Opinion of the Economic and Social Committee on "Immigration, integration and the role of civil society organisations"
Date: 2002-03-21
Institutions: European Economic and Social Committee
Subjects: European citizenship, immigration, integration of migrants, rights of aliens, social integration

C 125/112

EN

Official Journal of the European Communities

27.5.2002

Opinion of the Economic and Social Committee on ‘Immigration, integration and the role of civil
society organisations’

(2002/C 125/21)

On 31 May 2001 the Economic and Social Committee, acting under the third paragraph of Rule 23 of its
Rules of Procedure, decided to draw up an opinion on ‘Immigration, integration and the role of civil
society organisations’.

The Section for Employment, Social Affairs and Citizenship, which was responsible for preparing the
Committee’s work on the subject, adopted its opinion on 27 February 2002. The rapporteur was
Mr Pariza Castan˜ os and the co-rapporteur was Mr Melı´cias.

At its 389th plenary session of 20 and 21 March 2002 (meeting of 21 March), the Economic and Social
Committee adopted the following opinion unanimously.

1.

Integration and citizenship

1.1.
During the 1960s and ’70s, when immigration was
promoted by European host countries, the prevalent thinking
was that the immigrants then arriving in Europe would stay
only temporarily. But now that immigrant populations have
clearly become permanently established, the public authorities
have come round to the idea that the majority of immigrants
are bound to be integrated into our society. New immi-
gration (1) policies (2) must embrace this concept whole-
heartedly.

1.2.
The Communication from the Commission on a
Community immigration policy argued that Europe’s econ-
omic prospects and demographic trends made immigration a
necessity and a key factor in our development. Public policy
must therefore reflect the fact that large numbers of immigrants
are a feature of present-day and future European society; in
consequence, clear and effective policies for the social inte-
gration of the immigrant population are required. This means
the entire immigrant population, not only immigrant workers:
it includes their families, as well as refugees and people
receiving other forms of humanitarian protection.

The concept of integration must be clearly defined if it
1.3.
is to be of use in all the EU countries, since the way social
integration — not only of immigrants and refugees — is
understood varies according to custom and cultural tradition.

(1) The concept of immigration, as used in the present opinion, in

some cases also extends to ethnic minorities.

(2) See the Communication from the Commission COM(2000) 757

final.

1.4.
The concept of integration put forward in the present
opinion is defined as ‘civic integration’, and is based on
bringing immigrants’ rights and duties, as well as access to
goods, services and means of civic participation progressively
into line with those of the rest of the population, under
conditions of equal opportunities and treatment. The EU
Charter of Fundamental Rights represents a reliable and useful
platform for guiding new European legislation as well as
national legislation.

The main benchmark of the civic integration proposed
1.5.
here is not how cultural aspects should be dealt with, but
rather the concept of citizenship. Cultural diversity will be
approached in a different way in each country, in accordance
with the model in use, but this must not impact upon the
principle of equality of rights and duties. In other words,
whatever immigrants’ cultural patterns may be, they do not
detract from their status as persons who must have the same
rights and duties as everyone else.

1.6.
Cultural diversity cannot serve as a pretext for question-
ing the rights of immigrants. The Committee utterly rejects
any denial of rights to immigrants on account of cultural
differences. Religious freedom, for example, is a right which
applies to immigrants as much as to all other citizens. All the
basic personal rights, together with all rights guaranteed by
law, also apply to immigrants, regardless of their cultural
characteristics. In the same way as for rights, there can be no
avoiding duties under the law on cultural grounds. Immigrants
cannot refuse to obey laws or to accept the democratic norms
of society for cultural reasons. Immigrants must respect the
democratic values of European societies, and achieve social
integration through democratic channels.

27.5.2002

EN

Official Journal of the European Communities

C 125/113

Cultural aspects are of great

1.7.
importance. Cultural
diversity is a characteristic feature of democratic, pluralist
Europe. Immigration from third countries amplifies this diver-
sity of ours, culturally enriching our societies. Culture must
not be seen as something static, but rather as constantly
evolving and being enriched by a wide range of contributions.
The cultural contribution made by immigrants must be seen
against this dynamic view of our cultural development.

legislative initiatives which the Committee welcomes. How-
ever, the Committee has observed that progress is very slow at
the Council, where an overly restrictive policy approach
prevails. The Laeken European Council undertook to adopt a
new approach giving greater impetus to common asylum
and immigration policy. The Committee hopes that
this
undertaking will produce concrete progress within the Council
and vigorous support for the Commission’s initiatives.

1.8.
The Committee therefore wishes to emphasise immi-
gration’s positive contribution to Europe’s cultural develop-
ment, and roundly rejects any fundamentalist approach
couched in terms of the ‘risk of cultural contamination’ or
‘defending the essence of European culture from alien cultural
traits’. Thinking of this kind runs counter to the principles of
democratic pluralism and is detrimental to social and cultural
progress in Europe.

