HOUSE OF COMMONS LIBRARY
Immigration and asylum policy: Government plans and progress made
Standard Note: SN/HA/5829
Last updated: 9 May 2013
Authors: Melanie Gower; Oliver Hawkins
Sections: Home Affairs Section; Social and General Statistics Section
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This note provides an overview of the Government's immigration and asylum policy priorities and its progress in implementing them.
The Prime Minister has described the Government's immigration policy objective as "good immigration, not mass immigration." By minimising opportunities for abuse and being more selective about the criteria for entry, the Government believes that it will be able to reduce overall net migration levels, whilst simultaneously attracting more of the 'brightest and best' migrants whose presence is deemed to be most beneficial to the UK. The Government intends that net migration levels will reduce over the course of this parliament from hundreds of thousands to tens of thousands as a result of its reforms.
With these objectives in mind, the Government has been reviewing all immigration categories and routes to permanent settlement, and gradually introducing changes to their eligibility criteria and associated conditions. Whilst some visa categories have been completely closed to new applicants, some new categories have been created for highly skilled/high value migrants.
Many of the reforms the Government has introduced are in a similar vein to measures adopted or proposed by Labour in the run-up to the 2010 general election (particularly those aimed at minimising abuse). Notable differences are the proposed Border Police Command and the 'caps' (limits) for certain categories of economic migrant.
This note focuses on objectives set by the Home Office and the UK Border Agency. Reforms led by other government departments are also directly affecting persons within the immigration and asylum system, notably changes to civil legal aid, and changes to migrants' social welfare entitlements.
Net migration fell from 247,000 in the year to June 2011 to 163,000 in the year to June 2012. This is the lowest net migration estimate since the year to December 2008, when net migration was also 163,000.
Contents
1 The big picture: reducing net migration, focussing on the 'brightest and best'
2 Action taken so far
2.1 Economic migration (non-EEA workers)
2.2 International students
2.3 Family migration
2.4 Asylum
2.5 Article 8 ECHR
2.6 Moving from temporary to permanent immigration status and citizenship
2.7 Illegal immigration and enforcing removals
2.8 Promoting integration
2.9 EU migration and cooperation with EU policymaking
2.10 UK Border Agency: resources and reorganisation
3 Changes in migration levels since May 2010
4 Monitoring Government actions: some useful sources
1 The big picture: reducing net migration, focussing on the 'brightest and best'
The May 2010 Coalition Agreement document gave the first indication of the Coalition Government's plans for immigration and asylum policy:
The Government believes that immigration has enriched our culture and strengthened our economy, but that it must be controlled so that people have confidence in the system. We also recognise that to ensure cohesion and protect our public services, we need to introduce a cap on immigration and reduce the number of non EU immigrants. [1]
The Coalition Agreement listed some particular actions which the Government intended to take (discussed in section 2 below). There was no explicit commitment to reduce net migration levels to the "tens of thousands" a year (which had been in the Conservative Party's 2010 General Election manifesto), although it has been referred to in successive versions of the Home Office Business Plan since May 2010. [2]
Ministerial speeches and statements have set out the Government's intentions in greater detail.
In a speech made on 7 September 2010, Damian Green, then Minister for Immigration, highlighted his desire to develop measures which are "smart" rather than simply "tough", and influenced by evidence rather than "emotion and prejudice." [3] Drawing on Home Office research findings, he pointed to a need to apply "steady downward pressure on many routes to long-term immigration." [4]
This was reiterated in the Home Secretary's first speech in Government on immigration, in November 2010. Arguing that immigration under Labour had been "out of control", Theresa May set out why the Government wants to reduce net migration levels:
Between 1997 and 2009, net migration to Britain totalled more than 2.2 million people. That is more than twice the population of Birmingham. (...)
And public confidence has been undermined further by the individual stories of abuse of the system. (...)
While the right type of immigration can stimulate growth, badly managed migration has led to serious social impacts in some areas, with pressure being placed on key public services such as schools, the health service, transport, housing and welfare.
And it also led to many more difficult to quantify social impacts, like the segregation we see in too many of our communities. This created community tensions and helped contribute to a society that is not as integrated as we would like. [5]
Theresa May argued that it is possible to "attract more of the brightest and the best at the same time as we reduce the overall number", by being more selective about the criteria for entry. In her concluding remarks she pledged that the Government would reduce net migration from the hundreds of thousands to the tens of thousands. [6]
One of the points made by the Prime Minister in a high-profile speech on immigration in April 2011 was that the scale of demand for migrant labour in recent years underlined the need for welfare reform:
The real issue is this: migrants are filling gaps in the labour market left wide open by a welfare system that for years has paid British people not to work.
That's where the blame lies - at the door of our woeful welfare system, and the last government who comprehensively failed to reform it.
