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IS THE INTERNATIONAL ORGANIZATION FOR MIGRATION LEGITIMATE? RIGHTS-TALK,
PROTECTION COMMITMENTS AND THE LEGITIMATION OF IOM

Megan BradleyDepartment of Political Science, McGill University, Montreal,
CanadaCorrespondencemegan.bradley@mcgill.ca
https://orcid.org/0000-0001-8309-5866View further author information
&
Merve ErdilmenDepartment of Political Science, McGill University, Montreal,
Canadahttps://orcid.org/0000-0003-3929-8388View further author information
Pages 2332-2354 | Received 09 Dec 2021, Accepted 07 Nov 2022, Published online:
17 Nov 2022
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 * https://doi.org/10.1080/1369183X.2022.2147489
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ABSTRACT

The International Organization Migration (IOM) has expanded dramatically, with
many scholars arguing that IOM has thrived because of its place on the margins
of the UN, where it could execute restrictive migration management programs on
behalf of states, unencumbered by human rights norms and protection obligations.
However, in recent years, IOM has adopted human rights discourse and expressed
commitment to human rights and humanitarian standards, including in an extensive
set of new institutional policies. This article analyzes this development
through the prism of international relations theories on the legitimation of
international organizations, particularly through discursive strategies. The
contribution is two-fold. First, we trace the evolution of IOM’s human rights
discourse and identify key themes in this rhetoric, highlighting its bridging of
rights-talk and management-speak; its constitution of particular groups of
‘vulnerable’ migrants IOM then positions itself to assist; and its blending of
rights commitments and fledging advocacy efforts with continued deference to
states. Second, we provide a fresh account of why IOM has acted this way,
considering these developments as part of an institutional legitimation strategy
that aims to strengthen IOM’s perceived legitimacy internally and in the eyes of
key constituents, particularly states and other international organizations.

KEYWORDS:

 * IOM
 * legitimacy
 * legitimation
 * human rights
 * discourse

Previous article View issue table of contents Next article


ACKNOWLEDGEMENTS

This research was funded by the Social Sciences and Humanities Research Council
of Canada. We would like to thank all those colleagues who shared their helpful
feedback on this article, including our anonymous reviewers.


DISCLOSURE STATEMENT

No potential conflict of interest was reported by the author(s).


NOTES

1 For analyses of how IOM’s operations sometimes contradict its human rights
discourse, see e.g. Georgi and Schatral Citation2012; Miramond Citation2020;
Lecadet Citation2020. On the persistent legal limitations of the IOM
Constitution and IOM’s evolving legal obligations, see Chetail Citation2019,
Citation2022; Bradley, Costello, and Sherwood Citation2023, forthcoming.

2 The sample included all English-language speeches from 2006–2021 posted to
IOM’s global website. 230 of the 403 speeches were delivered by directors
general; the remainder were delivered by other senior IOM officials such as the
deputy director and representatives to the United Nations. The sample included
33 speeches delivered in 2006; 25 in 2007; 27 in 2008; 38 in 2009; 43 in 2010;
39 in 2011; 27 in 2012; 29 in 2013; 8 in 2014; 39 in 2015; 30 in 2016; 21 in
2017; 6 in 2018; 10 in 2019; 14 in 2020; and 12 in 2021.

3 Our sample included all English-language press releases posted to the IOM
global website issued in 2006 (n = 342), 2007 (n = 337), 2016 (n = 901), 2017
(n = 866), and 2021 (n = 177, as of 7 December 2021). This allowed us to observe
discursive shifts across this period. Our samples provide insight into
headquarters-based, high-level discursive developments and legitimation
strategies. In future, it would be instructive to compare this high-level
discourse with that of mid-level and field-based officials.

4 For other studies of diverse aspects of IOM’s institutional discourse, see for
example Pécoud Citation2015; Thorvaldsdottir and Patz Citation2021; Campillo
Carrete and Gasper Citation2011; Green and Pécoud Citation2022.

5 To enable open discussion of sensitive institutional concerns, the interviews
have been anonymised. The interview protocol was approved by the McGill
University Research Ethics Board, File 119-1015. Key themes from these
interviews were identified using a grounded coding process.

6 On this development and the contested meaning of ‘related organization’
status, see Guild and Grant Citation2017; Bradley Citation2021.

7 For legal analyses, see e.g. Guild, Grant, and Groenendijk Citation2017 and
Chetail Citation2019, 2022. On broader implications of IOM’s entry into the UN
system, see Geiger and Pécoud Citation2020.