1.9.
Social integration is closely tied in with immigration
and asylum policies. The process of social integration must
begin the moment an immigrant arrives: the way in which
entry takes place, and the rights granted to immigrants or
asylum-seekers from the outset are therefore crucial. Illegal
immigration and work in the black economy are barriers to
social integration. It is therefore important to devise immi-
gration policies which open paths to legal entry and define the
rights of immigrants in generous terms. The Commission has
prepared draft directives (1) on these questions, to which the
Committee has responded in its opinions (2).

1.10.
Immigrants should adopt a positive, pro-integration
attitude: to this end, they should be familiar with the language,
laws and customs of the country in which they now live.

1.11.
Knowledge of host country languages is a crucial
factor for integrating immigrants. They should therefore be
given the opportunity to learn them.

2. Work to date by the European institutions on policies

for the social integration of immigrants

The European Commission is engaged in intense
2.1.
political activity under the provisions of
the Treaty on
European Union and within the political framework estab-
lished at the Tampere European Council, adopting a range of

2.2.
Over recent decades, public bodies in the EU’s Member
States have introduced policies for the social integration of
immigrant populations. The initial assumptions made about
the temporary nature of immigration held up such policies
significantly.

The Community institutions have also for many years
2.3.
been implementing policies for the social
integration of
immigrants. They have resulted in initiatives to facilitate
integration into the employment market, education, etc., and
in policies combating racism, xenophobia and discrimination.

2.4.
As far back as 1994 a Commission communication
on immigration and asylum policies (3) argued that social
integration should be one of
the three key elements of
immigration policy (the other two being cooperation with the
flows). The proposals
countries of origin and control of
put forward by the Communication on a new immigration
policy (4) regarding the social
integration of third-country
nationals are based on offering equal rights, extending free
movement and implementing measures to enhance immi-
grants’ economic and socio-cultural position and against
xenophobia and racial discrimination.

2.5.
A wide range of Community initiatives has been
pursued in this field: actions worthy of mention include the
Integra programme, aimed at integrating groups vulnerable to
exclusion into the labour market, which has enabled a large
number of immigration-related projects to be implemented,
and the current Equal (5) programme, which pursues similar
objectives. Mention should also be made of the European
Employment Strategy, as defined at the 1997 Luxembourg
summit, on account of its approach to combating discrimi-
nation in employment.

(1) See the proposal for a Directive on conditions of entry and
residence in OJ C 332 E, 27.11.2001, and the Directive on refugee
status in OJ C 62 E, 27.2.2001.

(2) See the opinion adopted by the ESC on 16.1.2002 and the ESC

opinion in OJ C 193, 10.7.2001.

(3) See the Communication from the Commission COM(94) 23 final,

and the ESC opinion in OJ C 393, 31.12.1994.

(4) See the Communication from the Commission COM(2001) 757

final, and the ESC opinion in OJ C 260, 17.9.2001.

(5) See the ESC opinion in OJ C 75, 15.3.2000.

C 125/114

EN

Official Journal of the European Communities

27.5.2002

2.6. Measures to combat racism and discrimination, an
aspect of enormous significance to social integration, have
been put in motion by the Community institutions, especially
since the Treaty of Amsterdam came into force. Two directives
— one on equal treatment of persons irrespective of ethnic
origin, the other on equal treatment in employment — and an
action programme for their implementation are already in
force, laying down a solid base for pursuing anti-discrimination
policies. The Committee however is concerned at the present
unjustifiable delays in implementing the directives in national
law in some Member States.

2.7.
The creation in 1997 of the European Monitoring
Centre on Racism and Xenophobia equipped the European
Union with a powerful tool for carrying out studies and
putting forward proposals to combat racism and other forms
of discrimination more effectively throughout the Community.

2.8.
Although public bodies have made a clear choice in
favour of social integration, it is no less clear that the policies
conducted so far have proved inadequate. This is amply
illustrated by the discrimination which immigrants continue
to suffer, reflected in key areas such as their relative disadvan-
tage in terms of access to employment, spatial segregation in
urban areas and other aspects of social life, the social frictions
visible in various parts of Europe and so on.

Social integration policies must be vigorously backed
2.9.
by all institutions — European, national, regional and local.
Organised civil society should also be involved in providing
this backing, as the only means of lending such policies the
necessary degree of effectiveness. The Economic and Social
Committee restates its willingness to make a decisive contri-
bution to implementing new social integration policies and
associating European civil society with them.

3.

Integration policies

the host society, and encourage social interchange, mutual
knowledge and involvement in the broadest possible range of
therefore include
Integration policies must
social
actions targeted at both immigrant and host communities.

forums.

