Communication from the Commission to the Council, the European Parliament, the European Economic and Social Committee and the Committee of the Regions on immigration, integration and employment.
Date: 2003-06-03
Institutions: European Commission
Subjects: EU migration policy, cooperation policy, economic and social cohesion, employment policy, immigration, integration of migrants, population policy, third country

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 3.6.2003
COM (2003) 336 final

COMMUNICATION FROM THE COMMISSION
TO THE COUNCIL, THE EUROPEAN PARLIAMENT,
THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE
AND THE COMMITTEE OF THE REGIONS

on immigration, integration and employment

NE-50-03-134-EN-N

TABLE OF CONTENTS

Introduction...............................................................................................................................3
The current framework for integration in the EU ............................................4
1.
Tampere and the legislative framework at EU level ..............................................4
1.1.
EU policy instruments underpinning integration, employment and social
1.2.
cohesion ..................................................................................................................7
National approaches to integration .........................................................................8
The economic and demographic challenge: the new dimension.......................9
Patterns of immigration flows in the EU ................................................................9
The economic role of immigration and its impact on employment .....................10
The impact of demographic change on employment and economic growth ........12
The employment outlook and the potential of immigration .................................14
Is immigration a solution to demographic change?..............................................16
The challenge of integration: a holistic approach............................................17
Definition and scope.............................................................................................17
The need for a holistic approach...........................................................................18
Key elements in holistic integration policies........................................................19
The main actors in a holistic integration policy....................................................23
Reflecting the needs of specific groups of migrants in integration policy ...........24
Dealing with illegal migrants ...............................................................................25
The way forward: policy orientations and priorities ......................................26
Consolidating the legal framework.......................................................................27
Re-inforcing policy co-ordination ........................................................................28
Civic citizenship and nationality: tools to facilitate integration ...........................30
The European Employment Strategy (EES).........................................................30
The Social Inclusion Process ................................................................................31
Economic and social cohesion..............................................................................32
Combating discrimination ....................................................................................32
Co-operation in the field of education ..................................................................33
Closer dialogue with third countries.....................................................................34
Reinforcing EU financial support for integration.................................................34
Improving information on the migration phenomenon ........................................35
Conclusions .........................................................................................................35
Synthesis report on national integration policies..................................................37
Statistical Annexes ...............................................................................................47

1.3.
2.
2.1.
2.2.
2.3.
2.4.
2.5.
3.
3.1.
3.2.
3.3.
3.4.
3.5.
3.6.
4.
4.1.
4.2.
4.3.
4.4
4.5
4.6
4.7
4.8
4.9
4.10
4.11
5.
Annex 1:
Annex 2:

2

INTRODUCTION

The entry into force of the Amsterdam Treaty in May 1999 and the special European
Council in Tampere which followed it five months later, represented turning points in
the European Union’s commitment to work together in the fields of Justice and Home
Affairs,  in  particular  with  regard  to  immigration  and  asylum.  In  its  conclusions
adopted in Tampere on 16 October 19991, the European Council not only  reasserted
its  determination  to  make  full  use  of  the  possibilities  opened  by  the  new  Treaty
provisions  in  these  areas,  but  also  gave  comprehensive  guidelines  on  the  policies  it
wished  to  see  developed  in  four  clearly  identified  elements  of  a  common  European
Union  immigration  and  asylum  policy:  partnership  with  countries  of  origin;  a
common  European  asylum  policy;  fair  treatment  of  third  country  nationals;  and  the
management of migration flows.

In November 2000, the Commission issued a major Communication on immigration
policy2  to  the  Parliament  and  Council  indicating  how  it  intended  to  translate  these
guidelines  into  concrete  action.  In  the  intervening  time  since  then,  work  on  this
programme  has  been  pursued  on  all  the  four  elements  identified  by  the  European
Council. On all of them except one (the integration aspects as set out in the Tampere
paragraphs on  the  fair treatment  of third country nationals)  the Commission  has  put
this
forward 
Communication  is  to  fill  that  gap,  as  indeed  specifically  requested  by  the  Council
(Justice  and  Home  Affairs)  in  October  2002,  by  briefly  setting  out  in  a  single
document both what has already been done to promote better integration and ideas for
further action needed3.

the  necessary  proposals  and  policy  papers.  The  purpose  of 

This  Communication  also  takes  account  of  important  relevant  developments  since
Tampere.  A  major  development  was  the  launching  of  the  Lisbon  strategy  in  March
2000  when the Union  set  itself a new  goal  for  the  next  decade:  to  become  the  most
competitive  and  dynamic  knowledge-based  economy  in  the  world;  capable  of
sustainable economic growth with more and better jobs and greater social cohesion
The  contribution  which  legally  admitted  immigrants  could  make  to  the  Lisbon
objectives  had  already  been  highlighted  in  the  Commission’s  November  2000
Communication.  That aspect of  their  integration  is  even  more  important  and  topical
today  as  the  economic  and  social  aspects  of  demographic  ageing  become  more
significant.  Access  to  the  EU  employment  market  for  immigrants  and  refugees
represents  an  essential  component  of  the  integration  process,  and  at  the  same  time,
contributes to the success of the Lisbon strategy more generally. This was emphasised
in both the Commission’s 2002 and 2003 reports to the Spring European Council4 and

1 Presidency Conclusions of the Tampere European Council 15-16 October 1999 (SN 200/99)
2 Communication on a Community immigration policy (COM(2000)757) of 22 November 2000
3 Conclusions adopted on the 14-15 October 2002 by the Justice and Home Affairs Council
4

In  its  2002  Spring  Report,  the  Commission  announced  its  intention  to  examine  the  interaction
between immigration, employment and social policies and to report on it in 2003. In its 2003 Spring
Report,  it  referred  to  the  need  for  "a  fresh  approach  to  immigration  as  a  means  of  ensuring  that
high levels of employment and productivity can be maintained in future decades. At the heart of any
approach  must  be  the  better  integration  of  migrants  -  who  are  often  able  to  make  a  substantial
contribution to entrepreneurship - into society, while taking account of the impact of immigration
on the countries from which migrants come". “Choosing to grow: Knowledge, innovation and jobs

3

                                                
specifically  endorsed  by  the  2003  Spring  Council.  Due  consideration  must  also  be
paid to the underlying causes of migration flows and to the need to develop the links
between the EU and countries of origin, which was the subject of a Communication
from the  Commission  on  migration  and  development5.  Against  this  background  this
communication:

(cid:1)  responds to the Tampere conclusions by reviewing current practice and experience

with integration policy at national and EU level;

(cid:1)  examines the role of immigration in relation to the Lisbon objectives in the context

of demographic ageing and

(cid:1)  outlines,  on  this  basis,  policy  orientations  and  priorities,  including  actions  at  EU

level, to promote the integration of immigrants.

1. 

THE CURRENT FRAMEWORK FOR INTEGRATION IN THE EU

Recent changes in national legislation on immigration legislation in several Member
States,  together  with  wide-spread  concerns  relating  to  security  and  the  need  for
greater social cohesion, have already led to renewed debate on the strategies needed to
ensure the integration of migrants. During the Danish Presidency, integration into the
labour market was the topic of a conference in Copenhagen in July 2002.6 This was
followed  in September by  a meeting in Brussels, hosted  by the  European  Economic
and  Social  Committee  in  co-operation  with  the  Commission,  on  ‘The  Role  of  Civil
Society in Promoting Integration’ where discussions were based on an opinion of the
EESC on this matter.7 These issues were also taken up at a conference organised by
the Greek Presidency on ‘Managing Migration for the Benefit of Europe’ which took
place  in  Athens  on  15-16  May  2003  within  the  framework  of  the  Athens  Migration
Policy Initiative.

The need for a level playing field between Member States in addressing the issues of
immigration,  integration  and  employment  has  increasingly  been  recognised,  with  a
view  to  improving  the  effectiveness  of  these  policies.  The  EU  now  has  a  range  of
instruments to ensure that the right framework is in place to support national efforts.

1.1. 

Tampere and the legislative framework at EU level

The Tampere Council explicitly requested "a more vigorous integration policy" which
"should aim at granting legally resident third country nationals rights and obligations
comparable  to  those  of  EU  citizens".  This  is  the  principle  which  underlies  the
proposals which the Commission has so far put forward to establish the common legal

in  a  cohesive  society.  Report  to  the  Spring  European  Council,  21  March  2003  on  the  Lisbon
strategy of economic, social and environmental renewal” COM(2003)5 of 14 January 2003

5 Communication  on  integrating  migration  issues  in  the  European  Union's  relations  with  third

countries COM(2002)703 of 3 December 2002

6 Report of a European Conference on Successful Integration on the Labour Market, Copenhagen 4-5

July 2002

7 Opinion of the Economic and Social  Committee  on  Immigration,  integration  and  the  role  of  civil

society organisations CES 365/2002

4

                                                                                                                                           
framework on the status of third-country nationals called for in the Amsterdam Treaty
(Article  63).  In  this  context,  the  Charter  of  Fundamental  Rights  of  the  European
Union is the essential point of reference since most of its provisions are applicable to
all  persons  irrespective  of  their  nationality.  The  proclamation  of  the  Charter  in
December  2001  marked,  therefore,  an  important  stage  in  the  definition  of  the  legal
framework, and the results of the Convention on the status of the Charter in the new
European Treaty will be decisive.

The  right  to  family  reunification8  is,  by  itself,  an  indispensable  instrument  for
integration.  Political  agreement  was  reached  on  this  directive  in  the  Council  on  27
February  2003.  The  directive  recognises  the  right  to  family  reunification  for  third-
country nationals holding a residence permit of one year or more who have reasonable
prospects of obtaining permanent residence. Member States will be entitled to require,
for  the  exercise  of  this  right,  that  third-country  nationals  comply  with  integration
measures in accordance with national law. An essential provision for  the integration
of family members is that they be entitled, in the same way as the applicant, to access
to employment, education and vocational training.

The  proposal  for  a  directive  concerning  the  status  of  third-country  nationals  who
are long-term residents9 is based on the long tradition in the Member States that the
length  of  residence  has  an  influence  on  the  level  of  rights  of  the  person  concerned.
This is an essential instrument for integrating people who are planning to settle on a
long-term  basis  in  the  European  Union.  The  proposal  determines  the  conditions  for
long-term  resident  status,  a  period  of  continuous  legal  residence  of  five  years  being
the  fundamental  requirement.  Willingness  to  participate  in  integration  measures  is
also  being  discussed  in  the  Council  as  a  legitimate  requirement.  Long-term  resident
third country nationals are  guaranteed  equal treatment with nationals of  the EU in a
number of respects which cover the majority of the socio-economic fields. Long-term
residents will also have the right to reside in another Member State for employment or
study purposes on the conditions set out in the directive.

The aim of the proposal for a directive on the conditions of entry and residence of
third-country  nationals  for  the  purpose  of  paid  employment  and  self-employed
economic  activities10  is  both  to  provide  a  pathway  for  third-country  workers  which
could  lead  to  a  more  permanent  status  for  those  who  remain  in  work,  while  at  the
same  time  giving  a  secure  legal  status  while  in  the  EU  to  those  who  return  to  their
countries of origin when their permit expires. This proposal also follows the principle
that rights should be incremental with length of stay and thus facilitates the renewal of
the permit of a third-country worker who has been resident for more than three years
and aligns the rights of these workers with those put forward for long-term residents,
although they are less exhaustive. It has no impact on numbers since it does not affect
Member States’ responsibility to decide whether or  not  to  admit  economic  migrants
taking  into  account  the  needs  of  their  labour  markets  and  their  overall  capacity  to
integrate them.

8 COM(2002)225
9 COM(2001)127
10 COM(2001)386

5

                                                
In  addition  the  Commission  has  also  put  forward  proposals  for  a  directive  on  the
admission  of  students  and  volunteers  and  is  preparing  a  new  proposal  on  the
admission  of  researchers.  This  new  proposal  on  the  admission  of  researchers  is
essential to meet the Lisbon objectives in terms of competitiveness  and to attain the
Barcelona objective to increase investment in research to 3% of GDP with two thirds
coming from the private sector by 2010.11

A number of legislative instruments in the field of asylum policy contain provisions
concerning  integration.  This  is  the  case  for  the  Council  Directive12  laying  down
minimum  standards  for  the  reception  of  asylum  seekers13.  The  proposal  for  a
directive on minimum standards for the qualification and status of third-country
nationals  and  stateless  persons  as  refugees  or  as  persons  who  otherwise  need
international  protection14  contains  a  specific  chapter  regulating  the  content  of
international protection and specifying the rights to be enjoyed by a refugee or person
granted  subsidiary  protection.  These  require  Member  States  to  provide  programmes
tailored to the needs of refugees to facilitate their integration into society.

The EU has also put in place a legal framework to combat discrimination – which
can  seriously  impede  the  integration  process  –  and  in  particular  common  minimum
standards  to  promote  equal  treatment  and  to  combat  discrimination  on  grounds  of
racial  or  ethnic  origin,  religion  or  belief,  age,  disability  and  sexual  orientation.
Directives  approved  at  EU  level  in  200015  will  give  important  new  rights  both  to
arriving  migrants  and  to  established  ethnic  minorities  in  the  EU.  The  scope  of
Community legislation banning racial discrimination is wide and covers employment,
education,  social  security,  health  care,  access  to  goods  and  services  and  to  housing.
Although the directives do not cover discrimination on grounds of nationality, and are
without prejudice to the conditions relating to the entry and residence of third country
nationals and to any treatment which arises from their legal status, they do apply to all
persons resident in the Member States, including third country nationals. In addition,
several activities aiming at exchange of experiences and good practice are carried out
under the accompanying programme to combat discrimination. The Commission also
supports the work of the European Monitoring Centre on Racism.

The  EU  has  also  made  progress  towards  granting  third  country  nationals  the  same
protection as EU workers in the field of social security when moving in the EU. The
implementation of the new regulation 1408/71 should result in giving legally residing
non-EU nationals the same rights as EU nationals when moving within the EU. The
adoption of this regulation is an essential cornerstone in view of the future adoption of
the directives on the status of long-term residents and admission for employment.

11 COM(2003)226 final and SEC(2003)489
12 2003/9/EC of 27 January 2003, OJEC L 31 of 6 February 2003, p.18
13 A similar observation can be made about the Council Directive 2001/55/EC on minimum standards
for  giving  temporary  protection  in  the  event  of  a  mass  influx  of  displaced  persons  and  measures
promoting a balance of efforts between Member States in receiving such persons and bearing  the
consequences thereof (OJEC L 212, 7 August 2001, p.12).

14 COM(2001)510
15 Directives 2000/43/EC and 2000/78/EC

6

                                                
1.2. 

EU policy instruments underpinning integration, employment and social
cohesion

Based on the Lisbon mandate, the EU has developed open methods of co-ordination
in  the  fields  of  employment  and  social  inclusion,  policies  which  are  of  direct
relevance to the integration of immigrants in the EU. These  combine concrete  goals
and policy objectives set at EU level, which are translated into national plans, the use
of benchmarks and indicators to measure progress, exchange of experience and peer
review so as to learn from good practice.

Since  the  launch  of  the  European  Employment  Strategy  (EES)  in  1997,  the
integration of disadvantaged groups, including migrant workers and ethnic minorities,
as  well  as  combating  discrimination,  have  been  key  features  of  the  employment
guidelines.  In  its  Communication  of  17  July  200216,  the  Commission  reviewed  the
experience of five  years of the EES and identified major issues for the debate on its
future. These  include  reducing the  employment  gap  between  EU  nationals  and  non-
EU  nationals,  promoting  full  participation  and  employment  for  2nd  generation
migrants,  addressing  the  specific  needs  of  immigrant  women,  fighting  illegal
immigration and transforming undeclared work into regular employment. It should be
noted that the EU has also put in place and developed the EURES network17 which is
a key instrument to advertise job vacancies across the EU.  Other targeted initiatives
have already been developed such as the PLOTEUS portal on learning opportunities
and  the  Researcher’s  Mobility  Portal  and  the  Network  of  Mobility  Centres  which
provide information for mobile researchers.

In the field of social inclusion, the Nice European Council (December 2000) agreed a
set of common objectives to combat social exclusion and poverty18. The first national
action plans against poverty and social exclusion (NAPs/incl) submitted in June 2001
clearly  identified  ethnic  minorities  and  immigrants  as  being  at  high  risk  of  social
exclusion  and  discrimination  although,  despite  the  widespread  recognition  of  such
risks, the first NAPs/incl lacked data on these groups.

In  July  2001,  the  Commission  proposed  an  open  method  of  co-ordination  for  the
Community  immigration  policy  and  the  European  Council  in  Laeken  in  December
2001 called for a reinforcement of the exchange of information on migration. The
Commission services have consequently introduced consultative meetings to provide
a  forum  for  discussion  on  migration  issues  in  the  EU.  Having  meetings  on  the
exchange of information and best practice is also the method used to explore the issue
of  transnational  mobility  of  certain  categories  of  individuals  such  as  researchers.  In
addition, responding to the conclusions of the October 2002 Justice and Home Affairs
Council, a network of national contact points on integration has been set up.

