

The Migration for Development in Africa (MIDA) in the Great Lakes is going through a process of growth in DRC and Burundi and the overall results in these two countries are satisfactory; the objectives (quantitatively) have been achieved … MIDA is indeed a contributing factor for local capacity-building efforts and IOM is ensuring that the transfer of highly skilled individuals is channeled in such a way as to meet the requirements and priority needs of the countries of origin… Furthermore, our main concern remains Rwanda, which requires additional efforts in order to lure more candidates into the program. The need to revise the instruments and incentives of the program in order to improve effectiveness and more participation in the program is recognized.[12]

 

Through examining how the MIDA Great Lakes project has affected development efforts in Burundi, Rwanda and the Democratic Republic of the Congo, I can analyze what management issues needs to be addressed in order to improve effectiveness.

 

Recruitment of Candidates:

               It seems as though a major problem in the MIDA Great Lakes program is the problem of luring candidates into the program. In Burundi, 28 candidates reached 1,371 beneficiaries and saved 16,260 Euros. In the Democratic Republic of the Congo, 21 candidates reached 1,219 beneficiaries and saved 6,560 Euros. However, in Rwanda, only one candidate who reached 106 beneficiaries and saved 850 Euros entered the program.[13] IOM must address how to market the incentives and benefits of the MIDA program so to lure qualified candidates. Incentives to join the MIDA program include, competitive salaries, relocation subsidies, housing, duty free privileges, cash bonuses, and access to international health services. Many African nationals would enjoy such incentives to work in Africa since many of these same factors are reasons they left in the first place. MIDA must focus on how to market such incentives through awareness campaigns. Another point MIDA managers need to focus on is how African nationals abroad can be ensured their resources will be used towards development.

               Another management issue to consider is the geographical aspect of recruitment. In the MIDA Great Lakes program, Belgium is the main source of African nationals as candidates for MIDA. However, the government of Rwanda is requesting that IOM look into ways and means of expanding the program to other geographical areas where there is a high concentration of Rwandan expatriates in order to improve the participation of Rwandan nationals in the MIDA program.[14]

               We must also consider the political context of the Great Lakes region as an obstacle to recruiting qualified nationals. The genocide in 1994 in Rwanda was based along ethnic lines of Hutus and Tutsis. With the new power sharing government, Hutus and Tutsis both make the political and economic decisions of the country. Residual ethnic tensions may inhibit migrants’ desire to contribute to their county’s development. Moreover, there may be a lack of confidence in government coordination mechanism concerning how the migrants’ resources will be allocated.[15]

 

Budget and Human Resources

               In terms of the MIDA Great Lakes program, budget is an area that needs improvements. One observation was made that “the number of migrants applying is so great that the available funding is insufficient at this stage to take advantage of all the skills available from African nationals abroad.”[16] There seems to be a contradiction here as to whether MIDA is having trouble recruiting enough migrants to participate in their program, and whether there are too many to handle. Moreover, the MIDA Great Lakes self-evaluation report notes that the numbers of MIDA staff were deemed insufficient to accommodate the MIDA efforts.[17] In analyzing this data, it is unclear as to what the real problems are with numbers of migrants and numbers of staff. This may be an indication that inefficient allocation of human resources and funding are at the root of management issues in the MIDA program. The geographical features of management in MIDA must be a focal point. It seems as though there are too many candidates to handle from some areas but only one for Rwanda. MIDA needs to examine how staff is allocated in reference to migrants’ country of origin and country of destination.

Also political factors come into effect. Human resources shortages in Rwanda are one of the concerns of the unstable political situation. Because of the genocide in Rwanda in 1994, there has since been an acute shortage of qualified labor to constrain any real attempt at development for another few years.[18] While there may be a plethora of migrants out of Rwanda, qualified nationals in Rwanda are certainly not abundant.

The political context of the Great Lakes region must also be taken into account when looking at Rwanda in terms of MIDA staff and specific regional expertise needed. Part of the problems in the human resources department that Rwanda faces is the fact that it is in a time of transition between needing humanitarian assistance as relief from the 1994 genocide and development assistance as it is one of the Least Developed Countries (LDCs). Programs concentrating on post conflict relief have specialized staff with expertise in the processes developing a sustainable peace. On the other hand, development specialists do not necessarily take into account the reconciliation needs with which Rwanda is faced. Therefore, there are difficulties hiring and retaining qualified staff. Because Rwanda is not completely relief oriented or development oriented, “they lack specialized staff and appropriate tools.” [19] MIDA needs staff that is both sensitive to the fragility of the political contexts as well as skilled in managing migrants’ resources for development. Because Rwanda does not fully encompass one type or the other, they face challenges in retaining qualified staff.

