Communication from the Commission to the Council and the European Parliament on an open method of coordination for the community immigration policy
Date: 2001-07-12
Institutions: European Commission
Subjects: action programme, immigration, integration of migrants, migrant worker, migratory movement

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 11.7.2001
COM(2001)387 final

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE
EUROPEAN PARLIAMENT

ON AN OPEN METHOD OF COORDINATION FOR

THE
COMMUNITY IMMIGRATION POLICY

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE
EUROPEAN PARLIAMENT

ON AN OPEN METHOD OF COORDINATION FOR

THE
COMMUNITY IMMIGRATION POLICY

TABLE OF CONTENTS

1.

2.

3.

3.1.

3.2.

3.3.

3.4.

4.

4.1.

4.2.

4.3.

4.4.

4.5.

5.

INTRODUCTION.................................................................................................... 3

APPLYING THE OPEN METHOD OF COORDINATION TO IMMIGRATION
POLICY ................................................................................................................... 4

EUROPEAN GUIDELINES ON IMMIGRATION .................................................. 6

Management of migration flows ............................................................................... 7

Admission of economic migrants.............................................................................. 8

Partnership with third countries ............................................................................. 10

Integration of third country nationals ...................................................................... 11

INSTRUMENTS AND METHODS ....................................................................... 12

National Action Plans............................................................................................. 12

Developing and evaluating the Community Immigration Policy.............................. 13

Involvement of the European Institutions................................................................ 14

Involvement of civil society.................................................................................... 14

Supporting measures .............................................................................................. 14

CONCLUSIONS AND FOLLOW UP.................................................................... 15

2

1.

INTRODUCTION

The Treaty of Amsterdam established Community competence in the areas of
migration and asylum. The European Council, meeting in Tampere in October 1999,
called for the development of a common EU asylum and migration policy to include
four main elements: partnership with countries of origin; a common European
asylum system which should lead in the longer term to a common asylum procedure
and a uniform status for those granted asylum; fair treatment of third country
nationals and the more efficient management of migration flows.1 Considerable
progress has already been made towards the development of the comprehensive
approach put forward at this meeting.

In its “Communication on a Community Immigration Policy” (COM(2000)757) the
Commission set out its ideas for a new approach to the management of migration
flows and in particular for a common policy on admission for economic reasons. The
success of such a policy depends on effective co-ordination by all those concerned
and on the adoption and implementation of new measures, as appropriate at both
Community and Member State levels. This must provide not only for an adequate
response to immediate short-term needs but must also enable all those involved to
place their actions in a medium to long-term framework.

At the heart of this policy will be a common legislative framework, the basis of
which has already been agreed by the Member States (Article 63 of the Treaty of
Amsterdam). According to the detailed programme established in Tampere and set
out in the “Scoreboard to review progress on the creation of an area of ‘Freedom,
Security and Justice’ in the European Union”2, the Commission has already made
proposals in a number of areas which provide the first elements of this framework
which will underpin the common asylum and migration policy in the four areas
identified in Tampere and which should all be in place, according to the agreed
timetable, by 2004.

In the field of legal immigration a draft directive on family reunification is under
discussion in the Council3. Proposals are being prepared by the Commission on the
admission of third country nationals. The first of these is a Draft Directive, which is
being presented jointly with this Communication, on the admission of third country
nationals for economic purposes.4 Once adopted this directive will provide for
common conditions for the admission and residence of workers from third countries,
which will apply in the Member States. It will be followed by draft directives on the
admission of third country nationals for study and vocational
training and on
admission for the purpose of unpaid activities.

Progress has also been made with the establishment of a legal framework to ensure
the fair treatment of third country nationals legally resident in the EU. Legislation
has been adopted to promote equal treatment irrespective of racial or ethnic origin

1 SN 200/99 Presidency Conclusions of the Tampere European Council 15-16 October 1999
2 See biannual update COM(2001)278 final of 23 May 2001
3 COM(2000)624 amended version of 10 October 2000
4 COM(2001)386 “Conditions of entry and residence of third country nationals for the purpose of paid
employment and self employed economic activities”

3

and to combat racism and discrimination5 and proposals for a directive concerning
the status of third country nationals who are long-term residents have also been
adopted by the Commission6. This legislation will provide, for the first time, as
requested by the European Council in Tampere, a common status for long-term
resident third country nationals.

