NoC40/104 OfficialJournaloftheEuropeanCommunities 17.2.92
OpiniononImmigrationPolicy
(92/C40/25)
On31January1991theEconomicandSocialCommittee,actingunderthefourthparagraph
ofArticle20ofitsRulesofProcedure,decidedtodrawupanOpiniononImmigration
Policy.
TheSectionforExternalRelations,TradeandDevelopmentPolicy,whichwasresponsible
forpreparingtheCommittee'sworkonthesubject,adopteditsOpinionon15November
1991.TheRapporteurwasMrRoseingrave,theCo-Rapporteur MrMourgues.
Atits291stplenarysession(meetingof28November1991),theEconomicandSocial
CommitteeadoptedthefollowingOpinionbyamajorityvote,with7abstentions .
termpolicies,asurgentandacutepressuresare
beingfeltandareexpectedtoincrease;
e)thepresentandaboveallpotentialeconomicand
socialcapacityoftheECtoabsorbtheimmigration
flowsfromthirdcountries,whilemaintainingtheecon­
omicprogressoftheCommunity .1.Preliminaryremarks
1.1.TheobjectiveoftheCommittee'sOwn-initiative
Opinionistosuggestpoliciesonimmigrationintothe
EuropeanCommunitywhichattemptontheonehand
totacklethecausesofundueemigrationfromthe
countriesoforiginandontheotherhandtoutilize
migrationflowstotheadvantagebothofthecountry
oforiginandthehostcountry.Thesepolicieshaveto
takeintoaccounttheexternalrelationsoftheCom­
munityandtorespecttheuniversalandindivisible
natureofhumanrightsandfundamentalfreedoms.The
policiesmustbeexpresslyseeninthecontextofthe
viewsexpressedbytheCommitteeearlierthisyearin
twoOpinionsonthestatusofmigrantworkersfrom
thirdcountriesf1).1.3.Communityimmigrationpolicymustachieve
thedifficulttaskoffindingbalancesbetweencompeting
objectivesandinitsoperationtobeflexibleandadapt­
abletochangingcircumstancesbothinsideandoutside
theCommunity .
1.4.TheexistenceofcommonCommunity-wide
entrycriteriaisanessentialcorollarytothepolicyof
givinglegallyadmittedimmigrantsrightsconsistent
withthoseofCommunitycitizens.1.2.Thesepoliciesmustbecarriedoutinthecontext
of:
a)theeliminationoftheEC'sinternalfrontiersand
thecreationoftheEuropeanEconomicArea(EEA)
by1January1993andtheconsequencesofthis
fortheformulationandimplementation ofanEC
commonpolicyonimmigration ;
b)existinginternationalconventions,protocolsand
inter-governmental initiativesonmigrationand
securityasforexample'Trevi','Schengen'andthe
'AdhocGrouponImmigration';
c)theneedtodistinguishimmigrationcausedby
unfavourable economicandsocialconditionsin
countriesoforiginandthatarisingfrompolitical
orothercauseswhichnecessitatethegrantingof
refugeestatusandtherightofasyluminthehost
countries;1.5.Policiesonaccesstothenationalterritories
shouldnotbepermittedtoendangertheobjectiveof
freecirculationofpersonsinsidetheCommunityand
theabolitionoffrontiercontrolsenvisagedfor1993.
Despitenationalreticenceandinviewofthesituation
inrecentyears,theCommitteecontendsthatthereisa
needforaCommunityimmigrationpolicy,onewhich
involvesanexpansionofCommunitypowersinthis
field.Thesearedetailedinsections5and6.TheCom­
mitteeconsidersthattherepresentatives oftheHeads
ofStateandGovernmentoftheMemberStatesshould
worktothisend,withintheframeworkofthe
Intergovernmental ConferenceonPoliticalUnion.
d)theneedtodistinguishbetweenlong-andshort­
2.HistoricalBackgroundandPerspectives
2.1.MigrationisnotsomethingnewtoEurope—it
hasalwaysbeenacross-roadsofmigratorypatterns. (!)OJNoC159,17.6.1991,p.12anddoc.ESC1122/91.

17.2.92 OfficialJournaloftheEuropeanCommunities NoC40/105
relativelysmall,theywereabsorbedwithouttoomuch
difficulty.Whatisnew,however,istwoessentialnewfactorsof
change;firstlytheestablishmentanddevelopmentof
theEuropeanCommunityintoaSingleMarketby
1January1993anditsconsequentialincreasingattrac­
tionasaneconomicmagnetforimmigrantsfromthird
countries .2.4.1.1.AfterWorldWarII,intheyears1945-1948
withtheinstallationofCommunistregimesinCentral
Europe,refugeesmanagedtomovetotheWest,in1956
fromHungary,in1968fromCzechoslovakia andin
1981fromPoland.Inadditiontheshortageofman­
powerinsomeMemberStates(notablyGermany)led
toahugeinfluxofYugoslavimmigrants,manyof
whomsettleddownpermanentlyinthehostcountries.2.2.Thisfactorisfurthercomplicatedandintensi­
fiedbythesecondmajorfactornamelythepolitical
changes,thecollapseofthecommandeconomiesand
themovetowardsatransitiontomarketeconomiesof
theCentralandEasternEuropeancountries,leadingto
potentiallygreatermigrationflowsfromthesecountries
intotheEC.
