Communication from the Commission to the Council, the European Parliament, the European Economic and Social committee and the Committee of the Regions - A Common Agenda for Integration - Framework for the Integration of Third-Country Nationals in the European Union
Date: 2005-09-01
Institutions: European Commission
Subjects: EU migration policy, European Union, foreign national, integration of migrants, third country

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 1.9.2005 
COM(2005) 389 final 

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

A Common Agenda for Integration 
Framework for the Integration of Third-Country Nationals in the European Union 

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TABLE OF CONTENTS 

1. 

2. 

3. 

4. 

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

STRENGTHENING THE IMPLEMENTATION OF THE COMMON BASIC 
PRINCIPLES ............................................................................................................... 4 

TOWARDS A COHERENT APPROACH AT EU LEVEL ..................................... 10 

CONCLUSIONS........................................................................................................ 14 

ANNEX.................................................................................................................................... 16 

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1. 

INTRODUCTION 

Legal  migration  and  integration  of  third-country  nationals  are  part  of  an  important  debate 
today  across  the  enlarged  European  Union.  Most  Member  States  are  now  experiencing 
migratory  phenomena  and  are  confronted  with  integration  challenges.  Some  countries, 
including  the  new  Member  States,  have  only  recently  been  faced  with  immigration.  Others 
have  dealt  with  immigration  and  integration  challenges  for  decades  but  not  always  with 
satisfactory results, and they are consequently revising their policies. Reflecting the different 
histories,  traditions  and  institutional  arrangements,  there  are  a  wide  variety  of  approaches 
being taken to find solutions to the problems which need to be tackled. This Communication 
draws conclusions from policies carried out so far. 

The integration of third-country nationals living and working in the EU has gained increasing 
importance on the European agenda in recent years. Following the request of the Justice and 
Home  Affairs  (JHA)  Council  in  2002  to  establish  National  Contact  Points  on  integration 
(NCPs),  the  European  Council  of  June  2003  confirmed  that  mandate  and  invited  the 
Commission to present Annual Reports on Migration and Integration1. In its Communication 
on Immigration, Integration and Employment2 the Commission set out a holistic approach to 
integration.  In  November  2004,  the  first  edition  of  a  Handbook  on  Integration  for  policy-
makers and practitioners was published. 

The Hague Programme, adopted by the European Council of 4-5th November 2004, underlines 
the  need  for  greater  co-ordination  of  national  integration  policies  and  EU  initiatives  in  this 
field.  It  further  states  that  a  framework,  based  on  common  principles,  should  form  the 
foundation for future initiatives in the EU, relying on  clear  goals and  means of evaluation3. 
The  JHA  Council  of  19  November  2004  adopted  Common  Basic  Principles  (CBPs)  to 
underpin  a  coherent  European  framework  on  integration  of  third-country  nationals4.  The 
Hague Programme invited the Commission to present a policy plan on legal migration before 
the end of 2005. As a first step, the Commission published a Green Paper on an EU approach 
to managing economic migration5, underlining that admission measures must be accompanied 
by strong integration policies. 

Integration  is  a  major  concern  in  a  number  of  EU  policies.  The  effective  and  responsible 
integration  of  immigrants  in  the  labour  market  constitutes  an  important  contribution  to 
reaching the Lisbon targets. The Commission stimulates and supports Member States’ efforts 
in employment, social affairs and equal opportunities, stressing the gender perspective to fully 
utilise the potential of immigrant women in the labour market. The new Integrated Guidelines 
for  Jobs  and  Growth  call  on  Member  States  to  take  action  to  increase  the  employment  of 
immigrants. 

The promotion of fundamental  rights, non discrimination and equal  opportunities for all are 
key  integration  issues.  EU  legislation  provides  a  strong  framework  of  anti-discrimination 

1 
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3 
4 
5 

The first report was published in 2004 : COM(2004) 508. 
COM(2003) 336.  
Annex I to the Presidency Conclusions, European Council, 4/5 November 2004. 
Council Document 14615/04 of 19 November 2004. 
COM(2004) 811. 

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legislation6. In its Communication on a framework strategy for non-discrimination and equal 
opportunities for all7, the Commission stresses the need to reinforce efforts to promote equal 
opportunities  for  all  in  order  to  tackle  the  structural  barriers  faced  by  migrants,  ethnic 
minorities and other vulnerable groups. The proposed European Year of Equal Opportunities 
for All in 2007 and the envisaged European Year of Inter-cultural Dialogue in 2008 will be 
major awareness-raising initiatives contributing to these objectives. 

Integration  measures  need  adequate  financial  resources.  The  EU  supports  Member  States’ 
integration  policies  through  a  number  of  financial  instruments.  The  Preparatory  Actions  for 
integration  of  third-country  nationals  (INTI)  have  been  important  in  promoting  activities  at 
local  level,  strengthening  networks  and  the  exchange  of  information  and  good  practices 
between  Member  States,  regional  and  local  authorities  and  other  stakeholders.  They  have 
attracted  great  interest  but  lacked  sufficient  resources  to  match  the  vast  needs  in  this  area. 
Under  the  financial  perspectives  2007-2013,  the  Commission  has  proposed  new  solidarity 
instruments,  among  them  a  European  Fund  for  the  Integration  of  third-country  nationals, 
based on the CBPs. 

The  objectives  of  the  Fund  are  complementary  to  the  European  Social  Fund  (ESF),  which 
builds  on  the  experiences  of  the  Community  Initiative  EQUAL  in  supporting  innovative 
approaches to the prevention of labour market discrimination of migrants. The Commission’s 
proposal  for  the  ESF  period  2007-2013  includes  a  specific  focus  on  reinforcing  the  social 
inclusion  of  people  at  a  disadvantage.  The  European  Regional  Development  Fund  also 
supports certain integration measures. 