Policies for the social integration of immigrants should
3.3.
not lead to a social focus on immigrants in isolation. Some
action must concern immigrants in particular, but most
initiatives must lead to immigrants using general channels and
services and enjoying access to what society has to offer on an
equal footing with the rest of the population.

3.4.
The political impetus required to integrate immigrants
must be reflected in increased public authority budgets. Action
plans for integration must be drawn up at EU, Member State,
regional and local level. There must be an acknowledgement
that what has been achieved to date has been insufficient: the
present levels of integration of immigrant populations cannot
be considered satisfactory. The call for the Member States to
make greater efforts on integration policy extends to the
countries applying for European Union membership.

The Committee is drawing up an opinion (1) on an

3.5.
open method of coordination for immigration policy.

3.6. A Community framework programme

3.6.1.
A wide-ranging European initiative, fitting in with
other Community policies, is required as speedily as possible
to promote new social integration policies. Within the Com-
munity, the European Commission must take the initiative and
prepare a wide-ranging Community framework programme to
promote the social integration of immigrants and refugees.
The programme should spur the other institutions to step
up their integration policies at all
levels. The framework
programme must be actively backed by civil society organis-
ations and the European Economic and Social Committee can
play an important role here.

3.1.
Integration policies must be implemented by public
and private institutions, with the broadly-based and active
involvement of social organisations. Policies must seek to
remove the obstacles encountered by immigrants in gaining
access to goods, services and means of participation in our
society; job-seeking, housing, and basic, vocational and higher
education, etc.

Public policy must address the complete range
3.6.2.
initial reception and
of issues, beginning with immigrants’
culminating in their full and practical acquisition of the same
rights and duties as other citizens. This means launching
initiatives in many areas. This opinion cannot cover them all,
but will
those which seem most
important.

indicate a number of

These integration policies must also focus on the host
3.2.
society,
in order to change discriminatory attitudes, foster
communication and compromise between immigrants and

(1) See the ESC opinion on an open method of coordination for

immigration and asylum policy.

27.5.2002

EN

Official Journal of the European Communities

C 125/115

3.6.3.
Sufficient resources should be available for initial
reception to ensure that immigrants arriving anywhere in
Europe do so under conditions conducive to integration. The
Committee has drawn up an opinion (1) on the draft Directive
on the conditions of entry and residence of economic immi-
grants, proposing favourable
economic
migration. The Committee has also examined the conditions
under which asylum seekers are received (2). In its opinions,
the Committee has proposed backing for measures to ensure
decent accommodation, advisory services for legal matters
involving third-country nationals, multi-lingual information
services,
language courses available to all recent arrivals,
employment guidance services, etc.

conditions

for

3.6.4.
Employment integration is unarguably one of the
main vectors of social integration, since in its absence inte-
gration in many other areas of social
take
place. Employment policies must take account of the new
immigration policy and facilitate access to employment for
immigrants (3).

life will not

3.6.5.
Housing and the urban environment lay bare the real
level of social integration or exclusion. In many areas, housing
and the urban environment present alarming indicators of the
extent of the disadvantages and social exclusion suffered by
immigrant populations — long-term residents as well as recent
arrivals.

3.6.8.
levels to
Action programmes are necessary at all
protect immigrants from racism, violence and all forms of
discrimination. The public authorities, businesses, private
bodies, the social partners and civil society as a whole must
involve themselves in these programmes on a preventive basis.
Foreseeing social problems of this kind is unquestionably the
best way of nipping them in the bud.

Public institutions and civil society organisations
3.6.9.
must take on the task of fostering communication among
Europeans, reaching across different cultures and highlighting
the positive values of cultural pluralism. Cultural integration
of immigrants and their descendants should be achieved in a
way which acknowledges the diversity of their values and
cultural traditions, the aim being for the intercultural approach
to be the form of cultural development normally accepted by
the host society.

3.6.10.
Public participation must be able to rely on proper
channels which open it up to immigrants. Involvement in
associations, cultural life and active citizenship in general must
be accessible to immigrants under the same conditions as for
the rest of
the population. This objective needs to be
approached from a number of angles. Firstly, immigrants must
be welcomed into existing associations in the host society:
they must participate in neighbourhood and educational
associations, employers’ bodies and trade unions, political
parties and movements, sports and professional bodies, NGOs
etc. This means that associations themselves must root out
any discriminatory attitudes and promote action in favour of
equal participation on the part of immigrants.

Full access to education, of high quality and delivered
3.6.6.
in a non-discriminatory environment, is another aspect of vital
importance to the present and future social integration of
immigrants. Using appropriate European machinery, the rel-
evant authorities
should recognise academic titles and
vocational qualifications obtained in the countries of origin,
avoiding any form of discrimination.

3.6.11.
Popular activities, whether cultural, religious, sports
or leisure related, should be shaped to reflect the actual make-
up of the population of our communities, so that immigrants
can easily fit into them.