2.3.DiversityofExperiencesandTraditions2.4.1.2.Finally,inthelasttwoyears,ahistoric
watershedhastriggeredanewphaseofimmigrationto
themoreindustrializedcountriesbyworkersfromthe
formerCommunistnations.Theirnumbersmay
increaseconsiderablyinthenextfewyears,butwehave
noevidenceyetthatthiswillhappen.Acertainnumber
ofemigrantsfromCentralandEasternEuropeconsider
thattheyareintransit,andhopetosettlefurtherafield
intheUnitedStates,CanadaorAustralia.Manyothers
intendtosettleandworkintheCommunity .
2.4.2.Themovefromtheoldregimetothenew,
fromacentrallyplannedeconomytoafreemarket,
andfromamonolithicsystemtodemocracy,willnot
beeasytorealizeandmaywellbeuncertaininits
outcome.Livingstandardshavealreadydroppedin
severalCentralandEasternEuropeancountriesand
unemployment isrisingincreasingly .2.3.1.VirtuallyeverycountryoftheEuropeanCom­
munityhashaddiverseexperienceswith,ifnotatra­
ditionof,migration—eitherofimmigrationorofemi­
grationandsometimesofboth.Inmostcasesthiswas
notexclusivelywithotherCommunitycountriesbut
hadinvolvedThirdcountries:emigrationtotheNew
World(NorthandSouthAmerica,Australasia )and
southernAfricaand,morerecently,immigrationfrom
countrieswithex-colonialtiesand/orgeographicprox­
imity.
2.3.2.Historically ,Europe'sownexperienceswith
migration—bothimmigrationandemigration—were
boundupwith'safehaven'forrefugees,withintoler­
ance,discrimination andpersecutionofminorities
(basedonreligion,nationality,ethnicityandlanguage),
withwar,withdemographics andwitheconomicdevel­
opment,particularlyindustrialdevelopment ,which
neededincreasedsupplyofmanpower .
2.3.3.TheseEuropeanexperiencesandtraditionsare
diversecomparedwithothercountriesoftheOrganiza­
tionforEconomicCooperationandDevelopment
(OECD);forexample,withthoseofUSA,Canada,
Australia,NewZealandorJapan,orevenwiththe
GulfStates.Suchrichdiversitymustofnecessityinflu­
encetheelaborationofaCommunityexternalpolicy
onimmigration .2.4.2.1.ThenewCentralandEasternEuropean
governmentshavelimitedresourcesandexpertisewhich
restricttheirabilitytoadoptmeasurestohelpthe
unemployed ,ortoprovideretrainingandsocialassist­
ance.Thisisevenmoreseriousiftheheavydebtburden
ofthesecountriesistakenintoaccountwhichisnot
favouringsocialflankingpolicies.Thesegovernments
areill-preparedtotacklethelong-termunemployment
causedbyprivatization .Therateoftransitionfromthe
oldfailedsystemtoanewonemusttakethisfactor
intoaccount,particularlyregardingemploymentand
theabsorbingofyoungpeopleintothelabourmarket.
Thisfeatureofthetransitiontoamarketeconomyis
ofdirectrelevancetotheG24countries'immigration
policies;therefore,theG24musthelpfashionand
cushiontheindustrialrestructuringsoastominimise
themigratorypressures. 2.4.MigrationfromEasterntoWesternEurope
2.4.1.ImmigrationfromEasterntoWesternEurope
hasoccurredinthreewaves.Immediatelyafterthefirst
WorldWarandtheBolshevikrevolutioninRussia,a
firstwaveofrefugeescameforpoliticalreasonsor
becausetheyfearedtheywouldnotfitintothenew
societywhichwastakingshape.Astheirnumberswere2.4.2.2.Alongsidesocialassistancemeasures(which
remaininsufficientbecauseofthelackofresources),
thesecountries'firsttaskmustbetoimprovethetrain­
ingofworkersandmanagerialstaff,equippingthem
tomeettheneedsoftheireconomicdevelopment .

NoC40/106 OfficialJournaloftheEuropeanCommunities17.2.92
Commonwealth ),andTurkishorigins—notfrom'East­
ernEurope'.Thesemigrantsweremostlyfromnewly­
independentnationsseekingworkintheformercol­
onialcountry.Thus,colonialtiesmorethangeographic
proximitywerethemainfeatureofthehome/host
countryrelationship .2.4.2.3.Traininginthecountriesconcernedshould
payparticularattentionandsupporttopeoplewishing
topromoteordevelopsmallbusinessesandcooperat­
ives.
2.4.2.4.Thefundamentalconceptionofhelpand
cooperationhasabsolutelytoincludeflankingpolicies
tokeeptheeconomicandsocialequilibriumofthese
countriesintransition .
2.4.3.However,despitetheseandotherpossible
measuresbytherelevantgovernments,itisclearthat
onceworkershavetherighttoemigrate,emigration
willofferonewayofmitigatingthepressuresgenerated
bythehigheconomicandsocialcostsimplicitinthe
changesoutlinedabove.2.5.2.Theimmigrationpullfactorsinthe1950sand
1960swerestrong:WesternEuropewasexperiencing
sustainedratesofeconomicgrowthandincreasingly
labourmarketswerecharacterizedbyfullemployment .