Some donors also feel they also do not have the appropriate tools. Rwanda’s highly specific context, one that needs the promotion of reconciliation and peace-building aim within development projects, there is a lack of technical know-how on how to implement and evaluate such activities.[20] MIDA’s Great Lakes program must deal with tailoring their project to encompass post conflict needs and thus need to acquire the necessary technical capacity to do so.

 

Funding:

The funding required for the MIDA Great Lakes project is USD 1,970,443. As noted, this funding comes from a variety of sources. Each project of MIDA must acquire adequate funding to implement the activities. Therefore, it is important to analyze what factors may or may not attract such donors. The current political and economic contexts of Rwanda are important factors to consider. Because of Rwanda’s particular political context, the country is in a transition in terms of what kinds of aid is needed. Emphasis of aid has shifted from mainly emergency and relief efforts towards achieving sustainable development and transformation in agriculture, education, reconciliation, human rights, health and governance. [21] MIDA is a development program aimed at funneling migrants’ resources into capacity building mechanisms for Rwanda nationals. However, because Rwanda is still considered a fragile country, such development oriented programs may not be as attractive to donors. There is the concern that “high profile” special needs are more popular with donors rather than long term and less innovative development activities like those involved in MIDA.

Furthermore, Rwanda’s prolonged presence in the Democratic Republic of Congo’s conflict does not give confidence to donors. As the spreading of regional wars in Africa have been known to occur, donors do not want to invest in a program for economic development if the conflict in DRC in which both Rwanda and Burundi are involved, will hamper those efforts.

Moreover, the UN suffered a dearth of moral authority in Rwanda following its failure to stop the genocide. This loss of moral authority has affected its ability to assume a leadership role in the country—in terms of dealing with both the Rwandan government and donors. How such lack of confidence in the UN affects MIDA’s efforts is uncertain. This depends on whether the Rwandan government and the donors think this project to have the same lack of anticipation, foresight, and political understanding or whether they feel the mission of MIDA is different from how the UN functions. I think the Rwandan government would want to pursue programs geared towards promoting development so to stimulate the local economy. Donors, however, may be more hesitant to invest in a program that does not address the reconciliation and peace building needs this region faces.

Another concern in terms of funding and the stability of the region is the fact that because of the high profile of Rwanda’s conflict, Rwanda receives significantly more aid than its neighbors Burundi and the DRC.[22] This asymmetry has caused difficulties such as refugees flowing across borders to gain access to humanitarian assistance and skilled and semi-skilled workers moving into Rwanda from neighboring countries to obtain jobs that are funded by development assistance. Although this may be the source of some of the problems in terms of staffing, the MIDA Great Lakes program includes all three countries as a regional unit. Therefore, the money is pooled to establish development programs and to transfer resources from migrants from all three countries. This regional aspect of the MIDA Great Lakes program may make it a more attractive development program, especially for the DRC and Burundi.

 

Recommendations for MIDA Great Lakes

• ·        Improve incentives. Offer incentives such as competitive salaries, relocation subsidies, housing, duty free privileges, cash bonuses, and access to international health services. Consider allowing dual citizenship. These individuals, rather than being viewed as disloyal and unpatriotic, instead should be valued for creating bridges between Africa Europe and North America - bridges that bring mutual benefits in areas such as trade, information exchange, and tourism
• ·        Market incentives through outreach initiatives to the Diaspora. This can be facilitated through career fairs, websites, publications, and coordination with journalists.
• ·        Research geographic concentration of migrants. Establish where the pockets of African nationals abroad are located and focus recruitment in these areas.
• ·        Recruit both relief and development specialists in order to be equipped with the technical capacity to deal with both relief needs and development needs. Market MIDA efforts to donors indicating expertise in both areas.
• ·        Establish coordination workshops with staff on how to manage programs relating to relief as well as development in an integrated way.
• ·        Publicize importance development has in reconstruction of Great Lakes region. Show to the governments and to donors that without specific development plans, especially those that include refugees and migrants, the reconciliation and reconstruction needs for the region cannot be fulfilled.
• ·        Establish affordable means of communication – Internet, telephones, satellite television, videoconferencing to forge networks between Africans living abroad and those in the countries of origin.