3.6.7.
Health and other public social services must be
accessible to immigrants under the same conditions as for
everyone else. This means abolishing any form of discrimi-
nation and shaping services and provision of care in such a
way as to ensure equality.

3.6.12.
Social economy bodies are particularly helpful in
integrating immigrants. Equal participation with other citizens
facilitates dialogue and interaction between all people.

(1) See the opinion adopted by the ESC on 16.1.2002.
(2) See the ESC opinion in OJ C 48, 21.2.2002.
(3) See the ESC opinion on the 2002 employment guidelines in OJ

C 36, 8.2.2002.

Integrating immigrants requires policies and initiat-
3.6.13.
ives which are sustained over time, if the types of exclusion
and social segregation which presently occur in many parts of
Europe, affecting the descendants of immigrant families, are to
be avoided. People who are Member State nationals and
second- or third-generation descendants of immigrant families
are sometimes subject to racial discrimination.

C 125/116

EN

Official Journal of the European Communities

27.5.2002

3.7. Monitoring and assessment system

3.7.1.
Alongside the Community framework programme,
there should be a monitoring system under which the results
of on-going social
integration policies could be assessed.
The system, which should be equipped with qualitative and
quantitative indicators to analyse results, would have the task
of defining specific objectives and laying down practical action
plans. Recommendations would be submitted to public bodies
and civil society at both Community and Member State level.

3.7.2.
The monitoring and assessment system proposed
should be a part of the open coordination method which the
Council is to adopt on European immigration policy.

The proposed system should include the active
3.7.3.
involvement of civil society organisations, and of the European
Economic and Social Committee in particular.

4. The role of civil society in social integration

4.1.

Employment and labour relations

It is essential for people to have adequate economic
4.1.1.
resources to ensure they do not become socially excluded.
Work is the means by which economic resources are obtained
and vocational skills developed. Work also represents a
fundamental link in interpersonal social relations; this applies
to both the self-employed and employees.

Providing immigrants with access to vocational train-
4.1.2.
ing, work and the accompanying social benefits is fundamental
to achieving social
labour integration is
integration. But
meaningless if immigrants are subjected to discriminatory
behaviour.

terms,

In general

4.1.3.
immigrants experience greater
difficulty than host country nationals in setting up and running
businesses, or in entering the labour market on an equal
footing and securing high-quality employment. This is, of
course, a difficulty encountered by many social groups and
individuals, but it is greater still for immigrants whether
unskilled or highly qualified. Vocational bodies must act to
encourage immigrants to take up vocations under conditions
of equality and without fear of discrimination.

4.1.4.
Public employment services should, in cooperation
with the social partners, adopt criteria contributing to the
proper management of migratory flows. Immigrant job-seekers
must register with the relevant public services, and to do so
they must be provided with the right information. Trade
unions and other social bodies can play a key part
in
transmitting this information. Where immigrants experience
the public
particular problems in gaining employment,
employment services must formulate specific policies helping
all
individuals, without discrimination, to enter the labour
market.

4.1.5.
The social partners, who largely run the labour
market and are basic pillars of economic and social life in
Europe, have a significant role to play in fostering the
integration of immigrants. Experience shows, however, that
on the labour market and in the workplace many immigrants
are subjected to conditions which infringe labour and social
standards or to an unacceptable degree of discrimination.

4.1.6.
In the context of collective bargaining and labour
relations, the social partners must shoulder their responsibil-
ities for the integration of immigrants. To this end, they
should strive to eliminate any direct or indirect forms of
discrimination from collective agreements and labour stan-
dards and practices. Discrimination can occur on the grounds
of gender, ethnic or national origin, culture, religion, age and
so on: immigrants often accumulate a number of these factors.

4.1.7.
The Economic and Social Committee proposes that
the Community’s social partners, acting fully independently
within the framework of the social dialogue, give consideration
to promoting social accords and other initiatives in order to
foster the integration of immigrants through better labour
relations and working conditions, and eradicate discrimination.

Account must always be taken of

4.1.8.
the different
systems for collective bargaining, labour relations and social
security in the Member States; in all of them, however, there is
a need for the social partners at national, regional, sectoral and
company level to act as a means of assessment and negotiation
to help immigrants integrate at work.

27.5.2002

EN

Official Journal of the European Communities

C 125/117

4.1.9.
On-going training is a basic tool for promoting real
equality between persons on the employment market. The
social partners must step up their efforts, so that immigrants
have access to such training under the same conditions as
nationals. Immigrants who do not know the language of the
society in which they are living suffer additional difficulties in
securing on-going training and employment. For this reason,
specific on-going training initiatives for immigrants not speak-
ing the host society language are required.

4.1.10. Many people encounter additional problems in
developing their careers simply because they are immigrants.
The social partners must therefore strive,
in a number of
different settings, to foster real equality in career development
and remuneration, free of any discrimination.