Immigrationwasseenbysomeasarelativelyquick
methodofincreasinglaboursupply,especiallyforlow
paid,unsocialandunskilledjobs.
2.4.3.1.Migrationtotheindustrializedcountriesis
difficulttopredictwithaccuracy,asitwilldepend
onanumberofimponderables suchastheeconomic
deteriorationandpoliticaltensionsinEasternEurope,
unemployment levels,ethnicconflicts,andexpulsions.
2.4.3.2.AttheconferenceorganizedbytheCouncil
ofEuropeinViennainJanuary1991,threetypesof
emigrationwerepinpointed :
a)ethnicmigrationbyscatteredminorities—a
phenomenonwhichhasoccurredbefore(e.g.ethnic
GermansinPolandandRomania,JewsandAr­
meniansinotherEasternEuropeancountries);
b)politicalexodusesbypersecuteddissidentsorfol­
lowingmassethnickillings;2.5.3.Aseconomicgrowthslowedinthemid-1970s,
duetoinflationarypressuresarisingfromtheVietnam
WarandespeciallyfromtheoilpriceriseoftheOrgan­
izationofthePetroleumExportingCountries(OPEC),
unemployment ratesintheEuropeanCommunity
startedtoriseandunemployment durationbecame
longer.Unemployment intheEuropeanCommunity
hasnowbeenabove8%foroveradecade,although
economicgrowthhadpickedupinrecentyears.
Migrationpullfactorsreducedsharply;however,
migrationpushfactorsincreased,dueespeciallytothe
interactionofeconomicproblemsandpopulationpress­
uresindevelopingcountries.
2.5.4.MostEuropeanCommunityStatesresponded
byenactinglegislationrestrictingnewimmigration
otherthanforfamilyreunionpurposes.Suchpurposes
areunderstandable fromthestandpointofthejoyof
livingasafamilyandtoensureeffectiveparental
responsibilities .Eventhisflowoffamilymemberswas
subjecttoadministrative controls.Althoughtighter
controlsdeterredsomemigrants,itsimplyturnedothers
intoillegalimmigrantstherebyexacerbatingtheprob­
lemoftheirintegration .c)economicmigrationforreasonsofsurvival,to
whichcouldbeaddedtheobjectiveofimproving
conditionsofliving,whichhassomepointsincom­
monwithSouth-Northpopulationmovements .
2.4.4.Economicmigrantsposeseriousinternational
cooperationproblems.Inthecommoninterest,thereis
aneedfor(i)foreignaidtohelpCentralandEastern
Europeancountriesfacilitaterestructuringanddevelop­
mentandthuscurbmigratorypressures,and(ii)aco­
ordinatedimmigrationpolicybetweentheEuropean
Communityandthecountriesoforiginsoastoprotect
theinterestsofthecountriesconcerned .Thiscoordi­
natedpolicyshouldalsoincludepossibilitiesforre­
emigrationinthefuture.
2.5.MigrationfromdevelopingcountriestoWestern
Europe2.5.5.Althoughimmigrationlawsaremorerestric­
tive,neverthelessfamilyreunionsarestillasourceof
continuinglegalimmigration inadditiontothe
unknownamountofclandestineimmigration .Inany
event,immigrationpushislikelytointensifybothfrom
traditionalcountriesoforiginandfromcountrieswith
geographicproximitybecauseofeconomicandpopu­
lationreasons.Immigrationpull,ontheotherhand,
wouldprobablyberestrictedeithertospecificskillsor
tonormalcharacteristics suchaslowwagesandun­2.5.1.SinceWorldWarII,byfarthelargestnumber
ofimmigrantsareofnon-European (Maghreb,British

17.2.92 OfficialJournaloftheEuropeanCommunities NoC40/107
e)Frontiercontrolsarenotinthemselvesappropriate
toprotectlabourmarkets.Thereforesanctionsdefined
bytheEChavetobeinflictedonemployersengaging
workerswithoutworkpermits.social'flexible'jobs(seasonalworkers,domesticwork­
ers,temporary/part-time/shiftworkers).
2.5.6.Tohelptolowermigratorypressurecausedby
thehugedifferencesinthestandardsoflivingbetween
developingcountriesandtheEuropeanCommunityit
isnotonlynecessarytoincreaseconsiderablythe
amountofdevelopmentaidbutalsotoincreasethisaid
especiallyinthecountriesandregionswherethe
greatestpotentialofimmigrantsexists.3.2.PushandPullfactorsaffectingimmigrationinto
theEC
3.Principalproblemstobetackledbyimmigration
policya)Thedemandforlabourinexcessofthatwhichcan
besuppliedfromwithintheECshouldbeforecastas
faraspossibletoallowanassessmenttobemadeof
theappropriatelabourrequirementsinregardtothe
specificdemandtobemetbythirdcountryworkers.
3.1.Implicationsofthefreedomofmovementprin­
ciple b)Clandestinemigrants(manydestinedforthe'black'
economy)areafactorofinstabilitywhichmakesthe
positionoflegalmigrantsmoredifficultanduncertain.
