EN Official Journal of the European Union C 311/1

Opinion of the European Economic and Social Committee on intergenerational and intercultural measures to foster social integration of young EU citizens taking up employment in another Member State (own-initiative opinion)

2014/C 311/01

Rapporteur: Renate Heinisch

On 19 September 2013, the European Economic and Social Committee, acting under Rule 29(2) of its Rules of Procedure, decided to draw up an own-initiative opinion on:

Intergenerational and intercultural measures to foster social integration of young EU citizens taking up employment in another Member State

(own-initiative opinion).

The Section for Employment, Social Affairs and Citizenship, which was responsible for preparing the Committee's work on the subject, adopted its opinion on 7 April 2014.

At its 498th plenary session, held on 29 and 30 April 2014 (meeting of 30 April), the European Economic and Social Committee adopted the following opinion by 187 votes to 2 with 9 abstentions.

1. Conclusions and recommendations

1.1 The European Economic and Social Committee (EESC) acknowledges that the increasing labour mobility of young EU citizens is an important and welcome manifestation of one of the fundamental freedoms of the European Union and is ever more frequently the result of necessity. It helps mitigate critical situations in the labour markets of countries of origin and host countries. Young labour migrants are contributing to the economic and social development of host countries, and also bring intangible wealth in the form of diversity, which offers new opportunities to businesses and to society.

1.2 Whereas young labour migrants are taking up the resulting professional opportunities available to them and usually integrating successfully into the workplace in host countries, society faces new challenges with regard to their non-professional social integration in their new environments. Young EU citizens working in Member States other than their own constitute a diverse group. They all have the right to support when settling in, particularly those with limited language skills and financial means.

1.3 The EESC believes that greater attention should be paid to the specific needs and difficulties relating to the social integration and involvement of young EU citizens who have taken up employment in another Member State and who are staying in the host country on more than a temporary basis. Otherwise, serious problems can arise for those concerned and for host countries.

1.4 The EESC would alert the EU institutions and Member States to the growth of xenophobia and racism against minorities and immigrants, and calls for determined action against these attitudes and the groups fomenting them.

1.5 The European Commission is urged to support the Member States in their efforts to create more effective integration measures for this group of young EU migrants who have already found work in another EU Member State, by increasing exchanges of experience and dialogue. The EESC therefore calls for programmes funded under the Your First EURES Job scheme to be reinforced.

1.6 Integration is a social process that operates in the relation between individuals and groups, and is a two-way process since it involves both immigrants and host societies.

1.7 First of all, the European Commission should promote the exchange of best practices and document successful strategies and practices aimed at supporting these young labour migrants in their efforts to integrate into society. In particular, the importance of intercultural and intergenerational ideas and projects as part of host country ‘welcome culture’ initiatives could be recognised and underlined, since they provide promising forms of support.

1.8 The EU has approved new tools to tackle the discrimination against Europeans exercising their right to freedom of movement. These tools must be applied effectively at national level since a society that allows discrimination against immigrants is not inclusive.

1.9 The Commission should make available this collection of tried-and-tested ideas and projects to the Member States, recommending that they be emulated in a creative way. The Member States should be urged to inform the European Commission of any successful measures which have already been carried out by various providers in their own countries, with a view to developing documentation further and thus deepening the exchange of experience.

1.10 The EESC recommends that the Commission subsequently check whether further suitable measures are possible and how these could be implemented. In particular, it should develop a plan to apply and support tried-and-tested innovative strategies and practices through the EU's existing programmes, platforms, funds and initiatives.

1.11 The EESC proposes that the Commission support the work carried out by the social partners and civil society, which play an important role in integration in terms of the reception and participation of immigrants.

1.12 The EESC believes that the European Commission should focus on involving young people in an appropriate way — through their civil society organisations — in important planning and decision-making processes on this subject, so that the needs and difficulties of this target group can be properly articulated through them and thus successfully tackled.

1.13 It is clear that the social partners and businesses that employ young non-nationals have a serious responsibility. The EESC would like them to be more involved in the design of integration programmes that are more suited to the needs of young workers.

2. Introduction

2.1 Young EU citizens are increasingly mobile and many leave their home countries — often because of a desperate labour market situation (but not necessarily for this reason alone) — in order to find a job in another EU Member State. They are therefore exercising their fundamental right to free movement within the Union, contributing to the objective of greater labour mobility in the EU and using the opportunities which stem from this. They are on the same legal footing as citizens of the host country but face very specific challenges and have special needs.