8 For exceptions see Hall Citation2016 and Korneev Citation2018.

9 IOM’s adaptation to shifting demands arising from its institutional
environment may be understood, in part, in terms of institutional isomorphism
whereby coercive, mimetic and normative mechanisms foster homogeneity across
organizations in particular fields (DiMaggio and Powell Citation1983; Park
Citation2014).

10 Interview, member state official 1, November 2015.

11 Interview, member state official 1.

12 Interview, IOM official 13, November 2015.

13 In attempting to legitimize itself by emphasizing service to states and
individuals, IOM is following a general trend in IO legitimation (Dingwerth et
al. Citation2019).

14 Interviews, member state officials 4 and 5, December 2016; Interviews,
humanitarian actors 8 (NGO) and 9 (UN), December 2016; Interview, humanitarian
actor 12 (UN), December 2019.

15 Refugees represent an exception.

16 Interview, IOM officials 3, 4, 5, November 2015.

17 Interview, human rights advocate 5, December 2015.

18 Beyond pragmatic recognition that respect for these norms is essential to
fundraising, some suggest members of IOM’s migration and border management teams
are also invested in upholding sovereign authority in migration decision-making
on principle (Bradley Citation2020).

19 Interview, IOM official 2, November 2015.

20 Interview, member state official 2, December 2016.

21 Interview, member state official 4, December 2016.

22 Interview, member state official 3, December 2016.

23 This may be understood in terms of mimetic institutional isomorphism, as
noted above.

24 Interviews, IOM officials 3 and 13; IOM official 16, October 2019; IOM
official 17, December 2019; IOM official 21, February 2020.

25 Interview, humanitarian actor 2 (UN), November 2015; Interviews, humanitarian
actors 1 (UN), 5 (NGO), 6 (UN), November 2015; Interview, humanitarian actors 7
and 9 (UN), December 2015; Interview, humanitarian actor 11 (UN), November 2019;
Interview, human rights advocate 13 (UN), January 2018.

26 Interview, independent expert 8 (former senior UN official), April 2020.

27 Interview, independent expert 6 (former senior UN official), October 2019;
Interview, independent expert 8 (former senior UN official), April 2020.

28 Interview, human rights advocate 2, November 2015; Interview, human rights
advocate 5; Interviews, human rights advocates 7 and 10, December 2016.

29 Interview, humanitarian actor 10 (UN), September 2019; Interview,
humanitarian actor 12 (UN); Interview, humanitarian actor 13 (UN), July 2021.

30 Interviews, humanitarian actor 8 (NGO) and 12 (UN); Interview, member state
official 2; Interview, member state official 11, July 2017; Interview,
independent expert 8 (former senior UN official).

31 IO mandates are widely understood to extend beyond the formal terms of their
constitutive documents (Barnett and Finnemore Citation2004).

32 Interviews, IOM officials 3, 4, 5, 13 and 17; Interview, IOM official 19,
January 2020; Interview, IOM official 21, February 2020; Interview, IOM official
22, June 2021.

33 Interview, member state official 5, December 2016.

34 Personal communication, IOM staff member, June 2015; Interview, IOM official
1.

35 Interviews, IOM official 10; Interviews, IOM officials 3, 6, 9, 13, 17, 22.

36 Interviews, IOM officials 10, 13, 17, 22; Interview, IOM official 15, January
2018; Interview, former IOM official 20, January 2020; Interview, human rights
advocate 5.

37 For a discussion of related attempts at the Asian Development Bank to merge
human rights with sovereignty norms, see Park Citation2014.

38 Interviews, IOM officials 1, 8, 9, 17.

39 Interviews, IOM officials 3, 4, 5, 9, 11, 13.

40 Interviews, IOM officials 6 and 12, November 2015; Interview, IOM official
17.

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ADDITIONAL INFORMATION


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This work was supported by Social Sciences and Humanities Research Council of
Canada: [Grant Number ].


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the link under each purpose. These choices will be signaled to our vendors
participating in the Transparency and Consent Framework.
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PERFORMANCE COOKIES

Performance Cookies

These cookies allow us to count visits and traffic sources so we can measure and
improve the performance of our site. They help us to know which pages are the
most and least popular and see how visitors move around the site.    All
information these cookies collect is aggregated and therefore anonymous. If you
do not allow these cookies we will not know when you have visited our site, and
will not be able to monitor its performance.

Cookies Details‎

FUNCTIONAL COOKIES

Functional Cookies

These cookies enable the website to provide enhanced functionality and
personalisation. They may be set by us or by third party providers whose
services we have added to our pages.    If you do not allow these cookies then
some or all of these services may not function properly.