Thisisexacerbatedbythereprehensiblehumantraffic
inillegalmigrantsconductedbyorganisedcrime,
exploitingandabusingthesemigrants'plight.Steps
shouldbetakentopinpointandeliminatesuchcases
with,ifpossible,thehelpoftheauthoritiesinthe
countriesoforigin.Thesearchforemploymentisposs­
iblythegreatestsinglecauseforemigrationfromthe
countriesoforigin,althoughotherpoliticalandcultural
factorsalsoexertapush.3.1.1.Theprincipleoffreedomofmovement (that
is,therightofresidenceinanyMemberState,notonly
thefreedomtotravel)raisesproblemsofaccessintothe
Community'sareaoffreecirculationandthecontrolof
illicitmigrationtherein.Itrequiresacommonpolicy
byallMemberStates.
a)Thediversenationalsituationsandspecificprob­
lemsonimmigrationhaveimplicationsforthebasic
Communityprincipleofeconomicandsocialcohesion.
Abalancewillhavetobestruckbetweentherightsof
Communitycitizensandthosefromthirdcountries(!).
b)MemberStates'nationalpolicieswillhavetobe
harmonizedtopreventthemfromactingasbarriers
tocooperativeproceduresandcommonECsystems
regardingtheentryandmovementofnationalsfrom
thirdcountrieswishingtoemigrateintotheEC.
c)EClegalcompetenceshouldextendbeyondsimply
providingaguaranteeofcooperationamongtheMem­
berStates'topromotethefreemovementofpersons'
regardingtheentry,movementandresidenceof
nationalsofthirdcountries.TheECinstitutionsshould
begrantedcompetencesonimmigrationmattersforat
leasttheestablishmentofCommunitycriteria,which
shouldbeobservedbytheMemberStates.c)Themassmedia,especiallytelevision,cangivea
distorted,idyllicimageoflifeandconditionsinthe
EC.Suchisapowerfulmagnettomigrantsifnot
counterbalanced bythedisseminationofcomprehensive
informationtowould-bemigrantsontherealitiesof
immigrants'manyadverseconditions,thedifficultiesof
employmentandsocialintegrationinthehostcountries.
d)Demographicpressureonpoorcountriesisan
importantfactorinemigrationandislikelytoincrease
significantlyoverthenextfewdecades.
e)Newandspecificpatternsofimmigrationare
emergingforCentralandEasternEuropeancountries,
includingcountrieswhereemigrationwasforciblypre­
vented,suchasAlbania.
d)Withoutsuchacommonpolicythecriteriafor
immigrationadmissionswillvaryfromoneMember
Statetoanother;thiscouldgiverisetoreluctanceon
thepartofcertainMemberStatestodismantletheir
internalfrontiercontrols.
4.Reducingthecausesofimmigrationpush
4.1.Manycountriesoforiginseeemigrationasa
short-termsolutiontoalong-termproblem:itreduces
populationpressuresonscarceresourcesandcontrib­ (!)OJNoC159,17.6.1991,p.12anddoc.ESC1122/91.

NoC40/108 OfficialJournaloftheEuropeanCommunities17.2.92
utestoforeignexchangeearningsthroughworkers'
remittances .Negativeeffects,suchasbraindrainand
thelossofyoung,ambitiousandenterprisingpeople
fromtheeconomyareoftenwronglydiscounted.Indi­
vidualreasonsforemigratingtendtobetherealization
thatthereisnolongeranyhopeofeconomicadvantage
instayinginone'sowncountry:emigrationisthebetter
oftwoevils.ratioofthemilitarybudgettoGrossNationalProduct
(GNP)intherecipientcountryexceedstheMember
StatesoftheECaverage,incertaincircumstancesthe
reasonforthisshouldbeinvestigatedbeforeadecision
istakenonthelevelofaidgranted.Similarly,donor
governmentsshouldguardagainstaidthatwould
releasefundsformilitarypurchases.Thesemeasures
couldcomeunderthedecisionsoftheIntergovern­
mentalConferenceoncommonsecurityanddefence
policyandoncooperation .
4.2.Undertheprincipleofnationalself-determi­
nation,changingdemographictrendsandimproving
economicperformanceare,aboveall,theresponsibility
ofthecountriesoforiginthemselves.Resultscanonly
beexpectedinthemedium-tolong-term.4.5.Second,thesocialinfrastructure ,ofwhichthere
arethreeaspects:
a)theneedtoraisepublicconsciousness intheareaof
demographicdevelopmentrequiresinparticularthe
commitmentofgovernment,educationalauthorities
andopinion-formers ;
b)provisionforbasicsocialneeds,includingsocial
insurance,health,housingandeducation;4.3.TheCommunitycanhelptoensurethatthe
preconditionsforreducingmigrationpushareestab­
lished.Thisisnotsolelyanissueofgreaterfinancial
resources,loans,credits,aidforeveninvestments :with­
outthemitwouldbehardtomakeacredibleimpact.
Itismoreoveraquestionofcoherenceofapproachin
differentareasofpolicyandtechnicalassistance.The
Communityshouldinitiateaconstructivedialoguewith
countriesoforigintoidentifykeyareasandmeans
andtoformulateanenablingframeworkforpolicy
cooperationbaseduponspecificeconomicandsocial
objectives .c)thecreationofaclimateofhopeoretatd'espritby
meansofaboldinitiativesuchas,forexample,the
MarshallPlanwhichwasasimportantforitssocio­
psychologicalimpactasforthedirecteconomic
developmentsthatitproduced.