This  Communication  is  the  Commission’s  first  response  to  the  invitation  of  the  European 
Council to establish a coherent European framework for integration. The cornerstones of such 
a framework are proposals for concrete measures to put the CBPs into practice, together with 
a series of supportive EU mechanisms. Taking into account existing EU policy frameworks, 
the  Communication  provides  new  suggestions  for  action  both  at  EU  and  national  level. 
Member  States  are  encouraged  to  strengthen  their  efforts  with  a  perspective  to  developing 
comprehensive  national  integration  strategies,  while  new  ways  of  ensuring  consistency 
between actions taken at EU and national level are being proposed. 

2. 

STRENGTHENING  THE  IMPLEMENTATION  OF  THE  COMMON  BASIC 
PRINCIPLES 

The  tables  below  are  meant  to  provide  guidance  for  EU  and  Member  States’  integration 
policies.  The  actions  suggested  (described  in  the  Annex)  build  upon  the  Handbook  on 
Integration,  the  INTI  Preparatory  Actions  and  the  proposed  European  Fund  for  Integration. 
The order of actions does not reflect prioritisation. Their list is indicative and not exhaustive 
and it leaves the Member States to set priorities and select the actions as well as the way in 
which  they  are  to  be  carried  out  within  the  context  of  their  own  national  situations  and 
traditions. They should be seen as main elements of all national and EU integration policies. 
A  gender  perspective  should  be  incorporated  into  all  relevant  actions,  as  well  as  specific 
attention to the situation of migrant youth and children. 

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7 

Directive 2000/43/EC of 29 June 2000 implementing the principle of equal treatment between persons 
irrespective  of  racial  or  ethnic  origin  and  directive  2000/78/EC  of  27  November  2000  establishing  a 
general framework for equal treatment in employment and occupation. 
COM(2005) 224. 

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1. ‘Integration is a dynamic, two-way process of mutual accommodation by all immigrants 
and residents of Member States’ 

National level 

EU level 

Strengthening  the  ability  of  the  host  society 
to  adjust  to  diversity  by  targeting  integration 
actions at the host population 

Setting up national programmes to implement 
the two-way approach 

Increasing  the  understanding  and  acceptance 
of  migration 
awareness-raising 
campaigns,  exhibitions,  intercultural  events, 
etc. 

through 

actions, 

trans-national 

Supporting 
e.g. 
campaigns  or  intercultural  events,  to  project 
accurate 
immigrants’ 
cultures,  religions  and  social  and  economic 
contributions 

information  about 

Supporting  pilot  projects  and  studies  to 
explore  new  forms  of  Community  co-
operation  in  the  field  of  admission  and 
integration 

Promoting knowledge within the host society 
of 
introduction 
consequences 
programmes and admission schemes 

the 

of 

Enhancing  the  role  of  private  bodies  in 
managing diversity 

Promoting  trust  and  good  relations  within 
through  welcoming 
neighbourhoods,  e.g. 
initiatives, mentoring, etc. 

Co-operating  with  the  media,  e.g.  through 
voluntary codes of practice for journalists 

2. ‘Integration implies respect for the basic values of the European Union’ 

National level 

EU level 

Emphasising civic orientation in introduction 
programmes  and  other  activities  for  newly 
arrived  third-country  nationals  with  the  view 
immigrants  understand, 
of  ensuring 
respect  and  benefit  from  common  European 
and national values 

that 

integration 

Including 
third-country 
nationals  in  future  Pluriannual  Programmes 
of the proposed Fundamental Rights Agency 

of 

Exploring  effective  ways  to  raise  public 
awareness about the basic values of the EU 

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3. ‘Employment is a key part of the integration process and is central to the participation of 
immigrants, to the contributions immigrants make to the host society, and to making such 
contributions visible’ 

National level 

EU level 

Monitoring  the  impact  of  National  Reform 
Programmes  on  labour  market  integration  of 
immigrants 

Encouraging  Member  States 
labour market integration policies 

to  develop 

Monitoring  the  application  of  the  Directives 
concerning discrimination in employment and 
on third-country nationals who are long-term 
residents9 

Developing innovative approaches to prevent 
labour market discrimination 

Involving  social  partners  in  the  elaboration 
and implementation of integration measures 

employers 

Informing 
educational 
institutions about certificates for introduction 
courses  to  promote  access  to  the  labour 
market or training opportunities 

and 

Exploring  additional  ways  of  recognising 
newcomers’  qualifications,  training  and/or 
professional 
experience,  building  upon 
existing laws 

Supporting 
training  capacities  of  small 
companies,  business  organisations  and  trade 
unions  in  sectors  of  the  economy  employing 
many migrants 

for 

employment 

Promoting 
immigrant 
women,  i.a.  by  ensuring  that  restrictions  in 
labour  market  access  are  minimised  and  do 
not hamper integration, when transposing the 
Directive on the right to family reunification8 

Encouraging  the  recruitment  of  migrants 
through 
economic 
awareness-raising, 
incentives  and  other  measures  targeted  at 
employers 

Supporting  migrant  entrepreneurship,  e.g. 
through  facilitated  access  to  banking  and 
credit services 

8 
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Council Directive 2003/86/EC of 22 September 2003. 
Council Directive 2003/109/EC of 25 November 2003. 