Underpinning  the  political  commitments  of  the  EU  in  the  field  of  integration,
employment  and  social  cohesion,  are  a  number  of  EU  financial  instruments  and
other  initiatives  which  directly  or  indirectly  support  the  integration  of  immigrants.

16 COM(2002)416 of 17 July 2002 “Taking stock of five years of the EES”
17 Commission decision 2003/8/EC of 23 December 2002 – OJ L5/16 of 10.01.2003
18 To facilitate participation in employment and access by all to resources, rights, goods and services;
to prevent the risks of exclusion; to help the most vulnerable and to mobilise all relevant bodies in
the fight against social exclusion.

7

                                                
This  is  most  notably  the  case  with  the  Structural  Funds,  in  particular  the  European
Social  Fund.  The  EU  has  also  supported  integration  through  the  development  of
innovative actions, networks and exchange of experience in the EQUAL programme,
the  URBAN  II  initiative  with  respect  to  the  regeneration  of  cities  and  through  its
programmes  to  promote  gender  equality  and  to  combat  social  exclusion  and
discrimination.  In  addition  Community  funds  are  being  used  under  the  Multiannual
Programme  for  Enterprises  and  Entrepreneurship  2001-2005  of  the  European
Investment Fund for micro-lending activities which benefit immigrant entrepreneurs.
Moreover  the  multiannual  programme  is  specifically  targeting  ethnic  minority
entrepreneurs as part of its general activities, including BEST procedure activities. In
the  field  of  education  and  culture,  several  initiatives  targeting  the  integration  of
immigrants  have  been  carried  out  under  the  SOCRATES,  the  LEONARDO  DA
VINCI, YOUTH and CULTURE 2000 programmes.

Within  the  framework  of  the  preparation  of  a  common  European  policy  on  asylum,
the Council has established a European Refugee Fund (ERF)19, with the objective of
"supporting  action  by  the  Member  States  intended  to  promote  the  social  and
economic  integration of refugees,  in  so  far  as  it  contributes  to  economic  and  social
cohesion". In the period 2000-2002, 28.3% of the available funds (19 million Euros)
has been attributed to such actions. In 2002, the Commission established a European
Migration  Network  as  a  tool  to  improve  analysis  and  research  on  migration  and
asylum in the EU.

1.3. 

National approaches to integration

Most  Member  States  have  made  major  efforts  in  recent  years  to  improve  the
integration of immigrants and persons enjoying international protection by developing
national integration policies. At the request of the informal Justice and Home Affairs
Council  in  Veria  on  28-29  March  2003,  the  Commission  has  prepared  a  synthesis
report on integration policies and practices in Member States for the attention of the
Council,  which  is  annexed  to  this  Communication  as  Annex  1.  The  report,  which
serves  as  a  fact-finding  survey,  provides  more  detailed  information  on  national
integration policies.

Many Member States consider that the policies they  have conducted so far have not
been sufficiently effective. This is illustrated by growing concerns about the barriers
for successful integration which continue to exist, inadequate competence in the host
country  language  being  the  most  widespread,  although  unemployment  and  poor
education or formal skills are also seen as important obstacles.

The  current  discussions  at  EU-level  concerning  integration  requirements  reflect  the
political importance which Member States assign to the successful integration of third
country  nationals.  A  major  area  of  debate  concerns  the  nature  of  integration
programmes and the kind of integration measures which should be provided. Another
key  issue  is  whether  they  should  be  obligatory  or  not,  and  the  effect  which  non-
compliance might have in terms of legal and financial consequences. Whether or not

19 The European Refugee Fund was set up on the basis of Article 63(2)(b) of EC Treaty by Council
Decision of 28 September 2000 to cover the period 2000-04 and given an indicative budget (budget
line B5-810) of €216 million over five years.

8

                                                
non-compliance with obligatory measures should lead ultimately to the revocation of
a residence permit, is an issue which is playing an increasing role in the negotiation of
the  different  legislative  proposals  currently  before  the  Council.  These  discussions
show that there are many similarities in the problems Member States are facing and in
the way they seek to tackle them. This has led to a growing recognition of the need to
act  collectively  at  EU  level  by  developing  additional  common  instruments  and
adapting existing ones to the new challenges.

2. 

THE ECONOMIC AND DEMOGRAPHIC CHALLENGE: THE NEW DIMENSION

In  an  overall  economic  and  social  context  characterised  by  a  number  of  skill  and
labour  shortages,  competition  for  the  highly  skilled  in  a  globalised  economy  and
accelerating demographic ageing, immigration is taking on a new profile in the EU, as
already  highlighted  in  the  Commission’s  Communication  of  November  200020.
Immigration is caused by "pull" as well as "push" factors and it is therefore important
to relate it to the employment outlook and the profile of future labour market needs.
More sustained immigration flows will be increasingly likely and necessary and it is
important to anticipate these changes.

2.1. 

Patterns of immigration flows in the EU

The  EU  Member  States  have  a  long  tradition  of  immigration,  which,  on  the  whole,
has  contributed  positively  to  economic  growth  and  labour  market  adaptability,
although  its  shape  and  dynamics  has  varied  substantially  across  countries  and  over
time.  Men  and  women  of  non-EU  nationality  represented  around  4%  of  men  and
women living in the EU in 200021. During the 1990s, positive net migration became
the  largest  component  of  population  change  in  most  Member  States  fluctuating
around a  total for the  EU of  850,000  net  international  migrants  (including  returning
EU nationals) per annum by the end of the decade. This figure for 2001 is estimated
to be just over 1 million.

The  period  also  witnessed  a  broadening  and  diversification  in  the  typology  of
migrants, of the patterns of flows and of the mix of sending and receiving countries.
Changes  affecting  asylum  seeking  resulted  in  peak  numbers  of  applications  in  1992
and 1997, largely as a result of the wars in former Yugoslavia and of armed conflicts
around  the  world.  In  addition,  former  countries  of  emigration  (southern  Member
States  and  Ireland)  became  countries  of  immigration,  the  larger  inward  flows  of
migrants composed both of  returning  nationals  and  of  non-nationals,  most  of  whom
were from outside the EU. Given the growth of young adult population in many third
countries,  economic  and  social  differences  as  well  as  political  instability,  migratory
pressure is unlikely to fall in the foreseeable future.

20 COM(2000)757
21 For more detailed information, see, in particular, Eurostat, Women and men migrating to and from
the  EU,  Statistics  in  focus,  Theme  3  -  2/2003;  Eurostat,  First  demographic  estimates  for  2002,
Statistics in focus, Theme 3 - 25/2002. The figures provided in  this  paragraph  are  extracted  from
these two publications. See also Figures 1 and 2 in the Annex 2.

9

                                                
As  ten  new  Member  States  will  join  the  EU  in  2004,  part  of  past  immigration  will
become  internal  mobility.  Previous  experience  and  recent  estimates22  suggest  that
labour mobility  from new Member States  may be  moderate to limited,  with  specific
situations in border regions. At the same time, the size and dynamics of migrations’
contribution  to  population  change  in  EU-25  is  likely  to  increase  as  the  existing  and
new Member States share similar demographic trends.

2.2. 

The economic role of immigration and its impact on employment 23

in  particular  by  contributing 

While  immigration  should  be  recognised  as  a  source  of  cultural  and  social
enrichment, 
to  entrepreneurship,  diversity  and
innovation,  its  economic  impact  on  employment  and  growth  is  also  significant  as  it
increases  labour  supply  and  helps  cope  with  bottlenecks.  In  addition,  immigration
tends  to  have  an  overall  positive  effect  on  product  demand  and  therefore  on  labour
demand.

Studies  from  across  the  world  (e.g.  by  the  ILO,  the  IMF,  the  OECD)  generally
confirm that immigration has a number of positive economic effects24. For instance, it
is now acknowledged that immigration into the US represents one of the explanations
for the long boom period in the 1990's with an average annual employment growth of
1.5%  and  an  overall  economic  growth  of  more  than  3%.  Furthermore,  it  seems  that
the large waves of legal and illegal immigration25 into the US since the late 1980's is
the  main  reason  why  the  ageing  trajectory  of  the  US  has  markedly  improved  by
comparison to, and now differs substantially from, that of Europe (see Figure 3 in the
annex).  By  contrast,  it  is  increasingly  common  to  see  the  economic  stagnation  in
Japan  over  the  last  decade  as  partly  caused  by  the  decline  of  the  working-age
population since the mid-1990's, with severe restrictions on immigration which have
kept the  inflow  of  migrants far  too small  to  allow  it  to  alleviate  the  impact  of  rapid
ageing on labour supply, employment and growth (see Figure 4 in the annex).

22 European Integration Consortium (2001) The impact of Eastern Enlargement on Employment and
Labour markets in the EU member States. Estimates suggest that the flows from the new Member
States to the existing 15 initially may amount to only about 350.000 people. The yearly net inflows
would  decrease  over  time  so  that  by  2030,  the  total  population  of  non-nationals  from  the  new
Member States in EU-15 is expected to stabilise at a level of approximately 3.5 million people. The
introduction of transitional periods would distribute inflows over a longer period of time.

23 The impact on countries of origin is not covered as it has been addressed in greater detail in a recent

Communication from the Commission (COM(2002) 703) of 3.12.2002

24 Despite evidence of positive macro-economic effects, many people feel uneasy about the effects of
immigration.  This  may  be  linked  to  the  fact  that  while  immigration  can  be  beneficial  from  an
overall economic point of view, its costs and benefits are not evenly distributed. Furthermore, some
of the longer-run benefits due to the positive influence of the immigrant population are difficult to
demonstrate, such as those on aggregate demand as a driving force for economic growth.

25 Between 1990 and 2000, nearly 33 million people were added to the US population. Immigration
accounted  for  about  one  third  of  US  population  growth  in  the  1980s  and  for  an  increasing  share
during  the  1990s.  Between  1995  and  2000,  immigration  contributed  around  40%  of  population
growth  (UN  World  Population,  medium  variant,  2000  revision).  This  sizeable  demographic
contribution to US growth helps understand why the growth differential between the US and the EU
is higher in terms of GDP than of GDP per capita.

10

                                                
In Europe, the  working age population would already  have begun  to  shrink  in some
Member  States  had  it  not  been  for  the  inflow  of  immigrants  (see  Figure  5  in  the
annex). The recent increase in immigration in Ireland seems to have contributed to the
sustained  growth  performance  in  this  country26,  where  it  followed  a  change  in  the
regime of employment permits to ease labour shortages.

In terms of employment opportunities, there is little evidence that immigration has led
to  higher  unemployment27.  In  the  short  run,  immigration  can  be  beneficial  for
domestic employment to the extent that it increases the flexibility of labour markets.
This  is  particularly  true  in  the  case  of  temporary  migration.  Furthermore,  since  on
average  migrants  are  not  displacing  domestic  employment,  immigrants'  skills  and
qualifications can be complementary to those of EU nationals. This does not exclude
adverse  effects on particular  groups  or sectors. Empirical findings point towards the
concentration  of  undesirable  effects  on  blue-collar  workers  in  manufacturing
industries and on unskilled labour in services.28

Non-EU  nationals  tend  to  be  concentrated  in  particular  sectors  and  occupations,
though over time this normally diminishes. For example, they account for more than
10% of the employed in the private household sector and for almost 8% of the hotels
and restaurant sector (versus 3% of overall employment). Their share of employment
in  manual  jobs  is  higher  for  all  types  of  qualifications  than  EU-nationals'  (and  it  is
almost twice as much  for  unskilled  manual  occupations  -  an  occupational  group  for
which more than a third of jobs are of rather low quality29). The spatial distribution of
immigration  also  varies  considerably  across  Member  States  and  regions,  with  a
relatively higher concentration in urban and industrialised areas.

The  sectoral  concentration  of  immigrants  corresponds  to  low  barriers  to  entry  and
requirements in terms of specific skills. As such it can provide non-EU nationals with
an entry point into the labour market and the acquisition of skills such as language. At
the  same  time,  relatively  large  numbers  of  non-EU  nationals  in  some  sectors  with
limited rights or  scope for  mobility within  the labour  market will  not be in  a strong
position  as  regards  wages  and  job-quality.  This  may  be  compounded  by  weak
representations of these workers in the social dialogue. The consequence will be the
reinforcement of the reluctance of nationals to take these jobs and an accentuation of
the segmentation of the labour market.

The impact of immigration on domestic wages is in a range between -0.3 and +0.3 per
cent30. The effects on wages and employment would be more negative for some native
workers,  in  particular  low-skilled,  due  to  substitution  effects,  and  they  would  be
positive  for  high-skilled  workers,  possibly  through  gains  in  productivity  achieved
thanks to complementarity between these workers and immigrants. The net impact of
immigration  on  the  public  finances  of  the  host  countries,  i.e.  both  on  government

26 Trends in international migration, 2002, OECD
27 J. Coppel et. al., "Trends in Immigration and Economic Consequences", ECO/WKP(2001)10
28 European Integration Consortium (2001) Ibid
29 European Commission, Employment in Europe 2001
30 H.  Brückner,  "Can  international  Migration  Solve  the  Problems  of  European  Labour  Markets?",

German Institute for Economic Research, April 2002, page 34

11

                                                
expenditures  and  revenues,  seems  to  have  been  moderate  so  far31  and  there  is
evidence that it can be positive overall. In addition, most studies find that migrants are
no more dependent on welfare than those parts of the endogenous population that are
in the same social and employment situation.

2.3. 

The  impact  of  demographic  change  on  employment  and  economic
growth

The impact of demographic change has often been discussed32 and can be illustrated
by  a  number  of  different  scenarios.  Under  the  Eurostat  assumption  of  moderate
immigration33, demographic ageing will cause the EU-25 working age population to
fall from 303 to  297 million by 2020,  and to  280  million  by  2030.  This  decrease  is
due to the long lasting effects of the reduction of fertility rates since the mid-1970's
and  it  will  be  coupled  with  an  increase  in  the  age  group  of  the  over  65.  Under  the
same assumptions34, the number of people in this age group will increase from 71 in
2000  to  93  in  2020,  up  to  110  million  in  2030  for  EU-25,  thus  causing  the  old  age
dependency ratio to increase from 23% to 40% (see Figures 6 and 7)35. Moreover, the
number of those aged 80 and over in EU-25 is projected to increase from almost 16
million in 2000 to some 30 million in 2030.

For  the  purpose  of  this  Communication,  the  significance  of  these  demographic
developments  for  employment  growth  can  be  brought  out  by  an  illustrative
demographic  scenario  incorporating  the  achievement  of  the  Lisbon  target  of  a  70%
employment rate by 2010 and a constant rate of employment afterwards36. In such a
scenario, an overall decline of  employment  could be expected  after 2010  (see  graph
below) and the fall in the number of employed people between 2010 and 2030 would
be in the order of 20 million workers for EU-2537. In an alternative scenario where the
employment rate rose above the 70% target after 2010 to reach 75%, the decrease in
the  volume  of  employment  would  occur  anyway,  but  at  a  later  point  in  time  and  it
would be smaller. This fall in employment expected in these scenarios with constant
employment rate as of 2010 or 2020 cannot be reversed by (unexpected) increases in
fertility  rates,  as  it  would  take  more  than  two  decades  for  "new  baby  boomers"  to
reach their working age and contribute to the growth of total employment.

31  J. Coppel et. al., (2002) Ibid
32  See  for  instance  the  Joint  Report  on  Labour  Participation  and  Active  Ageing;  Social  Situation

Report 2002 and 2003

33 The Eurostat current baseline scenario assumes a rather low net yearly inflow of immigrants to EU-
15  at  around  630.000,  corresponding  to  a  net  contribution  to  the  working  age  population  of
approximately 450.000 persons.
In  particular,  these  long-term  projections  for  the  Union  do  not  account  for  some  long-term
developments such as the possibility of Turkey joining the Union.

34

35 With  an  employment  rate  of  70%,  the  number  of  employed  per  persons  aged  65  and  over  will
decline from 2.7 in 2010, to some 2.2 in 2020, 1.8 in 2030, 1.5 in 2040. If, after reaching the Lisbon
target, the employment rate were to rise further to 75% between 2010 and 2020, the decline in this
ratio would be attenuated, reaching 2.4 in 2020.
In  order  to  highlight  the  consequences  of  demographic  change  per  se,  the  same  hypothesis  of
migration flows is considered.
37 13 million workers for EU-15.

36

12

                                                
Scenario of future employment levels (EU-25, period 2000-2030)
Total employment (in millions) assuming an employment rate of 70 % in 2010 and
for the following period until 2030

s
l
e
v
e
l

t
n
e
m
y
o
p
m
E

l

2 4 0

2 3 0

2 2 0

2 1 0

2 0 0

1 9 0

1 8 0

E U 2 5 : A c h ie vin g  7 0 %
e m p lo ym e n t ra te  u n til
2 0 1 0

2 0 0 0

2 0 0 5

2 0 1 0

2 0 1 5

2 0 2 0

2 0 2 5

2 0 3 0

The  decline  in  the  total  volume  of  employment  implies  a  negative  contribution  of
employment  to  economic  growth  since  the  latter  is  the  combined  impact  of
employment  and  productivity  growth.  The  negative  contribution  of  employment  to
economic  growth  could  be  compensated  by  increases  in  productivity  growth.
However,  under  the  assumptions  of  the  demographic  scenario  presented  above,  an
average GDP growth rate at 2.5% (average EU growth since 1990) would imply that,
between 2010 and 2020, productivity growth would have to reach 2.8% and between
2020 and 2030 it would have to climb beyond 3.0%, in order to compensate for the
fall in employment. The increase would have to be even higher  if  a  3%  growth rate
were to be achieved, which would be an extrapolation of the performance envisaged
at Lisbon (see Figure 8 in the annex). Under the  assumptions that no adjustments in
other variables affecting productivity and  growth would take place, these  results are
indicative of the magnitude of the effects involved when the Lisbon target of a 70%
employment rate by 2010 is achieved and maintained.