With respect to illegal migration and the fight against smuggling and trafficking,
Council Directives have been approved in the areas of mutual recognition of
decisions on the expulsion of third country nationals7, on harmonising financial
penalties imposed on carriers transporting into the Member States third country
nationals lacking the documents necessary for admission8 and on strengthening the
penal framework to prevent the facilitation of unauthorised entry and residence of
third country nationals9.
In addition a Commission Communication on a common
fight against illegal immigration, which will set out a wide-ranging action plan to co-
ordinate and reinforce actions in this area, is currently being prepared. This will be
followed by a Commission Communication on a Community Return Policy.

In the conclusions of the Communication on a Community Immigration Policy, the
Commission proposed that, in view of the multi-dimensional aspects of migratory
phenomena the large number of different actors involved in migration management
and the continuing responsibility of Member States for the implementation of
migration policy, an open procedure for co-ordination of policy at Community level
should be established.

The purpose of this present Communication is to set out proposals for the adaptation
of the open method of co-ordination to the field of migration policy.
It is thus an
additional contribution from the Commission to the on-going debate on the
development of migration policy for the Union which will be further enriched by the
two new Communications which the Commission is now preparing on the fight
against illegal immigration and on return policy.
It is also to be examined in the
context of existing Community initiatives in the field of the mobility of workers,
such as the Commission’s Communication on a Strategy for mobility in the
European Research Area10, and in the follow-up of the High Level Task Force on
Skills and Mobility. This Communication is designed, in particular, to provide an
input to the European Conference on Migration to be organised by the Presidency on
16-17 October 2001. This itself is a preparation for the discussions to assess progress
in the creation of an area of freedom, security and justice, which will take place at
the European Council in Laeken in December 2001.

2.

APPLYING THE OPEN METHOD OF
IMMIGRATION POLICY

COORDINATION

TO

There are a number of reasons why the Commission considers that the adoption of an
open method of coordination would be the most appropriate way to support the

5 Directive 2000/43, OJ L 180 of 19.7.2000, and Directive 2000/78, OJ L 303 of 2.12.2000
6 COM(2001)127
7 Directive 2001/40, OJ L 149 of 2.6.2001
8 OJ C 269 of 20.9.2000 p.8
9 OJ C 253 of 4.9.2000 p.6
10 COM(2001)331 of 20.6.2001

4

development of the Community immigration policy. Prior to 1999 this was an area
which had been dealt with largely as an inter-governmental matter. The Amsterdam
Treaty (Title IV of the Treaty and Article 63 in particular) transferred competence
from the EU’s third to its first pillar (albeit all of the first pillar procedures are not yet
applicable).

Within this framework, Member States remain responsible for a number of
significant issues particularly with respect to the admission of economic migrants
Immigration also raises
and for developing and implementing integration policy.
many sensitive and far-reaching issues which directly affect civil society which need
to be discussed openly, at both national and European levels, in order to reach a
consensus on policy positions. At the same time, the international nature of migration
flows and the inter-connection between different aspects of migration policy
necessitate a procedure by which progress in realising the common European
objectives can be evaluated and the objectives adapted as necessary.

The use of an open method of co-ordination, specifically adapted to the immigration
field, and as a complement to the legislative framework, will provide the necessary
policy mix to achieve a gradual approach to the development of an EU policy, based,
in a first stage at least, on the identification and development of common objectives
to which it is agreed that a European response is necessary.
It is proposed that this
method should be implemented for an initial period of six years to correspond to
cover the period on which the first evaluation of the application of the Directive on
the conditions of entry and residence of third country nationals for the purpose of
paid employment and self-employed activities must be made. After this “phasing in
period” and in the light of the evaluation of the implementation of the coordination
legislative
method,
instruments where appropriate to provide for the coordination of the common policy.

the Commission reserves the right

to introduce additional

The Treaty sets out clear guidance on the measures to which priority importance
must be attached, particularly during the first five years after its entry into force and
the Commission is advancing rapidly with the presentation of the legislative
instruments called for. However, the principle of subsidiarity, which applies to all
aspects of the Union’s action, is of particular relevance to the creation of an area of
freedom, security and justice as is the need for solidarity among and between
Member States and the European institutions in facing the transnational challenges
presented by migration movements.