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4. ‘Basic knowledge of the host society’s language, history, and institutions is indispensable 
to  integration;  enabling  immigrants  to  acquire  this  basic  knowledge  is  essential  to 
successful integration’ 

National level 

EU level 

actions, 

trans-national 

e.g. 
Stimulating 
adaptation  of  good  practices  to  different 
contexts,  exchange  of  personnel, 
joint 
common 
development  of  programmes, 
dissemination of results 

integration 
innovative 
Supporting 
incorporating 
or  models 
programmes 
language  and  communication  training,  and 
the 
social 
political 
characteristics of the host country 

cultural, 

and 

Strengthening  the  integration  component  of 
through  pre-
admission  procedures,  e.g. 
departure  measures  such  as 
information 
packages  and  language  and  civic  orientation 
courses in the country of origin 

Organising 
introduction  programmes  and 
activities  for  newly  arrived  third-country 
nationals  to  acquire  basic  knowledge  about 
socio-
language, 
economic 
and 
fundamental values 

institutions, 
cultural 

history, 
features, 

life 

Offering courses at several levels taking into 
account  different  educational  backgrounds 
and previous knowledge of the country 

Reinforcing 
introduction 
the  capacity  of 
programmes  and  activities  for  dependants  of 
persons  subject  to  admission  procedures, 
women,  children,  elderly,  illiterate  persons 
and people with disabilities 

Increasing 
introduction 
the  flexibility  of 
programmes  through  part-time  and  evening 
courses,  fast  track  modules,  distance  and  e-
learning systems 

Targeting  introduction  activities  at  young 
third-country  nationals  with  specific  social 
and  cultural  problems  related  to  identity 
issues,  including  mentoring  and  role-model 
programmes 

resources 

Pooling 
adjacent 
municipalities  to  offer  different  types  of 
courses 

enabling 

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5.  ‘Efforts  in  education  are  critical  to  preparing  immigrants,  and  particularly  their 
descendants, to be more successful and more active participants in society’ 

National level 

EU level 

Reflecting diversity in the school curriculum 

Taking into account the specific problems of 
young  immigrants  in  measures  to  prevent 
underachievement and early school-leaving 

Improving 
migrants in higher education 

the  participation  of  young 

Addressing 
delinquency 

effectively  migrant 

youth 

Incorporating  integration  objectives  into  the 
educational 
Commission’s 
programmes 

various 

education 

Promoting 
third-country 
nationals through the Education and Training 
2010 Work Programme 

of 

transparent 

of 
Facilitating 
qualifications,  notably  through  proposals  for 
a European Qualifications Framework 

recognition 

6. ‘Access for immigrants to institutions, as well as to public and private goods and services, 
on  a  basis  equal  to  national  citizens  and  in  a  non-discriminatory  way  is  a  critical 
foundation for better integration’ 

National level 

EU level 

Strengthening  the  capacity  of  public  and 
private  service  providers  to  interact  with 
third-country  nationals  via 
intercultural 
translation,  mentoring, 
interpretation  and 
immigrant 
intermediary 
communities, 
information 
points 

by 
services 
‘one-stop-shop’ 

Developing comprehensive information tools, 
e.g.  manuals,  websites,  registers  of  staff’s 
diversity skills 

Monitoring  the  application  of  the  Directive 
on third-country nationals who are long-term 
residents  and  on  equal  treatment  irrespective 
of racial or ethnic origin 

Furthering  co-operation 
implementing 
Community  law  in  the  field  of  immigration 
and good practices in the area of integration 

in 

Supporting  studies  and  exchange  of  best 
practices 

Building sustainable organisational structures 
for integration and diversity management and 
developing  modes  of  co-operation  between 
governmental  stakeholders  enabling  officials 
to exchange information and pool resources 

Promoting  the  development  of  transferable 
intercultural  training  activities  for  public 
officials  

Introducing  schemes  to  gather  and  analyse 
information  about  the  needs  of  different 
categories  of  third-country  nationals  at  local 
and  regional  level  through  platforms  for 
information 
consultation, 
surveys  of 
between 

stakeholders 

of 
and 

exchange 

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immigrant communities 

companies 

debates 
on 
Engaging 
integration 
governmental 
programmes  with  companies’  corporate 
social responsibility programmes 

in 
linking 

and 

Integrating 
recruitment and training policies 

intercultural  competence 

into 

7. ‘Frequent interaction between immigrants and Member State citizens is a fundamental 
mechanism  for  integration.  Shared  forums,  intercultural  dialogue,  education  about 
in  urban 
immigrants  and 
environments enhance the interactions between immigrants and Member State citizens’ 

immigrant  cultures,  and  stimulating 

living  conditions 

National level 

EU level 

Promoting  the  use  of  common  spaces  and 
activities  in  which  immigrants  interact  with 
the host society 

Strengthening  the  integration  dimension  in 
Social 
Inclusion  and  Social  Protection 
Policies 

Improving the living environment in terms of 
for 
housing,  healthcare,  care 
children, 
and 
neighbourhood 
opportunities  for  education,  voluntary  work 
and  job  training,  the  condition  of  public 
spaces,  the  existence  of  stimulating  havens 
for children and youth 

facilities 
safety 

Encouraging the exchange of information and 
good  practice  with  regional,  local  and  urban 
authorities through networks operating at EU 
level  and  strengthening  the  link  between 
these networks and the NCPs through ad hoc 
consultation and expertise 

Supporting 
trans-national  co-operation  at 
regional,  local  and  municipal  level  between 
public  authorities,  private  enterprises  and 
civil society, including migrants’ associations 

8.  ‘The  practice  of  diverse  cultures  and  religions  is  guaranteed  under  the  Charter  of 
Fundamental  Rights  and  must  be  safeguarded,  unless  practices  conflict  with  other 
inviolable European rights or with national law’ 

National level 

EU level 

Developing 
dialogue and thoughtful public discourse 

constructive 

intercultural 

Promoting  inter-  and  intra-faith  dialogue 
platforms between religious communities and 
/or  between  communities  and  policy-making 
authorities 

Facilitating  intercultural  and  inter-religious 
dialogue at European level, including various 
stakeholders 

Further 
dialogue  with 
organisations 

developing 

the  Commission’s 
and  humanist 

religious 

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9.  ‘The  participation  of  immigrants  in  the  democratic  process  and  in  the  formulation  of 
integration policies and measures, especially at the local level, supports their integration’ 