2.2 Young EU citizens working in Member States other than their own constitute a diverse group. In fact, it is not only well-educated young people but also low-skilled and financially disadvantaged young people who take the courageous step to build their future outside their home country. It is usually the latter group who find it more difficult to integrate since they often lack the language skills and financial means to establish a firm social footing in the host country.

2.3 These young people therefore need to be able to integrate well socially in order to take part and be able to play an active role in the host society which they are not familiar or virtually unfamiliar with when they arrive, i.e. in order to experience important aspects of citizenship in the new environment too.

2.4 With its Your First EURES Job (YFEJ) scheme, which forms part of the Youth on the Move flagship initiative and the Youth Opportunities initiative, the European Commission promotes job mobility for young people, with a view to achieving the goal set in the Europe 2020 strategy: to secure 75 % employment and improve the workings of Europe's labour markets.

2.5 This opinion deals with the — until now largely downplayed — difficulties of socio-cultural integration in a new environment through integration and involvement in the host society which is as comprehensive as possible. At the same time, however, the EESC recognises the need to draw up another opinion to explore the social costs and other effects which have to be dealt with by the countries and regions of origin on account of labour mobility and migration, especially of young people.

2.6 This opinion seeks to promote a greater awareness of this important aspect of the integration of young EU migrant workers both in the host countries and countries of origin, as well as at EU level. The urgent need for appropriate action is underlined with the aim of developing evidence- and results-based approaches in the Member States and promoting them at EU level, by comparing individual approaches and more specific experiences.

2.7 To some extent, host countries and businesses already provide very effective support, which is however primarily geared towards job-related issues. Only in exceptional cases is this support flanked by general ‘welcome culture’ strategies. The YFEJ scheme includes programmes organised by employers to promote integration of young workers (language courses and training, combined with administrative assistance and support for relocation). The requisite strategies, structures, methods and experience needed to effectively support, help and challenge these young people in integrating into the host country society and culture are to a large extent still lacking.

2.8 Relevant approaches and measures should have a specific intergenerational and intercultural basis. These can make a very important contribution to integration and the exercise of EU citizenship in the host country. Knowledge drawn from the experience of older generations should be used as much as possible in this connection. In particular, immigrants from various countries of origin who have already integrated successfully may offer innovative mutual support and specific forms of solidarity, drawing on the diversity of their cultural roots.

2.9 Unsuccessful social integration as well as a failure to recognise these young people's identity and their specific needs could lead to some explosive problems, both for them and the host society. Shattered hopes and renewed question marks over prospects often lead to the loss of an initially positive attitude to the host country, and can even lead to aggressive, radical views and behaviour.

2.10 Therefore the message must get through to these young people that ‘you are valuable to us, you are welcome and we will help you’, so as to counter the impression that ‘you are a problem here and a nuisance’. Last but not least, steps should be taken to prevent skilled and motivated young people from becoming frustrated and migrating to third countries and thus to prevent the EU from losing them.

3. Challenges and difficulties facing young people in a foreign country

3.1 Although effective EU advice and support systems have already been created for young job seekers in the European Union — such as Youth on the Move, EURES, the European Job Mobility Portal, etc. — and host countries have developed numerous measures in this area, these programmes focus predominantly, if not exclusively, on labour market policy or job-related aspects. The various other areas of young people's lives, their difficulties and their specific needs are to a large extent being left out of the picture. In other words, offers of support are lacking, or insofar as they exist, are insufficient.

3.2 A significant difficulty for newcomers in their host country is the fact that they are initially unfamiliar with public structures and procedures and do not properly understand a society's customs and culture. Together with a shortage of language skills in most cases, this makes it enormously difficult to have access to rights and public services and poses the risk of economic and social disadvantage, especially outside of work.

3.3 For example, there can be everyday difficulties when looking for accommodation, accessing general and specific services such as health and welfare, and in dealing with a broad range of other personal needs, including organising leisure time and practising one's faith. These difficulties affect all workers in countries other than their country of origin.

