From Ghana Immigration Service to Ghana Migration Service: A transformative model for migration governance in Africa

Abstract

This article argues for the transformation of the Ghana Immigration Service (GIS) into the Ghana Migration Service (GMS), and portraying how such a shift could position Ghana as a model for migration governance in Africa. By adopting a modernized and holistic approach to migration management with a model that encompasses immigration, emigration, and diaspora engagement, GMS could address contemporary migration dynamics while setting standards for regional integration and development. Drawing lessons from global best practices in countries like the Philippines, Canada, and Germany, this article explores how Ghana’s migration reform, if well implemented, could inspire similar reforms across the African continent.

Introduction

Migration is an increasingly complex global phenomenon, with African countries experiencing significant internal, outward, and regional flows. While migration governance has traditionally focused on border control, countries like Ghana are faced with the challenge—and opportunity—of rethinking their approach.

This article argues for transforming the Ghana Immigration Service (GIS) into the Ghana Migration Service (GMS), a forward-looking entity designed to address the multifaceted nature of migration. A comprehensive framework that aligns with global best practices, could make Ghana become a model for African countries seeking to balance migration governance with development objectives.

The Ghana Immigration Service (GIS) has been grappling with numerous operational challenges that have undermined its efficiency and effectiveness. For instance, annual budgetary allocations for goods, services, and capital expenditures are insufficient to meet the GIS’s operational needs. Delays in fund disbursement further exacerbate these challenges, hindering the Service's capacity to manage migration and ensure border security effectively (GIS, 2023).

The GIS suffers from a significant shortage of office and residential facilities. Many regional offices are shared with other government institutions, compromising both operational autonomy and security. A large number of GIS staff reside in rented accommodations, which makes rapid deployment challenging. Additionally, the Service incurs substantial costs by renting private housing units for its personnel (GIS, 2023).

Furthermore, the GIS lacks an adequate fleet of all-terrain vehicles necessary for border patrols, especially in areas with difficult terrain. This limitation severely restricts the Service's ability to monitor and secure Ghana’s borders effectively (GIS, 2023).

To compound issues further, the GIS’s communication infrastructure is outdated and inadequate. Very High Frequency (VHF) systems are non-functional, and the limited number of Huawei GOTA handsets available have restricted range, making effective communication difficult for many commands (GIS, 2023).

Historical Context: The Evolution of GIS

Since its establishment in 1989 under the Immigration Service Law (PNDC Law 226), GIS has focused on border security and visa issuance (Ghana Immigration Service, 2024). Over time, its mandate has expanded to include combating human trafficking and irregular migration. However, Ghana’s migration dynamics , characterized by rising emigration, complex diaspora relationships, and regional mobility under ECOWAS—demand a creative model and broader approach.

The Ghana Immigration Service (GIS) originated in the colonial era as the Immigration and Passport Unit within the Gold Coast Colonial Police Force. This unit, under the leadership of Mr. Nevile C. Hill, was responsible for managing immigration and passport-related matters on behalf of the colonial administration (Ghana Immigration Service, 2023).

Following Ghana’s independence in 1957, the country experienced significant economic growth and emerged as a leader in the African liberation movement. These developments attracted an influx of foreign businessmen, tourists, and migrants from other African nations. In response to the growing complexities of migration management, the Immigration and Passport Unit was restructured in 1960. The government transferred the unit from the police force to the Ministry of the Interior, establishing it as a separate department. Concurrently, the Ministry of Foreign Affairs assumed responsibility for issuing passports (ibid).

To provide a robust legal framework for immigration operations, the government enacted the Aliens Act, 1963 (Act 160). This legislation granted immigration authorities the power to regulate the entry, residence, and employment of foreigners in Ghana, thereby formalizing immigration procedures and policies (Ministry of Interior, 2024).

By 1970, Ghana had established forty-six immigration posts across strategic locations, including Accra Airport, Takoradi, Tema, Aflao, and Kumasi. However, only a few of these posts were staffed by properly trained immigration personnel, with many manned by policemen and border guards with minimal training. This revealed the need for a specialized and professional immigration service to handle the growing demands of migration management (UCC, 2023).

