Blog post by Amira Abouzeid, Migration Policy Practitioner and Fulbright Scholar at California State University, Long Beach. *
The problem of missing migrants across the Central Mediterranean route is a complex policy issue, in part because it encompasses various humanitarian aspects. Indeed, the issue is of high importance as it involves the loss of human lives, the violation of human rights, and the need for international cooperation to provide safe, orderly, and regular migration pathways. Addressing this issue is critical for ensuring the dignity and safety of vulnerable populations and for upholding international humanitarian standards.
This blog focuses on migration polices within the European Union region (including the externalization of policy to countries in North Africa such as Tunisia and Egypt), with a specific focus on Italy as a receiving country. The blog unpacks the problem of missing migrants on the Central Mediterranean route, while also providing key policy alternatives and recommendations to address the situation.
International and European Contexts of Migrant Deaths and Disappearances
The International Organization for Migration (IOM) defines missing migrants, within the framework of its Missing Migrants Project (MMP), as “migrants who have died at the external borders of states, or in the process of migration towards an international destination, regardless of their legal status”. According to Law 117 of the International Committee of the Red Cross (ICRC)’s 2014 study on customary international humanitarian law (IHL), there are three primary obligations concerning missing individuals and their families: “firstly, the obligation to prevent people from going missing, secondly, the obligation to clarify the fate and whereabouts of those who do, and to provide their family members with any information available on their fate and whereabouts, and thirdly, the obligation to investigate and, when appropriate, prosecute international crimes resulting in persons going missing or being forcibly disappeared”. Despite the clear obligations, these responsibilities are not being adequately fulfilled, leading to ongoing and widespread instances of migrants going missing or losing their lives during their migration journeys.
Indeed, in the Central Mediterranean route over 17,000 migrant deaths and disappearances have been documented by the MMP since 2014, making it the deadliest migration path worldwide. Despite international efforts outlined in the Global Compact for Migration, the absence of binding agreements leaves governments failing to address this urgent humanitarian crisis.
In December 2023, the EU did adopt a “New Pact on Migration and Asylum”, which according to the document allows for “a fairer, efficient, and more sustainable migration and asylum process for the European Union”. The new pact claims to “improve returns procedures, strengthen return governance structures, including in Frontex, and combine better the external and internal aspects of return policy”. However, the pact also criminalizes search and rescue activities conducted by non-governmental organizations as part of their humanitarian assistance initiatives. The implementation guidance of the pact notes “criminalization of non- governmental organizations or any other actors that carry out search and rescue operations at sea for the mere fact of having carried out search and rescue…amounts to a breach of international law, and hence it cannot be permitted under EU law”.
In summary, while international and European frameworks recognize the need to protect migrants and prevent tragedies, the lack of binding agreements and the criminalization of humanitarian efforts have hindered effective action. The Central Mediterranean remains a particularly dangerous route, underscoring the urgent need for stronger, coordinated international responses to prevent further loss of life.
Italy and the Issue of Missing Migrants in the Central Mediterranean
Between 1997 and 2010, Italy saw an average annual influx of approximately 23,000 migrants via the Mediterranean route, though this figure dwindled to under 10,000 between 2009 and 2010. The landscape shifted notably in 2011 when the number of migrants arriving in Europe via the Central Mediterranean route skyrocketed. Italy recorded 62,692 sea arrivals that year, marking a staggering 13-fold increase from the 4,406 documented in 2010. After this increase, migrant arrivals in Italy maintained a high frequency until a decline in mid-2017. However, discerning whether this recent downturn signified an actual decrease in arrivals or is instead a consequence of heightened interception efforts by North African authorities and/or an increase in sea fatalities remains uncertain. Notably, the former explanation gains weight considering the rising trend of returning migrants to North African shores in recent years. The involvement of Tunisian and Libyan coast guards in interception operations underscores this, with their contribution to search and rescue operations in the Central Mediterranean jumping from 8% in 2016 to 49% in 2018. Multiple factors contribute to this shift, including the reduced maritime patrol area of Italian authorities and the reallocation of EU/Frontex resources from maritime vessels to drones unsuitable for direct sea rescue operations (Missing Migrants Project).
The increasing number of recorded missing migrants highlights the urgent need for action from governments in both countries of origin and destination. While international organizations and civil society have called for interventions to address this ongoing tragedy, effective solutions require addressing both the root causes and proximate causes of the problem.