National level 

EU level 

Increasing  civic,  cultural  and  political 
participation of third-country nationals in the 
host society and improving dialogue between 
different  groups  of  third-country  nationals, 
the  government  and  civil  society  to  promote 
their active citizenship 

Supporting  advisory  platforms  at  various 
levels 
third-country 
nationals 

for  consultation  of 

Encouraging dialogue and sharing experience 
and good practice between immigrant groups 
and generations 

in 

third-country 

nationals’ 
Increasing 
the  democratic  process, 
participation 
promoting  a  balanced  gender  representation, 
through 
information 
awareness 
campaigns and capacity-building 

raising, 

Initiating  a  study/mapping  exercise  of  the 
level  of  rights  and  obligations  of  third-
country nationals in the Member States 

Encouraging  the  opening-up  of  mainstream 
organisations  to  immigrants  and  the  building 
of  organisations  representing  their  interests 
EU-wide 

Fostering  the  creation  of  a  platform  of 
migrants’  organisations  and  organisations 
representing migrants’ interests at EU level 

Exploring  the  value  of  developing  a  concept 
of  civic  citizenship  as  a  means  of  promoting 
the  integration  of  third-country  nationals, 
including the rights and duties needed to give 
immigrants a sense of participation in society 

Promoting  research  and  dialogue  on  identity 
and citizenship questions 

Minimising  obstacles  to  the  use  of  voting 
rights, e.g. fees or bureaucratic requirements 

immigrants’  participation 

in 
Facilitating 
mainstream  organisations,  i.a.  by  supporting 
volunteer and internship schemes 

Increasing 
third-country 
involvement  of 
nationals in society’s responses to migration  

Building migrants’ associations as sources of 
advice  to  newcomers,  and  including  their 
representatives  in  introduction  programmes 
as trainers and role models 

Elaborating  national  preparatory  citizenship 
and naturalisation programmes 

3. 

TOWARDS A COHERENT APPROACH AT EU LEVEL 

With due consideration to the competence of Member States and of their local and regional 
authorities,  it  is  essential  to  foster  a  more  coherent  EU  approach  to  integration.  This  would 
consist of consolidating the legal framework on the conditions for the admission and stay of 
third-country  nationals,  including  their  rights  and  responsibilities;  developing  specific 

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cooperation  activities  and  exchange  of  information  on  integration;  mainstreaming  and 
evaluation. 

3.1  Mainstreaming and Evaluation: Common Basic Principles 10 and 11 

Successful implementation of policies and measures reflected by CBPs 1 to 9 rests upon two 
elements.  Integration  is  not  an  isolated  issue,  it  cuts  across  various  policy  fields,  such  as 
employment,  education  and  urban  policies,  and  it  needs  to  be  reflected  in  a  whole  range  of 
policies (CBP 10). Furthermore, integration policies and measures have to be evaluated to be 
constantly improved (CBP 11). 

CBP 10: ‘Mainstreaming integration policies and measures in all relevant policy portfolios 
and levels of government and public services is an important consideration in public-policy 
formation and implementation’ 

Actions needed at national level may include: 

•  Reinforcing the capacity to co-ordinate national integration strategy across different levels 

of government 

•  Ensuring that integration is an important element of policy on economic migration 

•  Mainstreaming  integration  in  all  relevant  policies,  while  developing  targeted  integration 

strategies 

•  Paying due attention to the mainstreaming of gender equality and to the specific needs of 

migrant youth and children in integration policies 

•  Supporting co-operation, co-ordination and communication between stakeholders 

•  Ensuring that NCPs function  as  a national focal point  and that information is  shared and 
co-ordinated with all tiers of government and other stakeholders, in particular at regional 
and local level 

Actions needed at EU level: 

•  Strengthening the network of NCPs 

•  Developing  co-operation  among  institutions  and  services  responsible  for  integration-

related issues 

•  Building integration objectives into relevant mainstream European programmes 

CBP 11: ‘Developing clear goals, indicators and evaluation mechanisms are necessary to 
adjust  policy,  evaluate  progress  on  integration  and  to  make  the  exchange  of  information 
more effective’ 

Actions needed at national level may include: 

•  Increasing  capacity  to  monitor  and  evaluate  integration  policies,  e.g.  through  national 
impact  assessments,  stakeholder-consultation  mechanisms,  indicators  and  monitoring 
measures 

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•  Enhancing capacity to collect, analyse and disseminate statistics related to integration 

•  Evaluating  admission  procedures  and  introduction  programmes  through  surveys  among 

participants and stakeholders 

•  Developing evaluation schemes for compulsory integration programmes 

Actions needed at EU level: 

•  Developing statistical tools and common indicators 

•  Supporting  information  exchange  on  national  evaluation  tools,  and  where  appropriate 

developing European criteria for the process of comparative learning 

•  Supporting  improved  knowledge  of  integration,  including  analysis  of  the  impact  of 

compulsory elements in national integration policies 

•  Providing broader evidence base for integration policies through research 

•  Developing further the European Migration Network 

3.2 

Legal framework concerning the admission and stay of third-country nationals 

Since  the  Community  acquired  competence  in  the  area  of  migration  under  the  treaty  of 
Amsterdam,  it  has  adopted  a  series  of  legislative  instruments  on  the  conditions  for  the 
admission and stay of third-country nationals (directives concerning family reunion, students, 
researchers,  and  the  long-term  residence).  These  directives  create  a  legal  framework, 
prescribing  equality  of  treatment  and  according  rights  of  access  to  employment,  and  to 
education/training,  all  of  which  elements  are  necessary  components  not  only  for  a  credible 
immigration policy but also for any successful integration of third-country nationals as part of 
that policy. In addition, EU legislation on anti-discrimination supports and develops this legal 
framework on the conditions for the admission and stay of third-country nationals. Any future 
migration instruments should take into account equality of treatment and rights for migrants. 

