Opinion of the European Economic and Social Committee on Immigration in the EU and integration policies: cooperation between regional and local governments and civil society organisations
Date: 2006-09-13
Institutions: European Economic and Social Committee
Subjects: EU migration policy, European Union, cooperation policy, immigration, integration of migrants

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Opinion of the European Economic and Social Committee on Immigration in the EU and integra-
tion policies: cooperation between regional and local governments and civil society organisations

(2006/C 318/24)

On 14 July 2005 the European Economic and Social Committee, acting under Rule 29(2) of its Rules of
Procedure, decided to draw up an opinion on Immigration in the EU and integration policies: cooperation between
regional and local governments and civil society organisations.

The Section for Employment, Social Affairs and Citizenship, which was responsible for preparing the
Committee's work on the subject, adopted its opinion on 13 July 2006. The rapporteur was
Mr Pariza Castaños.

At its 429th plenary session, held on 13 and 14 September 2006 (meeting of 13 September), the European
Economic and Social Committee adopted the following opinion by 181 votes to 7 with 8 abstentions.

1. Introduction

In 2002, the EESC drew up an own-initiative opinion on
1.1
integration and the role of civil society (1) with the
Immigration,
purpose of stimulating a political and social debate at Com-
munity level aimed at ensuring that integration policies are
included as a basic component of common immigration and
asylum policies.

1.2
One of the opinion's proposals was that the European
Union should draw up a Community programme to promote
the social
integration of immigrants. The EESC believes that
programmes need to be set up to promote the integration of
new immigrants and of people arriving on the grounds of
family reunification. The same also applies to refugees and
asylum-seekers who, as well as having European status, are
protected by international law.

1.3
The EESC held a conference for this same purpose on 9
and 10 September 2002, in cooperation with the Commission.
It was attended by more than 200 representatives of the social
partners and the most representative NGOs of the 25 Member
States and of European networks. The aim of the conference
was to involve civil society in promoting European integration
policies.

1.4
The conclusions of the conference stated that ‘the social
partners and civil society organisations have a key role to play
in integration’, and that ‘The European Union and its Member
States should foster the integration of immigrants, minorities
and refugees, particularly at regional and local level. A Euro-
pean programme to advance integration is needed’ (2).

(1) OJ C 125 of 27.5.2002 (rapporteur: Mr Pariza Castaños; co-rapporteur:

Mr Melícias).

(2) See the conference General Conclusions.

1.5
In 2003 the European Council set up the National
Contact Points for integration, and instructed the Commission
to present an annual report on migration and integration (3).
The Commission also drew up a Communication on immigration,
integration and employment (4) adopting a holistic approach to
integration, which was endorsed by the EESC in its opinion at
that time (5). In November 2004 the Commission published a
Handbook on Integration for policy-makers and practitioners (6).

The Hague Programme,

1.6
adopted by the European
Council of 4 and 5 November 2004, underlines the need for
integration policies and EU
greater coordination of national
initiatives in this field, and declares that EU policies should be
based on common principles and clear means of evaluation.

A more developed policy and legislative environment for
1.7
immigration policies is now in place. The present opinion repre-
sents a fresh contribution from the EESC, which focuses on the
social and political players at regional and local level, since this
is where challenges can most effectively be met and where poli-
cies can achieve the best results.

1.8
In conjunction with the drawing up of the opinion, the
EESC held a hearing in Barcelona in order to exchange local and
regional authorities best practice (a report on the hearing is in
Appendix 2) and another in Dublin, in cooperation with the
ILO and the European Foundation for the Improvement of
Living and Working conditions, to analyse best practice on inte-
gration and anti-discrimination measures at
the workplace
(Appendix 3 contains a report on the hearing).

(3) COM(2004) 508 final.
(4) COM(2003) 336 final.
(5) OJ C 80 of 30.3.2004 (rapporteur: Mr Pariza Castaños).
(6) http://europa.eu.int/comm/justice_home/doc_centre/immigration/

integration/doc/handbook_en.pdf.

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2. The Common Agenda for Integration

On 1 September 2005,

the Commission published a
2.1
Communication on A Common Agenda for Integration — Frame-
work for the Integration of Third-Country Nationals in the European
Union (7), which the EESC welcomes and supports, as it sets out
to flesh out the proposal made by the Committee in the 2002
opinion and conference.

The Commission had proposed an open method of coor-
2.8
dination (13) for immigration policies, which was not accepted
by the Council. The EESC (14), which supported the Commis-
sion's proposal, sees the network of national contact points, the
common principles and the evaluation procedure for integration
policies as a step forward in coordinating national policies, and
as part of a common approach. The EESC proposes that the
Commission and the Council adopt the open method of coordi-
nation, on the basis on these encouraging experiences.