The lack of legal pathways for migration, extreme poverty, political instability, and violence in the countries of origin, present some of the root causes that push individuals to begin on these treacherous migration journeys. Once national borders are crossed, migrants face immediate dangers during their travels, including unsafe vessels, treacherous sea conditions, and the criminalization of search and rescue operations, all of which threaten their lives. As such, addressing these issues necessitates a comprehensive approach that includes enhancing legal migration pathways, improving search and rescue operations, and fostering international cooperation to create safer, more orderly, and regular migration management processes.
Proposed Policy Alternatives
Solving the missing migrants issue requires a multifaceted approach that addresses the root causes of migration and ensures the safety of migrants. This includes providing relocation opportunities funded by receiving countries and coordinated efforts to establish safe, legal migration pathways. Addressing Central Mediterranean migration involves diverse policies, each with unique benefits and challenges, aiming to reduce deaths and manage migration flows. In line with objective 8 of the Global Compact on Migration, Save lives and establish coordinated international efforts on missing migrants, and its corresponding actions, this section explores proposed solutions, their impacts, and implementation considerations.
Drawing on experience with the International Organization for Migration (IOM) in the Middle East and North Africa (MENA) region and my current research as a master’s candidate in international relations, these policy recommendations combine practical insights, with a deep understanding of migration advocacy. They reflect direct involvement in migration projects and align with global efforts to address the root causes of irregular migration.
Enhancement of search and rescue operations
One of the primary policy alternatives is the enhancement of search and rescue operations in the Central Mediterranean, led by UN agencies, such as the International Organization for Migration (IOM) and the United Nations High Commissioner for Refugees (UNHCR), in collaboration with international non-governmental organizations (INGOs) and the governments of transit and origin countries. By implementing comprehensive and well-funded search and rescue missions, these agencies can significantly reduce the number of migrant deaths and disappearances. This approach involves increasing resources for maritime patrols and rescue missions, which could potentially save thousands of lives.
Further to this, local and national NGOs play an important role in the enhancement of search and rescue operations in the Central Mediterranean and in advocating against the criminalization of humanitarian aid. Organizations such as Mediterranea Saving Humans, Sea-Watch, Open Arms, are actively involved in rescue missions and legal defense of migrant rights. These NGOs, in cooperation with International Organizations, relevant UN agencies, and national partners should focus on advocacy efforts to address the criminalization of aid, and call for legal reforms, public awareness on the issue of missing migrants. Public awareness and advocacy campaigns are essential in reshaping narratives around migration, aiming to humanize migrants and highlight the moral obligation to provide life-saving assistance. Additionally, international advocacy is vital in influencing bodies like the UNHCR and IOM to ensure that international agreements, including the Pact on Migration and Asylum, explicitly protect aid workers from legal repercussions. This coordinated advocacy is essential for creating legal and political environments that support humanitarian efforts rather than criminalize them.
Safe corridors and reception centers
Another important strategy is the establishment of safe corridors and reception centers along the migration route. Safe corridors refer to designated migration routes that are actively monitored and supported by international organizations like UNHCR, IOM, and INGOs, ensuring that migrants traveling through these routes safely, away from conflict, exploitation, or dangerous conditions. These designated safe corridors and centers would provide migrants with access to shelter, medical assistance, legal aid, and information on asylum procedures. In contrast to the often overcrowded and under-resourced reception centers, these centers would provide dignified living conditions and access to comprehensive support services. These new facilities would focus on long-term stability, with proactive measures to ensure migrants are well-informed about their rights, asylum procedures, and pathways to legal status.
Additionally, a promising model for these safe passages is the concept of Humanitarian Corridors, pioneered by faith-based organizations and civil society groups in Europe. This initiative focuses on creating safe and regular routes for vulnerable migrants, particularly those fleeing conflict, to enter countries under special humanitarian visas. Expanding such models could add a structured and legal dimension to the broader international effort to protect migrants.
This approach aims to mitigate the risks associated with irregular migration and improve the protection of migrants’ rights while promoting safer and more organized movement through fragile migration routes.
A regional task force on missing migrants
The establishment of a regional task force on missing migrants should also be considered as a viable proposal. This would be in line with similar efforts of the UN to ensure a whole-of-society approach to addressing policy issues, namely the Mixed Migration Hub (MHUB) under which North Africa Mixed Migration Task Force operated. This task force would comprise representatives from Egypt, Tunisia, Italy, and relevant international organizations, coordinating efforts to address missing migrants and migrant deaths in the Central Mediterranean route. The goal is to enhance collaboration, information sharing, and joint action among key stakeholders.