Although  the  potential  of  labour-saving  technologies  should  not  be  underestimated,
the possibility for productivity growth to reach the magnitudes mentioned above may
be  put  in  question  when  considering  recent  trends:  for  EU-15,  labour  productivity
grew on average by 4.5% in the 1960s, 2.5% in the 1970s and 2% in the 1980s before
falling  tendentially  towards  1.2%.  The  impact  on  productivity  of  declining
employment and ageing of the workforce will not necessarily be positive. It will occur
through a variety of channels including the adoption of labour saving technology as a
result  of  tightening  labour  markets,  the  difficulty  of  ageing  workers  to  adapt  to  the
new  requirements  of  the  labour  market,  changes  in  the  saving  rate  which  in  turn
would constrain the pace of investment and of the embodiment of innovation into new
capital goods38, a risk for returns of human capital investment to decline in an ageing

38 The life-cycle model points towards some decline in the saving rate in function of ageing. However,
the negative effect this should have on investment  might be mitigated by  new possibilities due to
increases in returns on foreign direct investment (see 2002 Annual Economic Review, chapter 4)

13

 
                                                
population, changes in the pace of investment in research39, technological change and
changes  in  the  overall  sectoral  and  geographical  mobility  as  the  share  of  young
workers in the workforce declines.

Overall,  and  although  the  combination  of  the  factors  influencing  productivity  is
difficult  to  predict,  it  is  questionable  whether  the  productivity  growth  needed  to
compensate  for  the  decrease  in  employment  will  occur.  Without  an  increase  in
employment derived from increased immigration and unless productivity growth rises
above its current range (0.5-1.5%), the average GDP growth in the EU calculated in
the  depicted  scenario  would  slow  down  to  1%  between  2010-2020  and  to  0.6%
between 2020-2030.

Such a scenario does not take into account the multiple adjustment processes  which
the  economy  will  undergo.  Adjustments  are  to  be  expected  in  variables  such  as
exchange  or  interest  rates,  level  and  composition  of  savings,  consumption  and
investment,  as  well  as  in  the  international  flows  of  capital  and  goods  and  services
between  areas  which  are  differentially  exposed  to  ageing.  In  its  Annual  Economic
Review 2002, the Commission has included this type of effect in a general equilibrium
model estimating that the impact of demographic ageing on growth of GDP per capita
amounts  to  a  reduction,  relative  to  the  baseline  scenario,  of  0.4  %  of  the  annual
growth rate over the period 2000-2050. These estimates, however, do not consider the
possibility  of  policy  changes  in  response  to  the  ageing  dynamics  and  their  positive
effects on overall growth40.

The  impact  of  demographic  ageing  on  the  welfare  system  is  already  noticeable41.
Increasing  employment  would  also  reduce  the  burden  of  other  types  of  welfare
payments  such  as  unemployment  benefits.  However,  even  if  the  employment  rate
target of 70% is achieved and maintained throughout the coming decades, the old age
dependency ratio will continue to  rise (see  figure 7  in  annex). Therefore, it  must be
stressed that immigration could contribute to improving the sustainability of pensions
only to the extent that it eases the trend towards a fall in the volume of employment
after 2010. However, in the longer term, the impact of ageing on the welfare systems
cannot be averted without significant increases in fertility.

2.4. 

The employment outlook and the potential of immigration

Although the economic implications of socio-demographic change will only become
fully  visible  as  time  goes  by,  some  effects  of  the  changing  demographic  and  skills
structure of the working-age population are already noticeable42. In particular, while
difficult to measure and to monitor, labour shortages have increasingly been reported
over  the  recent  economic  cycle  and  they  tend  to  remain  in  the  recent  period  of

39 See  in  particular  the  Barcelona  objective  to  boost  investment  in  research  (COM(2003)226  and

SEC(2003)489)

40 These figures mentioned in the 2002 Annual Economic Review are not directly comparable to those
provided  in  the  demographic  scenarios  as  the  latter  refer  to  growth  of  GDP  rather  than  GDP  per
capita, as well as making the assumption of reaching the Lisbon target of a 70% employment rate
41 For a more detailed analysis, see the 2002 Annual Economic Review and the 2002 Joint Report by

the Council and the Commission on Pensions

42 See  Employment  in  Europe  2002  for  an  analysis  of  structural  changes  in  the  European  labour

markets

14

                                                
economic  downturn.  To  respond  to  these  challenges  and  fulfil  the  objectives  set  in
Lisbon,  the  EU  must  first  and  foremost  mobilise  its  current  human  resources,
including  migrant  workers  residing  in  the  EU.  However,  as  the  problem  of  labour
shortages tends to increase, this will put into question the ability of EU labour markets
to deliver jobs in sufficient numbers to meet the needs of the labour demand.

In the short run, labour migration may help reduce the labour shortages experienced
notably in information and communication technologies, in advanced technologies or
in health  care,  but  also  among  some  low-skilled  occupations.  The  experience  of  the
recent past  in which  some sectors have  been  consistently  reporting  labour  shortages
(e.g. the IT sector, health services, construction) shows that it is not necessarily easy
to  solve  these  shortages  by  tapping  into  the  local  labour  force.  One  way  to  do  this
would  be  to  make  more  use  of  the  possibilities  provided  under  the  WTO  General
Agreement on Trade in Services (GATS) to negotiate commitments allowing for the
temporary  entry  of  people  who  are  coming  to  provide  a  service  (so-called  “Mode
4”).43  This  could  be  particularly  important  in  fields  such  as  IT,  where  third  country
companies  are  winning  contracts  to  supply,  for  example,  outsourced  software
services.  The  services  are  produced  in  the  third  country,  but  generally  require  a
number of  professionals from  the service supplier  to  be  able to work  temporarily  in
the  country  in  question  to  ensure  that  the  contract  runs  smoothly.  Currently  the
conditions  for  this type  of  entry  vary  widely  among  Member  States.  In  the  medium
run, labour shortages are  going to be reinforced  and needs may well develop across
the  board,  including  high  skills  but  also  low  skills.  The  main  challenge  will  be  to
attract  and  recruit  migrants  suitable  for  the  EU  labour  force  to  sustain  productivity
and economic growth. In the context of increasing skills gaps and mismatches, which
require  time  to  be  overcome,  it  is  becoming  recognised  that  economic  immigration
can  play  a  role  in  tackling  labour  market  imbalances,  provided  the  qualifications  of
immigrants are appropriate.

Managing  the  shape  and  dynamics  of  future  immigration  flows  to  make  them
appropriate  for  the  EU  economy  can  prove  difficult  in  practice  as  immigration  is
caused  by  multiple  factors  which  can  be  beyond  the  scope  of  any  single  public
authority.  However,  governments  increasingly  recognise  that  a  more  pro-active  and
forward-looking  approach  to  immigration  is  needed  to  facilitate  integration  into
employment and that, unless a more open approach is taken to legal immigration, the
EU  may  be  faced  with  increasing  pressures,  running  the  risk  of  increased  illegal
immigration.  Several  OECD  and  EU  countries  have  already  initiated  specific
programmes  or  introduced  changes  in  their  regulations  to  facilitate  access  to  their
labour  markets  for  skilled  immigrant  workers,  in  particular  for  high  skilled  workers
such  as  researchers  and  software  engineers.  Some  countries  are  also  considering
selective  employment-related  immigration  policies  to  alleviate  labour  shortages,
although the objectives and  procedures  may differ significantly from one country to
another.

43

It is to be noted that this type of temporary migration is likely to expand in the service sector as a
result  of  the  on-going  negotiations  of  the  Doha  Development  Agenda  as  the  World  Trade
Organisation  General  Agreement  on  Trade  in  Services  provides  possibilities  to  negotiate
commitments allowing for the temporary entry of people who are coming to provide a service (so-
called "Mode 4"). The EU already uses this mechanism to indicate its willingness to accept certain
highly skilled temporary migrants (for example those transferring within a company)

15

                                                
Such policies cannot be designed in a simple way and their potentialities need to be
better  assessed,  as  well  as  their  limits,  with  the  help  of  improved  statistical
information.  However,  even  with  better  data,  it  would  be  illusory  to  think  that  the
future  needs  of  the  labour  market  by  sector  and  occupations  can  be  accurately
forecast.  The  migrants  most  likely  to  help  match  demand  and  supply  are  those
adaptable  enough  to  face  changing  conditions,  in  view  of  their  qualifications,
experience and personal abilities. The selection mechanisms must be geared towards
these  would-be  migrants  and  offer  them  sufficiently  attractive  conditions.  This  is
likely  to  result  in  increased  competition  within  the  Union  and  between  OECD
countries. Such a competition calls for co-ordination to ensure a level playing field.

Moreover,  public  authorities  frequently  refer  to  the  temporary  and  even  seasonal
nature of the immigration they are willing to allow, but this is not often realistic. Past
experiences  of  immigration  have  also  demonstrated  that  it  is  extremely  difficult  to
sustain temporary  immigration schemes, because people who  want  to  stay  generally
find ways of doing so. One must also bear in mind that the effective integration and
contribution  of  migrants  into  the  labour  market  may  require  some  time  and  that  the
attenuation  of  the  demographic  imbalances  which  are  expected  in  the  medium  term
will depend largely on permanent immigration.

The  success  of  overall  immigration  policies  in  terms  of  employment  will  be
conditioned  by  the  ability  of  the  EU  to  fully  tap  the  potential  of  immigration  while
being consistent with broader social, economic, foreign, development and trade policy
objectives.  The  recourse  to  immigrants  should  not  be  detrimental  to  developing
countries, particularly with respect to the brain drain44. Moreover it should not lead to
lasting discrepancies between the sectoral or occupational distribution of immigrants
and nationals in the EU. Such unbalances lead to segregated labour markets, hamper
the achievement of the overall upgrading quality of work which is at the core of the
European  employment  strategy  and  they  may  result  in  lasting  dependency  on
migration  to  ensure  that  the  low  quality  jobs  are  filled.  Shaping  immigration  would
also require that changes in the status of migrants or in the duration of their stay are
under  control  and  that  undeclared  work  of  immigrants  is  tackled,  as  part  of  a
comprehensive approach to undeclared work.

Finally,  non-economic  types  of  immigration  (e.g.  family  reunification  and  refugees)
will  always  play  a  role  in  migration  flows  and  it  is  important  to  acknowledge  and
develop the aptitudes and skills of migrants coming through these channels.

2.5. 

Is immigration a solution to demographic change?

The hypothesis of using replacement immigration to meet the needs of a declining and
ageing  EU  population  has  been  widely  studied45.  As  was  shown  above,  a  zero
increase in current net flows will result in significantly lower rates of employment and
economic  growth.  At  the  same  time,  using  immigration  to  fully  compensate  the
impact  of  demographic  ageing  on  the  labour  market  is  not  a  realistic  option.  In
addition,  when  discussing  net  immigration,  one  should  also  bear  in  mind  that

44 See the discussion in the Communication on relationships with third countries (COM(2002)703)
45 See,  for  instance,  UN  (2000),  Replacement  Migration:  Is  it  a  Solution  to  Declining  and  Ageing

Populations?, Population Division, Department of Economics and Social Affairs, New York

16

                                                
emigration from the EU also takes place and that its shape and dynamics is as difficult
to predict46.

Maintaining  the  working-age  population,  and  even  more  so  maintaining  old-age
dependency  ratio,  would  require  massive  increases  in  immigration  until  2030.  A
major  limitation  of  such  increase  in  economic  terms  would  be  the  fact  that  the
immigrant  population  is  also  ageing,  in  line  with  the  indigenous  demographic
patterns. Therefore, any "immigration boom" over the next decades would, under the
same assumptions, result in a similar situation as witnessed today but at a later point
in  time.  From  a  social  cohesion  perspective,  any  massive  increase  in  immigration
would also increase the challenge of integration to a much larger extent.

However,  more  sustained  immigration  flows  are  increasingly  likely  and  necessary.
The trend towards a shrinking working age population in Europe in combination with
various push factors in the developing countries is likely to generate a sustained flow
of  immigrants  over  the  next  decades.  Immigration  can  help  in  filling  current  and
future needs of the EU labour markets. In addition, it can contribute to spreading the
effects of the demographic transition between 2010 and 2030 over a longer period of
time,  bearing  in  mind  that,  on  its  own,  it  cannot  solve  all  the  effects  of  population
ageing.  It  will  therefore  be  important  to  find  ways  of  managing  these  migratory
pressures  through  adequate  policies  of  entry  and  settlement.  It  will  be  of  equal
importance  to  realise  the  potential  benefits  of  immigration  and  to  facilitate  the
integration  of  immigrants  through  better  policies  on  immigration  and  integration  at
local, regional, national and EU level.

3. 

THE CHALLENGE OF INTEGRATION: A HOLISTIC APPROACH

The successful integration of immigrants is both a matter of social cohesion and a pre-
requisite for economic efficiency. In the context of the Tampere and Lisbon agendas,
and in the light of the challenges highlighted above, it is crucial to ensure successful
integration of both established and future immigrants. Persisting issues in relation to
existing populations of immigrants demonstrate that greater efforts are needed47. Low
employment and high unemployment rates even among 2nd generation immigrants are
a characteristic example of these difficulties.

3.1. 

Definition and scope

For  the  purpose  of  this  Communication,  integration  should  be  understood  as  a  two-
way process based on mutual rights and corresponding obligations of legally resident
third country nationals and the host society which provides for full participation of the
immigrant. This implies on the one hand that it is the responsibility of the host society
to  ensure  that  the  formal  rights  of  immigrants  are  in  place  in  such  a  way  that  the
individual  has  the  possibility  of  participating  in  economic,  social,  cultural  and  civil

46 As mentioned above, net migration flows do not show the size of inward and outward movements
47 For  a  state  of  the  art  of  EU  projects  on  this  topic  carried  out  under  the  Fourth  Framework
Programme for Research and Development see the report “Migration and integration as challenges
to  European  society:  assessment  of  research  reports  carried  out  for  the  European  Commission  ,
Targeted  Socio-Economic  Research  (TSER)  Programme,  available  on  the  following  website:
http://www.cordis.lu/improving/socio-economic/publications.htm

17

                                                
life and on the other, that immigrants respect the fundamental norms and values of the
host  society  and  participate  actively  in  the  integration  process,  without  having  to
relinquish their own identity.

The  Commission  drew  attention,  in  its  Communication  of  November  200048  to  the
many different categories of immigrant who should benefit from integration measures
-  the  main  groups  being  labour  migrants,  family  members  admitted  under  family
reunion  arrangements,  refugees  and  persons  enjoying  international  protection.
Integration involves the development of a balance of rights and obligations over time,
thus the longer  a third country national resides  legally in  a Member  State,  the  more
rights  and  obligations  such  a  person  should  acquire.  This  “incremental  approach”
implies that integration measures should be available to all third country nationals as
early  as  possible  after  their  arrival  and  in  any  case  as  soon  as  their  stay  acquires  a
degree of permanence or stability. Often 2nd and 3rd generation immigrants who were
born  in  the  EU  or  have  obtained  nationality  or  immigrants  from  former  colonies
holding  the  nationality  of  the  host  country,  also  need  to  benefit  from  specific
integration measures.

Refugees, including resettled refugees and persons enjoying subsidiary or temporary
protection49, should also be eligible for integration measures. As with other categories
of immigrants, these may vary according to their specific needs50 and length of stay.51
Asylum seekers, however, constitute a special group of third country nationals who do
not have an ordinary status as legal residents and whose stay is neither permanent nor
stable.  Integration  measures,  or  rather,  policies  aiming  at  their  introduction  to  the
country  of  asylum,  are  necessary  under  certain  conditions,  but  it  falls  outside  the
scope of this Communication to examine these in detail52.

3.2. 