The communication calls upon the Member States to
2.2
step up their efforts concerning national strategies to integrate
immigrants, and seeks greater consistency between these strategies
and actions taken at EU level.

Development must continue of a legal

2.9
framework
(common policy) governing the conditions of admission and
stay for third-country nationals at European level. The Member
States must properly transpose the directives on long-term resi-
dents and family reunification (15) which were adopted in 2003.

2.3
The present opinion is at the EESC's own initiative, and
is therefore not specifically on the Commission's communica-
tion. It does, however, also incorporate the EESC's views on
COM(2005) 389 final.

The Justice and Home Affairs Council of 19 November
2.4
2004 adopted a set of Common Basic Principles to underpin
a coherent European framework for integration policies. The
Commission is putting these principles into practice in the form
of actions which ‘should be seen as main elements of all
national and EU integration policies’ (8). The actions are orga-
nised around eleven principles (9). The EESC views these princi-
ples, fleshed out in the Common Agenda, as a proper basis for
balanced and coherent
integration policies at European and
national levels.

The establishment of a European Fund for the Integra-
2.5
tion of Third-country Nationals (10)
is proposed under the
2007-2013 financial perspectives,
to be based on these
common principles. The EESC supports the proposal (11) and
hopes it will be included in the future EU budget.

2.6
The Agenda suggests actions to be carried out at national
level and others at Community level. The Commission wants to
carry out continuous assessment of the programmes.

2.10
The close connection between a common ‘immigration’
policy and a common integration strategy is highlighted by the
Commission. However,
the directive on the admission of
economic migrants has still not been adopted. The EESC (16)
agrees with the European Commission's view that ‘any future
migration instruments should take into account equality of
treatment and rights for migrants’ (17). The Commission has
announced a second edition of the Handbook on Integration, an
integration website,
the creation of a European Integration
Forum, and the reinforcement of the annual reports on migra-
tion and integration. The EESC supports these aims, and is
willing to cooperate with the Commission.

2.11
The EESC firmly supports the implementation of the
Agenda, and recalls its views as stated in an earlier opinion: ‘The
EESC proposes that the Commission could manage a European
integration programme, equipped with sufficient economic
resources and within the framework of coordination of national
policies, and stresses how important it is that the Council grant
the Commission the political, legislative and budgetary means
needed to promote the integration of immigrants. The EESC
highlights the importance of establishing positive and effective
immigrant arrival programmes in cooperation with civil society
organisations’ (18).

The Commission argues that ‘with due consideration to
2.7
the competence of Member States and of their local and
regional authorities, it is essential to foster a more coherent
EU approach to integration’ (12).

(7) COM(2005) 389 final.
(8) See COM(2005) 389 final, point 2.
(9) Appendix 1.
(10) See COM(2005) 123 final.
(11) See EESC opinion on management of migration flows, OJ C 88 of

11.4.2006 (rapporteur: Ms Le Nouail-Marlière).

(12) See COM(2005) 389 final, point 3.

2.12
In addition, the EESC also proposes that the EU dedicate
adequate funds to humanitarian conditions for the many undo-
southern
cumented migrants arriving in the countries of
Europe. The EU Member States must display a sense of solidarity
and responsibility if Europe is to act with a common policy.

(13) COM(2001) 387 final.
(14) OJ C 221 of 17.9.2002 (rapporteur: Ms zu Eulenburg).
(15) Directives 2003/109/EC and 2003/86/EC.
(16) Opinion on the Green Paper on an EU approach to managing
economic migration (rapporteur: Mr Pariza Castaños), OJ C 286 of
17.11.2005.

(17) See COM(2005) 389 final, point 3.2.
(18) OJ C 80 of 30.3.2004, point 1.10 (rapporteur: Mr Pariza Castaños).

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3. Integration policies

Integration is a two-way process, founded on the rights
3.1
and obligations of third country nationals and the host society,
enabling immigrants to participate fully. In another opinion, the
EESC defined integration as ‘bringing immigrants' rights and
duties, as well as access to goods, services and means of civic
participation progressively into line with those of the rest of the
population, under conditions of equal opportunities and treat-
ment’ (19).