Towards a coherent EU approach: cooperation and exchange of information on 

3.3 
integration 

3.3.1  National Contact Points on Integration 

NCPs will continue to play an important role in monitoring progress across policy fields and 
in ensuring that efforts at national and EU level are mutually reinforcing. In developing the 
Handbook  on  Integration  they  were  effective  in  exchanging  information  and  good  practice 
and identifying priority areas. Focusing their work more closely on the CBPs will support the 
development of the European framework. The current nature of NCPs should be maintained 
as  their  inherent  flexibility  and  technical  character  facilitate  exchange  of  information  and 
experience.  To  make  better  use  of  their  expertise,  conveying  key  results  to  the  Immigration 
and  Asylum  Committee,  chaired  by  the  Commission,  as  well  as  to  the  relevant  Council 
structures  concerned  with  integration-related  policies  and  to  the  Presidency,  will  be 
undertaken when appropriate. 

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3.3.2  Handbook on Integration 

The first edition of the Handbook covered introduction courses for newly arrived immigrants 
and  recognised  refugees,  civic  participation  and  integration  indicators.  The  Handbook, 
addressed  to  policy-makers  and  practitioners  at  local,  regional,  national  and  EU  level,  was 
welcomed by stakeholders. The second edition, planned for 2006, will focus on housing and 
urban  issues,  access  to  health  and  social  services,  integration  in  the  labour  market, 
mainstreaming  and  integration  infrastructure  and  will  incorporate  the  CBPs  firmly  into  the 
analysis. 

3.3.3  Integration website 

The Hague Programme called explicitly for the development of a widely accessible Internet 
website.  The  Ministers  responsible  for  integration  invited  the  Commission,  in  close  co-
operation  with  the  NCPs,  to  establish  a  public-private  partnership  to  create  an  integration 
website  in  order  to  maintain  an  inventory  of  good  practices,  to  promote  their  exchange 
throughout the EU and beyond, and to assess continuously their efficacy and transferability to 
different contexts10. As a first phase, the Commission will launch a tender for a web portal for 
European experiences on immigrant integration. 

3.3.4  Involving stakeholders 

As stated in the Hague Programme, stability and cohesion within our societies benefit from 
the  integration  of  legally  resident  third-country  nationals  and  their  descendants.  A 
comprehensive  approach  involving  stakeholders  at  all  levels  is  essential  for  the  success  of 
integration policies. Whereas the effective involvement of stakeholders at regional and local 
level can only be achieved in the national context, the Commission will take the appropriate 
action at EU level. 

For this purpose, the Commission would set up a European Integration Forum. Its added value 
would be to assemble a range of stakeholders active in the area of integration at EU level. The 
targeted  stakeholders  would  thus  be,  for  example,  EU  umbrella  organisations,  having  a 
membership across a number of Member States. The main functions of the forum would be 
consultation, exchange of expertise and drawing up recommendations to be published on the 
integration website. It should also have close links to the NCPs. 

The European Parliament, the European Economic and Social Committee and the Committee 
of  the  Regions  will  be  invited  to  be  involved  in  the  European  Integration  Forum.  Their 
representatives will also be encouraged to make ad hoc contributions to relevant meetings of 
the NCPs. They will be invited to participate in the preparatory conferences in the framework 
of the Handbook on Integration. 

3.3.5  Annual Report on Migration and Integration 

The  Commission’s  Annual  Report  will  be  an  important  instrument  to  monitor  the  further 
development of integration policies in the European Union. 

10 

Ministerial Conference, Groningen, 9-11 November 2004. 

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4. 

CONCLUSIONS 

Legal  migration  and  integration  are  inseparable  and  should  mutually  reinforce  one  another. 
The  Framework  for  the  Integration  of  Third-Country  Nationals  in  the  European  Union  put 
forward  by  this  Communication  represents  a  major  commitment  and  demonstrates  that  the 
Commission is giving integration a high place on its policy agenda. A wide range of existing 
EU  policies  and  financial  instruments  can  help  to  support  the  efforts  of  national  authorities 
and  civil  society.  The  challenge  of  the  future  will  be  to  promote  concerted  efforts  by  all 
relevant stakeholders in order to maximise the impact and effectiveness of these instruments. 

The Member States, together with the Commission, should take the necessary steps to develop 
the Common Agenda for Integration in a forward-looking and focused manner. The Ministers 
in charge of integration, in close co-operation with the Commission, should hold once a year a 
political debate on the integration of third-country nationals in the EU and assess the need for 
further  action.  The  Commission  also  hopes  that  the  other  Institutions  and  stakeholders  will 
join efforts to achieve the successful integration of third-country nationals into our societies. 

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I. 

POLICY CONTEXT 

ANNEX 

All  levels  of  government  are  involved  in  developing  and  implementing  integration  policy. 
Experience  over  the  last  few  years,  and  particularly  since  the  adoption  of  the  Tampere 
conclusions, has shown the usefulness of the exchange of information and good practice. This 
has  taken  place  between  Member  States  and  at  different  levels  of  government.  As  a  result, 
there has already been a certain amount of convergence in terms of policy and objectives for 
integration across the EU. A great deal of common ground has in fact been identified as far as 
key  dimensions  of  integration  are  concerned.  This  is  reflected  in  the  Common  Basic 
Principles (CBPs) on integration adopted by the Council in November 2004. They represent a 
major step forward in developing a common approach to integration and they have, therefore, 
been taken as the focus of this Communication. The adoption of the CBPs also underlines that 
in spite of the efforts made in recent years, both within the Member States and at EU level, 
integration policies need to be strengthened further. The adoption of these principles is also a 
recognition  of  the  fact  that  failure  in  one  individual  Member  State  may  have  negative 
consequences  for  the  others  and  for  the  European  Union  as  a  whole,  and  that  it  is  in  the 
interests of all Member States to pursue effective integration strategies.  