Recognizing this necessity, the government formally established the Ghana Immigration Service in 1989 through the Immigration Service Act, 1989 (PNDCL 226). This significant step aimed to enhance the efficiency and effectiveness of immigration control and management in the country (Ministry of Finance, 2024). Even in its current form, operations of the GIS tends to neglect some critical contemporay trends relevant to Ghana.

Estimates of the Ghanaian diaspora vary. the Ghanaian diaspora population is estimated to range from approximately 1 million to 3 million individuals residing abroad. According to the Organisation for Economic Co-operation and Development (OECD), around 1 million Ghanaians lived overseas in 2020, representing 3.2% of Ghana's population at the time (OECD, 2020). Meanwhile, the International Organization for Migration (IOM) Ghana estimates that the diaspora population is between 1.5 million and 3 million (IOM Ghana, 2023).Other data at close of 2023 indicates over 970,000 Ghanaians living abroad, with substantial contribution annually to the country’s GDP (World Bank, 2023).

In terms of financial contributions, remittance inflows to Ghana in 2023 amounted to approximately $4.6 billion, making Ghana the second-largest recipient of remittances in Sub-Saharan Africa after Nigeria (GNBCC, 2023). These remittances significantly impacted Ghana’s economy, contributing to a current account surplus of 1.5% of GDP (World Bank, 2023).Remittances from the Ghanaian diaspora have proven to be a vital source of income for households, fostering economic growth and financial stability across the nation (IOM Ghana, 2023).

Yet, GIS remains immigration-focused, neglecting the critical areas of emigration and diaspora engagement. By addressing these gaps, Ghana could champion a migration framework that integrates national security with socio-economic development.

Gaps in the Current GIS Framework

Overemphasis on Immigration Over Emigration

GIS’s immigration-centric framework overlooks the management of outbound migration which makes emigrants vulnerable to exploitation. A Ghana Migration Service would ensure balanced governance, offering protections and creating opportunities for both immigrants and emigrants (IOM, 2023).

Neglect of Diaspora Engagement and Climate Migration

While the Ghanaian diaspora plays a significant role in the country’s economy, there are no structured policies to engage them strategically. Similarly, climate-induced migration, particularly in northern Ghana, remains an unaddressed area that requires proactive policy measures (UNFCCC, 2023).

Lack of Technological Integration

Migration management requires centralized data systems, real-time monitoring, and inter-agency coordination. GIS’s reliance on manual processes prevents it from effectively addressing modern migration challenges (BAMF, 2024).

An Extremely Logistically Constrained GIS (Geographic Information Systems)

The Ghana Immigration Service (GIS) faces a significant logistical challenge in effectively carrying out its duties due to limited resources, inadequate infrastructure, and various internal and external constraints. These issues affect the GIS’s capacity to secure Ghana’s borders, handle sensitive data, and manage staff efficiently. The following sections explore the key logistical issues, supported by empirical data and analysis.

Staff Strength vs. Working Tools

The GIS faces a disparity between the growing demands of border control and migration management and the limited resources allocated for its operations. According to a report by the Ghana Auditor-General (2022), the GIS struggles with a shortage of staff in key operational areas, particularly in border posts and enforcement activities. This shortage is exacerbated by insufficient training, outdated equipment, and a lack of modern technological tools that would aid effective monitoring and tracking of migration activities (Ghana Auditor-General, 2022). As of December 31, 2023, the Ghana Immigration Service (GIS) had a total staff strength of 13,646 personnel. This comprised 2,854 Senior Officers, 10,719 Junior Officers, and 73 Auxiliary Staff (GIS,2023). This number significantly high in relation to the current logistics of the GIS. This inefficiency highlights the need for a focused mandate and better resource allocation.

Key Problems:

• Staffing Deficiencies: A 2021 internal audit revealed that nearly 30% of GIS posts across the country remain understaffed, impacting response times and overall operational efficiency (National Border Patrol Agency, 2021).

• Outdated Tools: Many border posts lack up-to-date scanning and tracking equipment, which limits their ability to monitor and process persons entering and leaving the country efficiently (Centre for Democratic Governance, 2021).