The need for a holistic approach

The  Commission  identified  in  its Communications  of  2000  and  200153  a  number  of
principles  which  need  to  underpin  integration  policies  and  these  are  equally  valid
today.  The  most  important  being  the  need  for  a  holistic  approach  which  takes  into
account not only the economic and social aspects of integration but also issues related
to cultural and religious diversity, citizenship, participation and political rights. While
priorities  will  vary  between  countries  and  regions,  integration  policies  need  to  be
planned  within  a  long-term,  coherent  overall  framework,  and  at  the  same  time  they
should  be  responsive  to  the  specific  needs  of  particular  groups  and  tailored  to  local
conditions. They depend on the establishment of partnerships between a wide range of
stakeholders  and  need  adequate  resources.  Members  of  the  immigrant  communities
concerned,  including  women  and  persons  enjoying  international  protection  should

48 COM(2000)757
49 Council Directive 2001/55/EC of 20 July 2001, OJ L 212, 7.8.2001
50 See further on the special needs of vulnerable refugees, section 3.5.1 below
51 Although  a  maximum  duration  of  stay  has  been  fixed  for  temporary  protection  at  EC-level  and
some  labour  migrants  only  enter  the  Union  for  a  short  fixed  term,  these  persons  may  have
legitimate grounds for a prolonged legal stay within the EU
Integration  measures for asylum  seekers are specifically dealt  with in the proposals for a  Council
Directive  laying  down  minimum  standards  on  the  reception  of  applicants  for  asylum  in  Member
States COM(2001)181 of 3 April 2001

52

53 COM(2000)757 and COM(2001)387

18

                                                
take part in the conception, development, organisation and evaluation of programmes
and policies affecting them.

While specific integration programmes are an important element in the initial phase of
integration,  in  the  longer  term  the  objective  should  be  to  enable  migrants  to  access
existing  services  and  to  ensure  that  these  take  into  account  their  specific  needs.  It
should  be  noted  in  this  context  that  many  integration  measures  can  serve  a  double
purpose. They will facilitate integration in the host country, but can also prepare  for
return.54 For instance, most educational measures, including vocational training, will
provide  the  persons  concerned  with  qualifications,  which  may  be  useful  for  the
development of their home country in case of return.

3.3. 

Key elements in holistic integration policies

The need  for a holistic  approach  calls for comprehensive  integration policies.  In  the
following  section  a  number  of  elements  and  core  issues  which  are  of  particular
relevance for a successful integration strategy will be discussed. The issues raised and
the challenges identified are at the same time  elements which could be the object of
further  discussion  and  exchange  of  information  and  best  practices  between  Member
States.

3.3.1

Integration into the labour market

Access  to  the  labour  market  is  crucial  for  the  integration  of  third  country  nationals
into  society  and  the  vast  majority  of  immigrants  and  persons  enjoying  international
protection  have  qualities  and  competencies  that  are  needed  in  the  European  Union
today.  Their  full  integration  into  the  EU  labour  market  might  further  contribute  to
enable  the  EU  economy  to  deliver  its  full  potential  of  competitiveness,  growth  and
employment. Present employment rates of immigrants  demonstrate however  that  the
potential  contribution  of  immigrants  is  not  always  fully  realised.  At  52.7%  the
employment rate of non-EU nationals in EU-15 is significantly lower than the 64.4%
rate for EU nationals (see figure 9 in the annex). The difference is particularly strong
for  women.  At  the  same  time,  immigrants  are  over-represented  in  risky  sectors  of
employment,  in  undeclared  work  of  low  quality,  and  in  population  segments
particularly  exposed  to  health  risks  and  social  exclusion.  In  addition,  well-educated
and  skilled  immigrants  are  often  unable  to  find  work  which  matches  their
qualifications and have to accept lower qualified and lower paid work.

In  order  to  maximise  the  potential  contribution  of  migrants,  it  is  important  to  build
upon their previously acquired experience and qualifications already obtained outside
the  EU.  This  requires  recognition  and  proper  assessment  of  formal  and  informal
qualifications (including diplomas). It also means paying more attention to removing
barriers  to  obtaining  and  retaining  employment  such  as  inflexibility  in  job
requirements  or  legal  restrictions  concerning  e.g.  linguistic  competencies  or
nationality.55  Discrimination  at  the  workplace  and  racist  behaviour  are  also  major
barriers  which  must  be  removed.  Special  efforts  are  needed  to  assess  and  up-grade

54 Persons in need of international protection  will expect to return once conditions in the country of

origin permit, but it also applies to immigrant whose stay is short term

55 European Conference on Successful integration on the Labour Market, Copenhagen 4-5 July 2002

19

                                                
immigrants’  skills,  including  language  ability,  to  enable  them  to  enter  the  labour
market and to make sure that they then have access to on-going training on an equal
footing  with  nationals.56  Such  active  labour  market  policies  should  foster  the
integration of immigrants  into  the  labour  market  with  a  view  to  reducing  by  half  in
each  Member  State  the  unemployment  gap  between  non–EU  and  EU  nationals  by
201057. The social partners have an important role to play in this area, particularly to
ensure  that  migrant  workers  are  treated  equally  with  respect  to  pay  and  working
conditions and that ways are found to deal with any specific needs.

Diversity management - that is management of diversity in the workforce, in lifestyle
and in the role of enterprises in society - can be an important instrument to promote
the  integration  of  migrants  in  the  labour  market.  At  the  same  time  it  can  be  an
effective  and  profitable  strategy  for  employers  by  helping  them  to  achieve  their
business  goals  through  its  focus  on  the  commercial  possibilities  arising  from
increased  diversity  in  society  and  taking  fully  into  account  the  competencies  of
employees  from  different  backgrounds  (e.g.  language  skills  and  intercultural
understanding).  Diversity  management  is  not  only  about  recruiting  a  diverse
workforce, but also about managing and readjusting the organisation to benefit from
it.  International experience  shows  that many enterprises  and  public  institutions  have
gained significantly from implementing such strategies. Although integration into the
labour market constitutes a key element of the process of integration, it is unlikely to
succeed  in  the  longer  run  if  it  is  not  backed  up  also  by  the  all  round  integration  of
immigrants in the social, cultural and political life of the host society58.

3.3.2

Education and language skills

Education  and  training  are  key  factors  in  successful  integration.  There  are  major
problems for immigrants with respect to the recognition of their academic attainments
and  qualifications.  This  impedes  the  effectiveness  of  educational  guidance  services.
Insufficient educational attainment may be reflected in the comparatively lower rates
of employment for non-EU nationals (see Figure 10 in the annex). A core concern in
most  Member  States  is  the  ability  of  immigrants  to  speak  the  language  of  the  host
country. Poor language ability is seen as the main barrier to successful integration. At
the same time many Member States insist that poor language skills should not inhibit
access to the labour market or to the educational system. On the contrary, they believe
that  participation  in  working  life  or  in  education  and  training  contributes  to  the
development  of  the  necessary  language  skills.  Taking  into  account  childcare  and
cultural  and  religious  dimensions,  such  an  approach  is  particularly  important  for
migrant women to enable them to follow language courses, all the more so as this may
influence the language proficiency of their children.

It should be noted that the education system plays an essential role not only when it
comes to knowledge acquisition but also as a place for acquiring formal and informal
information on norms and values in society and as a cultural bridge. It is an important

56 See also Opinion of the Economic and Social Committee on Immigration, integration and the role

of civil society organisations, 21 March 2002

57 See  proposal  for  a  Council  decision  on  guidelines  for  the  employment  policies  of  the  Member

States, COM(2003)176 of 8.4.2003, page 13

58 European Conference on Successful Integration (Ibid.)

20

                                                
tool  for  the  encouragement  of  pluralism  and  diversity  with  respect  to  both  the
immigrant population and the host society and thus for combating discrimination.

A number of issues related to the education of migrant children need to be addressed.
Diversity  should  be  reflected  in  the  curriculum,  close  co-operation  between  parents,
immigrant  communities  and  schools  should  be  pursued  and  any  special  problems
addressed  e.g.  where  there  are  large  numbers  of  immigrant  children  in  the  same
school.

3.3.3

Housing and urban issues

The spatial distribution of immigration varies considerably across Member States and
regions,  with  a  relatively  higher  concentration  in  urban  and  industrialised  areas.
Integration problems occur particular in those ethnically mixed – and often deprived –
areas where racism and xenophobia are obstacles to migrants’ sense of belonging and
participation. The location of employment clearly impacts on the choice of residence,
which may also be explained by the patterns of earlier immigration and the presence
of  established  communities.  Immigrants  now  form  an  increasing  proportion  of  the
population of cities and urban areas and it is likely that their numbers will grow in the
next  decades.  Access  to  housing  is  a  basic  necessity  in  integration,  and  the  lack  of
affordable quality housing in ethnically mixed areas is a problem many migrants and
refugees encounter.

immigrants 

A  number  of  ‘constraint  and  choice’  factors  -  such  as  the  opportunities  of  getting
accommodation  and  work,  the  wish  to  live  close  to  relatives  and  maintain  family
networks,  discrimination  –  are  responsible  for  this  situation  which  leads  to  a  large
in  deprived  urban  areas.59  Ethnic  residential
number  of 
concentration  or  so-called  ghettos  tends  to  isolate  communities  and  prevent  their
participation in the wider society. Although tight community networks can bring new
life and regeneration to neglected neighbourhoods  -  for  example  through  the  setting
up  of  small  businesses  -  ethnic  and  social  segregation  in  cities  can  also  be  a  major
barrier to integration.

living 

Comprehensive  urban  and  regional  planning  strategies  taking  into  account  e.g.
infrastructure,  housing,  leisure,  shopping,  health  service,  transport  and  school
facilities  and  the  needs  of  the  local  labour  market,  can  overcome  these  barriers  and
reduce  the  negative  consequences  of  urban  segregation,  including  social  tension
between  immigrants  and  the  host  population.  High  concentration  and  spatial
segregation  also  create  many  of  the  conditions  on  which  illegal  immigration  and
trafficking  can  feed  just  as  these  phenomena  stimulate  the  development  of
discriminatory attitudes in the host society.

3.3.4

Health and social services

Access  to health and social services for immigrant populations  is another key  area
where  adaptation  of  existing  policies  may be necessary.  Immigrant populations may
suffer  from  particular  health  problems  resulting  for  their  situation  (e.g.  separation
from  family  members,  uncertainties  arising  from  their  status  especially  if  this  is

59 European Conference on Successful integration on the Labour Market, Copenhagen 4-5 July 2002

21

                                                
temporary).  Where  a  pattern  of  insecurity  and  poor  living  and  working  conditions
exists this can also result in associated health problems which are largely preventable
with  the  right  policies  in  place.  At  the  same  time,  immigrant  populations  face
difficulties accessing high quality health and social services. A number of issues need
to  be  addressed  including  making  available  adequate  information  for  migrant
communities  and  providing  additional  training  for  the  personnel  responsible  for
delivering  the  services.  An  increased  participation  of  persons  with  different  ethnic
backgrounds  in  the  planning  and  delivery  of  health  services  should  help  to  prevent
discrimination  and  ensure  that  services  take  account  of  cultural  barriers  and  are
sensitive to the specific communities in which they operate.

3.3.5

The social and cultural environment

The  active  involvement  and  participation  of  immigrants  and  persons  enjoying
international  protection  in  civil  life  is  very  important.  Measures  are  needed  to
encourage  this  participation  in  e.g.  sports  clubs,  school  boards  or  other  local
community life, and they should be encouraged to take part in public debate. Meeting
others is an important step in settling down and  becoming a  part of the host  society
and  interaction  between  different  cultures  and  religions  will  increase  tolerance  and
respect. Here renewed efforts are necessary as  a result of a  growing tendency in the
public  to  blame  immigrants  for  the  insecurity  in  our  societies  and  general  hostility
towards  Muslims  which  has  arisen  since  the  events  of  11  September  2001  in  the
United States. Accurate information about immigrants and their positive contribution,
both economically and culturally, to our societies needs to be publicised as failure to
meet this challenge may fuel resentment, social exclusion and the rise of racism and
xenophobia. Promoting a generally positive attitude in the public towards immigrants
requires  strong  political  leadership  and  a  clear  commitment  to  the  promotion  of
pluralistic  societies  and  a  condemnation  of  racism.  Here  politicians  and  the  mass
media have  a major  responsibility in their  role as  educators of public  opinion.  They
should set an example for civil society by emphasising the value of the contribution
immigrants make and ensuring that the general coverage of integration issues and the
tone of the public debate is balanced and based on accurate information.

3.3.6

Nationality, civic citizenship and respect for diversity

The Tampere Conclusions endorsed the objective that long-term legally resident third
country nationals be offered the opportunity to obtain the nationality of the Member
State  in  which  they  reside.  It  is  widely  recognised  that  acquiring  nationality  is  a
means  of  facilitating  integration,  although  it  need  not  be  the  ultimate  aim  of  the
integration  process  and  it  does  not  by  itself  avoid  problems  arising  from  social
exclusion and discrimination. Obtaining nationality is important, however, because it
encourages a sense of belonging in national life. Nationality entitles the bearer to full
citizens’  rights  guaranteeing  de  jure  participation  in  the  political,  civil,  social,
economic and cultural life of the Member State.

On the premise that it is desirable that immigrants become citizens, it is reasonable to
relate access to citizenship to the length of time they have been living in the country
concerned, and to apply different principles for 1st and 2nd/3rd generation immigrants.
For  the  latter,  nationality  laws  should  provide  automatic  or  semi-automatic  access
whereas it is reasonable to require the first generation to make a formal application for
citizenship. Naturalisation should be rapid, secure and non-discretionary. States may

22

require  a  period  of  residence,  knowledge  of  the  language  and  take  into  account  any
criminal  record.  In  any  case,  criteria  for  naturalisation  should  be  clear,  precise  and
objective.  Administrative  discretion  should  be  delimited  and  subject  to  judicial
control.

In  its  November  2000  Communication60,  the  Commission  introduced  a  concept  of
civic  citizenship,  defined  as  guaranteeing  certain  core  rights  and  obligations  to
immigrants which they  would  acquire  gradually over  a  period  of  years,  so  that  they
are  treated  in  the  same  way  as  nationals  of  their  host  state,  even  if  they  are  not
naturalised.  The  Charter  of  Fundamental  Rights  establishes  a  basic  framework  for
civic  citizenship  some  rights  applying  because  of  their  universal  nature  and  others
derived  from  those  conferred  on  citizens  of  the  Union.61  In  fact,  Community  law
already confers62 or proposes to confer63 many  of these rights on  all  persons  legally
resident  in  the  Union.  Enabling  migrants  to  acquire  civic  citizenship  after  a  certain
period  of  years  would  help  many  immigrants  to  settle  successfully  into  society.  It
could  also  be  a  first  step  in  the  process  of  acquiring  the  nationality  of  the  Member
State concerned.

Another important element of the concept is to make political participation possible.
Several  Member  States64  already  grant  local  franchise  to  all  foreign  residents  under
certain  conditions.  From  the  point  of  view  of  integration,  it  is  obvious  that  local
franchise should derive from permanent residence, rather than from nationality65. The
Commission  believes,  that  granting  long-term  resident  immigrants  political  rights  is
important for the integration process and that the Treaty should provide the basis for
so doing.

3.4. 

The main actors in a holistic integration policy

A key condition for successful implementation of a holistic approach to immigration
is  to  improve  the  overall  policy  coherence  and  synergies  between  immigration,
integration,  employment  policies  at  all  levels  and  across  all  disciplines.  This  would
lead to better governance of immigration issues, closer monitoring and increased co-
operation  between  all  relevant  actors  from  local  to  regional,  national,  and  EU
authorities  and  including  countries  of  origin.  However,  while  governments  should
take  the  lead,  collaboration  around  policies  should  involve  the  Social  Partners,  the
research  community  and  public  service  providers,  NGOs  and  other  civil  society
actors, including immigrants themselves.

60 COM(2000)757
61 These rights are the right to free movement and residence, the right to work, to establish oneself and
to  provide  services,  the  right  to  vote  and  to  stand  as  a  candidate  in  elections  to  the  European
Parliament and in municipal elections, the right to diplomatic and consular protection as well as the
right  to  petition  and  to  access  documents  and  the  right  to  non-discrimination  on  the  basis  of
nationality

62 C.f. Article 194 and 195 of EC Treaty concerning right to petition the European Parliament and the

European Ombudsman and Article 255 on access to documents

63 C.f. Article 12 of the proposal for a Directive on the status of third-country nationals who are long-
term residents,  which includes freedom of  movement and the right of residence  within  the  Union
and the right to work, to establish oneself and to provide services

64 Denmark, Ireland, Netherlands, Sweden and Finland
65 See  also  Convention  on  the  Participation  of  Foreigners  in  Public  Life  at  Local  Level,  which  was

adopted by Council of Europe in 1992 and entered into force in 1997

23

                                                
Integration  policies are  often designed  at national level  and  implemented  at  local  or
regional  levels,  which  requires  a  very  good  co-operation  and  information  flow
between all actors involved. Both at national and local level NGOs play a central role
in  advocating  on  behalf  of  migrants  and  persons  enjoying  international  protection66
which  is  very  important  to  ensure  co-operation  and  understanding  between  the
implementing service providers and the users. The Social Partners have an important
role  to  play  in  the  integration  process  as  facilitators  of  everyday  integration  in  the
workplace  and  by  highlighting  the  importance  of  responding  to  cultural  differences,
they can increase workforce efficiency and enhance social responsibility.

All  of  the  above  actors  bear  part  of  the  common  responsibility  for  a  successful
integration  of  third  country  nationals  into  our  societies.  For  the  definition  and
implementation  of  policies  the  dialogue  with  key  actors  is  of  prime  importance,
however,  creating  a  spirit  of  integration  is  a  matter  for  EU  society  as  a  whole.
Sensitising the host population to the benefits and challenges of immigration are core
elements in a pro-active integration strategy.