Cookies Details‎

STRICTLY NECESSARY COOKIES

Always Active

These cookies are necessary for the website to function and cannot be switched
off in our systems. They are usually only set in response to actions made by you
which amount to a request for services, such as setting your privacy
preferences, logging in or filling in forms.    You can set your browser to
block or alert you about these cookies, but some parts of the site will not then
work. These cookies do not store any personally identifiable information.

Cookies Details‎

TARGETING COOKIES

Targeting Cookies

These cookies may be set through our site by our advertising partners. They may
be used by those companies to build a profile of your interests and show you
relevant adverts on other sites.    They do not store directly personal
information, but are based on uniquely identifying your browser and internet
device. If you do not allow these cookies, you will experience less targeted
advertising.

Cookies Details‎

STORE AND/OR ACCESS INFORMATION ON A DEVICE 701 PARTNERS CAN USE THIS PURPOSE

Store and/or access information on a device

Cookies, device or similar online identifiers (e.g. login-based identifiers,
randomly assigned identifiers, network based identifiers) together with other
information (e.g. browser type and information, language, screen size, supported
technologies etc.) can be stored or read on your device to recognise it each
time it connects to an app or to a website, for one or several of the purposes
presented here.

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PERSONALISED ADVERTISING AND CONTENT, ADVERTISING AND CONTENT MEASUREMENT,
AUDIENCE RESEARCH AND SERVICES DEVELOPMENT 830 PARTNERS CAN USE THIS PURPOSE

Personalised advertising and content, advertising and content measurement,
audience research and services development

 * USE LIMITED DATA TO SELECT ADVERTISING 642 PARTNERS CAN USE THIS PURPOSE
   
   Switch Label
   
   Advertising presented to you on this service can be based on limited data,
   such as the website or app you are using, your non-precise location, your
   device type or which content you are (or have been) interacting with (for
   example, to limit the number of times an ad is presented to you).
   
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 * CREATE PROFILES FOR PERSONALISED ADVERTISING 516 PARTNERS CAN USE THIS
   PURPOSE
   
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   Information about your activity on this service (such as forms you submit,
   content you look at) can be stored and combined with other information about
   you (for example, information from your previous activity on this service and
   other websites or apps) or similar users. This is then used to build or
   improve a profile about you (that might include possible interests and
   personal aspects). Your profile can be used (also later) to present
   advertising that appears more relevant based on your possible interests by
   this and other entities.
   
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 * USE PROFILES TO SELECT PERSONALISED ADVERTISING 510 PARTNERS CAN USE THIS
   PURPOSE
   
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   Advertising presented to you on this service can be based on your advertising
   profiles, which can reflect your activity on this service or other websites
   or apps (like the forms you submit, content you look at), possible interests
   and personal aspects.
   
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 * CREATE PROFILES TO PERSONALISE CONTENT 229 PARTNERS CAN USE THIS PURPOSE
   
   Switch Label
   
   Information about your activity on this service (for instance, forms you
   submit, non-advertising content you look at) can be stored and combined with
   other information about you (such as your previous activity on this service
   or other websites or apps) or similar users. This is then used to build or
   improve a profile about you (which might for example include possible
   interests and personal aspects). Your profile can be used (also later) to
   present content that appears more relevant based on your possible interests,
   such as by adapting the order in which content is shown to you, so that it is
   even easier for you to find content that matches your interests.
   
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 * USE PROFILES TO SELECT PERSONALISED CONTENT 203 PARTNERS CAN USE THIS PURPOSE
   
   Switch Label
   
   Content presented to you on this service can be based on your content
   personalisation profiles, which can reflect your activity on this or other
   services (for instance, the forms you submit, content you look at), possible
   interests and personal aspects. This can for example be used to adapt the
   order in which content is shown to you, so that it is even easier for you to
   find (non-advertising) content that matches your interests.
   
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 * MEASURE ADVERTISING PERFORMANCE 749 PARTNERS CAN USE THIS PURPOSE
   
   Switch Label
   
   Information regarding which advertising is presented to you and how you
   interact with it can be used to determine how well an advert has worked for
   you or other users and whether the goals of the advertising were reached. For
   instance, whether you saw an ad, whether you clicked on it, whether it led
   you to buy a product or visit a website, etc. This is very helpful to
   understand the relevance of advertising campaigns.
   
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 * MEASURE CONTENT PERFORMANCE 372 PARTNERS CAN USE THIS PURPOSE
   
   Switch Label
   
   Information regarding which content is presented to you and how you interact
   with it can be used to determine whether the (non-advertising) content e.g.
   reached its intended audience and matched your interests. For instance,
   whether you read an article, watch a video, listen to a podcast or look at a
   product description, how long you spent on this service and the web pages you
   visit etc. This is very helpful to understand the relevance of
   (non-advertising) content that is shown to you.
   