Shared Office Space with Non-Allied Institutions

The GIS headquarters and regional offices often share space with non-allied institutions, which complicates operations, especially when dealing with sensitive information. The lack of dedicated office spaces undermines the security of classified data, potentially exposing national security risks. For instance, GIS offices share spaces with local police stations, customs, and other government agencies, which raises concerns about data integrity and confidentiality (National Security Secretariat, 2022).

Empirical Concerns:

• Security Breaches: A report from the National Security Secretariat (2022) highlighted instances where shared office spaces led to the inadvertent exposure of sensitive immigration information to unauthorized personnel.

• Operational Inefficiencies: Shared spaces hinder the ability to segregate classified immigration data from non-sensitive information, complicating the work of GIS staff and reducing overall productivity (Public Interest and Accountability Committee, 2020).

Over-Politicization

The over-politicization of GIS activities presents another barrier to effective border control and immigration management. Political influence has led to delays in key decisions, such as promotions, hiring, and resource allocation, which ultimately affects the service's efficiency.

Documented Challenges:

• Political Interference: An analysis by the Centre for Democratic Governance (2021) indicated that political interference in the GIS recruitment process has led to a mismatch between staff qualifications and job requirements, further hampering the effectiveness of border management and migration control.

• Resource Allocation: A 2020 review by the Public Interest and Accountability Committee (PIAC) found that political pressures influence the prioritization of projects, often at the cost of essential operational improvements within GIS (Public Interest and Accountability Committee, 2020).

Challenges with Border Control and Undocumented Immigration

The influx of undocumented persons, particularly in mining areas, has become a significant issue for the GIS. The service faces difficulties in tracking the movement of undocumented migrants due to a lack of resources and effective coordination with other law enforcement agencies.

Key Insights:

• Mining Areas as Hotspots: A 2023 report by the National Border Patrol Agency found that mining areas along Ghana’s borders were key entry points for undocumented migrants, many of whom are involved in illegal mining (Galamsey) activities. These migrants often enter through unregulated entry points, bypassing traditional border checks (National Border Patrol Agency, 2023).

• Underreporting of Entry Points: The Migration and Refugee Board of Ghana (2023) reported that many border communities, particularly in the northern and western regions, fail to report undocumented migrants due to the absence of regular monitoring and control mechanisms (Migration and Refugee Board of Ghana, 2023).

5. Impact on National Security

The logistical constraints faced by the GIS have a direct impact on national security. The service's inability to effectively monitor and control migration routes has led to vulnerabilities that can be exploited by criminal elements, including human traffickers, smugglers, and organized crime syndicates.

Security Risks Identified:

• Cross-border Criminal Activities: According to a 2022 report by the West Africa Network for Peacebuilding, porous borders have facilitated the movement of illegal goods and persons, often exacerbating the trafficking of weapons and drugs across Ghana's borders (West Africa Network for Peacebuilding, 2022).

• Increased Threats of Terrorism: In a 2021 analysis, the National Counter-Terrorism Centre (NCTC) raised concerns about the increasing flow of individuals from conflict zones in West Africa entering through unregulated entry points, presenting potential risks to Ghana’s national security (National Counter-Terrorism Centre, 2021).

Global Trends and Best Practices

Several countries demonstrate how migration governance can drive development:

Philippines: The Overseas Workers Welfare Administration protects labor migrants and channels remittances into national development (OWWA, 2023). The Philippines offers a compelling case study. The Overseas Workers Welfare Administration (OWWA), a key agency in the Philippines, exemplifies how a specialized migration service can not only manage immigration but also protect labor migrants and channel their remittances into national development. The OWWA, through its comprehensive welfare programs, ensures that Filipino workers abroad receive the necessary support, such as legal assistance, healthcare, and insurance, while also maximizing the economic potential of remittances. In 2023, the Philippines recorded over $34 billion in remittances, a significant portion of which was reinvested into the local economy through OWWA initiatives (OWWA, 2023).

Similarly, a Ghana Migration Service could adopt a more holistic approach by not only managing border control but also safeguarding the welfare of Ghanaian migrants, facilitating remittance flows, and fostering national development. This transition would reflect the evolving nature of global migration, where migration services must go beyond border enforcement to include social and economic development, positioning Ghana to better capitalize on its diaspora’s potential.

