This chapter explores the delivery of migration policy – the institutions, structures and processes that ‘realise’ policy. Since 1997, the policy infrastructure has been significantly reorganised, in line with reforms to public services pioneered in the 1980s (such as the Next Steps programme). Labour's approach was comprehensively outlined in the White Paper Modernising government (Cabinet Office, 1999), which emphasised inclusive, evidence-based policy making and responsive, high-quality public services. As a result, in addition to reorganisation, several policies have been pursued to improve delivery: the state-funded delivery infrastructure has been diversified; there has been more ‘joining-up’ of government; new technologies have been introduced to improve efficiency and customer-service; and powers have been devolved.

New management techniques and financial imperatives have been the two most consistent drivers of reform. New management techniques, such as target-setting, have had a profound effect, especially on asylum reform. For example, the target on reducing numbers was the driver for setting up border controls in Calais. The targets on failed asylum seekers (unauthorised migrants) have also led to an increase in resources for enforcement since 2003.

Financial imperatives have also accounted for institutional change. Asylum processing, for example, has been speeded up partly because of the government's commitment to save £450m through ‘bearing down on the cost of providing asylum support’ by 2007/08 (Home Affairs Select Committee, 2006a, Annex B, Question 13). Similarly, efforts to reduce the legal aid budget to support asylum seekers have led to a fundamental reshaping of the asylum legal system. For example, a new structure, the Legal Services Commission, has taken control of legal aid funding and implemented a ‘merits’ test for appeal cases.

Among the most important changes to the delivery structure, driven again by financial imperatives, has been the development of a fee-charging regime. The regime, which originated from thinking on economic migration in the Cabinet Office and Home Office in 2002, initially charged low fees for work permits in 2003 with the aim of subsidising the processing costs. However, since then the floodgates have opened and the costs of obtaining a visa, a visa extension or visa switch, or to go through the naturalisation process, have rapidly increased.