4.6.1.Third,theeconomicinfrastructure :priority
goingtomeasureswhichwouldcreatejobsnowandin
thefuture,leadtobalancedeconomicdevelopmentof
thecountryoforigin.Economicstabilizationpro­
grammeswhichcreatemassunemployment andreduce
outputarenotconducivetokeepingwould-bemigrants
intheircountries,norofprovidingthemwithanyhope
ofcontributingtoeconomicprogress—otherthanthe
ultimatepersonalsacrificeofbeingoneofthe
unemployed !Aclimateofeconomicdevelopmentand
thecreationofsustainableemploymentmustbefos­
tered.Forthisreason,transitiontoamarketeconomy
inCentralandEasternEuropehastobecarefully
carriedout.4.4.First,thepoliticalinfrastructure :governments
ofcountriesoforiginmustbecomeresponsiveto
theirowncitizens'expressionsthroughformsof
democraticaccountability andsocialinstitutions .
Whilepluralistdemocracy,withinwhichsocio-pro­
fessionalorganisationscanplaytheirrole,isnota
guaranteeofeconomicdevelopmentoranendto
emigration (witnessEasternEuropenow),itisasine
quanon.TheCommunityandMemberStatesshould
applyagreed'libertyconditions'intheirexternal
relationswithcountriesoforigin.TheCommunity
canvoicesuchconcernswithgreatereffectinfora
.suchastheInternationalMonetaryFund(IMF),the
WorldBank,theInternationalLabourOrganization
(ILO),theCouncilofEuropeandtheUnitedNations
ordirectlyintheCommunity'sbilateralaidpro­
grammeandGeneralizedSystemofPreferences .In
thecaseofEasternEurope,theG24andtheEuropean
BankforReconstruction andDevelopment (EBRD)
wouldclearlybeinvolved.Conversely,whereacoun­
tryoforigindoesmeetsuchconditionsand,asan
incentivetodoso,asmuchaspossibleshouldbe
donebywayofassistanceandaccess.TheECshould
ensurethataidfromMemberStatesshouldbe
conditionaluponitsuseforpeacefulandhuman
developmentandshouldaccordinglybegrantedthe
necessaryauthoritytoensurethatthisisdone.Ifthe4.6.2.Analternativetothis'short,sharpeconomic
shock-treatment 'hastobefoundandgreaterresources
arerequiredtosupportstructuralchangesandthe
transitionprocesstoviableeconomicdevelopment .
Formsoftripartitism,collectivebargainingandworker
participation—afunctioningindustrialrelationssys­
tem—shouldalsobeencouragedascrucialmeansof
involvingpeopleintheireconomicdestinyandin

17.2.92 OfficialJournaloftheEuropeanCommunities NoC40/109
mediatingeverydayproblemsandconflicts.This
requirestrainedpeoplewhoareequippedtooperate
theinstitutionsofsuchasystem.4.9.1.Anumberofinitiativeshaveledtothesetting­
upofmicroprojects ,withthecorresponding technical
back-up.Specialattentionhasbeendevotedtohelpfor
advancedtrainingprogrammes ,thedevelopmentof
smallindustrialfirms,youthexchanges,andhelpfor
emigrantswishingtoreturnhome.
4.10.Therightofasylumforpoliticalrefugeeswho
aresubjectedtophysicalandmoraldiscrimination isa
mostimportantdemocraticandfreedomprotecting
right.Internationalandnationallawsandconventions
guaranteeingthisrightofasylumarethebasisforthe
protectionofpoliticalrefugees,whosestatusshouldbe
strictlyreservedtosuchpersonsandnotbeextended
tothosewhosesolemotiveformigrationiseconomic.4.6.3.Furthermore ,countriesoforiginshouldbe
encouragedtodevelopgreatereconomiclinksandcoop­
erationamongstthemselves,therebyreorientatingand
diversifyingtheireconomiesawayfromsuchanexclus­
ivedependenceupontheEuropeaneconomy(thisis
currentlythecasewithNorthAfrica,andisrapidly
becomingthecasewithEasternEurope).TheCom­
munityhasrichexperienceinallthesefieldsandcan
domuchitselfaswellassupportingtheILOtorealize
labourmarketprogrammeswhichareacrediblealter­
nativetoemigration .Atthesametime,theCommunity
couldnegotiategreatermarketaccessforexportsof
particularinteresttothecountriesoforiginprovided
thatgreatermarketaccesswenthand-in-handwith
alternativejob-opportunities intheCommunityfordis­
placedworkers.4.10.1.Intheareaofadministration therehastobe
madeaclear-cutdistinctionbetweenpoliticalrefugees
andeconomicmigrants.Economicmigrationmustbe
subjecttocarefulregulationasthetaskofidentifying
motivesisnoteasyfortheauthorities.Legalremedies
shouldbeavailabletothirdcountrynationalstoappeal
againstadministrative decisions.
