After the general overview and analysis of the EU mobility partnerships given above, the mobility partnership with Moldova as one of the partnerships with the longest experience in this program is being reviewed in this chapter.
In the case of the Moldovan Mobility Partnership, the following EU member states signed their participation in May 2008: the Republic of Bulgaria, the Republic of Cyprus, the Czech Republic, the French Republic, the Hellenic Republic, the Federal Republic of Germany, the Republic of Hungary, the Italian Republic, the Republic of Lithuania, the Republic of Poland, the Portuguese Republic, Romania, the Republic of Slovenia, the Slovak Republic and the Kingdom of Sweden [4: 1].
Until now, there is just one report evaluating the Moldovan mobility partnership available. Finished in April 2012, it evaluates the period between the launch of the mobility partnership in June 2008 until the date of expiry in 2011 [6: 2]. Keeping in mind that 4 years have passed since, we have to assume these results as a certain trend but not as corresponding to the reality of dates. The content of the report is based on questionnaires sent to all the institutions of the Republic of Moldova involved in the implementation, to the participating EU Member States, to international organizations and migrant organizations. Background information was mainly given through statistical databases such as Eurostat and the draft back of the Extended Migration Profile [6: 2].
An important remark is given right at the start, emphasizing that data and assessment about developments cannot be linked neatly and solely to the programs and activities of the Mobility Partnership. It cannot be asserted to what extent surrounding factors were as well influencing the developments [6: 2].
The Mobility Partnerships are part of the EU’s Global Approach to Migration (GAM) and later complemented by Mobility (GAMM). The main objectives of the Partnerships were therefore primarily matched with the three, respectively later four, pillars of the Global Approach, which are the following: legal migration, migration and development, the fight against irregular migration and international protection.
With a view to the present evaluation data collection, monitoring is still outlined to be a future goal, although already mentioned as one objective in 2008. In general a lot of indicators cannot be used clearly because of the lack of data not just from before 2008 but as well in 2012 [6: 21].
Legal migration
The pillar of “Legal Migration” comprises probably the most relevant projects for Moldova as part of the agreement with the European Union. Already in 2007, 1 year before the Mobility Partnership was amended, two agreements were signed between the Republic of Moldova and the European Union: one facilitating the issues of visa for Moldovan citizens, the other about readmission. These agreements build Together with the Mobility Partnership these agreements build the newest framework on legal migration between Moldova and the European Union. Thus one objective expressed in the declaration on the Partnership deals with an improved access to the Member States’ labor markets and the information about the possibilities of the European labor market in general. In consequence of the visa facilitation agreement a visa application center was opened. In order to inform potential migrants, actions were taken through websites, such as the publication of country guides, job fairs, training sessions or study visits. Although it is difficult to measure the level of information for migrants, a number of actions have been set in this field [6: 27–30].
However, the prevailing opinion on offers in the sector of labor migration possibilities, which is given in the Evaluation Report, including circular and temporary forms, is less positive and “[…] viewed […] as fairly stagnant.” [6: 24] From the EU Member States’ point of view the influence of the economic crisis, which reached a climax when the Partnership with Moldova was concluded, is to blame for not having created more possibilities to be more active in offering more possibilities on mobility [6: 24].
Eventually until 2012 small-scale projects were conducted as pilot projects, from which, in accordance to the Report, only few individuals have benefitted from the effort made in the section of circular and temporary migration [6: 25]. Connected to the topic of mobility opportunities for Moldovan citizens is the intention of improving the “Social protection for migrants and the conclusion of social security benefit transfer agreements”.[6: 29] This work field has made significant progress in the means of numbers to transfer social security benefits back and forth between Moldova and EU host countries, but viable solutions for the more targeted group of short time migrants are still missing [6: 29]. So the evaluators conclude that,”it is worrying that the issue of social protection for migrants, which is very important to MD [Moldovan] authorities, non‐state respondents and the MD migrant organizations, receives relatively little attention by some EU MS [member state] that host significant populations of MD [Moldovan] migrants.” [6: 30]
Migration and development
There are certain phenomena related to the action of migration, which take place either in the outgoing or incoming country: brain drain and brain waste. Through measures taken within the Mobility Partnership both of them should be prevented. The first term means that mostly people with high potential and specific qualification emigrate to have better opportunities of working and earning abroad. Clearly, there are negative effects produced on their cities and countries of origin, if specifically those skilled workers and highly qualified workforces are missing, who are often quite important for developments in the home society (e.g., medicines, scientists, etc.). Brain waste, on the other hand, describes the phenomenon of “de-qualification” of people conducting jobs below their qualification in a low-skill sector abroad, not making use of their skills and in the course of time even losing them. Both the phenomena can be observed during the migration term, but as well on the return [6: 37]. Brain drain and brain waste are hard to quantify since the data recording on education or skills has not been given much of a priority in the past. However, as the awareness on the importance of skills and qualification is rising, data collecting in the field is on the rise as well. According to the evaluation report, EU members and participants in the partnership do not see the emigration of knowledge, its effect on Moldova and the structure of its economy as their responsibility [6: 35–36], so to say as “[…] beyond the sphere of migration policy.” [6: 36] Therefore, corresponding to the evaluators only few activities were accomplished in preventing brain drain- with some exceptions such as study visits and returning programs [6: 35–36]. Whereas in the prevention of brain waste an initiative on skills validation was started for returning migrants and concepts were formed on the level of recognition of qualification. The report definitely highlights the impulse given by the mobility partnership addressing the questions of validation and description of different types of learning and the recognition of qualifications [6: 38].