3.5. 

Reflecting the needs of specific groups of migrants in integration policy

Although immigrants share a broad range of needs throughout the Union, some  will
have specific requirements and priorities which should  be  taken  into  account  within
overall integration strategies.

3.5.1

Refugees and persons enjoying international protection

Although  in  many  ways  refugees  and  persons  enjoying  international  protection  face
the same situation as others, issues concerning the very nature of forced migration and
the need for protection should be addressed for this group within national integration
strategies. It should be remembered that these persons have not chosen to leave their
country  of  origin  for  the  purpose  of  economic  migration,  and  may  need  additional
help  to  integrate  and  in  particular  to  access  mainstream  activities  at  the  earliest
possible opportunity. Refugee-specific programmes should be designed to supplement
normal services or act as bridges to them and should be targeted towards vulnerable
groups  within  the  refugee  community,  for  example  refugee  children,  the  elderly,
victims of sexual violence or torture and of those who are traumatised as a result of
persecution  and/or  flight.  A  key  concern  for  this  group  is  to  enable  them  to  take
responsibility for their lives and to encourage self-empowerment and sustainable self-
sufficiency.  This  is  particularly  important  since,  as  opposed  to  economic  migrants,
such persons, often have no family, communities or networks to fall back upon.

However,  refugees  are  generally  speaking,  highly  educated  and  qualified  and  often
face difficulties in obtaining recognition of their experience and qualifications. Some
specific  integration  requirements,  limitations  or  obligations,  which  may  be  imposed
on migrants may not apply as such to refugees. The ultimate sanction of revoking the
residence permit, which may apply to others who fail integration tests, cannot always
be imposed on refugees or persons enjoying international protection.

66 Conference on “Immigration: The Role of Civil Society in Promoting Integration”, Brussels, 9-10

September 2002

24

                                                
3.5.2

Gender issues

Another  important  category  is  that  of  women  bearing  in  mind  that  nearly  half  the
immigrants  entering  the  EU  every  year  are  now  female  and  that  an  increasing
percentage  are  coming  in  their  own  right  to  work,  many  as  nurses  or  in  the  caring
professions  or  as  domestic  servants.  Immigrant  women  may  suffer  from  double
discrimination due to their gender as well as to their ethnic origin. Special attention is
therefore needed to ensure equal access to the labour market and adequate education
and  training  and  in  particular  access  to  lifelong  learning.  Language  learning,
awareness of human, civic and social rights, including  norms and values in the host
society  as  well  as  training  for  new  skills  and  competences  are  essential  tools  for
integrating  both  men  and  women.  This  is  particularly  important  for  women,  given
their role as carriers of cultural traditions in the family  and  their  ability  to  influence
future generations.

Even  though  the  role  of  the  family  varies  from  one  culture  to  another,  it  generally
plays a central role in the integration process as it represents a fixed point of reference
for immigrants in the new host country. Family reunification with the nuclear family
is a key tool in this respect. It is mainly women who benefit from family reunification
arrangements  and  as  a  consequence  are  often  depending  on  a  family  member  with
respect to their residence status. They may have difficulty obtaining a job, which may
result in them moving into the informal sector. For this reason the Directive on family
reunification provides that women have access to the labour market and, if they are in
a particularly difficult situation, are granted an independent residence status.

3.5.3

2nd and 3rd generation immigrants

While  many  immigrants  in  the  European  Union  are  well  integrated,  there  are,
nevertheless, growing concerns in a number of countries about the situation of the 2nd
and 3rd generation. This is particularly the case for young people who have a parent or
parents who are non EU immigrants who are more likely to remain jobless.67 Social
and  racial  discrimination  may  prevent  2nd  and  3rd  generation  immigrant  youth  from
acceding on an equal footing with nationals to the jobs and place in society for which
they  are  qualified68.  For  many  the  situation  is  exacerbated  by  the  lack  of  a  clear
identity when there is a feeling of rejection by the host society while at the same time
ties with the country of origin have been weakened or lost altogether. The failure of
integration  policies  plays  a  part  in  enabling  these  phenomena  to  develop.  The
identification of the causes and the development of new policies to deal with them, in
which education and training and in  particular  lifelong  learning  will  be  crucial,  will
contribute to avoiding such problems in the future.

3.6. 

Dealing with illegal migrants

Third country nationals residing illegally in the EU present a major challenge for the
integration  process.  By  its  very  nature  the  number  of  such  persons  is  impossible  to
estimate  with  any  certainty  but  evidence  inter  alia  from  regularisation  procedures

67 Seminar  organised  by  the  Belgian  Ministry  of  Employment  and  Labour  and  the  OECD  on  the

integration of young migrants into the labour market, Brussels, 6-7 June 2002

68 See note 67

25

                                                
in  recent  years69  shows 

there  are  considerable  numbers.  The
carried 
implementation  of  the  Action  plans  already  adopted  by  the  Council  on  illegal
migration70, border control71 and return policy72 should make a major contribution to
reducing the flow of illegal migrants. The situation of those who are already living in
the Member States does, however, need to be addressed.

that 

Within the context of the common immigration policy the only coherent approach to
dealing  with  illegal  residents  is  to  ensure  that  they  return  to  their  country  of  origin.
However,  in  a  considerable  number  of  cases  it  is  not  possible  to  implement  such  a
policy  for  legal,  humanitarian  or  practical  reasons.  It  is  necessary  to  consider  this
group of people both from the point of view of their impact on the labour market and
with  respect  to  the  objective  of  integration  and  social  cohesion.  On  both  counts  the
presence of large numbers of illegal residents has a negative influence - as a source of
cheap  labour,  liable  to  exploitation  and  in  the  long-term  preventing  necessary
structural reform and thereby contributing to the inefficiency of the labour market. As
sectors  of  undeclared  work  and  illegal  immigration  feed  on  one  another  there  is  a
clear link with general policies to prevent and combat undeclared work, which must
also  be  reinforced  as  part  of  a  broad  policy  mix  to  transform  undeclared  work  into
regular  employment.  At  the  same  time  illegal  immigrants  are  excluded  from  full
participation in society, both as contributors and as beneficiaries, which contributes to
their marginalisation and fuels negative attitudes to them from local people.

While  policies  to  combat  illegal  immigration  must  remain  vigorous,  integration
policies cannot be fully successful unless the issues arising from the presence of this
group of people are adequately and reasonably addressed. Some Member States have
implemented  regularisation  measures  for  illegal  residents.  Such  procedures  may  be
seen  as  a  factor  which  enables  the  integration  process  to  develop  but  also  as  an
encouragement to further illegal immigration. This must however be balanced against
the problems arising  when large  numbers of illegal residents are present in Member
States.  It  should  be  remembered  that  illegal  immigrants  are  protected  by  universal
human rights standards and should enjoy some basic rights e.g. emergency healthcare
and primary school education for their children.

4. 

THE WAY FORWARD: POLICY ORIENTATIONS AND PRIORITIES

Within the context of the EU, the immigration policies of one country inevitably have
an impact on the others. There is now  a common additional factor  – the  pressure of
demographic change throughout the  EU.  The  EU  must  therefore  prepare  for  current
and future immigration in a responsible  and effective  way. In doing so, the  EU as a
whole must become more efficient in developing policies to ensure the integration of
the immigrants. The Commission intends to intensify its efforts in a number of areas
to  provide  a  more  coherent  European  framework  for  integration  and  to  ensure  that

69 CF Communication on a Common Policy on Illegal Immigration (COM(2001)672) of 15 November

2001

70 Comprehensive plan to combat illegal immigration and trafficking of human beings in the European

Union, 28 February 2002, OJ C 142 of 14 June 2002, p.23

71 Plan  for  the  management  of  external  borders  of  the  Member  States  of  the  European  Union  of  13

June 2002, Council Doc.10019/02, FRONT 58

72 Return Action Programme of 28 November 2002, Council Doc 14673/02, MIGR 125

26

                                                
immigration  contributes  as  effectively  as  possible  to  the  new  demographic  and
economic challenges which the EU is now facing.

To  address  the  consequences  of  demographic  ageing,  the  EU  must  first  tap  into  its
existing  human  resources.  Promoting  labour  force  participation  and  increasing
productivity are essential for meeting the Lisbon objectives of increased employment,
social  cohesion  and  economic  growth.  Immigrants  currently  residing  in  the  EU  can
make an important contribution. However, in the context of an ageing and shrinking
working-age  population,  more  sustained  immigration  flows,  without  solving  all  the
effects of demographic change, are increasingly likely and necessary to fill the needs
of the EU labour market.

A  forward-looking  approach  is  needed  which  must  encompass  both  the  need  to
promote  better  integration  of  new  and  established  immigrants  and  to  prepare  for
future immigration  for the  benefit of all. This  requires new  structures  and  ideas  and
the  mobilisation  and  co-ordination  of  a  range  of  relevant  policies  and  a  variety  of
actors at different levels. It  is  essential to ensure  that the specific  needs  of  migrants
are  fully  taken  into  account  in  mainstream  policies,  which  have  an  impact  on  their
situation.

4.1. 

Consolidating the legal framework

The Commission has already put forward a number of legislative instruments to create
the  basic  legal  framework  for  the  admission  and  conditions  of  stay  of  third  country
nationals.  Progress  with  the  adoption  of  these  directives  has  been  slow  and  while
welcoming  the  recent  agreement  in  the  Council  on  family  reunification,  the
Commission  urges  that  the  process  should  be  speeded  up  for  those  initiatives  still
pending and in particular that

(cid:1)  the directive on the status of long-term residents be adopted within the deadline
set by the Seville Council (June 2003) and that Member States, when transposing it
into  national  law,  consider  granting  political  rights  to  long-term  residents,  in
particular at local level;

(cid:1)  a  deadline  in  2003  be  set  for  the  adoption  of  the  directive  on  admission  for
employment  since  this  will  create  the  transparency  and  conditions  necessary  to
manage efficiently the admission of labour migrants to the EU;

(cid:1)  in the light of the adoption of the directive on the status of long term residents and
in  line  with  the  opinion  of  the  European  Economic  and  Social  Committee73,
consideration  might  be  given,  once  it  has  been  adopted,  to  extending  to  third
country nationals, the scope of the directive74 which has been put forward by the
Commission on the recognition of qualifications obtained in a Member State in
the  field  of  the  regulated  professions.  This  would  be  an  important  step  to  fully
integrate  immigrants  into  the  labour  market  by  ensuring  that  their  qualifications
and periods of study are recognised on equal terms with nationals;

73 ECOSOC  Opinion  (SOC/113)  of  18  September  2002  on  the  Proposal  for  a  Directive  of  the
European  Parliament  and  of  the  Council  on  the  recognition  of  professional  qualifications
COM(2002)119 final

74 COM(2002)119final, September 2002

27

                                                
(cid:1)  to  promote  the  fight  against  discrimination,  Member  States  ensure  that  the
directives  approved  in  2000  at  EU  level  are  translated  into  national  law  by  the
deadlines  in  2003  as  originally  foreseen.  The  Commission  encourages  Member
States  to  go  further  than  the  minimum  required  by  the  directives  and  to  promote
positive action, especially as regards the duty of public authorities to ensure equal
treatment for migrants so as to promote their integration.

The Commission will be particularly attentive to the transposition and implementation
of the instruments proposed under Article 63(3) which will have an important impact
on  the  integration  of  third  country  nationals.  The  Commission  will  also  consider
putting forward further legislative proposals as necessary to ensure the integration of
third  country  nationals,  refugees  and  those  benefiting  from  subsidiary  protection.
Pursuing  the  line  taken  in  existing  proposals  (see  section  1.1  above),  particular
measures  may  also  be  necessary  for  asylum  seekers  and  persons  granted  temporary
protection.

4.2. 

Re-inforcing policy co-ordination

4.2.1 Monitoring  the  development  of  the  common  immigration  policy:  an  annual

report

In its Communication of November 200075, the Commission had already highlighted
the need to closely monitor and evaluate EU immigration policy. In order to monitor
progress  over  time  and  to  ensure  the  overall  consistency  both  of  EU  policy  and
instruments with an impact on immigration and of national policies, the Commission
intends to prepare  an annual report on the development of the  common immigration
policy.  This  report  will  draw  on  the  information  provided  from  the  wide  range  of
different  EU  policies  and  initiatives  affecting  immigrants,  notably  those  mentioned
below. The aim  of  the  report  is  to  ensure  that  the  needs  of  immigrants  are  properly
streamlined  in  all  of  them  and  to  inform  the  Council  on  progress  made  in  the
mainstream  policies  and  programmes.  The  report  will  also  build  on  other  on-going
efforts to strengthen monitoring and evaluation at EU level of immigration policy (see
section 4.11 below). It will complement the annual report on the development of the
common European asylum policy.

4.2.2.

Strengthening the co-ordination of integration policies

In  its  Communication  of  July  2001  on  an  open  method  of  co-ordination  for  the
Community  immigration  policy76,  the  Commission  had  also  suggested  a  number  of
areas  where  it  considered  that  there  would  be  a  particular  value  in  reinforcing  co-
operation  and  exchange  of  information  between  Member  States.  One  of  these  areas
was the integration of legally resident third country nationals. Integration is a complex
process  that  presents  difficulties  in  conceptual,  practical  and  policy  terms.  Policies
must  take  account  of  the  characteristics  of  the  host  society  and  its  organisational
structure and there are, therefore, no single or simple answers. The issues to be dealt
with are, however, often similar and in the search for the best solutions, much can be
learned  from  the  experiences  of  others.  Integration  is  also  an  area  where  there  is  a

75 COM (2000)757
76 COM(2001)387

28

                                                
need  for  greater  convergence  with  respect  to  concepts  and  policy  objectives  as  a
consequence of the establishment of a common legal framework on the admission and
status of third country nationals.

The  Commission  proposes,  therefore,  to  develop  co-operation  and  exchange  of
information within the framework of the newly established Group of national contact
points  on  integration77  with  a  view,  in  particular,  to  strengthening  co-ordination  of
relevant  policies  at  national  level.  The  work  of  this  group  will  focus,  in  the  initial
phase, and in the light of the conclusions of the Thessaloniki Council, on areas which
are identified by the Member States as issues of common interest. This co-operation
process  will  be  developed  in  full  complementarity  and  synergy  with  other  EU
policies, particularly  those  on  social  cohesion  and  inclusion,  anti-discrimination  and
the  European  employment  strategy.  It  will  contribute  to  other  existing  processes  by
providing inputs so that the integration dimension is taken better into account by the
relevant  authorities  in  mainstream  policies.  Based  on  the  Commission’s  report  on
national  integration  policies,  prepared  at  the  request  of  informal  Justice  and  Home
Affairs Council in Veria in March 2003 (see Annex 1), it is clear that Member States
are approaching integration differently and with different means. The action taken or
measures  provided  to  solve  a  given  problem  are  not  necessarily  the  same  in  all
Member  States  as  national,  regional  or  local  circumstances  may  be  different.  This
reinforces  the  need  for  exchange  of  information  and  best  practice.  Besides  the
integration of immigrants into the labour market, which will be addressed within the
framework  of  the  European  Employment  Strategy  (see  section  4.4  below),  the
following priority areas can already be identified:

(cid:1)  Introduction  programmes  for  newly  arrived  immigrants:  The  reception  of
immigrants is very important in the integration process as there is a need for newly
arrived  people  to  familiarise  themselves  with  the  wider  social  and  cultural
environment  of  the  host  country.  Information  should  be  exchanged,  with  the
objective  of  finding  the  best  way  of  introducing  newly  arrived  immigrants.
Priorities  should  include:  nation-wide  programmes  versus  local  or  regional
programmes; involvement of civil society in the programmes; financing, including
co-financing  by  the  immigrant;  introducing  compulsory  elements  and  consequent
sanctions;  the  content  of  the  introduction  programme;  tailoring  programmes  to
specific target groups.

(cid:1)  Language training: The majority of Member States have  expressed concern that
immigrants  are  not  able  to  speak  to  language  of  the  host  country.  The  focus  of
exchange  should  be,  in  particular,  on  the  following  topics:  ways  to  increase  the
language abilities of immigrants particularly on a number of key issues, including:
targeting  specific  groups;  financing  and  co-financing  by  the  immigrant;  national
language tests; language and naturalisation; ‘dual path’ language courses.

77 According to the Conclusions it was proposed to establish an up to date an easily accessible list of
national  contact  points,  which  will  assist  in  co-operation  and  exchange  of  information  between
Member States. To follow up on this initiative a forum for the contact points within the framework
of  the  Committee  on  Immigration  and  Asylum  (Integration  Group)  has  been  established  by  the
Commission.

29

                                                
(cid:1)  Participation  of  immigrants  in  civic,  cultural  and  political  life:  This  is
important as it creates a sense of belonging and being a part of a community and of
society  in  general.  Such  a  feeling  will  in  turn  encourage  immigrants  to  engage
themselves  in  community  life  and  other  social,  cultural  and  political  activities.
Information  could  be  exchanged  on  a  number  of  core  issues,  including:  political
rights,  civic  citizenship  and  nationality;  structures  at  national,  regional  and  local
level  for  the  participation  of  immigrants  including  the  level  of  immigrant
participation;  how  to  tackle  religious  and  cultural  differences  in  society;
benchmarking  and  development  of  indicators  to  measure  levels  of  integration  in
these areas.