The European Council at its meeting in Tampere set the political guidelines and
some concrete objectives for the development of a common EU policy within the key
areas identified, namely:

• A comprehensive approach with respect to partnership with countries of origin
which addresses political, human rights and development issues in countries and
regions of origin and transit;

• A common European asylum system based on the full and inclusive application

of the Geneva Convention;

• A vigorous integration policy to ensure fair treatment of

third country
nationals aimed at granting them rights and obligations comparable to those of
EU citizens; and

5

• Measures to ensure the more efficient management of migration flows based on
closer co-operation between Member States and with countries of origin and
transit

the Community
The open coordination method will support and complement
legislation called for in the Treaty and will provide a framework for reviewing with
the Member States the implementation of these legal instruments. With respect to the
admission of economic migrants, for example, national measures will be adopted by
the Member States taking account of the criteria set out in the directive. These will
inter alia concern the number of migrants to be admitted over a particular time
period, the establishment of horizontal assessment programmes, determination of the
duration of residence permits issued under the directive and other matters which
must be notified to the Commission. Procedures are needed, therefore, to ensure
coherence and the use of common standards in the practical application of
Community legislation in this field and to facilitate the assessment of its impact as
key elements in the Community immigration policy.

In addition there are a number of wider issues where the Commission believes that it
will be useful to discuss with respect to the common legislation which will help to
evaluate their efficacity and identify practice which might be useful in other national
situations. These could include the criteria for the establishment of horizontal
assessment programmes and the conditions under which they are implemented, the
mechanisms put in place in each Member State to involve the social partners in the
evaluation of economic need for third country nationals, comparison of recruitment
procedures particularly in countries of origin and whether closer co-operation
between Member States would be useful. This should be carried out
in full
compliance with the provisions of the Treaty and in particular of its title VIII on
Employment.

The Commission intends to play a full part in the implementation of the open co-
It will continue to develop the legislative programme agreed in
ordination method.
Tampere by ensuring that all the relevant proposals are presented by 2004 according
to the timetable set out in the Scoreboard. At the same time, as a complement to the
establishment of the legislative framework,
the
implementation of the open co-ordination method by presenting proposals for
European guidelines, ensuring co-ordination of national policies, the exchange of
best practice and evaluation of the impact of the Community policy, as well as
through regular consultations with third countries concerned.

the Commission will support

3.

EUROPEAN GUIDELINES ON IMMIGRATION

The key element of the open co-ordination method is the approval by the Council of
multiannual guidelines for the Union accompanied by specific timetables for
achieving the goals which they set in the short, medium and long term. These
guidelines will then be translated into national policy by the setting of specific
targets, which take into account national and regional differences. Within the
framework of the conclusions of the European Council in Tampere and in the light of
the proposals put forward by the Commission in its Communication on a Community
Immigration Policy, the Commission proposes that guidelines be established initially
in the following areas: management of migration flows; admission of economic
migrants; partnership with third countries and the integration of third country

6

nationals. The first guidelines should be approved by the Council in 2002 and they
could be revised on an annual basis as necessary within the framework of the open
co-ordination mechanism.

The availability of comparable statistics is of crucial importance for the effective
monitoring and evaluation of the common immigration policy. The Commission staff
working paper on the exchange of statistical information in the field of asylum and
migration11
recommends the establishment of a collection of policy-relevant
Community statistics on legal migration for this purpose. At present, Eurostat
undertakes a collection of migration data within the framework of its work on
demography. Whilst
the data in this collection provide information about
demographic characteristics of persons intending to enter and reside in the EU, they
do not give the reasons for migration nor its duration. Moreover, the collection varies
greatly between Member States in terms of sources, definitions and coverage, while
the data are collected on an annual basis only. The Commission has commissioned a
study on the availability in Member States of statistics on the legal entry and stay of
third country nationals with a view to setting up a monthly collection of statistics on
legal entry. Given its importance for a common immigration policy, this work will
constitute one of the key actions in the Action Plan requested by the Council
Conclusions regarding Common analysis and the improved exchange of statistics on
asylum and migration.12It will be important that Member States support fully this
Action Plan.

Suggestions are given below as to the issues, which these guidelines might address.
Each year overall European targets could be agreed and within this framework
Member States would fix their own national objectives.

3.1.