So immigration and welfare reform are two sides of the same coin. [7]
He also stated that the Government was "on track" to meet the aim of reducing net migration to tens of thousands a year. However, speaking on the BBC Politics Show a few days later, the Deputy Prime Minister sought to clarify that reducing net migration levels to the tens of thousands is not a specific Government policy objective:
...the Prime Minister said it was an aspiration, an aim. It's not in the Coalition Agreement, and I don't think anyone is suggesting that what we should be doing is pursuing fixed numerical targets on immigration. (...) He is making an estimation about what the outcome might be of the policies that we are implementing. It is not a Coalition Government objective to pursue one numerical target. [8]
In a February 2012 speech on 'Making immigration work for Britain', the then Immigration Minister Damian Green emphasised the broader objective behind the net migration target; namely, establishing a 'selective immigration system':
Our first priority has been, and remains, to get the system back under control, to get the numbers down and keep them down. We have laid the foundations for a sustainable system. Now we shall shape it, to make it work for Britain. The main point I make today is that everyone who comes here must be selected to make a positive contribution. That is at the heart of our commitment to reduce net migration. We have talked in the past about a Points Based System. In the future it will be more accurate to talk about a contribution-based system. Whether you come here to work, study, or get married, we as a country are entitled to check that you will add to the quality of life in Britain. There are people who think that all immigrants are bad for Britain. There are also people who think that all immigrants are good for Britain. To move the immigration debate on to a higher level let's take it as read that they are both wrong, and that the legitimate question in today's world is how can we benefit from immigration. [9]
A December 2012 speech by the Home Secretary on 'An immigration system that works in the national interest' set out the range of measures that the Government has introduced in pursuit of this objective.
More recently, in March 2013, the Deputy Prime Minister described the vision underpinning the Coalition's immigration policies as "Tolerant Britain, zero-tolerant of abuse." [10] This was closely followed by a speech by the Prime Minister, which set out a range of measures the Government intends to take in order to ensure that migrants come to the UK "because they want to contribute to our country, not because they're drawn by the attractiveness of our benefit system or by the opportunity to use our public services". [11] Some of these are expected to be included in an Immigration Bill, announced in the Queen's speech on 8 May 2013. [12]
2.1 Economic migration (non-EEA workers)
Limiting numbers of skilled workers; opening new visa routes for high value migrants
• See Library standard note 05922 April 2011 changes to Tier 1 and Tier 2 of the points-based system and indefinite leave and UKBA news update, 'Changes to the Immigration Rules come into effect on 6 April 2012', 5 April 2012
The Coalition Agreement stated that the Government would introduce an annual limit on the number of non-EU economic migrants admitted into the UK to live and work. [13] Following a public consultation, and temporary interim limits introduced in July 2010, the annual limits on non-EEA economic migration came into effect on 6 April 2011. [14] Three immigration categories are currently affected by annual limits. [15]
The limit for Tier 2 (General) visas (which are for skilled non-EEA workers with a firm job offer) was set at 20,700 for 2011-12, and is to remain unchanged for future years unless a future Statement of Changes in the Immigration Rules provides otherwise. [16] The limit, which has been undersubscribed, applies to 'new' workers applying from overseas. Skilled migrant workers already in the UK, and workers recruited to fill jobs with salaries over £150,000 are not counted as part of the limit. In addition, Tier 2 visas have been restricted to 'graduate-level' jobs.
The Tier 1 (Exceptional Talent) visa category, launched in August 2011, is for "scientists, academics and artists who have achieved international recognition, or are likely to do so." [17] 1,000 visas are available in each financial year. [18]
The Tier 1 (Graduate Entrepreneur) visa category, launched in April 2012, enables international graduates identified by their higher education institution as having "world-class" innovative ideas or entrepreneurial skills to remain in the UK after graduation to develop their ideas. 1,000 visas were available in 2012-13. In financial year 2013-14 there will be 900 places for international graduates in any subject, and an additional 1,000 places for MBA graduates. In addition, UK Trade and Industry will be allocated 100 places for sponsoring 'elite global graduate entrepreneurs' (i.e. persons who have not studied in the UK). [19]
Various other changes have been made to the conditions attached to highly-skilled and skilled work visas (Tiers 1 and 2 of the points-based system):
• Tier 1 (General) - the visa category which enabled highly skilled migrants to enter the UK without a job offer - has been closed to new applicants. The Government considered that it had not been effective in attracting highly skilled workers. UK Border Agency (UKBA) sampling indicated that "a sizeable proportion" (29%) were working in unskilled employment roles in the UK. [20]
• The eligibility criteria and conditions attached to Investor and Entrepreneur visas have been relaxed, in an attempt to encourage more to come to the UK.
• There have been successive reductions in the number of jobs listed on the 'shortage occupation list', in line with advice from the Migration Advisory Committee.