4.3. 

Civic citizenship and nationality: tools to facilitate integration

A new concept which the Commission believes can be used to promote integration, is
that of civic citizenship. The rights contained in the Commission’s existing initiatives
contribute  towards  the  realisation  of  this  concept.  However,  the  Commission
underlines the importance of confirming the rights and obligations of legally resident
third country nationals in the framework of the new Treaty by the incorporation of the
Charter  of  Fundamental  Rights  with  a  legally  binding  status78.  The  Treaty  should
provide the means whereby civic citizenship, in particular as concerns participation in
political  life  at  local  level,  can  become  a  reality  and  the  Commission  will  work  for
these  objectives  in  the  Convention  and  in  the  next  intergovernmental  conference79.
The  Commission  will  also  take  forward  the  development  of  this  concept  in  the
framework  of  the  process  for  reinforcing  co-ordination  between  Member  States  on
integration (see above).

Naturalisation is a strategy, which can help to promote integration and which Member
States  should  consider  when  granting  residence  to  immigrants  and  refugees.  The
Commission  welcomes  the  relaxation  of  the  conditions  to  be  fulfilled  by  applicants
for nationality which has taken place in a number of Member States in recent years.
Within  the  framework  of  the  reinforced  coordination  process,  the  Commission  will
promote  the  exchange  of  information  and  of  best  practices  concerning  the
implementation of nationality laws of Member States. There is also a need for further
legislation  on  nationality.  The
comparative  research  about  Member  States’ 
Commission has given priority to this under the 6th Research Framework Programme
2002-2006.

4.4

The European Employment Strategy (EES)

Following  its  Communication  on  the  future  of  the  EES  of  14  January  200380,  the
Commission adopted its proposals for employment  guidelines and recommendations
on  8  April  2003,  where  it  highlights  that  immigration  must  be  better  taken  into
account in the future. The Commission proposes three overarching objectives for the
future  employment  guidelines:  full  employment,  quality  and  productivity  at  work,
cohesion and an inclusive labour market. It calls on the Member States and the social

78 Modalities of incorporation were discussed in Working group II of the Convention, chaired by Mr.

Vitorino. See final report of Working Group II, WG II – 16 of 22.10.2002

79 C.f. Summary of the Paper submitted by M. Vitorino, Commissioner, Member of the Convention

Working group X Freedom, Security and Justice, WG X - WD 14 of 15.11.2002
80 COM(2003)6 of 14 January 2003 "The future of the European Employment Strategy"

30

                                                
partners to address these questions and insists on the need to support integration and
combat discrimination in the labour market for people at a disadvantage, as well as to
combat  undeclared  work.  In  the  context  of  the  EES,  the  Commission  considers
appropriate that the following elements are further taken up:

(cid:1)  sustainable  integration  of  third  country  nationals  into  the  labour  market.  This
involves access to training and employment services as well as other measures to
increase participation into the labour market. The Commission proposes in its 2003
Guidelines that Member States commit themselves to reducing the unemployment
gap between non-EU and EU nationals by 2010;

(cid:1)  combating  undeclared  work  and  reducing  the  informal  economy  with  a  view  to
developing a broad policy mix of sanctions and preventive measures to transform
undeclared work into regular employment;

(cid:1)  closer  monitoring  of  the  needs  of  the  EU  labour  market  and  of  the  role  of
immigration  in  filling  current  and  future  labour  shortages,  taking  into  account
increased competition between host countries;

(cid:1)  contributing  to  increased  job  mobility  of  third-country  nationals  in  the  EU,  in
particular  through  the  further  development  of  the  EURES  network,  including  as
part  of  the  strategy  to  facilitate  their  admission  into  the  EU  for  employment
purposes;

(cid:1)  exchanging experiences and good practice in this field, inter alia through the peer
review  activities  carried  out  under  the  Programme  to  promote  employment
incentive  measures.  Particular  attention  needs  to  be  given  to  the  recognition  of
skills and diplomas; entrepreneurship; special initiatives for 2nd and 3rd generation
young  people  of  immigrant  origin;  barriers  to  integration  on  the  labour  market;
local  employment  strategy  for  immigrants;  language  training  for  professional
purposes including ‘fast track’ schemes.

The  Commission  considers  that  these  issues  should  also  be  taken  up  by  the  social
partners at EU level in the context of their joint work programme.

4.5

The Social Inclusion Process

The  first  round  of  National  Action  Plans  for  Social  Inclusion  (NAPs/incl)  in  2001
demonstrated  the  need  to  address  the  issue  of  integration  of  immigrants  in  a  more
comprehensive, integrated and strategic manner. The Copenhagen European Council
(December 2002) endorsed the revised Nice objectives to combat poverty and social
exclusion,  which  explicitly  highlight  the  high  risk  of  poverty  and  social  exclusion
faced  by  some  men  and  women  as  a  result  of  immigration.  In  preparing  and
implementing  the  NAPs/incl,  the  European  common  objectives  also  insist  on
mobilising  all  relevant  bodies:  while  national,  regional  and  local  authorities  bear
prime responsibility for combating social exclusion and poverty, a full range of public
and private bodies is concerned, in particular social partners, NGOs and social service
providers. In this respect, the Commission considers important that:

(cid:1)  in  the  context  of  their  2003  NAPs/incl  due  for  July  2003,  Member  States  should
report on policy measures and initiatives aiming at "promoting social integration of

31

women and men at risk of facing persistent poverty, for instance because they (…)
belong  to  a  group  experiencing  particular  integration  problems  such  as  those
affecting immigrants", as endorsed by the Copenhagen European Council;

(cid:1)  under  the  Community  Action  Programme  to  combat  social  exclusion  (2002-
2006)81,  several  studies  (e.g.  on  housing  conditions  for  immigrants  and  ethnic
minorities), statistical work (e.g. the feasibility of collecting data pertaining to the
specific  income  and  living  conditions  of  immigrants  and  ethnic  minorities  in  the
framework of the new EU Survey on  Income and Living Conditions) and  a large
number  of  trans-national  projects  will  be  carried  out  on  the  integration  of
immigrants,  which  contribute  directly  to  improving  knowledge  and  promoting
exchange of experience

4.6

Economic and social cohesion

The  third  Commission's  report  on  economic  and  social  cohesion  in  the  EU  to  be
presented by the end of 2003 will pave the way for an open  debate on the future  of
cohesion policy82. The new programming period of the Structural Funds will start in
2007. In this respect, the Commission considers it important to build on experiences,
in  particular  from  the  European  Social  Fund  and  the  EQUAL  initiative,  so  as  to
ensure that :

(cid:1)  the mid-term review of the 2000-2006 programming period planned in 2003 takes
better  account  of  the  challenge  of  immigration  in  terms  of  jobs  and  social
inclusion;

(cid:1)  the  policy  lessons  drawn  from  the  EQUAL  initiative  in  terms  of  integration  of

immigrants, in particular asylum-seekers, are widely disseminated83;

(cid:1)  the  overall  discussion  on  the  future  of  the  European  cohesion  policy  pays  full
attention  to  the  challenge  of  integration  of  immigrants,  particularly  as  regards
investment  in  human  capital,  access  to  employment  and  the  regeneration  of
deprived urban areas

4.7

Combating discrimination

Immigrants are too often exposed to risks of discrimination. In addition to supporting
the  Member  States  with  the  effective  implementation  of  the  two  anti-discrimination
directives mentioned above, the Commission considers it important to strengthen the
fight against discrimination by:

(cid:1)  raising  public  awareness  of  Community  and  national 

law  prohibiting
discrimination:  a  major  public  information  campaign  will  be  launched  with  this

81 Decision  No  50/2002/EC  of  the  European  Parliament  and  of  the  Council  of  7  December  2001
establishing a programme of Community action to encourage co-operation between Member States
to combat social exclusion

82 See also COM (2003)34, "Second progress report on economic and social cohesion", 30 Jan. 2003
83 1.500 EQUAL development partnerships have already been established since 2001. For the period
2001 - 2006, 127 million Euro is available for actions aiming at combating racism and xenophobia
in relation to the labour market and 153 million Euro in relation to asylum seekers

32

                                                
aim in 2003, particularly focusing on employers and employees. The Commission
will also produce a first report on Equality and Discrimination in the EU in 2003;

(cid:1)  involving enterprises in non-discriminatory practices: further to the Commission's
Green  Paper  on  corporate  social  responsibility  (CSR)84,  the  need  to  promote
diversity  management, 
fight
discrimination at the workplace will be further addressed in the context of the new
multi-stakeholder forum on CSR;

recruitment  practices  and 

responsible 

to 

(cid:1)  closer  monitoring:  following  its  report  on  the  employment  situation  of  migrants
published  in  December  2002,  the  European  Monitoring  Centre  on  Racism  and
Xenophobia,  will  focus  in  2003,  inter  alia,  on  collecting  data  on  the  situation  of
migrants and ethnic minorities in relation to employment, housing, education and
racial violence;

(cid:1)  exchanging experiences: in  the  framework  of  the  Community  Action  Programme
to  combat  discrimination  (2001-2006),  several  trans-national  projects,  exchanges
of experience and best practice as well as studies will be carried out to measure the
extent of discrimination and strengthen anti-discrimination policy measures.

4.8

Co-operation in the field of education

In the field of education, the detailed work programme on the objectives of education
and training systems in  Europe, adopted  by  the  Commission  and  the  Council85,  sets
out  how  the  open  method  of  co-ordination  will  be  applied  using  benchmarks  to  set
concrete  goals  to  meet  the  challenges  of  the  Lisbon  Strategy  (European  Council  of
March  2000).  In  this  context,  the  general  objective  of  improving  active  citizenship,
equal  opportunities  and  social  cohesion,  covers  issues  such  as  the  access  of
immigrants and their children to education and training systems.

On  the  basis  of  the  Commission's  Communication  on  benchmarks86  adopted  by  the
Council  on  5  May  2003,  European  benchmarks  or  "reference  levels  of  European
average performance" to be achieved by 2010. Among the five EU benchmarks, three
of  them  are  particularly  relevant  in  the  context  of  promoting  integration  and
employment of the immigrant population.

(cid:1)  the benchmark on  early school leavers (EU average rate of no more than  10% of

early school leavers);

(cid:1)  the benchmark on education attainment levels (at least 85% of 22 year olds in the

EU should have completed upper secondary school);

(cid:1)  the benchmark on reading literacy (the % of low achieving 15 year-olds in reading
and literacy in the EU should have decreased by at least 20% compared to 2000).

84 COM(2001)366
85 O.J. C/142, 04.06.2002
86 COM(2002)629 final, 20.11.2002

33

                                                
4.9

Closer dialogue with third countries

The  Communication  from  the  Commission  on  integrating  migration  issues  in  the
EU’s  relations  with  third  countries87  underlines  that  improved  dialogue  with  third
countries  is  a  major  element  of  EU  migration  policy  not  only  to  facilitate  orderly
migration flows but also to fight illegal immigration more effectively and to develop
new policies to manage labour migration and to create "win-win" dynamics for both
the  EU  and  the  countries  of  origin  especially  with  respect  to  temporary  labour
migration.  Closer  relationships with countries of origin should inter alia  ensure  that
the root causes of illegal immigration are addressed and that EU immigration policy is
designed so as to support development objectives and to achieve an equitable sharing
of  the  costs  and  benefits  of  immigration.  This  policy  should  facilitate  contacts
between  migrants  and  their  families  and  communities  in  their  countries  of  origin
including  the  transfer  of  funds  (remittances).  It  should  also  encourage  potential
migrants to follow legal channels for admission rather than attempting to enter the EU
illegally. In this dialogue, the Commission considers it important that:

(cid:1)  the role and potential of labour migration are fully reflected;

(cid:1)  following further study and consultation on the benefits progress is made towards
the mutual recognition of the status of professional qualifications acquired by third
country  nationals  prior  to  their  arrival  in  the  EU  based  on  the  principle  of
reciprocity88;

(cid:1)  the  EU  should  make  use  of  the  opportunities  provided  under  the  WTO  General
Agreement  on  Trade  in  Services  (GATS)  as  a  way  to  provide  secure  temporary
movement mechanisms for people who are coming to the EU to provide a service.
This would respond to the expectations of many developing countries.

4.10

Reinforcing EU financial support for integration

A  mid-term  evaluation  of  the  European  Refugee  Fund  (ERF)  is  currently  being
undertaken. Any new orientations for the next phase of the ERF will be put forward in
the light of this evaluation. It is expected, however, that it will continue to support the
development of integration programmes and policies for refugees and persons granted
international protection.

The  Commission  will  also  launch  in  2003  a  number  of  pilot  projects  on  the
integration of migrants89. The purpose of these actions will be to support networks
and  the  transferral  of  information  and  good  practices  between  Member  States,
regional  and  local  authorities  and  other  stakeholders  in  order  to  facilitate  open
dialogue and identify priorities for a more consistent approach to integrating migrants
in Europe.

87 Cf.  Commission  Communication  Integrating  migration  issues  in  the  European  Union's  relations

with third countries, COM(2002)703 of 3.12.2002

88 See also the conclusions of the Barcelona summit of 2002 referring to persons with qualifications in

the field of science and technology

89 The programme will be launched in July 2003 with a budget of 12  million € over 3 years. It  will

complement existing initiatives addressing the issue of integration of immigrants

34

                                                
4.11

Improving information on the migration phenomenon

As  mentioned  above,  a  key  condition  for  successful  policy  implementation  is  to
improve the information available as well as the tools for monitoring and evaluation.
This  is  also  essential  to  raise  public  awareness  of  the  contribution  which  migrants
bring  to  economic,  social  and  cultural  life  in  the  EU.  Without  accurate  and
comparable data and knowledge about the effectiveness  of  measures  taken,  Member
States  and  the  Community  are  not  in  a  position  to  know  if  their  policies  have  the
desired outcome. The Commission is currently undertaking a study on benchmarking
which  will  explore  the  possibilities  of  developing  indicators  at  EU-level  and  has
recently  adopted  an  Action  Plan  for  the  collection  and  analysis  of  Community
Statistics in the field of migration90.

In addition, at the end of 2002, the Commission launched a preparatory action for the
creation  of  a  European  Migration  Network  (EMN).  The  EMN  will  build  up  a
systematic  basis  for  monitoring  and  analysing  the  multidimensional  phenomenon  of
migration  and  asylum  by  covering  a  variety  of  its  dimensions  –  political,  legal,
demographic,  economic  social  -  and  identifying  its  root  causes.  Ten  Member  States
designated national contact points in 2002 and others are expected to join the project
in 2003. The preparatory phase, which may be extended by up to three years, will test
the possibility of setting up a more permanent structure in the future.

Immigration and asylum issues have now been fully incorporated into the priorities of
the Commission’s framework programme for research and development and into
the  Commission’s  Action  Plan  “Financing  Research”91.  A  wide  range  of  issues
concerning  immigration  will  be  the  subject  of  research  and  analysis  under  the  6th
programme which will run from 2002-2006.

Such actions will also support the preparation of the report mentioned above.

5. 

CONCLUSIONS

With this Communication, the Commission has both responded to the task conferred
on  it  at  the  Tampere  Council  by  setting  out  detailed  proposals  for  supporting  the
development  of  vigorous  integration  policies  for  third  country  nationals  in  the  EU,
while at the same time fulfilling the undertaking it made in the 2003 Spring Report to
review  the  role  of  immigration,  integration  and  employment  policies  in  meeting  the
Lisbon goals.

The EU's ability to manage immigration and to ensure the integration of immigrants
will  greatly  influence  its  overall  ability  to  master  economic  transformation  and  to
reinforce  social  cohesion  in  the  short  and  longer  term.  Although  the  economic
implications of socio-demographic change will only become fully visible as time goes
by, a forward-looking approach to immigration is needed today to be prepared for the

90 COM(2003) 179
91 See in particular COM(2003)226, section 3.1 “Fostering the coherent development of national and
European policies”, Action No 2, regarding “setting up an open process of co-ordination on actions
for  developing  human  resources  in  science  and  technology,  with  particular  emphasis  on  the
implications of the 3% objective, as an extension of the existing process focusing on mobility”

35

                                                
challenges of tomorrow. The economic and social benefits of immigration can only be
realised if a higher degree of successful integration of migrants can be achieved: the
EU must address the challenge of integration in a comprehensive manner. The rapid
adoption by the Council of the draft directives already put forward on the conditions
of admission and residence of third country nationals is an essential prerequisite for
future actions since it provides the necessary basic framework of rights on which all
further integration policies must rest. In this context the Commission will keep under
review the development of the concept of civic citizenship as a new integration tool.