Management of migration flows

The interaction of the different facets of migration policy - humanitarian, economic,
illegal migration and trafficking - and the need to deal separately with each one while
taking account of the linkages between them, means that measures are needed to
promote co-operation both within and between Member States and with third
countries and to facilitate exchange of experience and know-how. Given the
importance of migration as a factor influencing the demographic situation in the EU,
appropriate procedures will have to be established to ensure linkages with policy-
making in other areas notably in the economic and social field.

Guideline 1: Developing a comprehensive and co-ordinated approach to migration
management at national level by ensuring that:

– Due account is taken of the linkages and interactions between different categories
of migration flows: persons admitted for humanitarian reasons, for employment or
self employment, for study or training, or as tourists or for other non-remunerative
purposes. This could include evaluation by the competent bodies of the effects
opening up economic migration may have on asylum applications and illegal
migration; the relationship between strategies to combat undeclared work and

11 SEC (2001) 602
12 7973/01 ASIM 10, adopted by the May 2001 JHA Council

7

migratory pressures; balancing resources needed to integrate migrants against
their contribution to economic and social development. It should also consider
coherence with foreign and development policies.

– Member States give their full support to improving the on-going work on the
collection and analysis of statistics on migration in order to implement the Action
Plan to be adopted by the Council.

Guideline 2: Improving information available on legal possibilities for admission
to the EU and on the consequences of using illegal channels in particular by:

– Developing information services in third countries on legal ways of obtaining
admission to the EU for nationals of those third countries, including information
on procedures for applications for residence and work permits e.g. through the
establishment of websites, information offices, special publicity measures.

– Promoting co-operation and exchange of information between consular services
of Member States in countries of origin, in particular with respect to visa policy,
with a view to achieving greater efficiency, transparency and coherence between
Member States in dealing with applications for admission to the EU.

– Developing, in co-operation with third countries, awareness campaigns on the

risks of being a victim of smuggling and trafficking.

Guideline 3: Reinforcing the fight against illegal immigration, smuggling and
trafficking by supporting the following measures:

– Promoting an approach based on a proper coherence and balance between
humanitarian responsibilities, lawful immigration and the fight against criminal
smuggling and trafficking networks.

– Initiating measures to keep track of illegal movements from countries and regions

of origin via transit countries to destination countries.

– Based on existing and future EU legislation, adopting adequate levels of sanctions
for criminal activities which are associated with illegal migration flows and/or
trafficking in human beings and raising the costs of illegal immigration and
trafficking by adopting measures depriving smugglers and traffickers of illegally
obtained financial advantages.

– Promoting the practical implementation of pre-frontier co-operation and other
measures and enhancing controls at the external borders of the Union in the
framework of commonly agreed norms and standards.

3.2.

Admission of economic migrants

As a response to growing labour shortages, a number of Member States are now
actively recruiting economic migrants including high-skilled workers, as for
example, researchers and academic specialists.
In the context of an ageing and
the Commission believes that reviewing the use of legal
declining population,
channels for the admission of third country nationals to meet labour market needs is
necessary while being aware of the potentially damaging impact on countries of
origin of the brain drain that this may encourage. For these reasons it is convinced

8

that the admission of migrants for economic purposes should, as far as possible, be
done in partnership with the countries of origin and within the framework of the
European employment strategy and in a transparent and coherent way based on the
procedures set out in the proposed Community legislation on the admission of third
country nationals for the purpose of taking up employment13. While this legislation
sets out the procedures and the conditions by which third country nationals should be
admitted to the labour market it does not include quantitative targets or quotas.
Member States continue to be responsible for the selection of economic migrants and
for deciding how many are needed to meet national requirements. This entails that
the responsibility for dealing with the labour market aspects of immigration should
lie with the bodies responsible for the implementation of the European employment
strategy at both Member State and Community levels.

In addition the Commission believes that a more open admissions policy should be
accompanied by additional measures to eliminate undeclared work which itself
encourages illegal migration, smuggling and trafficking.

Guideline 4: Establishing a coherent and transparent policy and procedures for
opening the labour market to third country nationals within the framework of the
European employment strategy. Member States will need to ensure that:

– The procedures in place to implement the European employment strategy are
suitable to deal with the contribution which migrants can make to the labour
market. The changes which might be required to that effect should be decided in
consultation with the social partners, national, regional and local authorities, non-
governmental
relevant
the capacity and resources available for the
organisations. In this respect,
reception and integration of new arrivals and the situation of third country
nationals already residing in the Member State concerned e.g. persons admitted
under family reunion, persons granted temporary forms of protection etc. should
be borne in mind.

organisations, migrants

associations

other

and

– National legislation is in place or adopted which provides for clear and transparent
procedures for selection of applications from third country nationals for entry to
the labour market under the different categories established.