4.11.Remittancesfrommigrantsworkingin
countrieswithastrongcurrencycanprovidean
importantsourceofaidfortheeconomiesoftheir
countriesoforigin,particularlyinthecaseoftemporary
migrants.4.7.TheCommunity'soverallobjectivemustbeto
assistthecountriesoforigintosuccessfully'integrate'
theirtotallabourforce—withduerights,access,hopes,
educationandtraining,etc.—intheirowncountry
insteadofleavingthemtobemarginalizedeitherat
homeorabroad.Totheextentthatthiscostsmoney,
itwouldbemoneywellspentbyhelpingtoreduce
migrationandunemployment andbenefitingfromtheir
economicgrowththroughincreasedexports.TheCom­
munitymaybeabletogalvanizethepoliticalwillofits
MemberStatesmoreeffectivelyforthistaskthanany
singleMemberStatecould.4.12.Whentheyreturnhome,temporarymigrants
canalsosupplytechnicalknow-howandnewareasof
expertise,andcanhelpspreadaspiritofenterprise.
4.13.Takentogether,thesedifferenttypesofassist­
anceshouldgraduallyreducethenumberofwould­
bemigrants.Buttoensurethemaximumeffect,this
assistancemustbesteppedupandtargetedonthe
populationgroupsandareaswherethepressureto
emigrateappearsgreatest.4.8.Intheinterimanduntilacoherentandcooper­
ativestrategyisadopted,thepreventionofillegalimmi­
grationaswellasthefixingofquotasforthecontrol
andmanagementoflegalimmigrationmaywellbea
verydifficultandfrustratingtaskoftheCommunity's
externalrelations.Itisimportant,therefore,thatfor
thisinterimperiodtheECdevelopsprinciplesorguide­
linesasanaidtoaconsistentandcoherentapproach
bytheMemberStates.4.14.Atallevents,themanybilateralandmultilat­
eralinitiativeswillhavetobeco-ordinated .
4.15.Furthermore ,representatives ofalltherelevant
governmentsagreethatstudiesshouldbemadeofinfor­
mationonemigration,bothtoprovideinformationfor
theauthoritiesandtopinpointwaysofdisseminating
informationtotheindividualsconcerned .Thestudies
shouldalsoidentifyoutstandingproblemsandpropose
appropriatemeasures.TheCommitteeendorsesthis
approach.4.9.Theindustrialnationsandinternational bodies
arealreadygivingaidtoEasternEuropeintheform
ofinwardinvestment,openingoftradeoutlets,joint
ventures,supplyofknow-how,financing,andaidfor
training.

NoC40/110 OfficialJournaloftheEuropeanCommunities 17.2.92
5.ArgumentsforCommunitycompetencesonimmi­
grationpolicyECcommitmenttorealisingtheeconomicdevelopment
aimsofcountriesoforiginimplies,conversely,anecess­
aryreinforcementofrecipientcountries'obligationto
pluralistdemocracysothatintensifiedcooperationcan
helptomakepossibleimprovedlivingstandardsforthe
wholepopulation.5.1.ImmigrationpolicyiscloselylinkedwithCom­
munitypolicies,inparticularthoseontheachievement
ofthesinglemarket,whichmustrespectthebasic
principlesofeconomicandsocialcohesion.Ifimmi­
grationpolicyweretoremainexclusivelyorbasically
theprerogativeoftheMemberStates,itcouldconstitute
adifficultyorcreatecontradictions inCommunitypol­
icieswhichhavealreadybeenlaiddown.Furthermore
itwouldbeincontradictiontotheprincipleofsubsidi­
arity.ButgiventhediversityofEuropeanexperiences,
culturesandtraditions,anyclaimtocompetenceby
theCommunity'sexternalrelationsoverimmigration
policymustbewellfounded.Thefollowingaresome
arguments .5.5.Itisrecognizedthatbothgeographicproximity
andhistorical(ex-colonial)tiesbindtheCommunityas
wellasthe12MemberStatesintoa'specialrelationship'
ofexpectationswithThirdcountries,regardlessoffor­
malgovernmentalagreementsbetweencountriesofori­
ginandhostcountries.
5.6.Itisrecognizedthatincertaincircumstances
someMemberStatesarecurrentlysubjectedtopress­
uresfromspecificinterestgroupstoliberalisetheir
immigrationpolicies.Ifsuchpressuresbecamewide­
spreadthiscouldgiverisetoaflowofimmigrantsinto
theCommunitywhichwouldbeincompatiblewiththe
availableeconomicandsocialcapacity. 5.2.Itisrecognizedthatimmigrationpolicyishigh
onthepoliticalagendainbothcountriesoforigin
andhostcountries.TheCommunity'sreputationin
theworld(aswellasthatofthe12MemberStates)
depends,amongstotherthings,onhowthesensitive
issueofimmigrationfromnon-Membercountriesis
handled.InsofarastheCommunitywishestohave
economicanddiplomaticrelationswithcountriesof
originonotheraspects,immigrationpolicycanneither
beavoidednortreatedinisolationasonlya'technical'
matterof,forexample,migrants'flowcontrol.5.7.Itisrecognizedthatinternationalinstitutionsto
whichtheCommunityand/ortheMemberStates
belongandtowhichtheyarecommittedhavealready
developedabodyofopiniononmigrationquestions
whichneedstobebuiltuponbytheCommunity .