3.4 If opportunities to participate in society are insufficient or difficult to access, there is a risk of isolation. This can easily begin with simple everyday situations and can even lead to experiences of rejection, discrimination and social distance, with considerable psychological consequences extending to social and emotional isolation. This is especially difficult for these young people, since they cannot rely on support from old networks such as their families back home, their habitual circle of friends or their original peer group.

3.5 So, a very important path to successful social integration in the host society is effective involvement in the general life of a community through participation in social, political, cultural and sporting activities or faith-based practice, for example through clubs, societies, associations, parties and trade unions. Often, however, there are various barriers to straightforward participation by young people from abroad, and frequently there is also a lack of measures needed to get people started, to encourage them or to introduce them to activities. This can easily lead to non-material impoverishment of young migrants, with disastrous effects.

3.6 In this connection the EESC considers it essential to strengthen the EURES network, which has thus far proved deficient not only in terms of matching demand with supply but also with regard to support for inclusion and integration. This latter aspect is becoming even more important following the recent expansion of the EURES network to apprenticeships and traineeships, as it is likely that younger and younger people will be involved in European mobility.

3.7 A key contribution to the development of integration programmes could lie in cooperation between the host country and the country of origin: a holistic approach and the creation of intercultural, transnational networks operating at a closer level to young migrant workers would encourage ‘mindful migration’.

4. Important areas of protection and support for young migrant workers

4.1 Beyond the work-related field, it is of great benefit for young migrant workers if their need for networks is supported. This can take place on the basis of structured communication or the organisation of local or regional events, to initiate and promote exchange of experience and the sharing of information about rights and obligations, difficulties and abuse, possible solutions, etc. Social media have an important role to play in the development of new networks of acquaintances.

4.2 Since the overwhelming majority of young migrant workers are highly motivated and eager, a broad range of straightforward possibilities and paths should be identified for them, so that they also can decide on, develop and implement their own business projects. In this connection, they could be supported by experienced older people, especially as regards market opportunities, technical and administrative conditions, financing, staff recruitment, etc. in the socio-economic context of the host country.

4.3 Participation outside of work and integration of young foreign workers is a broad and important field for key support and development measures, but one which is widely neglected. It is not enough for young people to take courses to learn basic linguistic skills in the language of the host country and to master technical language on the job.

4.4 In order to find one's feet in a new living environment, to meet personal needs and to actively integrate oneself into society, much more is needed. In particular, there is a need for sound information and suitable guidance, practical steps to link the language and a large number of specific everyday situations as well as long-term, reliable personal support to help them deal with failures and disappointments.

4.5 Advice and support measures are, among other things, crucial when looking for accommodation, in the event of disputes over housing, in generally organising everyday life, dealing with finance and tax matters, in making efforts to continue one's education, choosing between options for social, cultural, religious, sporting or other leisure activities, as well as in exercising citizens' rights and political participation. In all such fields, extremely valuable assistance can be provided both by other young foreigners and compatriots with more experience of living in the host country, and older citizens from the host country who are willing to provide support on a personal basis.

4.6 When designing support and advice measures, decisions must be taken on solving some highly diverse difficulties and needs. To begin with, this is mostly a question of initial difficulties of a legal, material or technical nature, which are relatively easy to solve with the right help. However, it is much more difficult to overcome the hurdles of the social integration process, which can make long-term consistent support necessary.

4.7 It can be very important to help young immigrants faced with difficult decisions or conflicts to find contacts, whether they be ‘sponsors’ or ‘mentors’ or even advisers from the EURES programmes, whose advice they can seek and with whom they can develop a relationship of trust. It is crucial for such contacts to have intercultural experience and thus the necessary understanding and, at the same time, to be able to communicate effectively and to have the ability to help others help themselves.

5. Providers and stakeholders of support measures

5.1 The social partners undoubtedly have a big responsibility, as do businesses which employ young foreigners. They could, in addition, offer advice and concrete support relating to life outside work by encouraging older employees in particular to make themselves available at work as ‘mentors’ or ‘sponsors’, working together with young migrant workers and offering them advice, but also in particular to provide them with support beyond the work environment as well. The fact that without support this is hardly possible at all in small and medium-sized enterprises poses a particular challenge for which solutions must be found, for instance by including such initiatives in the programmes funded under the YFEJ scheme.