Primary  responsibility  for  the  development  and  implementation  of  integration  policy  and 
measures  nevertheless  remains  at  the  level  of  Member  States.  However,  the  Council  has 
called on the Commission  to  support national efforts in this  domain, particularly in view of 
the  implications  which  one  Member  State’s  policy  can  have  on  the  others.  There  are  many 
benefits  which  can  accrue  from  both  exchanging  information  and  co-operating  together  to 
tackle what are, so often, common problems. 

ACTIONS TO STRENGTHEN THE IMPLEMENTATION OF THE COMMON 

II. 
BASIC PRINCIPLES 

The actions suggested at national level are given as possible guidelines designed to help in the 
conception  of  national  policies  and  programmes.  They  are  also  actions  which  can  be 
supported  under  the  proposals  which  the  Commission  has  made  for  the  European  Fund  for 
Integration  to  succeed  INTI.  The  actions  proposed  at  European  level  extend  and  develop 
activities  which  have  shown  their  usefulness  over  recent  years,  in  particular  the  promotion 
and  support  of  networking  amongst  practitioners,  the  transfer  of  good  practice  and  the 
exchange of information. 

CBP  1  ‘Integration  is  a  dynamic,  two-way  process  of  mutual  accommodation  by  all 
immigrants and residents of Member States’ 

This  principle,  which  was  already  identified  and  adopted  by  the  European  Council  in  the 
conclusions  of  its  meeting  in  Thessaloniki  in  June  2003,  underlines  that  integration  is  a 
process of mutual accommodation requiring the participation of both immigrants and the 
host  society.  Strengthening  the  capacity  of  the  receiving  society  to  accommodate  growing 
diversity  by  targeting  integration  actions  at  the  host  population  is  therefore  of  paramount 
importance.  In  reality  integration  takes  place  at  the  local  level  as  part  of  daily  life  and 
everyone has a part to play. To be successful, integration must involve the receiving society in 
the  provision  of  opportunities  for  the  full  participation  of  third-country  nationals.  Engaging 
local communities in working together is thus  crucial. An important way of doing this is to 

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ensure  that  national  programmes  implementing  a  two-way  approach  and  involving 
immigrants and the native population are set up. 

Essential  elements  in  this  process  are  accurate  information  about  migrants  in  their 
neighbourhood  and  possibilities  for  local  people  and  immigrants  to  meet.  Among  possible 
actions  that  could  be  envisaged  are  awareness-raising  campaigns,  intercultural  events 
involving  local  residents,  migration  exhibitions,  all  intended  to  project  accurate  information 
about  both  the  local  society  and  immigrants.  These  actions  cover  issues  such  as  cultural 
traditions,  religious  practices,  and  social  and  economic  contributions  which  immigrants  can 
make  to  the  host  society.  As  openness  and  good  neighbourliness  are  important  elements  of 
successful  integration,  promoting  ‘bridging  capital’,  trust  and  friendly  relations  with  the 
neighbouring community, for instance by means of welcoming committees or mentoring, is 
very  valuable  as  has  been  shown  by  experience  in  immigration  countries  elsewhere  in  the 
world.  The  media  play  an  essential  role  in  providing  balanced  coverage  and  responsibly 
informing  the  public  debate  on  immigration  and  integration.  Thus  various  forms  of  co-
operation  with  the  media,  including  voluntary  codes  of  practice  offering  guidance  to 
journalists, are needed. 

CBP 2 ‘Integration implies respect for the basic values of the European Union’ 

The Charter of Fundamental Rights describes the civil, political, economic and social rights of 
European citizens and of all persons resident in the EU. These are based on the values which 
all  the  Member  States  adhere  to:  human  rights  standards  and  values  such  as  equality,  anti-
discrimination,  solidarity,  openness,  participation  and  tolerance.  Member  States  are 
responsible  for  assuring  that  all  residents,  including  immigrants,  understand,  respect  and 
benefit from common European and national values. In this context, putting strong emphasis 
on  civic  orientation  in  introduction  programmes  and  other  activities  for  newly  arrived 
third-country nationals is necessary. EU values provide a framework within which individual 
Member  States  can  develop  their  own  codes  based  on  their  national  laws  and  traditions.  A 
first and essential element in this process is an understanding by immigrants of the nature of 
the  society  which  they  are  joining.  This  underlines  the  importance  of  including  civic 
orientation and other information in introduction programmes as soon as immigrants arrive. 

At the European level, the proposed Fundamental Rights Agency can play a role by including 
the integration dimension into its future Pluriannual Programmes. 

CBP  3  ‘Employment  is  a  key  part  of  the  integration  process  and  is  central  to  the 
participation  of  immigrants,  to  the  contributions  immigrants  make  to  the  host  society, 
and to making such contributions visible’ 

Access  to  the  labour  market  is  an  essential  ingredient  of  successful  integration.  One  of  the 
failures of current policies in many Member States can be shown by the significantly higher 
rate  of  unemployment  of  immigrants  with  respect  to  the  native  population.  This  is  of 
particular concern with the second and third generation of young migrants in many countries. 
Much work is already being done throughout the EU to remedy this situation and it is one of 
the priorities of the European Employment Strategy. However, there are a number of areas 
which  have  perhaps  not  been  given  the  attention  they  deserve  at  national  level  and  which 
could be very useful in ensuring that the potential of immigrants is fully utilised. One of them 
is  ensuring  recognition  of  qualifications  from  third  countries,  making  wider  use  of 
certificates  obtained  by  immigrants  from  initial  introduction  and  training  courses  and 
ensuring  the  value  of  such  courses  as  tools  to  access  the  labour  market.  For  regulated 

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professions,  it  is  important  to  take  into  account  professional  qualifications  obtained  by  the 
holder  in  third  countries,  as  well  as  training  undergone  and/or  professional  experience,  in 
procedures  of  professional  recognition,  while  respecting  minimum  training  requirements 
established by the relevant EU Directives. Decisions in this regard should be taken within a 
reasonable delay, reasons shall duly be given and the applicant shall have the right of appeal 
before the courts under national law. 