4.1.11.
The Community framework programme proposed
with the aim of enhancing the integration of immigrants must
embrace goals and initiatives specially targeting the social
partners, who should be drawn into the programme.

The employment guidelines (1), drawn up yearly
4.1.12.
through the open method of coordination, must incorporate
criteria for managing migratory flows, together with goals and
initiatives to encourage the integration of immigrants through
employment.

4.2.

Local communities

4.2.1.
Immigrants sometimes live in run-down urban ghet-
tos which have been abandoned by the public authorities. This
form of social exclusion is unfortunately common in Europe,
and is often a source of conflict. The word ‘ghetto’ is justified
in cases of a high concentration of persons of a single national
or cultural origin, frequently combined with negligence by the
authorities and urban and social decline. Ghettos are not
created by this concentration, but rather by the lack of interest
by the authorities and discrimination in access to public goods
and services, and to the social and civic life of the community.

4.2.2.
People living under such conditions suffer an extreme
form of inequality and discrimination. The social integration
of immigrants into the local community must however be a
priority objective of European civil society and of the public
authorities.

4.2.3.
Immigrants must be officially counted as inhabitants
of the areas they live in, as from this administrative acknowl-
edgement flow a series of specific civic rights and duties
constituting a first step towards integration.

(1) See the ESC opinion in OJ C 36, 8.2.2002.

4.2.4.
In most parts of Europe, a range of civic associations
work in cooperation with the local authorities to improve the
quality of life and promote good neighbourhood relations.
Such associations have different features in keeping with the
traditions of each country, but they all fulfil an important
function as locally-based civil society organisations.

4.2.5.
These associations must open their doors to immi-
grants, in order to build their concerns, problems and views
into programmes and activities. The objective should be for
all, including immigrants, to form an active part of their local
community on an equal footing. Voluntary work, in which
immigrants are involved alongside other citizens, is a highly
valuable means of social integration.

4.2.6.
In many places immigrants experience huge difficult-
ies in obtaining decent housing, sometimes having to live in
overcrowded, sub-standard accommodation, or being concen-
trated in outlying and run-down areas. The primary responsi-
bility of the public authorities, especially local authorities, is to
help such people find proper housing. To this end,
it is
essential that local authorities be able to offer social housing
and public rent support for those in need (whether of local or
immigrant origin), on equal terms with no discrimination.
Sound urban management and efficient housing policy remain
a necessary instrument for social integration.

4.2.7.
Landlords sometimes refuse to let to immigrants: this
is a clear instance of racism which cannot be tolerated. Local
authorities must act decisively to stamp out such behaviour,
which makes it all the harder for immigrants to find decent
housing.

For immigrants to be integrated,

4.2.8.
they must be
properly received by the local community. Sometimes, how-
ever, they are greeted with reserve, suspicion, or even naked
racism and rejection. Many human rights associations are
working to facilitate immigrants’ insertion into local communi-
ties, providing much-needed solidarity and fostering social
integration. Such associations also launch locally-based infor-
mation campaigns so that residents can themselves root out
any minority racist attitudes which may emerge. They also
brief immigrants on their rights and obligations in their new
host society.

These

representative

4.2.9.
society organisations
should be consulted by the public authorities when devising
or assessing integration programmes; by the same token, their
work should be backed up.

civil

C 125/118

EN

Official Journal of the European Communities

27.5.2002

4.3. The education system

4.3.1.
In our societies, children acquire knowledge and
skills through the education system, which also serves as a
forum in which to initiate the process of socialisation and
citizenship and pass on social and cultural values. It is also of
the utmost political significance, being a key means of bringing
about equal opportunities.

4.3.2.
Guaranteeing equal access to the educational system,
from the pre-school stage onward, for the children of immi-
grants is a priority in moving social integration forward. But
these children may encounter a range of practical problems in
gaining access to and continuing their education under equal
conditions, and suffer clear instances of discrimination in poor
quality schools, with texts and materials which have no
relevance to them, sometimes becoming the targets of discrimi-
natory treatment by staff and fellow pupils. The political
authorities should draw up policies designed to prevent such
situations, which are unacceptable in European democracies.
The educational community and its member organisations and
associations also have a crucial role to play here.

Special attention must be given to training for
4.3.3.
woman immigrants. Language learning, awareness of human,
civic and social rights in the host society, and vocational
training are all essential tools for integrating women immi-
grants and their families, given the multiplier effect of women’s
training.

Teachers’ trade unions and professional associations,
4.3.4.
employers and ‘social initiative’ groups must take responsibility
for promoting equal opportunities for all children within the
educational system, regardless of origin, ethnic group, religion,
language or culture; together with the public authorities, they
must also strive to ensure that the educational system serves
as a conduit for the values of tolerance and plurality.

4.3.5.
The content of textbooks and other educational
material needs to be looked at in order to weed out any
negative attitudes towards immigrants or any other element
which is directly or indirectly racist or xenophobic, even if
unconsciously, together with negative value-judgments about
different cultures.