When speaking of the correlation of Migration and Development, the importance of remittances is mostly mentioned as a key impact on countries of the migrants’ origin. Therefore remittances are as well an objective to be developed within the partnership. Until 2012 Member States had only one initiative on transferring money, whereas generally remittances through official channels are proven to be on the rise [6: 41–42].
Another objective within the pillar of Migration and Development is the problem of “children and elderly left behind/without care due to migration”, which rose to a worrying level. Emphasis was set on measures providing the children with community activities and psychological support. The actions assessment concludes negatively as it is stated that a real improvement can only be achieved by increasing options of mobility. However, the problem itself gained attention in Moldova and Europe [6: 32].
Fight against irregular migration
Objectives and actions in this pillar implicate the modernization and professionalization of the Moldovan border management [6: 45] and setting new standards in the field of document security. Within the next years biometric passports shall be in use exclusively [6: 47]. Yet, this enormous progress is facing criticism as well:
However, there may be some tension between increasing document security and fostering mobility. Given the low average income in MD, it cannot be ruled out that the increased price of a passport acts as an impediment to mobility [6: 48].
The strengthening of the readmission agreement, which was amended in the year 2007 represented by far, the most lauded content by the respondents of the questionnaire. Projects supporting the implementation of the agreement were set up. Nominally it was already clear back then that the Readmission Agreement had been effective [6: 49–50]. The situation concerning the reduction of irregular migration and the trafficking in human beings was pictured likewise. Finally it is stressed that although some partners were on planning further initiatives, the system in the field of anti-trafficking is already very complex, which is why a doubled structure is feared [6: 50–55].
International protection
As far as asylum and international protection are concerned, projects were planned on improving the Moldovan asylum system because Moldova does not quite seem experienced in this area, as it does not appear as a main goal for asylum seekers, although the number of asylum seekers in Moldova is on the rise. The actions, which have been taken, were mostly on the operational level, like on handling applications. Although progress has taken place, there remains still a lot of work to be done. The major challenge for the upcoming years is seen in the integration of migrants [6: 25–30].
Primarily there is a concluding impression given, that the EU-Moldova cooperation in the framework of the mobility partnership is a very successful one, that interests were matched very well and that a strengthening in the fields of mobility and migration has taken place. There is a big consensus on improvements in the sector of security and fight against irregular migration (the readmission and return have been facilitated, the border security has been strengthened, the asylum system and document security have been improved), although the evaluators’ note that this success can be attributed probably more to developments outside the framework of the Mobility Partnership. Clearly, there is some more effort to make in enhancing the possibility of mobility and visa facilitation, as there are yet very few initiatives to foster circular migration between the EU and Moldova and those existing are being conducted in pilot phases on a small scale. The same applies to the area of Migration and Development in which a lot of challenges could not be met yet either. This means, further, that positive effects on migrants and potential migrants themselves were quite scarce and could have been targeted better [6: 55]. The official 2012 Evaluation Report concludes as following:
While there is still a predominance of security‐centered policies aimed at fighting irregular migration, there has been progress in giving more weight to migration and development, and, to a somewhat lesser extent, in facilitating legal migration. [6: 56]
Another finding of the report underlines that for pursuing further concepts of temporary migration political and economic measures are necessary, which are seen far beyond the reach of migration policies [6: 56].