There  is  an  important  role  also  for  the  private  sector  much  of  which  recognises  today  the 
importance  of  diversity  management.  However,  more  could  be  done,  especially  at  the  local 
level,  to  involve  small  companies  and  businesses  in  particular  by  helping  them  to  improve 
training  for  immigrants  and  by  building  up  their  capacity  to  manage  a  more  diverse 
workforce. Further incentives to engage employers in recruiting immigrants and providing 
greater support to migrant entrepreneurs are equally important. In fact, a large potential of 
migrant  entrepreneurship  is  still  unused.  Employment  of  immigrant  women  should  be 
actively promoted. 

At  the  EU  level,  the  Commission  will  monitor  the  impact  of  the  National  Reform 
Programmes  on  the  labour  market  integration  of  immigrants,  encourage  Member  States  to 
develop  labour  market  integration  strategies  and  monitor  the  legislation  which  safeguards 
immigrant rights, notably on the status of long-term residents; on combating discrimination, 
racism and xenophobia. 

CBP  4  ‘Basic  knowledge  of  the  host  society’s  language,  history,  and  institutions  is 
indispensable  to  integration;  enabling  immigrants  to  acquire  this  basic  knowledge  is 
essential to successful integration’ 

Enabling immigrants to acquire basic knowledge of the host society’s language, history and 
institutions is essential for their integration. Knowledge of the language of the Member State 
concerned is seen as crucial not only for migrant workers but also for their family members 
and  for  their  children  to  ensure  they  do  not  fall  behind  in  their  schools.  Introduction 
programmes play an important role in helping newly arrived third-country nationals to gain 
skills  and  knowledge  needed  for  full  participation  in  society.  They  are  an  important 
investment  in  the  future  that  both  immigrants  and  the  receiving  society  should  be  ready  to 
make.  Introduction  courses  provide  immigrants  with  a  better  start  on  their  way  to  self-
sufficiency and facilitate their prospective contribution to the host society. For this reason, a 
number of suggestions are made for actions to increase their efficiency, for their organisation 
at various levels, taking into consideration divergent educational background and experience 
of immigrants; for enhancing their flexibility via part-time courses, evening courses, distance 
and  e-learning,  allowing  participants  to  work  or  study  at  the  same  time  and  for  achieving 
synergies by greater co-operation between service providers. 

However,  as  managed  migration  schemes  are  established,  and  within  the  context  of 
developing  a  European  approach  to  the  admission  of  labour  migrants,  there  is  scope  for 
paying more attention to pre-departure measures which can improve the integration process 
on  arrival.  Such  measures  can  be  part  of  comprehensive  migration  and  development 
strategies11. 

11 

On issues of migration and development, see Commission Communication COM(2005) 390. 

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Since  this  principle  concerns  such  a  key  part  of  the  integration  process,  the  Commission 
should play an active role at EU level in stimulating  the exchange of information and good 
practice and supporting innovative approaches. 

CBP 5 ‘Efforts in education are critical to preparing immigrants, and particularly their 
descendants, to be more successful and more active participants in society’ 

The education and training systems in the Member States play a major role in the integration 
of  new  young  immigrants  and  continue  to  do  so  with  the  second  and  third  generation, 
particularly with respect to language learning. The success of the second and third generations 
of  third-country  nationals  depends  to  a  large  extent  on  their  level  of  attainment  and  the 
qualifications they obtain. Schools play an additional role as a place of acquiring knowledge 
of society and as a cultural bridge and can also encourage pluralism and diversity. 

The  systems  themselves  must  adjust  to  manage  increasing  ethnic,  cultural  and  religious 
diversity amongst their pupils and students. A number of actions related to the education of 
children and adolescents are necessary, including reflection of diversity in the curriculum. It 
is equally important to make academic underachievement and early school-leaving, as well 
as all forms of migrant youth delinquency, priority areas for intervention. 

At EU level, reflecting diversity and issues concerning the integration of migrants should be 
better incorporated into the various educational programmes. Moreover, Strategic Objective 2 
of  the  Education  and  Training  2010  Work  Programme  ‘Facilitating  the  access  of  all  to 
education  and  training  systems’,  encompasses  the  promotion  of  measures  to  increase  social 
cohesion,  of  which  the  integration  of  migrants  is  a  part12.  Additionally,  the  Maastricht 
Communiqué of December 2004 encourages Member States to develop Vocational Education 
and  Training  (VET)  systems  which  meet  the  needs  of  groups  at  risk  of  social  and  labour 
market  exclusion,  including  migrants.  Further,  the  Commission  will  shortly  bring  forward 
proposals for a European Qualifications Framework (EQF) which will facilitate cross-border 
transparency  and  recognition  of  qualifications  and  thus  aid  migrants’  access  to  education, 
training and work in the EU. 

CBP 6 ‘Access for immigrants to institutions, as well as to public and private goods and 
services,  on  a  basis  equal  to  national  citizens  and  in  a  non-discriminatory  way  is  a 
critical foundation for better integration’ 

An  important  aspect  of  the  integration  process  is  ensuring  that  immigrants  have  access  to 
public  and  private  institutions  and  services  without  discrimination.  This  often  requires 
specific  measures  to  build  up  the  capacity  of  public  and  private  service  providers  to 
interact  with  third-country  nationals  and  to  understand  and  respond  to  their  needs.  Such 
strategies  can  be  strengthened  by  improving  the  participation  in  the  host  society  of 
organisations  representing  migrants.  Experience  has  shown  that  service  providers  can  be 
made  more  accessible  for  third-country  nationals  via  intercultural  interpretation  and 
translation as well as intermediary services by representatives of immigrant communities and 
other similar measures. 