4.3.7.
One of the greatest educational problems facing the
children of immigrants is that of moving on to vocational or
higher education. The public authorities and civil society
organisations must involve themselves in removing all existing
obstacles and implementing policies to secure real equality
within the educational system.

4.3.8.
Structured adult education has a major part to play
in social integration policies. The public authorities, human
rights bodies and organisations working within the education
system must work together closely to extend training at all
levels to the immigrant population.

4.3.9.
Immigrants’ mother tongues represent a cultural
value for those speaking them and for the host society: the
public authorities should promote the learning and use of such
languages in the educational system. Agreements with the
governments of the countries of origin for the promotion of
their language and culture are a positive factor.

4.4. Health and other public social services

4.4.1.
In the European Union, the right of all individuals to
health care and certain social services and benefits is part of a
shared heritage:
the public authorities are committed to
providing them within the bounds of each Member State’s
health and welfare system. Immigrants must be entitled to use
public health services and other social services and benefits
on the same footing as nationals, without discrimination.
Excluding people from the health system and preventing them
obtaining the social services they need means discrimination
and social exclusion.

4.4.2.
Associations representing public service workers and
users, as well as NGOs, have a very important part to play in
removing the discriminatory barriers which often prevent
immigrants from making use of these services.

4.3.6.
Parents’ associations have a very important part to
play in school society. They can fulfil a most valuable function
in integrating the children of immigrants and ensuring they are
treated equally in schools. They must welcome participation
by immigrants, so that their concerns, and their children’s
problems, are properly aired.

4.4.3. Many immigrants are unaware of their entitlement
to public services, and are unfamiliar with how they work.
National, regional and local authorities should launch infor-
mation campaigns, in the appropriate languages, to familiarise
immigrants with the public health services and other social
Immigrant associations, NGOs and civil society
services.
organisations working in the health and social sectors should
join with the authorities in such campaigns.

27.5.2002

EN

Official Journal of the European Communities

C 125/119

4.4.4. Many associations, religious communities and NGOs
in the Member States work to promote health and other
social services. The membership of such bodies must include
immigrants and they must implement programmes to facilitate
immigrants’ access to public services. They must also make
sure that these services have staff specially qualified to deal
with immigrants when required. In some cases,
it will be
necessary to run health training campaigns specially aimed at
immigrant communities.

4.4.5.
These associations and NGOs should promote activi-
ties to ensure that the public authorities take account of the
specific needs of immigrants in their management of health
and other social services, and adjust them accordingly when
necessary, especially to resolve language problems in com-
munication between service providers and users. They should
also make allowance for cultural and religious aspects.

4.4.6.
Public service trade unions and occupational organis-
ations must be actively involved in programmes to bring
health and other social services into closer contact with
immigrants. Those working in the sector must step up their
training so they can help immigrants use the services available.

4.4.7.
The public authorities and civil society organisations
should conduct ambitious information campaigns to familiar-
ise immigrant communities with health and social services and
enable them to use them on an equal footing with the rest of
the population.

4.5. Religious institutions and organisations

Religions do not only represent bodies of specific
4.5.1.
beliefs and shared practices: they also promote morals and
codes of conduct, which largely guide individual
lives,
especially the lives of those belonging to particular religious
communities. Most bodies of religious origin promote humani-
tarian and welfare activities and values, and encourage civic
engagement and attitudes conducive to integrating immigrants.

4.5.3.
A wide range of humanitarian and educational
organisations and institutions supported by various religions
and denominations operate in different areas of social life.
They are carrying out important work in favour of the social
integration of immigrants.

These bodies can launch campaigns among their
4.5.4.
congregations and work with the authorities and other civil
society organisations to foster coexistence between people of
different religious and cultural backgrounds. They can also
encourage interfaith cooperation, drawing in different church-
es or faiths.

4.6.

Sports bodies

4.6.1.
Sport is nowadays more than a purely personal
activity. Mass-appeal sports in particular can create a collective
identity and provide role models for children and young
people.

4.6.2.
Although violent racist groups — which must be
combated — sometimes shelter among large numbers of
sports fans, the reality is that in today’s Europe, sport fulfils an
important task in fostering ethnic and cultural equality and
promoting social integration.

4.6.3.
Associations, bodies and sponsors involved in the
major sports must clamp down on racist behaviour in order
to rid themselves of extremist groups and encourage social
disapproval of such conduct, acting dynamically to promote a
clear message of equality between human beings. The huge
social impact of their activities means they must act respon-
sibly.

4.6.4.
Above and beyond obeying the law, the leading
sports institutions and associations should draw up a code of
conduct at European level to weed out attitudes and groups
which deny personal dignity, and should foster humanitarian
patterns of behaviour favourable to integration.