Canada: Its Express Entry program integrates skilled migration with labor market needs (Government of Canada, 2024). The Canadian model provides another valuable example. Canada’s immigration system is managed by the Immigration, Refugees and Citizenship Canada (IRCC), which has evolved beyond simply controlling immigration to actively facilitating the integration of immigrants and maximizing their contributions to the economy and society. Canada has long viewed immigration as a key driver of national growth, with policies designed to attract skilled workers, entrepreneurs, and refugees while ensuring their successful integration. This approach has contributed to Canada’s reputation as one of the most immigrant-friendly countries, with migrants playing a crucial role in sectors such as healthcare, technology, and agriculture. In 2022, immigrants accounted for nearly 25% of Canada's workforce, contributing significantly to the economy (Statistics Canada, 2022). By transforming GIS into GMS, Ghana could similarly position itself to better manage migration not just for border control, but as a key lever for socio-economic development, including facilitating skilled labor immigration, supporting the diaspora, and boosting remittances for national growth. This shift would align migration management with Ghana's broader economic and development goals, much like Canada’s successful model.

Germany: Aligns migration with socio-economic priorities through robust integration policies (BAMF, 2024). Germany's Federal Office for Migration and Refugees (BAMF) is a key institution that not only manages immigration but also plays a pivotal role in the integration of migrants into German society and the economy. The BAMF’s responsibilities include processing asylum applications, promoting integration programs, and coordinating the labor market entry of skilled workers. Germany has recognized the importance of migration in addressing demographic challenges and labor shortages. In 2021, Germany saw a significant influx of skilled workers, with over 50,000 professionals migrating to Germany under its Skilled Workers Immigration Act, which streamlines the process for qualified professionals to settle and work in the country (Federal Government of Germany, 2021). The focus on migration as an economic tool has led to the country benefiting from a diverse workforce and maintaining a strong labor market. Similarly, by evolving GIS into GMS, Ghana could leverage migration not only for border control but also as a strategy for addressing labor gaps, encouraging skilled immigration, and enhancing the economic contributions of both internal and external migrants. This transformation would position Ghana to better tap into global migration trends and ensure that migration policy supports national development goals.

South Korea: Legalizes labor migration, reducing irregular flows through its Employment Permit System (ILO, 2023). South Korea provides an insightful case for why Ghana should consider transforming its Ghana Immigration Service (GIS) into a Ghana Migration Service (GMS). The Ministry of Justice's Immigration Service in South Korea has not only focused on border control but has also adopted a comprehensive migration strategy to manage the influx of foreign workers, improve integration, and capitalize on remittances. South Korea has faced labor shortages, particularly in industries such as construction and agriculture, and has responded by creating policies to attract migrant workers through the Employment Permit System (EPS). The EPS allows foreign workers to legally enter South Korea and work under fair conditions, contributing significantly to sectors that are crucial for the country’s economic growth. In 2023, South Korea had over 600,000 foreign workers, many of whom were critical in supporting the nation's robust manufacturing and service sectors (Korea Immigration Service, 2023). Additionally, South Korea has established programs that support the integration of migrants into society, including language training and social support services, ensuring that they contribute to the economy beyond just filling labor gaps. By transforming GIS into GMS, Ghana could similarly manage labor migration more effectively, attracting skilled and semi-skilled workers, facilitating their integration, and harnessing the economic potential of migration for national development. Such a shift would align with Ghana’s broader economic goals and help create a more inclusive migration management framework.

United Arab Emirates: Implements strict labor protection while leveraging migrant contributions (ILO, 2023). The United Arab Emirates (UAE) offers another compelling example of why Ghana should transform its Ghana Immigration Service (GIS) into a Ghana Migration Service (GMS). The UAE has long recognized the strategic importance of migration in shaping its economy, with a large portion of its workforce being foreign nationals. The UAE’s Ministry of Human Resources and Emiratisation (MOHRE) oversees immigration and labor policies, including the management of an extensive expatriate workforce that is vital to the country’s development, particularly in sectors such as construction, hospitality, and healthcare. The UAE has implemented policies such as the "Golden Visa", which attracts skilled workers and investors by offering long-term residency to select migrants, thus fostering talent retention and encouraging foreign investment. In 2023, nearly 90% of the UAE's workforce was made up of expatriates, with many contributing to the country's high levels of infrastructure development and economic growth (UAE Ministry of Human Resources, 2023).