• The occupation codes and minimum annual salary thresholds for Tier 2 (General) visas have been updated. [21]
• Various changes have been made to the eligibility criteria and conditions for Intra-company Transfer visas (such as by raising the minimum qualifying salary threshold). See Library standard note 05752 Immigration: Intra-company transfers.
Restricting workers' entitlement to stay permanently
• See Library standard note 06037 Immigration: permanent settlement reforms (workers) and UK Border Agency news release, 'Automatic settlement for skilled workers to end', 29 February 2012
New maximum lengths of stay have been introduced for some skilled and temporary workers (i.e. Tiers 2 and 5).
In addition, in order to be eligible for permanent settlement, some Tier 2 migrants will be subject to a new requirement to earn at least £35,000 per annum. This will affect persons applying for settlement after April 2016, but will not apply to scientists and researchers doing PhD level jobs, and workers filling vacancies on the shortage occupation list.
In addition, migrant domestic workers are no longer eligible for permanent settlement.
• See Library standard note 04786 Immigration: migrant domestic workers
Deterring abuse of student visas
• See Library standard note SN/HA/5999 Immigration: Tier 4 (student visa) reforms
Following a public consultation, in March 2011 the Home Secretary announced a comprehensive set of reforms to student visas (Tier 4 of the points-based system). [22] The changes were implemented gradually between April 2011 and the end of 2012.
The reforms were in response to concerns about abuses of student visa provisions by disreputable education institutions and persons who primarily wish to live and work in the UK rather than study here. The Government considered that private educational establishments and persons studying below degree-level courses posed the greatest risk of abuse. The changes introduced new restrictions on which types of student can work during their studies or bring their dependent family members to the UK, how long students can stay in the UK, and the circumstances in which they can 'switch' into an employment category. Education providers have had to meet more demanding requirements in order to be eligible for a licence to sponsor international students. The student visa changes are generally building on measures introduced by the previous government.
In July 2012 the Government announced that, following a successful pilot, it was introducing a 'targeted interview system' for up to 14,000 student visa applicants, in order to assess whether they are 'genuine' students. In December 2012 the Home Secretary announced that this would be radically extended in 2013-14, to over 100,000 interviews, and that interviews would also be used for other categories of visa applicant in the future. [23]
• See UK Border Agency news release, 'New interviews for students', 9 July 2012
Changes to post-study work rights
• See Library standard note 05881 Immigration: Tier 1 (post study work) visas
The Tier 1 (Post-study work) visa enabled foreign graduates to work in the UK, for up to two years, after obtaining a UK degree. If they found skilled or highly skilled work during the two years they could 'switch' into Tier 1 or Tier 2 of the points-based system, which in turn gave a route to permanent settlement.
The post-study work visa category closed to new applicants on 5 April 2012. The Government considered that it undermined the idea that student visas are for temporary migration rather than permanent settlement. It doubted whether it ensured that skilled non-EEA graduates moved into skilled occupations (because many were using it to do low-skilled work), and questioned whether giving foreign graduates open access to the UK labour market was appropriate at a time of high graduate unemployment.
Since April 2012, international graduates have been able to stay in the UK to work if they have a graduate level job or training offer (by 'switching' into Tier 2 or Tier 5 of the points-based system), or if they have a strong business proposition (under new provisions for 'graduate entrepreneurs').
However, from April 2013, the post-study work rules will be relaxed for PhD students. They will be allowed to stay in the UK for twelve months after they have completed their studies before having to find a job or set up a business. [24]
New eligibility criteria for joining family in the UK
The Government repealed the legislation underpinning the 'certificate of approval' scheme, which had been introduced by the Labour Government in a bid to deter 'sham marriages' but was found by the courts to be unlawful. However, it continues to prioritise enforcement activities to deter 'sham marriages'. [25]
Since 29 November 2010 persons applying for leave to enter or remain as the spouse or partner of someone settled in the UK have been required to provide evidence of their basic command of English (speaking and listening), by showing that they have passed a UKBA-approved English language test. [26] The Government considers that this will "protect the economic well-being of the UK, for example by encouraging integration and protecting public services." [27] The Labour Government had previously announced similar plans, scheduled to come into effect from summer 2011. [28]
In July 2012 a comprehensive set of reforms to family-related immigration categories came into effect. [29] With limited exemptions, British citizens/settled persons wishing to sponsor their non-EEA national spouse/partner to join them in the UK must demonstrate a minimum gross annual income of £18,600 (more if they are also sponsoring dependent children). New foreign spouses/partners must wait longer before they become eligible to apply for permanent settlement in the UK (five years rather than two as previously), and a new approach to assessing the 'genuineness' of the relationship has been introduced.
In addition, more restrictive eligibility criteria have been introduced for adult dependent relatives of British citizens or settled persons who wish to settle in the UK.