4.6.5.
Sports associations and clubs must ensure that
immigrants or people from ethnic minorities can take part
without any form of discrimination, and that they are not in
any way excluded from their activities.

4.5.2.
Under certain circumstances, extremist and intoler-
ant religious positions can breed racism and exclusion.
Europe’s own history offers examples of this which must not
be forgotten. Institutions and organisations of religious origin
must root out any such manifestations of racism, particularly
if religiously-based.

4.7. Human rights and civil rights organisations

4.7.1.
Numerous associations and institutions operate in
the Member States to defend the human and civil rights of all.
Many of them are highly experienced in the struggle for social
equality and civil rights.

C 125/120

EN

Official Journal of the European Communities

27.5.2002

4.7.2.
In European society, human and civil rights problems
are affecting immigrants ever more seriously. As a result, the
relevant associations and NGOs have long devoted much
thought and work to the issue.

4.10. The media

4.7.3.
Anti-racist organisations are particularly beneficial.
They perform an important task in denouncing violations of
human rights, providing information and mobilising society.
Their work to prevent this type of behaviour occurring in the
first place should be highlighted. The fact that second or third
generation descendants of immigrants are also affected by
racism shows how seriously integration policies have failed.

4.7.4.
Representative associations working in this field
must be consulted by the public authorities when integration
policies are being framed, and must be involved in the ensuing
programmes.

4.8.

Immigrant associations

4.10.1.
In today’s society, the mass media represent the
main channel not only of information, but also of social values
and patterns of behaviour and moral and political attitudes.
Their approach to immigration issues is sometimes sen-
sationalist, inaccurate and irresponsible.

4.10.2. Many of the media and many journalists do their
job properly, informing public opinion with positive messages
about integration. Others, however, stir up feelings of fear and
concern, providing a breeding ground for racism.

4.10.3. While fully upholding the principles of freedom of
expression and information which are inseparable from the
democratic system, the mass media should agree on a course of
action against racism and in support of integrating immigrants.

4.8.1.
Immigrants themselves often set up associations of
widely differing types — to greet new arrivals, cultural or
religious bodies, etc. — which are of great significance to
identity and in facilitating their social
individuals’ social
integration.

4.10.4.
The principal media must work with the public
authorities to carry out campaigns inculcating the values of
tolerance, cultural diversity and human equality among the
general public.

The public authorities and civil society organisations
4.8.2.
should forge cooperative links with immigrant associations:
they play an important role in social mediation and represent
an ideal means of transmitting information to immigrants.

4.11.

Political parties

The objectives of

4.8.3.
include the social
establishment of cooperation networks.

integration of

immigrant associations should
their members and the

4.9. Women’s groups

4.9.1. Women’s groups striving to achieve equality between
individuals are of special significance. Woman immigrants
frequently encounter specific problems regarding access to
employment, training, recourse to social services and enjoy-
ment of fundamental rights. Women’s groups merit special
attention and targeted support from the public authorities.

4.11.1.
Consensus between the different political currents
on supporting equal rights for immigrants and their integration
into society is of enormous importance for bringing society as
a whole round to this point of view. The message conveyed by
political parties, especially at election time, must be a pro-
integration one.

4.11.2.
The accord signed between European political par-
ties in Utrecht to prevent racism and xenophobia provides a
model to be followed at national, regional and local level.

4.9.2. Women play a special role in social
integration
processes on account both of their need to see the specific
obstacles in their path removed, and of their ability to pass on
to future generations values which must reconcile social
integration with the continuation of specific aspects of their
own original culture.

Immigrants and members of ethnic minorities
4.11.3.
should join and be active in political parties and movements,
which in turn must stamp out any form of discrimination in
their own structures. Political parties should adopt affirmative
action measures to encourage minorities to engage in politics
and stand as candidates at all levels, and especially in local
elections.

27.5.2002

EN

Official Journal of the European Communities

C 125/121

5. Equal rights, equal duties: citizenship and voting

rights

It is crucial to the development of the European Union
5.1.
as an area of freedom, security and justice, as agreed at
Tampere (1), to guarantee that third-country nationals living
legally in the Member States are treated fairly. To do so, an
integration policy aimed at granting them rights and duties
comparable to those of other EU citizens is essential.

5.2.
It is unacceptable in a democratic system for large
numbers of immigrants to live permanently with a lower level
of rights. It is reasonable for the acquisition of the same rights
and fulfilment of the same obligations as other citizens to
come about progressively, matching the individual’s length of
stay in the Member State of residence; however, after a certain
period of time, equality should be complete.

The directive proposed by the European Commission
5.3.
concerning the status of third-country nationals who are long-
term residents (2) marks an important step in this direction.
This status would be acquired after five years’ residence, and
would entail rights comparable to those of EU citizens,
including the right of
free movement and establishment
through the European Union. The Economic and Social
Committee has drawn up an opinion (3) endorsing these
aspects of the draft directive, while suggesting some changes.
the directive will represent major
Although adoption of
progress, equal rights will still not have been achieved.