– Measures are adopted to ensure compliance with the obligation of notification to
the Commission, as required by Article 30 of the draft directive on employment of
third country nationals14, so as to provide for an exchange of views which may
lead to complementary action within the context of the Community immigration
policy.

– There is full compliance with national and Community legislation on the
employment of third country nationals notably with regard to the fight against
undeclared work.

13 COM(2001)386 “Conditions of entry and residence of third country nationals for the purpose of paid

employment and self employed economic activities”

14 COM(2001)386 “Conditions of entry and residence of third country nationals for the purpose of paid

employment and self employed economic activities”

9

– Special attention is given to the situation and needs of migrant women who form
an increasing proportion of migrants seeking admission to the EU to take up
employment.

3.3.

Partnership with third countries

The EU favours a partnership approach in its relations with third countries which
covers the political, economic and social dimensions. The development of the
comprehensive approach to migration issues, put forward by the European Council in
Tampere,
issues in
involves the inclusion of human rights and development
countries and regions of origin and transit.
In order to promote co-operation with
third countries with regard to migratory flows within the framework of a structured
and coherent dialogue, the European Council has recommended that a partnership
approach should be developed at both national and European levels. In a first stage
both sides must identify the main areas on which this dialogue should be focussed
and the most effective ways of developing it in the framework of existing and future
partnership agreements and fora to ensure a comprehensive approach to migration
issues.

– Guideline 5: Integrating migration issues into relations with third countries,

and in particular with countries of origin, inter alia by:

– Taking into account the migration dimension on the third country concerned when
planning and implementing development and cooperation programmes, inter alia
with respect to education and training and ensuring equal opportunities for women
and men.

– Supporting measures to maximise the positive impact of migration as a factor for
development for the country of origin (e.g. the impact of financial transfers from
nationals living abroad) while minimising the negative effects (in particular the
brain drain).

– Seeking ways to support patterns of mobility between EU Member States and
third countries so as to encourage migrants to maintain and develop their links
with their countries of origin15. Among the areas which could be examined are:

• Reviewing legislation which restricts the possibility for migrants to move

freely between their country of residence and their country of origin;

• Encouraging emigrants to take an interest in development projects, business

and training ventures in their countries of origin;

• Financial and other support, including the provision of venture capital, to assist

returning migrants to re-settle in their countries of origin.

– Supporting measures to discourage emigration by third country nationals whose
admission to the EU has not been authorised, in particular within a framework

15 As an example in the Commission’s proposal for a new Framework Programme (COM(2001)…), the
proposed Marie Curie International Incoming Fellowship Scheme which aims to attract researchers
from third countries, will include, in the case of emerging economies and developing countries,
provision to assist fellows to return to their country of origin.

10

which includes the development of policies for legal
country concerned.

immigration from the

– Supporting third countries efforts to manage migratory flows and to develop

legislation and structures in line with international standards.

– Supporting measures to help the social and economic re-integration of victims of

smuggling and/or trafficking in their country of origin.

3.4.

Integration of third country nationals

The importance of successfully integrating third country nationals into society was
stressed by the European Council in Tampere. Given the multi-dimensional nature
of integration policies and the extent to which different sections of society are
involved in their implementation this is a major challenge for political leaders and
civil society alike.
It could be said that the success of the Community immigration
policy will depend on the extent to which migrants become integrated into their host
country. Failure to develop an inclusive and tolerant society which enables different
ethnic minorities to live in harmony with the local population of which they form a
part leads to discrimination, social exclusion and the rise of racism and xenophobia.

The development of appropriate integration strategies is the responsibility of
Member States with authorities and other actors at the local, and municipal level
having a very important role to play.As the proportion of non-nationals in the
population of Member States develops and with the prospect of further increases, co-
ordinated and sustained efforts to ensure the social integration of migrants are more
than ever necessary.

They will have to complement national actions within the framework of the
Employment guidelines and be in accordance with the objectives endorsed by the
Nice European Council as regards social inclusion. Appropriate measures will
therefore be required to meet the needs of ethnic minorities and migrant workers as
regards their integration into the labour market and national targets will be set where
appropriate for this purpose (Employment guideline 7). Member States will also
promote the social integration of women and men at risk of facing persistent poverty
because they belong to a group experiencing particular integration problems (Nice
objective).