• See Library standard note SN06353 Changes to Immigration Rules for family members
Abolishing family visitors' appeal rights
• See Library standard note SN06363 Immigration: Family visitor visa appeal rights
Family visitor visa appeal rights were restricted to a smaller range of applicants, with effect from July 2012. The full right of appeal in family visitor visa cases will be abolished when section 52 of the Crime and Courts Act 2013 comes into force.
The Coalition Agreement stated that the Government would explore ways to new improve the current asylum system to speed up the handling of cases. [30] An 'Asylum Improvement Project' was launched in summer 2010, to test a range of pilot schemes for improving the speed, quality, efficiency and cost-effectiveness of the asylum determination process, with a view to being implemented nationally where appropriate by December 2011. [31] The UKBA published a progress report for the project in May 2011. [32]
The Government has replaced the previous target to conclude new asylum applications within six months of their submission with "a new set of performance indicators designed to show the overall health of the asylum system". [33] These will include information on intake, decisions taken within 30 days, quality of decision, grant rate, percentage of decisions overturned at appeal, conclusions at 6, 12, 18 and 36 months, number and age profile of outstanding caseload, asylum support costs, productivity, and unit cost.
The UKBA has completed its substantive work on the 'case resolution exercise', which was launched under the previous government to review and conclude all unresolved pre-2007 asylum claims. [34]
The Coalition Agreement included a commitment not to enforce the removal of asylum seekers who would be at risk of persecution on account of their sexual orientation. The UKBA has since published guidance for its caseowners on how to assess asylum claims based on the applicants' sexual orientation. [35]
• See Library standard note SN05618 Asylum: Claims based on sexual identity.
The Immigration Rules have been amended in order to fill a gap in the provisions for recognising statelessness. [36]
Ending child immigration detention
• See Library standard note SN/HA/5591 Ending child immigration detention. [37]
A new process has been introduced for enforcing the removal of families refused permission to stay in the UK, in order to implement the Coalition Agreement commitment to end the detention of children for immigration purposes. In the event of an unsuccessful application, families are encouraged to make a voluntary departure from the UK, following a 'case conference' with UKBA staff. Those who do not leave have their removal arranged by the UKBA, but are able to continue to live in the community whilst preparing for removal and make a self-check-in at the airport. As a last resort, non-compliant families may be held for 72 hours prior to departure in a new style of family friendly secure "pre-departure accommodation."
• See Library standard note SN06355 Article 8 of the ECHR and immigration cases
Following a public consultation, the Government changed the Immigration Rules in July 2012, in order to include detailed reference to the factors to be considered to weigh in favour or against an application to remain in the UK based on Article 8 of the European Convention on Human Rights (ECHR). Previous versions of the Immigration Rules had referred to the need to respect the ECHR, but did not seek to codify the factors that should be considered when assessing whether removal/deportation was proportionate under Article 8.
The Home Secretary has expressed dissatisfaction with the way that some Immigration Judges have interpreted the amended Rules. [38] An Immigration Bill for 2013/14 is due to include similar provisions to the changes made to the Immigration Rules, in order to give them the weight of primary legislation. [39]
2.6 Moving from temporary to permanent immigration status and citizenship
'Permanent settlement' ('Indefinite Leave to Remain') entitles a person to live and work in the UK with no time restriction. The Government believes that it has been "too easy" for migrants to move from temporary residence to permanent settlement in the past.
Some initial changes to the eligibility criteria for settlement were made in April 2011. [40] These introduced a requirement for applicants to be free from any unspent criminal convictions at the time of applying. Additional requirements on salary level and proof of English language ability were also introduced for highly skilled and skilled workers.
In April 2012 further restrictions on some non-EEA skilled workers' eligibility for permanent settlement were introduced (discussed in section 2.1 above). Since July 2012 non-EEA spouses of British/settled persons only become eligible for permanent settlement after five years' residence.
From 28 October 2013, migrants applying for permanent settlement in the UK or British citizenship will have to satisfy a more demanding 'knowledge of language and life in the UK' requirement. [41] They will be required to pass the 'Life in the UK test' and have intermediate speaking and listening skills (CEFR level B1).
A substantially revised 'Life in the UK' test, which has a greater focus on British history and culture, came into effect in late March 2013. [42] The test is taken by migrants applying for permanent settlement or naturalisation as a British citizen.
From 13 December 2012, the criteria for assessing 'good character' in naturalisation applications changed, so that criminal convictions are considered against a new set of sentencing limits, rather than with reference to the Rehabilitation of Offenders Act 1974, as previously. [43]
2.7 Illegal immigration and enforcing removals
The Government confirmed its support for e-Borders and the reintroduction of exit checks in the Coalition Agreement. e-Borders was launched under Labour with cross-party support. [44]
A joint UK-France declaration on cooperation in measures against illegal migration and human trafficking was agreed in November 2010.