5.8.Itisrecognizedthatinsomecasesthevoiceof
theCommunitymaybegreaterthanthesumofthe
MemberStatesindividually,andthattheCommunity
shouldpromoteadialoguewithcountriesoforiginto
agreeonaframeworkofaims,rights,responsibilities
andactionsonmigrationquestions(includinghowto
reducemigratorypressures)withinwhichindividual
MemberStatescanoperatetheirownimmigration
policy.5.3.ItisrecognizedthatfortheCommunityimmi­
grationraisesdifficultdomesticproblemswhichhave
internationalimplications ;forexample,beingseenby
countriesoforigintobeactivelypromotingmulticultur­
alism,non-discrimination andfreedomofmovementof
migrantsfromThirdcountriesonthesamebasisasfor
Communitynationals.
5.9.Itisrecognizedthatcommonpolicies,including
theInternalMarket,implicateeachMemberStatein
theimmigrationdecisionsofothers,therebypushing
theTwelvetosomedegreeofcollective,harmonized
orconvergenthandlingofimmigrationfromThird
countries.5.4.ItisrecognizedthattheCommunitysharesin
commonwithotherOECDcountriesamoralduty
andeconomicself-interesttopromotethebalanced
developmentofcountriesoforigin'seconomies,as
'economicmigration'isasymptomofcomparative
underdevelopment andlowpercapitalivingstandards.
Treatingthecausesofemigrationrequiresconcerted
effortsbyallOECDcountriestogetherandtheEC
shoulduseitspositiontopromoteOECD-widecon­
certationonthisissue.Whileavoidingadefactopar­
titionoftheworldintozonesofresponsibilityand
influence,itisrecognisedthattheECdoeshavea
specialdutytoputinplaceapolicyofclosecooperation
withCentralandEasternEuropeandNorthAfrica,
giventheirgeographicalproximity,andwithother
countriesoforigingiventheirhistoricties.Adeepening5.10.Itisrecognizedthatthereismeritinsimplicity,
coherenceandconsistencyandthat,whereverpossible,
rulesbeappliedtowould-beimmigrantsfromallThird
countries.
5.11.ItisrecognizedthatCommunitycompetences
intrade(plustradeinservices)andaidpolicycould

17.2.92 OfficialJournaloftheEuropeanCommunities NoC40/111
directlyinfluenceimmigrationfromThirdcountries
andthatMemberStates'policies(e.g.economicand
labourmarket)couldindirectlyinfluenceit.statusofmigrantworkers,whichshouldserveasa
referenceforallmattersrelatingtotherightsandvolun­
taryrepatriationofimmigrants(1).
5.12.ItisrecognizedthattheCommunityshouldbe
interestedinpromotingpluralistdemocracy,therule
oflaw,religioustoleranceandrapprochement ,civil
institutions,humanandtradeunionrights,etc.inits
externalrelations(asweexpectwithintheCommunity )
asacontributiontoworldpeaceandprosperityandas
aspecificcontributiontoreducingmigrationpressures.6.4.Mostpeopledonotemigratebecausetheyare
'lookingforparadise';theywouldprefertoliveintheir
owncountries.Butifpeoplearelivingon'thethreshold
ofmisery'thenamajorinfluxinimmigrationislikely
tooccur.Whereimmigrationhasoccurredthenevery
effort,consistentwithhumanrightsandfundamental
freedoms,shouldbemadebythehostcountryina
policyofre-emigrationtoenablepeopletogobackto
theirowncountriesiftheysowish.
6.Guidelinesforimmigrationpolicies6.5.Withinthemultilateralframeworkandnego­
tiationsoftheGeneralAgreementonTariffsandTrade
(GATT)aswellasintheframeofbilateralagreements,
theECshouldcarefullyreviewitspolicieswhichwould
createtradebarriersthatcouldleadtoimmigration
becausetheemigrantscannotearnalivingintheirown
countries .
6.6.AsanimmediatepolicytheECshouldprovide
trainingprogrammesandinvestmentincentivesfor
immigrantsaimedatenablingthemtoreturnhome
equippedwithbasicskillsandmanagementexpertise.6.1.ThepolicyofeachMemberStatewillhave
effectsonthepoliciesofotherMemberStatesofthe
ECandontheECasawhole.Ifmajorproblemsare
nottoarise—fromtheinevitableandincreasingflow
ofimmigrants—fortheCommunityintermsofunem­
ployment,conditionsofhygieneandsafetyandsocial
securitymeasures,housing,educationfacilitiesandso
on,thenstepsmustbetakenattheECleveltobring
abouteffectivecooperationtowardsharmonizingthe
approachesinthedifferentMemberStates'national
immigrationpolicies.Awaymaybefoundtowards
establishingthelegalECcompetencyforsuchcooper­
ationintherevisiontotheTreatyemanatingfromthe
Inter-governmental Conference .Theresponsibilities of
intergovernmental agenciesshouldbetransferredto
Communitycompetence,involvingallECinstitutional
bodiesandthusallowfordemocraticscrutinyand
openness,ascoordination ,coherenceandharmoniza­
tionareneeded,especiallyontheexternalrelations
aspects.MeanwhiletheCommitteewouldwishtosee
thecontrolofimmigrationattheouterfrontiersofthe
Communitytobebothefficientandeffective.6.7.Throughinvestmentineconomicdevelopment
andtheprovisionoftrainingcoursestheECshould
makeamajorcontributiontopreventthebrain-drain
fromtheCentralandEasternEuropeancountries.Such
abrain-drainisadversetothechancesofthesecountries
recoveringeconomicallyinthetransitionstagesfroma
commandeconomicsystemtoamarketeconomy
(thoughnotnecessarilytheAdamSmithmodel).Such
afailurewouldleadtoincreasedunemployment and
thiswouldinturnonlymaketheunemployedbecome
potentialemigrants.TheaimofECpolicygenerally
oughttobetohelptocreatestablepoliticalandsocio­
economicconditionsinthecountriesofpotentialemi­
gration.