5.2 Traditionally, civil society social organisations have mainly dealt with peoples' non-professional difficulties and created opportunities for better social integration and a more cohesive society. Especially through measures relating to social, cultural, sporting and other leisure activities geared to the special difficulties and needs of young migrant workers, they should more closely involve this key group, which is of such great importance for the future, in formulating an overall vision of their activities.

5.3 Both in the job-related context and in the non-professional field, it is of great benefit to bring experienced older people together with young migrants. The knowledge and judgement of older people who are willing to share their experiences with younger people is of very considerable value. Not only can this lead to appropriate solutions to difficulties, it is also an important form of dialogue which promotes social cohesion. This is of huge benefit for all stakeholders. If the partners in dialogue come from a broad range of cultural backgrounds, this also leads to important experiences in an open, multidimensional society offering access and participation opportunities for all.

5.4 Regardless of all existing institutional help and support programmes, a very important factor determining whether or not measures succeed is personal ties. Personal experiences, direct communication, individual commitment, trust in the ability of others and shared experiences are catalysts for integration promising a new world of work and a different kind of society in particular. Ensuring such individual personal support through direct face-to-face contacts is an important task, which can be carried out especially through structured organisation of voluntary involvement. Who can or should make this happen depends on the respective culture of the host country.

5.5 It is important that attempts should not be made either at national or European level to impose uniform solutions. These are human needs and difficulties for which there is no set standard approach, but which require varied, flexible and constantly innovative answers depending on the origin of those concerned and their personal situation, as well as local conditions.

5.6 A very successful form of personal assistance is, for example, provided through ‘Senior Expert Services’ (1). In this connection, people who are already retired offer young people on a voluntary basis their professional knowledge and experience from very diverse fields. The transfer of skills and the personal commitment of older people boost mutual understanding, cooperation and intergenerational respect enormously, and this in turn contributes a great deal to social cohesion.

5.7 For strategies that show promise, it is important that existing opportunities and successful practices are systematically documented, evaluated on the basis of outcomes, closely coordinated and publicised through targeted information measures. Close cooperation among all providers and relevant organisational units as well as permanent involvement of organisations representing all interested parties and stakeholders is the key to success. In particular, the objective must be to ensure that the specific needs and difficulties of young migrant workers are recorded correctly, strategies and measures are designed in a targeted way, resources are used appropriately and follow-up is ensured. Young migrant workers should be jointly involved in all decisions and evaluations.

6. Observations and possible steps by the European Commission

6.1 The mobility of young workers reflects one of the fundamental freedoms of the European Union. Young people are using the opportunities available to them through labour migration. This can significantly mitigate labour market problems in both countries of origin and host countries. The specific situation of young EU migrants working in other EU Member States, who represent a very important part of Europe's future, should be documented, analysed and understood more closely.

6.2 In particular, the non-professional integration of young people from other EU Member States in the society of the host country in which they have found work should be given greater consideration, since it is associated with significant challenges and difficulties. In this connection, the European Commission should raise awareness across borders, compile documentation and promote exchange of experience and dialogue.

6.3 Accordingly, the European Commission should be urged to take steps to document successful practices aimed at tackling the specific difficulties faced by young migrant workers with regard to social integration and involvement in the host country. In particular, intercultural and intergenerational approaches to support these young EU citizens from abroad in their efforts to become involved and participate effectively in society should be given significant attention, as important elements of a ‘welcome culture’ strategy.

6.4 The European Commission should encourage the Member States to emulate these practices in a creative way. At the same time, the Member States should be urged to inform the European Commission of tried-and-tested innovative strategies, programmes and concrete measures — by public and private providers — aimed at facilitating and supporting the social integration of young workers from other Member States, with a view to deepening the exchange of experience on the various forms of support and possibilities in this area.

6.5 On the basis of this European documentation, the European Commission should analyse where there might still be a need for action and how this could be met. In addition, they should develop a strategy applying and supporting elements of tried-and-tested innovative practices through the EU's existing programmes, platforms, funds and initiatives.

6.6 The European Commission should ensure that that young people themselves play a significant part through their civil society organisations, in order to guarantee that their needs and difficulties can be properly recorded, understood and ultimately addressed through targeted support.

Brussels, 30 April 2014 The President of the European Economic and Social Committee Henri MALOSSE

(1) http://www.ses-bonn.de/.