The UKBA has contracted the private contractor Capita to contact on its behalf foreign nationals who UKBA records indicate may be living in the UK without valid immigration status, to inform them of the requirement to leave the UK. [45] It has also launched a national 'Allegations Management System' to better track allegations of immigration crime made by members of the public. [46]
The UKBA has conducted several high-profile enforcement operations, such as 'Operation Mayapple' to remove visa overstayers during summer 2012, and 'Operation Nexus' which posts immigration officers in police custody suites in order to identify foreign national offenders liable for removal from the UK. [47]
Some further measures to deal with illegal immigration were set out in speeches made by the Deputy Prime Minister and Prime Minister in March 2013. [48] Some of these are expected to be included in an Immigration Bill for 2013/14, including legislating to prevent illegal migrants from being able to obtain driving licenses, introducing a requirement for private landlords to check tenants' immigration status, and doubling fines for employing illegal workers. [49] The Home Office is also considering the feasibility of introducing a 'security bond' scheme for visa applicants from 'high-risk' countries, in a bid to deter overstaying. [50]
The level of English language ability required for leave to enter/remain in various immigration categories has been increased, including for spouses/partners, students, and workers.
The Home Office has stopped funding the Refugee Integration and Employment Services project, which aimed to promote the integration of persons granted asylum in the UK. The Government has stated that the UKBA is working with the voluntary sector to identify "practical, cost neutral, solutions to address the integration needs of refugees." [51]
In summer 2010 the Department for Communities and Local Government confirmed that the Migration Impacts Fund, which provided funding for local community projects to manage the transitional impacts of immigration, would be terminated. [52]
The Department for Communities and Local Government published details of the Government's approach to integration in February 2012. [53] It emphasises that integration of migrants is primarily an issue for local authorities to deal with, rather than a matter for central government.
2.9 EU migration and cooperation with EU policymaking
EU migrants' rights to enter and live in the UK are based on European law. The Government intends to maintain the transitional restrictions on Bulgarian and Romanian workers' 'free movement' rights for the maximum seven year period that their EU accession treaty allows. A ministerial Cabinet committee is considering migrants' access to public services and benefits (including illegal migrants and EEA nationals), in order to identify and address 'pull factors' for migration to the UK in advance of the ending of the transitional restrictions at the end of 2013. [54]
The Coalition Agreement stated that in the event of future EU enlargement, the Government would seek to impose transitional controls on new Member States' freedom of movement rights. [55] Transitional restrictions will be applied to Croatian workers when Croatia joins the EU in July 2013. [56]
In relation to EU cooperation on asylum and immigration matters, the Government has taken decisions to 'opt-in' to measures where it is deemed to be in the UK's best interests to do so (as the Labour Government also did), but has stated that its preference is for measures which enhance "practical cooperation" between Member States rather than further legislation. [57] The Government has agreed to table an annual report to Parliament on its approach to EU Justice and Home Affairs policy, including the application of the UK's opt-in protocol. [58]
2.10 UK Border Agency: resources and reorganisation
The UKBA's budget has been reduced by up to 20 per cent by 2015, and its headcount reduced by around 5,200. [59] It intends to make a greater use of technology and computer-based systems in order to improve its efficiency and productivity. [60]
The Border Force, which is responsible for entry controls and customs functions at UK borders, split from the UKBA and became a separate operational command (directly accountable to Ministers) with effect from 1 March 2012. [61]
The UKBA remained responsible for asylum and immigration casework, in-country enforcement activity and immigration operations overseas. On 26 March 2013 the Home Secretary announced that the remainder of the UKBA will be split into two separate entities. One will focus on visas and immigration services, the other will focus on immigration law enforcement. [62]
The Crime and Courts Act 2013 includes provisions to establish a dedicated Border Police Command, as part of a new National Crime Agency. The Government believes that establishing a Border Police Command will improve coordination of border control and security operations.
The Crime and Courts Act also includes measures to increase Immigration Officer's powers to tackle serious and organised immigration crime. The Immigration Bill for 2013/14 is expected to include measures relating to enforcement officer's powers. [63]
3 Changes in migration levels since May 2010
The Government aims to reduce net migration from the hundreds of thousands to the tens of thousands. [64] This target relates to the official estimates of long-term international migration produced by the Office for National Statistics, which are known as the LTIM estimates. These estimates are based principally on data from the International Passenger Survey (IPS), which is a survey of passengers travelling through UK ports. They aim to measure long-term migration, which is migration by people who are changing their country of residence of a period of at least a year.
The IPS approaches around 800,000 people each year, of which around 5,000 meet the definition of a long-term international migrant. Estimates of international migration are first produced based on just the IPS sample. These estimates are then adjusted to take account of certain types of migration that are not well captured by the survey; specifically migration by asylum seekers, switchers (people changing their length of stay in the UK and abroad), and migration through Northern Ireland. The adjusted estimates are the LTIM estimates, which provide the headline measures of immigration, emigration and net migration in the UK.