In line with the principle of mainstreaming policies for the integration of immigrants,
support  for  many  of  the  proposals  made  must  now  be  taken  forward  within  the
framework  of  existing  policies  and  programmes  at  EU  level,  notably  the  European
Employment Strategy, the Social Inclusion Process, as well as the Community action
programmes to combat social exclusion and discrimination. Meanwhile the European
Refugee Fund and the new pilot projects to promote integration will ensure there is a
focus  on  specific  issues  concerning  third  country  nationals  which  need  to  be
addressed as such and to provide support for national integration policies.

Finally, and in the light of the conclusions of the Thessaloniki European Council to be
held  on  20-21  June  2003,  the  Commission  will  endeavour  to  reinforce  policy  co-
ordination.  It  will  report  annually  on  progress  made  with  the  development  of  the
common immigration policy.

The  Commission  will  forward  this  Communication  for  information  to  the  European
Economic and Social Committee and to the Committee of the Regions.

36

ANNEX 1

SYNTHESIS REPORT ON NATIONAL INTEGRATION POLICIES

1.

INTRODUCTION

At the informal Justice and Home Affairs Council meeting in Veria on 28-29 March
2003 Member States agreed that the Commission should prepare a synthesis report on
national  integration  policies  in  view  of  the  forthcoming  European  Council  in
Thessaloniki on 20-21 June 2003.

This  synthesis  complements  the  Communication  on  immigration,  integration  and
employment by being a fact-finding survey on integration policies in Member States
and provides clear evidence that there is scope for re-inforcing policy co-ordination in
the  field  of  integration.  The  synthesis  report  has  been  prepared  on  the  basis  of  a
questionnaire  concerning  the  integration  of  immigrants92,  which  was  sent  to  both
Member  States  and  acceding  countries.  The  Commission  received  13  replies  from
Member  States93  and  8  replies  from  accession  countries94  to  the  questionnaire.  The
replies  vary  greatly  as  far  as  the  amount  of  information  and  details  provided  are
concerned. However, it is clear that wide differences exist in integration policies not
only with regard to acceding countries but also within the European Union itself. This
is not surprising as the migration history of the European countries varies greatly.

2.

2.1

SYNTHESIS OF ANSWERS RECEIVED TO THE QUESTIONNAIRE

Reception of new immigrants

National  integration  programmes  are  dominant  in  those  countries  where  the  main
immigration  tends  to  be  primarily  of  a  family  reunification  or  of  a  humanitarian
nature  and  where  new  immigrants  consequently  do  not  have  a  job  offer  before
entering  the  country  and  rarely  speak  the  language  of  the  host  society  upon  arrival.
Furthermore these countries tend to have highly developed social welfare systems. In
other  countries  these  issues  do  not  seem  to  be  paramount  and  problems  seem  to  be
more related to ensuring the proper infrastructure to integrate labour migrants, such as
access to housing, social services and healthcare.

2.1.1

Objectives of the integration policies

Descriptions of objectives of the integration policies naturally vary, nevertheless there
seems  to  be  a  general  consensus  that  the  main  objectives  of  Member  States'
integration  policies  are,  on  the  one  hand,  to  enable  immigrants  to  function
independently and be self-supportive and, on the other, to enable them to participate
actively in all aspects of life.

92 The questionnaire did not take into account integration of refugees. It should be noted that in many
countries refugees and immigrants are not treated as separate categories for integration purposes.

93 Belgium and France did not reply to the questionnaire.
94 Poland and Hungary did not reply to the questionnaire.

37

                                                
2.1.2

Description of integration policies

In  countries  such  as  Finland,  Denmark  and  The  Netherlands  national  legislation  on
integration  was  passed  in  1998  and  1999  and  in  Austria  and  Germany  initiatives  in
this respect have also been taken recently. The legislation provides a general national
integration framework within which the different actors may devise measures, which
are  appropriate  to  particular  local  circumstances  and  individual  needs.  The  national
integration  programmes  consist  in  general  of  three  main  components:  language
tuition,  orientation  or  introduction  courses  and  professional  labour  market  training.
The  programmes  -  which  are  compulsory  to  a  certain  extent  -  are  in  most  cases
tailored  to  the  specific  needs  of  the  immigrant.  The  immigrant  is  invited  for  an
interview,  where  the  level  of  qualifications,  education,  practical  experience  and
language  skills  is  examined.  On  the  basis  of  this  interview  it  is  decided  which
components the individual integration programme should consist of. Not all Member
States  have  given  information  on  the  length  of  their  integration  programmes  and  it
seems to vary, but in most cases they last 2-3 years. In Germany for instance, pursuant
to  the  proposed  Immigration  Act,  new  immigrants  will  have  a  legal  entitlement  to
attend  an  integration  course  comprised  of  language  tuition  and  orientation.  The
orientation course is intended  to  provide  information about the legal system,  culture
and history of Germany. In Denmark the orientation course is an integral part of the
language tuition, which is free of charge to all immigrants.

In the remaining Member States legislation laying down a framework for nation-wide
integration  programmes  for  immigrants  does  not  exist  but  nevertheless  efforts  have
been made to develop a national policy to promote integration.

In  Sweden95  the  Government  decided  in  1997  to  focus  more  on  integration  and  the
policy  is  built  on  mainstreaming.  The  point  of  departure 
is  equal  rights,
responsibilities and opportunities for everybody  and integration  permeates  all policy
areas and should be implemented in the everyday operations of all sectors of society.
A very similar multicultural approach to integration has been taken, based on race and
race relations, in the United Kingdom, which has a long-standing history as a country
of immigration. In parallel with immigration policy a number of legal instruments and
norms which mainly promote racial equality and equality of opportunity in a number
of different areas - employment, education, housing and welfare - has been introduced
and  this  affects  the  life  chances  of  migrants  and  their  descendants.  In  Ireland  an
approach very close to that of the United Kingdom has been chosen. In this context it
should  be  mentioned  that  so  far  all  immigrants  coming  to  Ireland  have  a  job  offer
before coming and integration takes place largely with the labour market at its axis.

Greece has recently started - as part of the national migration policy - implementing
an Integrated Action Plan (2003-2006) for the social integration of all legally residing
immigrants.  The  Action  Plan  covers  different  measures  in  six  main  areas:
information,  labour  market,  culture,  education  and  language,  health  services  and
temporary  housing.  As  part  of  the  labour  market  initiatives  Greece  is  creating  a
recording  mechanism  of  professional  skills  of  migrants  and  action  is  being  taken  to
foster entrepreneurship.

95

It  should  be  noted  that  an  integration  programme  for  refugees  similar  to  those  existing  for
immigrants in Finland, Denmark and The Netherlands does exist in Sweden.

38

                                                
Spain  is  also  currently  implementing  a  national  plan  for  integration:  Global
Programme for Immigration (2001-2004). This programme has identified some target
areas  to  improve  integration:  ensuring  immigrants  full  exercise  of  their  rights
(medical  care,  access  to  the  school  system,  family  reunification,  religious  freedom),
access  to  citizenship,  access  to  the  labour  market,  temporary  housing  measures,
improving  the  national  structure  for  integration  issues  (setting  up  mechanisms  for
increasing  dialogue  between  public  national,  local  and  regional  authorities,  NGO's
and  civil  society)  and  combating  racism  and  xenophobia.  Beside  national  efforts,  a
number  of  Regional  Governments  implement  immigration  programmes  including
measures  for  integration  of  migrants  and  all  major  cities  in  Spain  have  integration
programmes.

In  Portugal  a  number  of  initiatives  have  been  taken  by  the  newly  established  High
Commission  for  Immigration  and  Ethnic  Minorities,  the  national  body  which  has
assumed  responsibility  for  the  development  of  integration  policies  in  Portugal.  In
particular  efforts  have  been  made  to  increase  information  to  newly  arrived
immigrants. In general NGO’s in Portugal play a major role in providing integration
measures,  running  a  number  of  integration  projects  and  providing  language  tuition
and help to find accommodation.

In the implementation of the national integration policy, Italy like Portugal, relies very
heavily  on  civil  society  and  the  large  NGO  community  in  particular,  who  are  key
providers  of  basic  social  assistance  services,  including  housing.  A  number  of
integration projects has been initiated both at national, provincial and local level with
financial support from the Government.

In  1993  Luxembourg  approved  an  Integration  of  Aliens  Law,  which  set  up  co-
ordinated  programmes  to  facilitate  social,  economic  and  cultural  adaptation  of
foreigners.  The  proportion  of  foreigners  in  Luxembourg  is  far  greater  than  in  any
other country in the EU and the country has three official languages. Major emphasis
has  been  put  on  developing  a  programme  for  integration  of  foreign  children
(immigrant  children  represent  38%  of  the  total  school  population)  based  on  the
principles of common education, trilingualism and equal opportunity.

2.1.3

Compulsory elements

In those Member  States  where  national  integration  programmes  exist  they  generally
entail compulsory elements. In Denmark and Austria immigrants are required to enter
into and comply with an "integration agreement" (if the migrant successfully follows
the  national  integration  course  they  will  be  able  to  comply  with  this  agreement).
Failing  to  meet  the  requirements  stipulated  in  the  agreement  has  negative
consequences for renewal of the residence permit. In Austria the immigrants have to
bear the cost of the integration programme and up to 50% may be reimbursed by the
Government if the migrant complies with the integration agreement within 18 months.
In Germany, when the new Immigration Act  enters into force,  migrants  will also  be
asked  to  contribute  financially  (according  to  personal  means)  to  the  integration
programme  and  if  they  fail  to  follow  the  programme  this  may  have  negative
consequences  for  renewal  of  the  residence  permit.  Both  in  Germany  and  The
Netherlands  a  certificate  of  successful  attendance  at  an  integration  course  is  issued
and this may - in the case of Germany - serve to shorten the period for naturalisation
from 8 to 7 years. Sanctions for not participating in the integration programmes exist

39

generally in those countries where immigrants are entitled to social assistance during
the programme, sanctioned with a reduction in these entitlements or – in the case of
migrants who are self-supporting - with an administrative fine96

2.1.4

Structure of implementing authorities

In all Member States it is the local or regional authorities, which have the competence
to implement integration policies, whereas it varies a great deal who is actually paying
for  the  measures/programmes.  In  some  countries  both  the  regional  and  local
authorities have competence in this area and in some countries, such as Spain and The
Netherlands,  big  cities  also  have  competence.  In  Germany  the  State  sets  out
guidelines  for  the  integration  courses  but  they  are  conducted  by  public  and  private
organisations.  The  nation-wide  integration  programme  within  which  the  integration
services to be offered are set out, is to be developed in co-operation between the State,
Federal  governments  and  local  authorities  as  well  as  the  social  partners  and  civil
society. In Denmark and Finland it is the local municipalities which bear the overall
responsibility for offering integration programmes, but the municipalities can decide
to let other public or private organisations help them in conducting the programmes.

2.1.5

Funding of policies

Not all Member States gave exact figures as to how much money is spent on a yearly
basis  implementing  integration  policies.  As  the  table  shows  some  countries  are
spending large amounts on integration of immigrants, however, as information is not
given on what the amount exactly covers and it varies according to the number of new
arrivals and the size of the country in question, it is difficult to compare the numbers
and it is therefore not possible to draw any uniform conclusions

Member State

Year

Budget

Austria

Belgium

Denmark

Finland

France

Germany

N/a

N/a

2002

Total budget for running the
integration
national 
programme 
both
refugees and immigrants:

for 

€ 493 mill.

N/a

N/a

Federal  Budget  for  national
integration courses:

96 However, this applies equally to nationals and immigrants in those countries where immigrants are

referred to mainstream services if they fail to participate in labour market activities.

40

                                                
Greece

2003

Ireland

Italy

Luxembourg

Netherlands

Portugal

Spain

Sweden

United Kingdom

2002

2002

2002

€ 169 mill

Additional 
Länder level

funding 

at

Yearly  budget  to  finance
the  new  Integrated  Action
Plan:

€ 65 mill.

N/a

Social  Integration  Fund  for
project at all levels:

€ 42 mill.

N/a

Integration 
newcomers:

€ 165 mill.

budget 

for

Budget for "oldcomers"

€ 100 mill

N/a

N/a

Refugee 
reception:

€ 219 mill.

N/a

and  newcomer

2.2

Medium to long-term arrangements for the integration of immigrants

The  Member  States  which  replied  to  this  question  generally  referred  to  the
descriptions  of  arrangements  for  newly  arrived  immigrants  (described  above)  as
integration  measures  applying  equally  or  partly  to  this  group  as  well.  Nonetheless
immigrants  who  are  no  longer  newcomers  are  generally  included  in  mainstream
services  e.g.  public  employment  or  social  services.  Therefore  policies,  directed
towards this group, are often project-based, targeted at specific groups and addressing
special  needs.  Initiatives  include  measures  in  the  field  of  education,  employment,
health and welfare, housing and the promotion of their participation in social, cultural

41

and political life. In The Netherlands special programmes have been set up to  avoid
ethnic  minorities  becoming  the  new  underprivileged  group  in  society.  Sweden  and
Germany mention that since the mid-1970s they have supported language courses for
all immigrants who do not speak the language properly and this service has been free
of charge.

2.3

Integration into the labour market

When examining measures for improvement of integration into the labour market, it
appears  from  the  answers  given  that  there  are  wide  variations  between  the  Member
States  due  to  the  very  different  immigration  patterns  and  labour  market  demands.
Some Member States have a demand for highly skilled labour and others only for un-
skilled.  At  the  same  time  many  Member  States  must  deal  with  a  relatively  high
unemployment  rate  among  immigrants,  in  particular  those  of  the  2nd  and  3rd
generation. These differences seem to be crucial for the approach chosen to deal with
this issue.

2.3.1

Planned measures

The  integration  of  unemployed  immigrants  in  the  labour  market  is  promoted  in  all
Member States through either general policies or individual integration or job seeking
plans.  In  Germany  insertion  pathways  are  developed  to  tackle  youth  unemployment
especially  among  immigrants.  In  Spain  programmes  focusing  on  the  exploitation  of
employment  possibilities  especially  suitable  for 
the
organisation  of  movement  within  the  country  to  take  up  unfilled  job  offers  is
organised.

immigrants  as  well  as 

The  Netherlands  has  in  accordance  with  the  European  Employment  Strategy  set
specific  national  targets  concerning  integration.  Specific  labour  market  policy  is
aiming at halving the difference between the unemployment rate of ethnic minorities
and  persons  who  are  of  Dutch  origin,  which  amounts  to  reducing  unemployment  of
ethnic minorities to 10%. In Finland also targets have been set concerning combating
discrimination  and  promoting  social  rights  in  order  to  find  additional  resources  for
vocational training of immigrants.

A  few  Member  States,  namely  Austria  and  Italy,  have  special  quota  systems  for
labour migration and the United Kingdom  is intending to introduce  new schemes  to
bring in temporary workers at the low skilled end of the labour market as a need for
labour  migration  has  emerged  in  certain  sectors.  Austria  has  schemes  with  a  yearly
quota to bring in workers for the labour market for both highly  skilled  and seasonal
workers.  In  Italy  the  employers  who  employ  immigrants  via  the  quota  system  must
guarantee not only a job, but also accommodation and travel costs.

2.3.2

Involvement of social partners

In some Member States, the social partners are involved at national and local level in
the preparation and implementation of integration measures. In Spain for example the
social  partners  are  involved  in  the  estimate  of  labour  shortages  in  the  country.  In
Finland labour market organisations participate at a national level in the integration of
immigrants  mainly  through  advisory  bodies  on  which  they  are  represented.  In
Denmark  an  agreement  concerning  integration  measures  on  the  labour  market  has

42

been  concluded  between  the  government  and  the  social  partners  underlining  the
concerted responsibility for integration. According to the agreement exceptions to the
Collective  Agreements  can  be  decided  locally  for  the  purpose  of  increasing  the
integration of immigrants in the labour market.

2.3.3

Co-ordination with other authorities

Generally,  regional  and  local  authorities  are  responsible  for  the  implementation  of
integration policies concerning immigrants. In many Member States, overall guidance
is  given  at  national  level  and  measures  are  carefully  co-ordinated  often  with  the
involvement of the social partners.

2.4

Immigrant participation

Immigrants generally have free access to social and cultural life, including access to
education and they are able to become active in the political field, in political parties,
associations,  societies  and  organisations.  Around  half  of  the  Member  States  have
granted some kind of political rights to third country nationals. After a certain period
of legal residence (between 6 months and 5 years) immigrants are allowed to vote or
stand for elections at local or municipal level.

2.4.1

Special advisory or consultative bodies

In  some  countries  like  there  is  a  long  tradition  of  involving  immigrants  and  their
organisations  in  the  decision  making  processes  and  all  Member  States  have
established  special  advisory  bodies  for  immigrants  although  none  of  them  has  any
direct  decision-making  competence.  The  advisory  bodies  are  very  different  in
structure and mandates differ considerably.

In Portugal a Consultative Council for Immigration Matters has been created to ensure
that associations representing immigrants, the social partners and institutions of social
solidarity  participate  in  defining  the  policies  of  social  integration,  and  the  struggle
against exclusion.

In Luxembourg the National Council for Foreigners gives advise to the Government
on  all  relevant  policy  proposals.  The  council  also  has  to  right  to  submit  proposals,
which are aiming at improving the situation of foreigners, to the Government. Half of
the  members  of  the  council  are  foreigners  elected  by  their  own  associations.  At  the
local  level  municipalities  with  more  than  20  %  foreigners  are  obliged  to  set  up  a
special advisory commission.