5.4.
Access to the nationality and citizenship of the country
of residence offers full equality of rights and duties. It is
therefore of the greatest importance that national laws should
facilitate the granting of nationality and citizenship to immi-
grants who request it, and that the procedures involved should
be transparent. Over the last decade, some countries have
taken steps in this direction, but in most Member States the
process still takes too long and is bound up in red tape. The
laws governing access to nationality fall within the remit of
in keeping with the principle of
the Member States and,

subsidiarity, should continue to do so, but a degree of
harmonisation of such legislation would be highly desirable,
as would easy access throughout the European Union to
nationality and citizenship for those who want it. Member
State legislation allowing for dual nationality for those who
voluntarily seek it is a positive factor for integration.

5.5.
Equality of rights and duties should not, however,
depend exclusively on the opportunity to obtain the nationality
of the country of residence. Many people would not wish to
seek this option, as it might involve loss of their original
nationality, or for some other reason. Another path to equality
must be available, and this can only be provided by long-term
resident status. There should be only minimal differences in
status between long-term third-country residents and Com-
munity residents, and these should in any case not affect
critical aspects of social and civic life. To this end, progress
must be made on issues such as citizenship and voting rights.

5.6.

European citizenship

5.6.1.
Articles 17 to 22 of the Treaty establishing the
European Community define Union citizenship as comp-
lementing and not replacing national citizenship, which is a
matter for each individual Member State. The Charter of
Fundamental Rights moves towards ‘civic citizenship’ in the
EU for residents of third country nationality, as indicated by
the Commission in its communication (4).

5.6.2.
A citizens’ Europe cannot contain another, non-
citizens’ Europe in its midst. Those living on a stable basis in
the European Union must be treated in the same way and be
recognised as having the same rights and duties at Community
level as Member State nationals.

The Convention has launched a process geared to
5.6.3.
reforming the treaties and forging a new model
for the
European Union. The Convention will examine the concept of
European citizenship and the role of the Charter of Fundamen-
tal Rights.

‘Civic citizenship’, based on the Charter of fundamen-
5.6.4.
tal rights, as proposed by the Commission in its communi-
cation of November 2000 on a Community immigration
policy, is one possible means of bringing European citizenship
closer to long-term residents, but cannot become effective
because the Treaty does not provide an adequate legal basis.

(1) See the Presidency Conclusions of the Tampere European Council.
(2) See the proposal for a Directive in OJ C 240 E, 28.8.2001.
(3) See the ESC opinion in OJ C 36, 8.2.2002.

(4) COM(2000) 757 final.

C 125/122

EN

Official Journal of the European Communities

27.5.2002

5.6.5.
The Committee proposes that the Convention for
the reform of the Treaties give consideration to granting
EU citizenship to third-country nationals having long-term
resident status.

5.7. Voting rights

5.7.1.
No comprehensive proposal for equal rights and
duties and for social integration would be complete without
including the right to vote. This is a supremely important right
for social integration, since it clearly signals who belongs, and
who does not belong to a community. Being part of a
community entails having the ability to take part in electing
its representatives, and being elected as such. A part of the
population from which the right to vote is withheld is, in a
sense, being told that it does not belong to that society —
which does nothing to facilitate social integration.

5.7.2.
Some Member States have already allowed third-
country nationals to vote in local elections. Similarly, the
nationals of any Member State may also vote in European
Parliament elections even if living in a Member State other
than that of their nationality.

5.7.3.
The Committee proposes that the Convention for
the reform of the Treaties give consideration to granting the

Brussels, 21 March 2002.

right to vote in local and European Parliament elections to
third-country nationals having long-term resident status.

6. The European Economic and Social Committee

6.1.
As a body representing organised civil society, the
European Economic and Social Committee can play a key role
in preparing and evaluating European legislative initiatives
facilitating the social integration of immigrants. By the same
token, the economic and social councils and similar institutions
of the Member States can play an important part at national
level.

6.2.
The Economic and Social Committee expects to be
actively involved in all forums and conferences on immi-
gration-related issues held by the other European institutions.
The Committee wishes to be actively associated with the
Commission, Council and Parliament throughout the legislat-
ive process on immigration and asylum.

6.3.
In 2002, the European Economic and Social Com-
mittee plans to hold a conference in conjunction with the
Commission on immigration and social
integration to be
attended by the Member States’ economic and social councils,
the social partners, other bodies representing organised civil
society, and leading NGOs involved in social integration. The
conference will also be attended by the other European
institutions and bodies. The proceedings of the conference will
make a positive contribution to the preparation of
the
Community framework programme to promote the social
integration of immigrants.

The President

of the Economic and Social Committee

Göke FRERICHS