Net migration is equal to immigration minus emigration. In other words, it is the number of people moving into the UK on a long-term basis minus the number of people moving out to live in other countries. Net migration can therefore rise or fall as a result of changes in either immigration or emigration.
Chart 1: Long-term international migration in the UK, 1991-2011
[...]
Source: ONS Long-Term International Migration Estimates 2 series (LTIM calendar year)
Chart 1 shows LTIM estimates of immigration, emigration and net migration in each calendar year from 1991, when they were first produced, to 2011, which is the most recent calendar year for which estimates are available. During this period, immigration and emigration both increased, but immigration grew faster than emigration, leading to an increase in net inward migration from an annual average of 37,000 in the period 1991 to 1995 to an annual average of 209,000 in the period 2006 to 2010. This means the Government needs to reduce net migration by just over a half during the current Parliament in order to reach its target.
Net migration was 215,000 in 2011, compared with 252,000 in 2010. Both immigration and net migration were lower in 2011 than in 2010, although the difference was not statistically significant. However, the provisional estimates of immigration and net migration in the years to March 2012 and June 2012 were significantly lower than in the years to March 2011 and June 2011, which indicates that both immigration and net migration are now falling:
• Immigration fell from 589,000 in the year to June 2011 to 515,000 in the year to June 2012. This is the lowest immigration estimate since the year to December 2003, when 511,000 people migrated into the UK.
• Net migration fell from 247,000 in the year to June 2011 to 163,000 in the year to June 2012. This is the lowest net migration estimate since the year to December 2008, when net migration was also 163,000. [65]
LTIM estimates for years to June are available from 2003 onwards. Chart 2 shows net migration in each year to June since 2003 broken down by citizenship.
Chart 2: Net migration in the UK by citizenship, YE June 2003 - YE June 2012
[...]
Source: ONS Migration Statistics Quarterly Report for February 2013
As the chart shows, in each year since 2003 there has been net immigration of EU and non-EU citizens, and net emigration of British citizens. Net migration of non-EU citizens and of British citizens both fell in the year to June 2012, while net migration of EU citizens remained broadly unchanged. Compared with the year to June 2011, net migration of non-EU citizens fell 51,000, net migration of British citizens fell 24,000, and net migration of EU citizens fell 7,000. The largest component of change in net migration in the year to June 2012 was therefore the fall in net migration of non-EU nationals. However, a trend of increasing net emigration of British citizens since the year to June 2010 also helped to reduce net migration in the year to June 2012.
Until very recently, the IPS survey did not ask migrants who were leaving the UK what their reasons were for coming to the UK in the first place. [66] This means it is currently not possible to estimate net migration of migrants with different reasons for migrating into the UK, such as international students or migrant workers. However, data is available showing immigration by main reason for migration from the year ending June 2010 to the year ending June 2012. This data is set out in Table 1.
Table 1: Immigration by main reason for migration, YE June 2010 - YE June 2012
[...]
Source: ONS Migration Statistics Quarterly Report for February 2013
Among groups of migrants with different reasons for migrating into the UK, the largest fall in the number of immigrants was among those immigrating in order to study. Immigration in this group fell by 42,000 in the year to June 2012, which was a reduction of 18% on the previous year. There was also a fall in the number of people migrating for work (21,000) and for family reasons (17,000).
A large part of the fall in the number of international students migrating to the UK is likely to be an effect of changes to the rules governing Tier 4 student visas. Among all the changes to the immigration rules, the Government projected that its changes to Tier 4 would have the largest overall impact on immigration and net migration. [67] IPS estimates of immigration in the year to June 2012 suggest that immigration of non-EU students (those who require student visas) fell by 35,000, while immigration of EU and UK students fell by a combined 7,000. [68]
In its Impact Assessment on changes to Tier 4, the Government projected the effect of its policies on the number of student visas issued each year, compared with a baseline scenario in which the rules governing Tier 4 visas remained unchanged. Chart 3 shows the number of out of country student visas issued under both the baseline and policy projections, compared with the actual number of visas issued.
Chart 3: Out of country student visas issued to main applicants, 2005-2015
[...]
Sources: Home Office, Immigration Statistics: October to December 2012, Table be.04; Home Office, Reform of the points-based student immigration system: Impact Assessment, June 2011
As the chart shows, in 2011 the number of student visas issued to main applicants was in line with the policy projection, while in 2012 the number of student visas issued was lower than anticipated in the policy projection. This suggests that the impact of changes to Tier 4 on net migration may be greater than originally anticipated.
Although the total number of student visas issued is falling, Home Office data on the types of institutions at which non-EU students study suggests that the reduction in non-EU student migration is largely due to a reduction in students studying at further education colleges and English language schools, rather than those studying at universities. Table 2 shows the number of applicants for student visas using sponsor acceptances from different types of education provider.