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 * UNDERSTAND AUDIENCES THROUGH STATISTICS OR COMBINATIONS OF DATA FROM
   DIFFERENT SOURCES 468 PARTNERS CAN USE THIS PURPOSE
   
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   Reports can be generated based on the combination of data sets (like user
   profiles, statistics, market research, analytics data) regarding your
   interactions and those of other users with advertising or (non-advertising)
   content to identify common characteristics (for instance, to determine which
   target audiences are more receptive to an ad campaign or to certain
   contents).
   
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 * DEVELOP AND IMPROVE SERVICES 561 PARTNERS CAN USE THIS PURPOSE
   
   Switch Label
   
   Information about your activity on this service, such as your interaction
   with ads or content, can be very helpful to improve products and services and
   to build new products and services based on user interactions, the type of
   audience, etc. This specific purpose does not include the development or
   improvement of user profiles and identifiers.
   
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   Object to Legitimate Interests Remove Objection

 * USE LIMITED DATA TO SELECT CONTENT 136 PARTNERS CAN USE THIS PURPOSE
   
   Switch Label
   
   Content presented to you on this service can be based on limited data, such
   as the website or app you are using, your non-precise location, your device
   type, or which content you are (or have been) interacting with (for example,
   to limit the number of times a video or an article is presented to you).
   
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   Object to Legitimate Interests Remove Objection

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USE PRECISE GEOLOCATION DATA 265 PARTNERS CAN USE THIS SPECIAL FEATURE

Use precise geolocation data

With your acceptance, your precise location (within a radius of less than 500
metres) may be used in support of the purposes explained in this notice.

List of IAB Vendors‎

ACTIVELY SCAN DEVICE CHARACTERISTICS FOR IDENTIFICATION 133 PARTNERS CAN USE
THIS SPECIAL FEATURE

Actively scan device characteristics for identification

With your acceptance, certain characteristics specific to your device might be
requested and used to distinguish it from other devices (such as the installed
fonts or plugins, the resolution of your screen) in support of the purposes
explained in this notice.

List of IAB Vendors‎

ENSURE SECURITY, PREVENT AND DETECT FRAUD, AND FIX ERRORS 533 PARTNERS CAN USE
THIS SPECIAL PURPOSE

Always Active

Your data can be used to monitor for and prevent unusual and possibly fraudulent
activity (for example, regarding advertising, ad clicks by bots), and ensure
systems and processes work properly and securely. It can also be used to correct
any problems you, the publisher or the advertiser may encounter in the delivery
of content and ads and in your interaction with them.

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DELIVER AND PRESENT ADVERTISING AND CONTENT 537 PARTNERS CAN USE THIS SPECIAL
PURPOSE

Always Active

Certain information (like an IP address or device capabilities) is used to
ensure the technical compatibility of the content or advertising, and to
facilitate the transmission of the content or ad to your device.

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MATCH AND COMBINE DATA FROM OTHER DATA SOURCES 372 PARTNERS CAN USE THIS FEATURE

Always Active

Information about your activity on this service may be matched and combined with
other information relating to you and originating from various sources (for
instance your activity on a separate online service, your use of a loyalty card
in-store, or your answers to a survey), in support of the purposes explained in
this notice.

List of IAB Vendors‎

LINK DIFFERENT DEVICES 336 PARTNERS CAN USE THIS FEATURE

Always Active

In support of the purposes explained in this notice, your device might be
considered as likely linked to other devices that belong to you or your
household (for instance because you are logged in to the same service on both
your phone and your computer, or because you may use the same Internet
connection on both devices).

List of IAB Vendors‎

IDENTIFY DEVICES BASED ON INFORMATION TRANSMITTED AUTOMATICALLY 508 PARTNERS CAN
USE THIS FEATURE

Always Active

Your device might be distinguished from other devices based on information it
automatically sends when accessing the Internet (for instance, the IP address of
your Internet connection or the type of browser you are using) in support of the
purposes exposed in this notice.

List of IAB Vendors‎

SAVE AND COMMUNICATE PRIVACY CHOICES 341 PARTNERS CAN USE THIS SPECIAL PURPOSE

Always Active

The choices you make regarding the purposes and entities listed in this notice
are saved and made available to those entities in the form of digital signals
(such as a string of characters). This is necessary in order to enable both this
service and those entities to respect such choices.

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