Guideline 6: Ensuring the development of integration policies for third country
nationals residing legally on the territories of the Member States in particular by:

– Identifying priorities and resources for developing a comprehensive policy to

ensure the integration of migrants into society.

– Setting up a framework to ensure the involvement of local and regional actors, the
social partners, civil society and migrants themselves in developing and
implementing the national strategy.

– Promoting the integration of migrants through information and awareness

campaigns in co-operation with all those concerned.

– Developing specific measures aimed at the social and economic integration of

women and second generation migrants.

11

– Developing settlement programmes for new migrants and their families including
the provision of appropriate language training and information on the cultural,
political and social characteristics of the country concerned including the nature
of citizenship and of the fundamental European values.

– Developing measures to provide social, health and economic support to victims of

smuggling and/or trafficking during their stay on the territory of the EU.

– Exploring the validity of the concept of civic citizenship by identifying the rights
and responsibilities, which would ensure the fair treatment of third country
nationals legally resident in the Member State concerned.

4.

INSTRUMENTS AND METHODS

4.1.

National Action Plans

In order to implement each set of guidelines on immigration, Member States should
prepare national action plans which will be reviewed and adapted on an annual basis.
These would be in two parts so as to provide both an overview of results of the
actions carried out in the previous year in relation to the European guidelines as well
as proposals for the implementation of the migration guidelines in the year to come.

regional and local authorities,

In the review section, the National Action Plans would provide statistics on the
numbers and situation of third country nationals admitted in the previous year by
category including relevant information provided in the National Action Plans on
employment. This section would include comments on the co-operation achieved
the social partners, non-
between national,
governmental organisations and migrants themselves and on the effectiveness of
their participation in the planning and implementation of migration policy. There
would also be information on the interaction between the different measures taken
and between legal and illegal flows. Information would be given on resources used
and attention would be drawn to interesting experiences and good practice which had
been identified as well as to problems which had been encountered, in particular
where it was felt that solutions should be sought at European level. This part of the
report would also include information on the implementation of relevant Community
directives, how they had been translated into national legislation and a review of the
effects of this legislation in the national situation.

In the second section of their plans, Member States would describe the action they
propose to take at national, local and regional level as appropriate, for implementing
the guidelines for the year concerned, indicating their national objectives for each
one and the time-frame proposed. They would include, when relevant, reference to
their projections of labour demand for migrants as set out in their National Action
Plans for employment.

The Action Plans will provide the basis of an overall evaluation of
the
implementation of the common policy and the results obtained and an input into the
way in which the guidelines should be developed to reflect changing needs. On the
basis of these reports the Commission will prepare a synthesis report drawing
attention to common problems and identifying areas where European solutions might

12

be appropriate. The preparation of this report will be co-ordinated with the
corresponding reports on employment and social inclusion.

4.2.

Developing and evaluating the Community Immigration Policy

The Commission will play an active role in supporting and developing the common
migration policy notably with respect to the presentation of Community legislation
which is necessary, preparing proposals for
the European guidelines and for
promoting co-operation, exchange of best practice, evaluation and monitoring. To
this end the Commission will consult widely - by making appropriate arrangements
including the setting up of committees and working groups - with senior officials,
experts in immigration matters from the Member States, representatives of the social
partners and of local and regional authorities, experts on particular topics under
review and with other representatives of civil society.

It is important to ensure that condidate countries are informed about this process and
are involved at the earliest possible stage in the open co-ordination method before
accession, through appropriate arrangements. This will provide a useful preparation
for accession by allowing the candidate countries to become familiar with the
imply that condidate
Community’s policies and working methods.
countries will be involved in the process,
in particular by participating in the
committees or working groups which will be set up.

This will

The activities of the Commission will include:

• Monitoring the practical application of legislation in the field, notably with a view

to ensuring consistency between Member States;

• Making proposals for new legislative initiatives as necessary to implement the

common policy;

• Promoting the exchange of information, experience and good practice between

Member States;

• Preparing the European guidelines to be approved by the Council;

• Monitoring and evaluating the implementation of the guidelines, including by
means of a synthesis report for submission to the Council based on an analysis of
the national reports, and including recommendations for the future development
of the common immigration policy, including the revision of the guidelines.