Community engagement and awareness campaigns
Community engagement and awareness campaigns in origin and transit countries present another important approach. By educating the youth about the risks of irregular migration and the regular migratory pathways, this strategy aims to enable migrant communities to make more informed decisions. Such campaigns could significantly reduce the flow of migrants through irregular routes. For example, the International Organization for Migration has successfully implemented the “Migrants as Messengers” (MoM) campaign in countries like Senegal, Guinea, and Nigeria. This campaign was aimed at raising awareness about the risks associated with irregular migration through peer-to-peer communication. In Senegal, an impact evaluation was conducted in 2018, where video testimonies of migrant returnees were screened. The evaluation found that participants who attended these screenings were 19% more likely to feel well-informed about the risks and opportunities related to migration and 25% more aware of the dangers of irregular migration compared to those who did not attend.
However, the evaluation also highlighted that such campaigns need to be context specific. Therefore, while awareness campaigns can be effective, they must be carefully tailored to the specific audience and cultural context to avoid unintended consequences. It’s important to also note that these initiatives require sustained funding and a long-term commitment to fostering behavioral change. The success of the MoM campaign underscores the potential of well-designed awareness efforts in shaping migration decisions in a positive direction.
Conclusion
This blog has highlighted the issue of missing migrants, especially along the Central Mediterranean migratory route with a special focus on Italy as a migrant-receiving country within the European Union, and Egypt and Tunisia as migrant-sending countries. The issue at hand presents a multifaceted humanitarian crisis, which requires urgent and immediate attention from the international community. The problem is rooted in the absence of binding agreements by governments to address the loss of migrants lives in search of safety and better lives.
The policy recommendations presented above aim to address the core of the problem by enhancing search and rescue operations at sea and establishing safe corridors and reception centers for migrants. These measures will respond to the immediate need to save lives and mitigate the risks of irregular migration while providing migrants with access to essential services and protection of their rights. However, this alternative comes with significant costs and logistical challenges, requiring strong coordination among multiple international actors and governments of the countries of origin. Moreover, these policy recommendations are socially and legally feasible, and should be support from humanitarian organizations and aligning with international legal frameworks. However, it requires substantial financial investment, long-term commitment, and extensive cooperation among the involved stakeholders.
The scale of human suffering and the broader societal implications of irregular migration and loss of lives emphasizes the need for government intervention. However, achieving tangible results may require substantial diplomatic efforts, resource allocation, and time.
Failure to address the issue of missing persons is a violation of International Humanitarian Law. By implementing these policy recommendations, governments can demonstrate their commitment to upholding human rights, protecting vulnerable populations, and leaving no one behind. Immediate action is needed to respond to this humanitarian crisis. It is vital for all relevant stakeholders to work towards a world where human mobility is safe, orderly, and regular.
Bibliography:
- “Methodology | Missing Migrants Project.” Accessed February 16, 2024. https://missingmigrants.iom.int/methodology.
- “Data | Missing Migrants Project.” Accessed February 14, 2024. https://missingmigrants.iom.int/data.
- Missing Migrants, Missing Solutions? Reviewing GCM Objective 8 in West Africa – World | ReliefWeb. 4 Apr. 2022, https://reliefweb.int/report/world/missing-migrants-missing-solutions- reviewing-gcm-objective-8-west-africa.
- “Missing Persons and Their Families – Factsheet.” International Committee of the Red Cross, 15 Sept. 2014, https://www.icrc.org/en/document/missing-persons-and-their-families-factsheet.
- Fitzgerald, David. Refuge beyond Reach: How Rich Democracies Repel Asylum Seekers. Oxford, New York: Oxford University Press, 2019.
- New Pact on Migration and Asylum – European Commission. 20 Dec. 2023, https://home- affairs.ec.europa.eu/policies/migration-and-asylum/new-pact-migration-and-asylum_en.
- “Press Corner.” European Commission – European Commission, https://ec.europa.eu/commission/presscorner/home/en. Accessed 15 Mar. 2024.
- Towards an Effective and Principled EU Migration Policy | Human Rights Watch. 18 June 2018, https://www.hrw.org/news/2018/06/18/towards-effective-and-principled-eu-migration-policy.
* This was produced as part of the ‘Refocus: An Online Summer Forced Migration in Africa Workshop Series’ which ran in April 2024. Look out for the special collection of blogs from the series shortly. To listen back to all four sessions, follow this link to our Spotify channel.
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