A  similar  principle  is  used  in  Denmark  where  all  municipalities  must  establish  an
integration council if requested by more than 50 people. The integration council may
give  advisory  opinions  on  the  general  effort  of  integration  in  the  municipality.  The
members  of  the  local  integration  councils  elect  a  national  Council  for  Ethnic
Minorities, which advises the Minister of Integration on issues related to integration.

In Finland an Advisory Board for Ethnic Relations has been set up and has been given
the  task  of  monitoring  matters  related  to  integration  and  of  giving  expert  opinions.
Both  the  immigrants  and  Finland’s  traditional  ethnic  minorities  as  well  as  different
ministries, the social partners and NGO's are represented on the board.

43

Greece  does  not  have  a  consultative  body  as  such,  but  the  Institute  of  Migratory
Policy has been set up recently, which besides the task of compiling information and
doing research, also has the task of supervising relevant projects and activities.

In Italy there is a number of different consultative bodies. The National Organisation
for  the  Co-ordination  of  Integration  Policy  for  Migrants,  which  give  advice  on
integration  policies,  has  among  its  representative's  local  authorities,  immigrants  and
the  social  partners.  At  local  level  a  Special  Counsellor  elected  by  the  immigrant
community represents their interests with respect to local initiatives.

2.4.2

Level of participation

In  almost all  Member  States,  immigrants  are  represented  on  the  advisory  bodies  for
immigrants. In Spain around a third or a quarter of the representatives on the advisory
bodies  are  migrants  themselves.  In  Denmark  currently  all  elected  members  of  the
Council for Ethnic Minorities have an ethnic minority background.

2.5

Anti-discrimination and equality

All Member States are currently in the process of revising their legislation concerning
anti-discrimination  or  enacting  new  legislation  in  order  to  implement  the  Article  13
directive (2000/43) on anti-discrimination which must be transposed into national law
by end of 2003.

In order to promote integration and combat racism, awareness raising campaigns and
special programmes seem to be a part of the ongoing activities in almost all Member
States. In some countries special initiatives have been taken as a result of preparations
for the World Conference against Racism, held in Durban, South Africa, in 2001. In
The  Netherlands  a  national  platform  has  been  provided  to  give  input  to  a  National
Action Plan against Racism, in Finland a National Action Plan to Combat Racism was
adopted in 2001, and in  Ireland an Action Plan is also on its way. Several  countries
ran  anti-discrimination  campaigns  in  2001  and  some  countries  such  as  Sweden  and
Germany  have  allocated  money  for  campaigns  combating  racism  and  promoting
equality in particular for children and young people.

Several Member States also have special bodies to  monitor or  advise on  equality  or
discrimination matters e.g. in Ireland the Equality Authority provides information and
advice to anyone who feels that he/she may have been discriminated against.

2.6

Successful integration

2.6.1

Official definition

No Member State has a uniform definition of integration, however they do to a certain
extent agree that integration is composed of different elements and that it  must be a
two-way  process  involving  both  immigrants  and  their  local  community.  In  those
countries where specific legislation for integration exists, integration may be defined
within the framework of the act, but also in these cases integration is referred to as a
process, which has some core elements.

44

The  elements,  which  are  mentioned  in  the  replies  of  the  Member  States,  could
generally be summarised as including:

(cid:1)  respect for fundamental values in a democratic society

(cid:1)  the right to maintain his or her own cultural identity

(cid:1)  rights comparable to those of EU citizens and corresponding obligations

(cid:1)  active  participation  in  all  aspects  of  life  on  an  equal  footing  (economic,  social,

cultural, political, civil).

2.6.2

Key factors in successful integration

In  most  countries  there  exist  no  instruments  for  measuring  integration  or  an
established  standard  for  successful  integration.  According  to  the  replies,  integration
takes place gradually and proceeds differently in each individual case.

In The Netherlands the key factor for successful integration is when the immigrant is
self-supportive.  Both  the  United  Kingdom  and  Austria  highlights  that  becoming  a
citizen is significant and indicates a successful integration.

2.6.3 Main barriers to integration

The  vast  majority  of  Member  States  emphasise  that  a  major  barrier  for  successful
integration  is  the  lack  of  sufficient  language  skills.  The  lack  of  education  or  formal
skills  is  also  mentioned  as  a  barrier  together  with  the  difficulties  in  assessing  and
approving immigrants qualifications e.g. recognition of foreign exams and diplomas.
Some countries also mention that one of the major barriers to successful integration is
the fact that the  immigrant is unemployed and  thereby  implying that  employment is
one of the key ways of integrating immigrants in society. The Netherlands recognises
that poor knowledge of the language can also leave the children of ethnic minorities in
backward positions. Finland mentions that the attitude of the population has a strong
impact on how welcome the immigrants feel as members of Finnish society and that
racism  and  discrimination  plays  an  important  role  when  it  comes  to  integration.
Austria mentions that religion may also constitute a barrier to integration, particularly
for women.

2.7

Monitoring integration models

2.7.1

Special monitoring bodies

In almost all Member States monitoring plays an important role and special schemes
for monitoring have been set up. All Member States have, one way or the other, been
monitoring  the  integration  process  and  many  countries  issue  special  yearly  reports,
which  are  discussed  in  the  national  parliaments.  In  those  countries  where  national
legislation  on  integration  programmes  exist  the  implementation  progress  or  the
revision of legislation is discussed in Parliament.

45

In  The  Netherlands  a  special  integration  monitor  (research  with  facts  and  figures)
gives  an  overview  of  the  position  of  ethnic  minorities  on  three  dimensions;  social-
structural,  social-cultural,  and  political-institutional.  In  Denmark  a  Think-Tank  has
been set up to develop benchmarks for integration. Italy issues an annual report on the
integration  situation  of  immigrants,  which  is  presented  to  Parliament.  Finland
examines  on  a  yearly  basis  the  employment  rates,  living  conditions,  education,
position  of  children,  young  people  and  women,  and  social  services  provided.  In
Germany, under the proposed new Immigration Act, a new special body will have the
task  of  observing  domestic  capacities  for  reception  and  integration  and  the  current
trends in migratory movements.

2.7.2

Responsibility for the monitoring process

In all Member States, competence to monitor the integration process is decentralised
to  local  and  regional  or  city  authorities,  as  well  as  the  responsibility  for
implementation  of  integration  policies.  But,  as  mentioned  above,  some  countries
discuss in Parliament the integration progress in their country and national ministers
often  have  the  overall  responsibility  for  integration  policies  and  therefore  also
naturally for the  monitoring process  and evaluation of policies  to  ensure  the desired
results are obtained.

46

ANNEX 2

STASTISTICAL ANNEXES

Fig. 1 Immigrants by nationality as a share of resident

population, average 1995-1999

% of resident

Left bar: women, right bar:men

Returning nationals
EU nationals
Non-EU nationals

1,4

1,2

1,0

0,8

0,6

0,4

0,2

0,0

1,4

1,2

1,0

0,8

0,6

0,4

0,2

0,0

D

DK

B
EL
 EU excludes F, IRL, P.
L: returning nationals - men, 0.3, women, 0.2; EU-nationals - men, 2.1, women, 1.6;
non-EU nationals - men, 0.6, women, 0.7

FIN

UK

NL

S

E

A

P

I

EU

Source: Eurostat. This graph is extracted from Statistics in focus - Women and men migrating to
and from the EU - Theme 3 -2/2003

47

Fig. 2 Crude Total Population Growth Rate 2002

Relative contribution of natural increase and net migration

I R L

L I

L

C Y

C H

N O

P

E

I S

N L

F

M T

S

E u r o z o n e

E E A

D K

E U - 1 5

B

E L

U K

A

F I N

I

D

S I

S K

P L

H U

R O

L T

E E

B G

C Z

L V

- 1 0

- 5

0

5

1 0

1 5

N A T U R A L   I N C R E A S E

N E T   M I G R A T I O N    

P E R   1 0 0 0   P O P U L A T I O N

Source:  Eurostat.  This  graph  is  extracted  from  Statistics  in  focus  -  First  demographic  estimates
for 2002 - Theme 3 -25/2002

48

Figure 3: Past and projected annual change in the working-age

population in the EU and the US

1.5%

1.0%

1.0%

0.9%

0.9%

1.2%

1.1%

1.0%

EU15

US

0.5%

0.0%

-0.5%

-1.0%

0.8%

0.5%

0.6%

0.3%

0.2%

0.1%

0.1%

0.3%

0.1%

0.1%

0.5%

0.4%

-0.2%

-0.3%

-0.4%

-0.6%

-0.7%

-0.8%

1980-
1985

1985-
1990

1991-
1995

1995-
2000

2000-
2005

2005-
2010

2010-
2015

2015-
2020

2020-
2025

2025-
2030

2030-
2035

2035-
2040

Figure 4: Past and projected annual change in the working-age

1.5%

0.9%

1.0%

0.9%

0.9%

population in the EU and Japan

EU15

JP

0.5%

0.0%

-0.5%

-1.0%

-1.5%

-2.0%

0.5%

0.3%

0.2%

0.2%

0.1%

0.1%

-0.2%

-0.4%

-0.2%

-0.3%

-0.4%

-0.5%

-0.7%

-0.7%

-0.7%

-0.8%

-1.0%

-0.7%

-1.0%

-0.6%

-1.5%

1980-
1985

1985-
1990

1991-
1995

1995-
2000

2000-
2005

2005-
2010

2010-
2015

2015-
2020

2020-
2025

2025-
2030

2030-
2035

2035-
2040

49

Fig. 5 The share of non-nationals in working age population, 

2000

% of working age population, 15-64

Left bar: women, right bar: men

EU nationals
Non-EU nationals

L: Non-EU nationals -men: 17, women: 19; 
EU nationals -men:16, women: 18. 
FIN: EU nationals -men: 0.04, women: 0.01

13

12

11

10

9

8

7

6

5

4

3

2

1

0

13

12

11

10

9

8

7

6

5

4

3

2

1

0

B DK  D EL
For D and I, figures refer to the total number of non-nationals irrespective of their country of birth

I NL  A

IRL

S UK  EU

FI

P

E

F

Source: Eurostat. This graph is extracted from Statistics in focus - Women and men migrating to
and from the EU - Theme 3 -2/2003

50

      A n n u a l r a te  o f  g r o w th   o f p o p u la tio n   a g e d  6 5 +  a n d  1 5 -6 4 ,

F ig u r e  6

E U 2 5 , p e r io d  2 0 0 0 -2 0 4 0

6 5 +

1 5 -6 4

2 .0

1 .5

1 .0

0 .5

0 .0

-0 .5

-1 .0

2 0 0 0

2 0 1 0

2 0 2 0

2 0 3 0

2 0 4 0

S o u r c e :  E u r o s ta t

51

Figure
7

Demographic decline and the Employment growth

potential of EU25 in the period 2000-2040

Employment growth needed to keep
the
(65+/employed)
EDR ratio
constant: 1,36%

Employment rate at: 75%

Employment rate at: 70%

340

320

300

280

260

240

220

200

180

160

140

2000

2010

2020

2030

2040

Source: Eurostat

Figure 8: Relative contributions to growth of employment and productivity
Shares of employment and productivity growth assuming an employment rate of 70%
 in the period from 2010 to 2030 on the assumption that annual economic growth
 would be maintained at 2.5% on average
EU25

3.5

3.0

2.5

2.0

1.5

1.0

0.5

0.0

-0.5

-1.0

1.02

1.48

2.81

3.11

-0.31

-0.61

2000-2010

2010-2020

2020-2030

Employment growth p.a.

Productivity growth p.a.

Source: Eurostat. Simulations based on Eurostat baseline demographic scenario

52

Figure 9: Employment rate of EU and non-EU nationals in 2001

% of their working-age population (15-64)

EU nationals

Non-EU nationals

80%

70%

60%

50%

40%

30%

20%

10%

0%

B DK D EL

E

F

IRL

I

L

NL

A

P FIN S UK EU

Source: LFS, Eurostat.

Figure
10

      Education level  and employment/unemployment rates of

the immigrants in the EU15 in 2000

Distribution per educational level, 25-64 age group
 EU15, 2000

Employment rate and unemployment rate*

25-64 age group

High

 Medium  Low

17

28

55

24

56

20

%
100

90

80

70

60

50

40

30

20

10

0

21

43

36

 Employment Rate

 Unemployment Rate*

 5

  7

  69

  63

  11

  54

%
100

90

80

70

60

50

40

30

20

10

0

 EU 15 
Nationals

 10 New 
MS Nationals

 Non EU 
 25 Nationals

 EU 15 
Nationals

 10 New 
MS Nationals

 Non EU 
 25 Nationals

* Unemployed as % of population

Source: Eurostat (Labour Force Survey 2000)

53

Figure 11: Unemployment rate of EU and non-EU nationals in 2001

% of their active population (15-64)

EU nationals

Non-EU nationals

35%

30%

25%

20%

15%

10%

5%

0%

B DK D

EL

E

F

IRL

I

L

NL

A

P FIN S UK EU

Source: LFS, Eurostat.

Figure 12: Male employment rate of EU and non-EU nationals in 2001

% of their working-age population (15-64)

EU nationals

Non-EU nationals

80%

70%

60%

50%

40%

30%

20%

10%

0%

B DK D

EL

E

F

IRL

I

L

NL

A

P FIN S UK EU

Source: LFS, Eurostat.

54

Figure 13: Female employment rate of EU and non-EU nationals in 2001

% of their working-age population (15-64)

EU nationals

Non-EU nationals

80%

70%

60%

50%

40%

30%

20%

10%

0%

B DK D

EL

E

F

IRL

I

L

NL

A

P FIN S UK EU

Source: LFS, Eurostat.

Figure 14: Employment rate of high skilled EU and non-EU nationals in 2001

% of their working-age population (15-64)

EU nationals

Non-EU nationals

90%

80%

70%

60%

50%

40%

30%

20%

10%

0%

B DK

D

EL

E

F

IRL

I

L

NL

A

P FIN S

UK EU

Source: LFS, Eurostat.

55

Figure 15: Employment rate of low skilled EU and non-EU nationals in 2001

% of their working-age population (15-64)

EU nationals

Non-EU nationals

90%

80%

70%

60%

50%

40%

30%

20%

10%

0%

B

DK

D

EL

E

F

IRL

I

L

NL

A

P FIN

S

UK EU

Source: LFS, Eurostat.

56

Figure 16: Total employment and GDP per head evolution in the EU, US and JP and
demographic impact on employment from changes in the working-age population

(1980=100)

Employment rate in EU15 increases to 70% by 2010 and remains at 70% until 2030.
ER in US and JP at current levels (73% and 69%, respectively).

JP GDP per head

US GDP per head
EU GDP per head

US EMP

EU EMP

JP EMP

2003

170

160

150

140

130

120

110

100

90

80

1980

1985

1990

1995

2000

2005

2010

2015

2020

2025

2030

Note: The employment rate in Japan and the US have been fixed at the 2004 projected level according to national accounts, Ameco database. Please note that the national accounts
employment rate in Japan (74%) differs from the OECD Employment Outlook (69%). While the OECD rate is likely to be comparable to EU and US' rates, presentations on long-
term trends have to be based on national accounts. This difference, however, is of little relevance for the exercise in question. Sources: Civilian total employment (domestic concept),
national accounts, Ameco database, Commission Services. Past changes in the working-age population, Ameco database. Projected changes in the EU15 working age population,
Eurostat population projections 1999 revision for the EU15. Projected changes in the US and Japan's working age population, the Population Division of the Department of
Economic and Social Affairs of the United Nations Secretariat, World Population Prospects, for the US and Japan. Real GDP per head change 1980-2003, national accounts, Ameco
database, Commission Services

57

Figure 17: Employment and GDP evolution in the EU, US and JP and demographic impact on
employment from changes in the working-age population (1980=100)

Employment rate in EU15 increases to 70% by 2010 and remains at
70% until 2030.
ER in US and JP at current levels (73% and 69%, respectively).

US GDP

JP GDP

US EMP

EU EMP

JP EMP

EU GDP

2003

220
210
200
190
180
170
160

150
140
130
120
110
100
90
80

1980

1985

1990

1995

2000

2005

2010

2015

2020

2025

2030

Note: The employment rate in Japan and the US have been fixed at the 2004 projected level according to national accounts, Ameco database. Please note that the national accounts
employment rate in Japan (74%) differs from the OECD Employment Outlook (69%). While the OECD rate is likely to be comparable to EU and US' rates, presentations on long-
term trends have to be based on national accounts. This difference, however, is of little relevance for the exercise in question. Sources: Civilian total employment (domestic concept),
national accounts, Ameco database, Commission Services. Past changes in the working-age population, Ameco database. Projected changes in the EU15 working age population,
Eurostat population projections 1999 revision for the EU15. Projected changes in the US and Japan's working age population, the Population Division of the Department of
Economic and Social Affairs of the United Nations Secretariat, World Population Prospects, for the US and Japan. Real GDP change 1980-2003, national accounts, Ameco database,
Commission Service

58