6.2.TheoverallECpolicyonimmigrationshould
betoprevent,controlorstemimmigrationbyhelping
thecountriesoforigintobringabouteconomicgrowth
andabetterqualityoflifeintheirowncountries.6.8.TheCommitteestressesthefactthatimmi­
grationisnotonlyasingle-personproblemforthehost
country—itisalsoafamilyproblemforwhichthehost
countryhastoprovidefornotonlytheimmigrant
himselfbutforhiswife/husbandandchildrenalso.
Thiswiderdimensionoftheproblemmeansthatextra
appropriateprovisionhastobemadeintheareaof
publicexpenditureforeducation,housing,healthand
socialsecurity—allofwhichconstituteaheavybudget­
arycostonimmigrationtobebornebythehostcountry.6.3.Persons,whohaveimmigratedlegallyorwho
havebeenlivinglegallyforalongtimeintheCom­
munity,shouldhavetheopportunitytoacquirethe
basicrightsofECcitizens,withtheexceptionofcertain
politicalrights.ECsocialminimumstandardsshould
beappliedtolegalimmigrantsfromthirdcountries
inaccordancewithILO-andUN-conventions .The
Communitymustguaranteetheprincipleofequalrights
andopportunitiesforECandnon-EClegalresidents,
asstatedintwoearlierCommitteeOpinionsontheHOJNoC159,17.6.1991,p.12anddoc.ESC1122/91.

NoC40/112 OfficialJournaloftheEuropeanCommunities 17.2.92
6.9.Afewprinciplesunderpinning ajointimmi­
grationpolicyspecificallyinrelationtotemporary
migrationcouldusefullybeestablishedinlinewith
thediscussionsatthePraguemeetingofEuropean
EmploymentMinistersinApril1991.
6.9.1.NeitherCentralandEasternEuropenorthe
Mediterranean thirdcountrieswanttobecomea
recruitinggroundfortheundergroundeconomy,and
WesternEuropedoesnotwanttoattractmorejob­seekersthanithasvacanciesfor.TheCommitteeunder­
linesthatnegotiationsandagreementsaretherefore
needed.Forthepresentthesecouldevenbebilateral
untiltheECorothersupranational bodiesacquirea
remitforimmigrationmatters.
6.10.TheaimofECpoliciesshouldbetohelpthe
countriesoforigintoenabletheminfuturetohelp
themselvesinthedevelopmentoftheirownresources
fortheireconomicandsocialprogress.
DoneatBrussels,28November1991.
TheChairman
oftheEconomicandSocialCommittee
FrancoisSTAEDELIN
OpinionontheproposalforaCouncilDirectiveonthelandfillofwaste(')
(92/C40/26)
On5June1991theCouncildecidedtoconsulttheEconomicandSocialCommittee,under
Article100AoftheTreatyestablishingtheEuropeanEconomicCommunity ,onthe
abovementioned proposal.
TheSectionforProtectionoftheEnvironment ,PublicHealthandConsumerAffairs,which
wasresponsibleforCommittee'spreparingtheworkonthesubject,adopteditsOpinionon
5November1991.TheRapporteurwasMrColombo.
Atits291stplenarysession(meetingof27November1991),theEconomicandSocial
CommitteeadoptedthefolowingOpinionunanimously .
Subjecttothecommentsmadebelow,theCommittee
approvestheproposalforadirective,whichreflectsthe
bestinternational experiences inplanning,
implementingandrunningenvironment-friendly land­
filloperations .
1.Introduction
1.1.ThisproposalderivesfromtheCouncilResol­
utionof7May1990(2)establishingguidelinesforan
overallCommunitystrategyforwastemanagement .In
pastOpinions,theCommitteehasrepeatedlystressed
theurgentneedforsuchanapproach,anditwelcomes
theintentiontotakefurtherstepsinharmonizingstan­dards,therebysecuringahighlevelofenvironmental
protection,onthebasisofArticle100A(3)ofthe
Treaty.
1.2.ReferenceshouldbemadetotheOpinionon
theamendments totheDirectiveonwasteandthe
OpinionsontheDirectivesontheincinerationof
municipalwasteandoncivilliabilityfordamagecaused
bywaste(3),whichemphasizepreventionatsourceas
ameansofreducingtheamountofwastefordisposal.
1.3.Thispreventiveapproachrequiresactionat
everystageoftheprocessofproduction,distri­
butionandconsumption—'fromcradletograve'—with
(')OJNoC190,22.7.1991,p.1.
(2)OJNoC122,18.5.1990,p.2.(3)OJNoC56,6.3.1989;OJNoC318,12.12.1988and
OJNoC112,7.5.1990respectively .