Table 2: Applicants for study visas using sponsor acceptances, 2010-12
[...]
Source: Home Office, Immigration Statistics: October to December 2012, Table cs.07
The number of applicants for student visas using sponsor acceptances from tertiary, FE or other colleges fell from 82,865 in 2011 to 31,587 in 2012, which is a fall of 62%. The number using sponsor acceptances from English language schools fell from 11,476 in 2011 to 3,589 in 2012, which is a fall of 69%. The number of applicants sponsored by HE institutions increased from 152,479 in 2011 to 156,537 in 2012, which is an increase of 3%.
It is not possible to estimate the overall effect of these visa changes on student immigration because not all applicants for student visas will necessarily travel to the UK and because the length of stay of each visa holder depends upon the length of their course of study, which can vary both within and between education sectors.
Finally, it should be noted that because ONS migration estimates are survey based they are surrounded by a degree of statistical uncertainty. [69] As Chart 1 shows, headline estimates of immigration, emigration and net migration can vary by tens of thousands from one year to the next, even when there is no statistically significant change in net migration. The reductions in immigration and net migration in the year to June 2012 are statistically significant, which means they are large enough to overcome the statistical uncertainty in the estimates. But the downward trend in net migration has only been established in the years to March 2012 and June 2012. It will be some time before the medium and long-term effects of Government policy will fully register in migration statistics.
4 Monitoring Government actions: some useful sources
Library standard note SN03845 Sources of social statistics: Immigration, asylum and migration provides an overview of the key statistical sources. Standard note SN06077 Migration Statistics contains recent and historical data on immigration, emigration and net migration in the UK.
The Home Office Business Plan 2011 – 2015, available from the Number 10 website, lists the Government's specific policy objectives on immigration and asylum, the implementation timetable, and progress made so far. The UKBA's Business Plan 2011 - 2015 provides a more detailed overview of its "core objectives and values".
The Government's mid-term review of the Coalition listed the main immigration reforms introduced since May 2010, including progress made in reducing net migration levels, and identified some further plans for reforms (reflected in section 2 of this note). [70]
Regular announcements on immigration and asylum policy, including a bi-monthly stakeholder newsletter, details of public consultations, and Statements of Changes in the Immigration Rules, are available from the UKBA website.
The Home Affairs Committee frequently takes evidence from Government Ministers and senior officials on issues relating to immigration and asylum policy and practice, and has conducted several inquiries on related matters during this parliament. From time to time other Parliamentary Committees undertake inquiries which also deal with related issues.
The independent Migration Advisory Committee publishes regular research for the Government on migration issues (particularly economic migration).
The Independent Chief Inspector of Borders and Immigration is responsible for monitoring and reporting on the efficiency and effectiveness of the UKBA and Border Force.
The National Audit Office also regularly scrutinises the work of the UKBA.
(End)
[1] HM Government, The Coalition: Our programme for government, May 2010, ref: 401238/0510
[2] The Conservative Party, Invitation to join the Government of Britain, April 2010, p.21
[3] Gov.uk/Home Office, Damian Green's speech: the real immigration question, 7 September 2010
[4] Home Office, Research report 43 The Migrant Journey, September 2010
[5] Gov.uk/Home Office, The Home Secretary's immigration speech, 5 November 2010
[6] Some detailed plans for change were set out in her oral statement on controlling migration: HC Deb 23 November 2010 c169
[7] BBC News, In full: David Cameron immigration speech, 14 April 2011
[8] BBC News, Nick Clegg on immigration policy and Vince Cable comments, 17 April 2011
[9] Gov.uk/Home Office, 'Making immigration work for Britain', 2 February 2012
[10] Libdems.org.uk, 'Nick Clegg speech on immigration', 22 March 2013
[11] Gov.uk/Number 10, 'David Cameron's immigration speech', 25 March 2013
[12] HL Deb 8 May 2013 c3
[13] HM Government, The Coalition: Our programme for government, May 2010, ref: 401238/0510
[14] EEA - European Economic Area (EU Member States plus Iceland, Norway and Liechtenstein)
[15] There have been longstanding fixed quotas in place for certain other immigration categories (SAWS scheme, SBS scheme, Tier 5 (Youth Mobility) scheme)
[16] HC 1039 of 2012-3
[17] HC Deb 23 November 2010 c169
[18] The annual limit will automatically renew each financial year unless a Statement of Changes in the Immigration Rules provides otherwise (HC 1039 of 2012-3)
[19] UKBA update, 'Changes to the Tier 1 (Graduate entrepreneur) route', 14 March 2013. The annual limit will automatically renew each financial year unless a Statement of Changes in the Immigration Rules provides otherwise (HC 1039 of 2012-3)
[20] UKBA, Points-based system Tier 1: an operational assessment, 16 November 2010
[21] HC 1039 of 2012-3
[22] HC Deb 22 March 2011 cc855 - 872
[23] Gov.uk/Home Office, An immigration system that works in the national interest, 12 December 2012
[24] UKBA update, 'Rule changes announced for students', 14 March 2013
[25] Library standard note SN/HA/3780 Immigration: Abolition of the Certificate of Approval to Marry requirement contains background information.