Another area which could benefit from further support is the reinforcement and development 
of  consultation  mechanisms  at  local  and  regional  level  to  maintain  a  dialogue  between 

12 

Point 43 of the Presidency Conclusions, European Council, 15/16 March 2002. 

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migrant  communities  and  local  people,  institutions  and  others  involved  in  the  integration 
process. This is particularly important in the towns and cities where many immigrants settle. 

In these areas there are already many interesting initiatives although they are not always well 
known  outside  of  the  town  or  region  concerned.  The  Commission  can  therefore  play  an 
important  role  by  supporting  research  and  exchange  of  good  practice.  It  also  has  an 
important role in monitoring relevant EU legislation concerning immigrants’ rights. 

CBP  7  ‘Frequent  interaction  between  immigrants  and  Member  State  citizens  is  a 
fundamental  mechanism  for  integration.  Shared  forums,  intercultural  dialogue, 
education  about  immigrants and  immigrant cultures, and stimulating living conditions 
in urban environments enhance the interactions between immigrants and Member State 
citizens’ 

Since the majority of immigrants in the EU live in the larger towns and cities, they are in the 
front line when it comes to devising and implementing integration measures. The process of 
integration goes on very largely in an urban context since this is where the daily interaction - 
which is at its core - takes place. Measures which can improve the urban environment and 
help to promote a shared sense of belonging and participation may, therefore, be instrumental 
in promoting integration. It is in this context that actions can be taken to establish common 
forums for discussions between different communities, to make available spaces and provide 
for activities (e.g.  for  sports  or  cultural activities)  in which  immigrants and  the host society 
can  interact  together  in  a  positive  way.  At  the  same  time,  low-quality  housing  and  over 
representation  of  immigrants  in  deprived  urban  neighbourhoods  create  problems  for 
integration  in  most  Member  States.  Dealing  with  such  issues  requires  close  co-operation 
between regional, local and municipal authorities and underlines the central role of municipal 
authorities  in  the  process  of  integration.  At  EU  level,  strengthening  the  integration 
dimension in Social Inclusion and Social Protection Policies is important. 

CBP 8 ‘The practice of diverse cultures and religions is guaranteed under the Charter of 
Fundamental  Rights  and  must  be  safeguarded,  unless  practices  conflict  with  other 
inviolable European rights or with national law’ 

Member  States  increasingly  stress  the  importance  of  the  socio-cultural  dimension  of 
integration.  Both  immigrants  and  nationals  can  be  mobilised  around  intercultural  and  inter-
religious dialogue. Most Member States are faced with the phenomenon of increasing ethnic, 
cultural and religious diversity and the need to manage intercultural challenges. The cultures 
and  religions  that  immigrants  bring  with  them  have  enriched  our  societies  in  many  ways. 
However,  difficulties  can  arise  where  religious  or  cultural  beliefs  or  practices  conflict  with 
European  fundamental  values  or  with  national  law.  In  such  cases  each  Member  State  must 
look for solutions which will necessarily reflect the national situation and the need to respect 
European  fundamental  values  and  national  laws.  This  principle  sets  the  boundaries  within 
which such arrangements can be made. 

The existence of mechanisms for dialogue between different ethnic and religious groups will 
greatly  facilitate  dialogue  and  discussion  on  such  issues  and  on  daily  problems  which  may 
arise. Developing intercultural dialogue and contributing to the creation of inter- and intra- 
faith  dialogue  platforms  between  religious  communities  and/or  between  communities  and 
policy-making  authorities  are  among  possible  measures  to  be  taken.  Such  dialogue  is 
particularly necessary since strong religious beliefs can be one of the factors which contribute 

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to  the  development  of  radicalisation  especially  among  young  immigrants  looking  for  a  new 
sense of identity. 

Such  activities  should  be  continued  at  EU  level  involving  religious  and  humanist 
organisations and other stakeholders, pursuant to Declaration 11 to the Amsterdam Treaty. 

CBP  9  ‘The  participation  of  immigrants  in  the  democratic  process  and  in  the 
formulation  of  integration  policies  and  measures,  especially  at  the  local  level,  supports 
their integration’ 

The involvement of migrants’ associations and organisations representing their interests in the 
development  and  implementation  of  integration  measures  has  been  shown  to  increase  the 
value  of  such  strategies.  The  participation  of  immigrants  in  the  democratic  process, 
particularly at the local level, enhances their role as residents and as participants in society. 
Providing  for  their  participation  and  for  the  exercise  of  active  citizenship  is  needed,  most 
importantly at the political level and especially at the local level. Political rights provide both 
a  means  of  expression  and  also  bring  with  them  responsibilities.  In  order  to  increase  the 
participation of third-country nationals in local elections, actions such as awareness-raising 
campaigns  and  the  removal  of  obstacles  to  the  use  of  voting  rights  such  as  fees  or 
bureaucratic  requirements  can  be  helpful.  A  balanced  gender  representation  should  be 
promoted. 

Other  examples  of  useful  action  concern  the  development  of  advisory  platforms  for 
consultation at all levels. The adaptation of many kinds of organisations to intercultural reality 
and efforts to engage immigrants in their work can also promote integration. Special volunteer 
programmes and internship schemes may be particularly helpful.  

Building on activities at national level, the Commission can contribute by creating platforms 
for  dialogue  at  the  EU  level  to  complement  the  national  fora.  Information  is  also  needed 
about  the  state  of  participation  of  immigrants  both  in  the  political  process  and  in  the 
development of integration policies in the different Member States. Such a mapping exercise 
will  contribute  to  ongoing  reflections  at  EU  level  on  the  value  of  developing  a  concept  of 
civic  citizenship  as  a  means  of  promoting  the  integration  of  immigrants  who  do  not  have 
national citizenship. Problems of identity lie at the heart of the difficulties which many young 
immigrants  in particular  seem  to face  today. Further  exploration  of these issues at EU level 
may therefore be helpful. 

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