• Examining the possibility and the suitability of reforming and extending the
EURES network to provide information on job opportunities and living and
working conditions for third country nationals seeking work in the EU.

• Integrating migration issues into relationships with third countries in particular

when developing the country strategies (country strategy papers or others).

In doing so the Commission will ensure that migration policy is complementary and
consistent with other internal and external policy areas in particular with the
development of the European economy, the employment strategy and with social
policies such as social inclusion and the Community’s anti-discrimination strategy so

13

that they are mutually reinforcing within a context of sustainable development.
Migration policy should also promote equality between men and women in
accordance with Article 2 of the Treaty. On the external side consistency will be
maintained with EU external relations and development policies. The Commission
in co-operation with other bodies and
will work,
committees dealing with relevant policy matters such as the Employment Committee
and the Social Protection Committee.

therefore, as appropriate,

4.3.

Involvement of the European Institutions

In view of the multi-dimensional aspects of migration policy,
the European
Parliament, the Economic and Social Committee and the Committee of the Regions
should be closely involved with the development and implementation of the
Community immigration policy.
to the
institutions the annual migration report
including the European immigration
guidelines.

The Commission will also present

Further consideration should be given,
in consultation with the institutions
themselves, to the most effective ways in which they can be associated in the co-
they can make their full
the European level so that
ordination mechanism at
contribution.

4.4.

Involvement of civil society

The active involvement of politicians, the social partners, of regional and local actors
and other
relevant organisations, such as non-governmental organisations and
associations of migrants as stakeholders and of the media, at both national and
European levels, is essential to the success of the policy and to the achievement of
the goals set out in the guidelines. Member States are invited to take the necessary
steps to ensure this at national level. The Commission will put in place measures to
establish a dialogue with civil society at European level.

4.5.

Supporting measures

The Commission will play an important role in monitoring and evaluating the
common policy, in promoting co-operation both between the Member States and
between the different actors concerned and in identifying and encouraging the
exchange of best practice. This will be an essential part of the process of developing
a common approach and in identifying the best standards and encouraging
convergence of practice and procedure. Administrative co-operation will be
facilitated through the proposed action programme in the field of visas, asylum,
immigration and other policies related to the free movement of persons (the ARGO
programme16), the successor to the Odysseus programme.

The Commission believes, however, that a broader programme is necessary to
facilitate the exchange of information and best practice among the wide range of
authorities and organisations involved, in particular with respect to the integration of
third country nationals, and to provide support for actions designed to test and

16 COM(2001)… “A proposal for a Council Decision adopting an Action Programme for Administrative
Cooperation in the fields of visas, asylum, immigration and other policies related to the free movement
of persons (ARGO)”

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develop European objectives with respect
intends,
therefore, as indicated in its Communication on a Community immigration policy, to
put forward proposals for a specific Community Action Programme as a complement
to the Community Action Programmes to combat discrimination and to promote
social inclusion.

to immigration policy.

It

The objective will be to support
legislation and policy development within a
European framework through the improving of knowledge, the strengthening of the
capacity of all the actors involved and the raising of awareness with respect to
integration strategies. There will be a focus on a number of key areas and the
programme will concentrate on the development of a comprehensive approach and
the mobilisation of all those concerned in the implementation of the policy.
It will
support in particular the evaluation of the effectiveness of policies, legislation and
practice and its dissemination,
including the development of benchmarks and
indicators; aim to develop the capacity of specific actors through the transnational
exchange of information and support for European actions; and raising awareness of
opinion formers.

5.

CONCLUSIONS AND FOLLOW UP

With this Communication the Commission is seeking to set out in more detail the
proposals on the implementation of a common policy in the migration field which
In
were sketched out in its Communication on a Community Immigration Policy.
this way it wishes to provide a practical contribution to the inter-institutional
European Conference on Migration which the Presidency is organising on 16-17
October 2001.

Once the proposals for the co-ordination mechanism have been considered by the
Council and, possibly, at the Laeken summit in December 2001, the first priority for
the Commission will then be to review the suggestions, set out in section 4 above, for
European Guidelines on Immigration and the outline for the contents of the National
Action Plans (section 5.1 above) and to make proposals on these for approval by the
Council as soon as possible in 2002. Member States will then be invited to prepare
their first National Action Plans for immigration.

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