[26] Cm 7944 of 2010-11. There are exceptions for nationals of majority English speaking countries, persons with academic qualifications taught in English, applicants from countries where there is no approved test centre, over 65s and persons with certain physical/mental conditions.
[27] HC Deb 30 November 2010 cc770-1W
[28] UKBA website [National Archive version], Earning the right to stay: A new points test for citizenship, July 2009
[29] UKBA, Family migration - a consultation, July 2011
[30] HM Government, The Coalition: Our programme for government, May 2010, ref: 401238/0510
[31] See HC Deb 15 November 2010 cc545-6W for further details. Implementation timetable as per Home Office Business Plan 2011-2015, May 2011.
[32] UKBA, Asylum Improvement Project Report on Progress, 26 May 2011
[33] Home Affairs Committee, Government Response to the Committee's 4th Report of Session 2010-12 HC 1027 16 May 2011, p.5-6
[34] See Library standard note SN04439 Asylum 'legacy' cases
[35] UKBA, Asylum Policy Instruction 'Sexual orientation issues in the asylum claim '(v4.1 accessed 22 June 2011)
[36] HC 1039 of 2012-3
[37] HC Deb 16 December 2010 cc125-7WS
[38] "It's MY job to deport foreigners who commit serious crime - and I'll fight any judge who stands in my way, says Home Secretary", Mail on Sunday [online], 17 February 2013 (accessed on 28 February 2013)
[39] Number 10 on Gov.uk, The Queen's Speech 2013 Background briefing notes, p.65
[40] HC 863 as amended by HC 908
[41] Gov.uk/Home Office, 'Tougher language requirements announced for British citizenship', 8 April 2013
[42] UKBA news update, 'New life in the UK handbook published today', 28 January 2013
[43] UKBA news release, 'Changes in the assessment of good character in citizenship applications', 9 January 2013
[44] See Library standard note SN/HA/5771 The e-borders programme
[45] UKBA news update, 'Capita Business Services contacting overstayers in the UK', 16 January 2013
[46] HC Deb 27 February 2013 cc484-5W
[47] UKBA news update, 'Operation Nexus results in more than 175 removals', 3 January 2013
[48] Gov.uk/Number 10, 'David Cameron's immigration speech', 25 March 2013
[49] Gov.uk/Number 10, The Queen's Speech 2013 Background briefing notes, pp. 64-66
[50] Libdems.org.uk, 'Nick Clegg speech on immigration', 22 March 2013
[51] HC Deb 15 March 2011 cc227-8W
[52] Se Library standard note SN/HA/5725 Migration Impacts Fund
[53] DCLG, Creating the conditions for integration, 21 February 2012
[54] HC Deb 4 December 2012 c410WH
[55] HM Government, The Coalition: Our programme for government, May 2010, ref: 401238/0510
[56] Library Research Paper RP 12/64 European Union (Croatian Accession and Irish Protocol) Bill [Bill 76 of 2012-13]
[57] HC Deb 9 December 2010 cc43-46WS
[58] HC Deb 21 January 2011 c56WS. The third annual report was laid on 25 April 2013: HC Deb 25 April 2013 cc70-1W
[59] HC Deb 24 November 2010 c301W
[60] HC Deb 22 November 2010 c75W
[61] HC Deb 1 March 2012 c43WS
[62] HC Deb 26 March 2013 cc1500-1
[63] Gov.uk/Number 10, The Queen's Speech 2013 Background briefing notes, pp. 64-66
[64] This aim was set out on page 21 the Conservative Party manifesto for the 2010 General Election and reiterated by the Home Secretary, Theresa May, in the House of Commons on the 23rd of November 2010 (HC Deb 23 Nov 2010 c169, "Controlling Migration").
[65] ONS Migration Statistics Quarterly Report for February 2013.
[66] ONS migration estimates containing data on emigration by main reason for immigration will be available in the second half of 2013.
[67] Home Office, Reform of the points-based student immigration system: Impact Assessment, June 2011
[68] See ONS Migration Statistics Quarterly Report for February 2013, Table 3.
[69] The 95% confidence interval surrounding the unadjusted estimate of net migration in the year to June 2012 was around +/- 35,000. Confidence intervals cannot be calculated for the adjusted headline estimates, but this gives some indication of the degree of statistical uncertainty involved.
[70] Cabinet Office, The Coalition: together in the national interest, January 2013