The UAE’s approach goes beyond traditional immigration control by integrating migration into broader national development strategies, ensuring migrants are not only workers but contributors to innovation, trade, and industry. Similarly, by evolving GIS into GMS, Ghana could adopt a more strategic and inclusive approach to migration management. This would allow the country to better attract and manage skilled workers, maximize remittances, and tap into a global talent pool, supporting both domestic development and the international positioning of Ghana’s economy. Such a transformation would not only enhance Ghana’s immigration system but also foster long-term growth through strategic migration policies.

Ghana’s reform could draw on these lessons while adapting them to the unique dynamics of the African migration landscape.

Why a Ghana Migration Service Could Be a Model for Africa

Comprehensive Migration Governance

A well-implemented GMS would offer a unified approach to immigration and emigration, ensuring balanced management of migration flows. This could serve as a blueprint for other African countries grappling with similar challenges (IOM, 2023). The country may be able to run programmes that attract skilled migrants, investments modelled around the ‘Golden Visa’ frameworks.

Strengthening Regional Integration

Ghana’s role in ECOWAS positions it as a natural leader in regional migration governance. By adopting a proactive migration framework, GMS could enhance trade, mobility, and security cooperation across West Africa (ECOWAS, 2023).

Harnessing Diaspora Contributions

With remittances playing a critical role in Africa’s economy, GMS’s focus on diaspora engagement could inspire other countries to adopt similar strategies for maximizing economic and developmental benefits (World Bank, 2023).

Addressing Climate Migration

As climate change exacerbates migration pressures, Ghana’s development of climate migration policies under GMS could provide a replicable model for African nations vulnerable to environmental displacement (UNFCCC, 2023).

Promoting Security and Trust

By integrating modern technology and transparent governance, GMS could enhance public confidence in migration systems, addressing the mistrust that often surrounds migration policies in Africa (African Union, 2023).

Key Components of a Modern GMS

Labor Migration Frameworks: Establish bilateral agreements to protect Ghanaian workers abroad (ILO, 2023).

Diaspora Engagement Units: Create dedicated departments to attract investments and foster skill transfers (World Bank, 2023).

Climate Migration Policy: Develop proactive measures for internal and cross-border displacement due to environmental factors (UNFCCC, 2023).

Integrated Data Systems: Implement biometric tools and centralized databases to monitor migration flows (African Union, 2023).

Capacity Building: Train staff in areas like refugee management, migration health, and cross-border coordination (BAMF, 2024).

Legal and Structural Requirements for Transforming GIS into the Ghana Migration Service (GMS)

Transitioning the Ghana Immigration Service to the proposed Ghana Migration Service would require comprehensive legal, policy, and institutional reforms.

Legislative Amendments

The legal framework governing the GIS currently includes the Immigration Service Act, 2016 (Act 908), and the Immigration Act, 2000 (Act 573). Establishing the Ghana Migration Service would require repealing or amending these laws and enacting new legislation to clearly define the expanded mandate, functions, and powers of the GMS (Ministry of Finance, 2024).

Policy Reforms

A thorough review of the National Migration Policy is necessary to align it with the goals of the GMS. This includes expanding its focus beyond immigration control to incorporate emigration, diaspora engagement, and internal migration management (CMI, 2023).

Institutional Restructuring

The transformation would require reorganizing the GIS to create new departments focused on broader migration-related responsibilities, such as labor migration, refugee management, and human trafficking. This restructuring would ensure that the GMS is better equipped to manage contemporary migration challenges (CMI, 2023).

Capacity Building

Training and equipping personnel would be crucial to handling the expanded responsibilities of the GMS. This includes developing expertise in areas like data collection and analysis, international migration law, and support services for migrants (GIS, 2023).

Conclusion

Ghana stands at a pivotal moment in its migration history. By transforming GIS into GMS, the country can not only address its migration challenges but also serve as a model for the continent. A well-implemented Ghana Migration Service would demonstrate how migration governance can be leveraged to enhance development, strengthen regional cooperation, and address emerging challenges like climate-induced displacement.

If successful, Ghana’s approach could inspire other African nations to rethink their migration frameworks, positioning Africa as a leader in global migration governance.

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