3.2
This two-way approach means that integration applies
not only to immigrants, but also to the host society. It is not so
much a question of the integration of immigrants into the host
society, but rather with the host society: in other words, both
sides must integrate. Integration policies must shape both sides,
the purpose being to achieve a society in which all citizens have
the same rights and obligations, and share the values of a demo-
cratic, open and pluralist society.

the cultural values of

Immigrants have a duty to understand and respect the
3.3
cultural values of the host society, which in turn has a duty to
understand and respect
immigrants.
Cultural
are often manipulated for discriminatory
issues
purposes. Integration does not mean the cultural adjustment of
immigrants to the host society. This mistaken attitude has led to
a number of failures. European societies are pluralist from the
cultural point of view, and this trend is set to be further rein-
forced in the future as a result of increasing and more wide-
spread immigration.

3.4
It should not be forgotten that several Member States
have sizeable minority populations of various national or
cultural origins, whose rights must also be upheld and guaran-
teed.

3.5
The EESC is convinced that cultural diversity is a feature
of a pluralist and democratic Europe, as is the principle of reli-
gious neutrality on the part of the State. Immigration from non-
EU countries contributes new ingredients to our diversity,
enriching our societies socially and culturally. Culture in human
societies cannot be understood as a fixed entity, but rather as a
process in permanent
flux which is enriched by the most
diverse contributions. An administration that applies the princi-
ples of independence and neutrality towards religions helps to
create a good relationship between immigrants and the host
society. European societies need to promote
intercultural
training programmes. The UNESCO convention on cultural
diversity (20) is a crucial tool for European policies.

(19) OJ C 125 of 27.5.2002, point 1.4 (rapporteur: Mr Pariza Castaños).
(20) Convention on the Protection and Promotion of the Diversity of

Cultural Expressions. See
http://portal.unesco.org/culture/en/ev.php-URL_ID=11281&URL_-
DO=DO_TOPIC&URL_SECTION=201.html .

The social

integration of

immigrants also means a
3.6
process of putting their rights and duties on an equal footing,
and is closely linked with the fight against discrimination.
Discrimination is an illegal means of undermining personal
rights. The right to family life is not sufficiently guaranteed in
some Member States due to highly restrictive laws on family
reunification. Neither is the directive adopted by the Council
appropriate (21).

3.7
The principle of subsidiarity indicates that integration
policies, within a coherent European framework, are not the
sole responsibility of the Member State governments. Such poli-
cies will be more fruitful if regional and local authorities are
involved in them, and if
they cooperate actively with civil
society organisations. The EESC proposes that local and regional
authorities step up their efforts and promote new integration
policies.

In keeping with the powers which they have in the
3.8
various Member States,
local and regional authorities possess
political, legislative and budgetary instruments which they must
put to good use in integration policies.

3.9
Both immigrants and host societies must display an inte-
gration-friendly attitude. The social partners and civil society
organisations must be actively involved in integration policies
and anti-discrimination measures.

3.10
The fundamental challenge facing civil society organisa-
tions is to foster an integration-friendly attitude among Euro-
pean host societies. The social partners, human rights organisa-
tions, cultural and sports associations, faith communities, neigh-
bourhood associations, educational communities, the media and
so on must be at the forefront of integration. To do this, they
must open their own doors and seek to get
immigrants
involved.

3.11
Discrimination, racism and xenophobia are on the rise
in some small sectors of European societies, fuelled by some
irresponsible politicians, and by elements in the media which
amplify the social impact of such behaviour. However, many of
Europe's civil society organisations are engaged in the social and
political struggle against such behaviour.

(21) See Directive 2003/86/EC and the EESC opinions in OJ C 204 of
18.7.2000 (rapporteur: Ms Cassina) and OJ C 241 of 7.10.2002
(rapporteur: Mr Mengozzi).

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Together with civil society organisations,

local and
3.12
regional authorities bear a responsibility to inform immigrants
and the host society about their rights and duties.

3.13
Immigrant organisations and communities are playing a
key role in integration. These bodies must also generate an
impetus for integration among their members and step up their
links with host society organisations.

3.14
Local and regional authorities must support the work
of these organisations and consult them before taking policy
decisions.

It must be remembered that immigration through irre-
4.3
gular channels is an obstacle to integration policies, since undo-
cumented immigrants are in an insecure, highly vulnerable posi-
tion. Procedures have been introduced in some Member States
to regularise the residency status of such people,
thereby
promoting their integration.

4.4
Although some doubts about subsidiarity persist in the
leaders believe that
Council of
coherent integration policies need to be promoted at all levels:
Community, national, regional and local.

the European Union, most

Anti-discrimination directives (22) have been adopted
3.15
and transposed into national law. The Committee hopes it will
the reports evaluating their impact and
be informed about
results.

The EESC considers that if such policies are to be effec-
4.5
tive,
they must be proactive and be pursued as part of a
coherent and holistic approach. Authorities often work only
reactively, once problems have appeared and are difficult to
resolve.

However, many immigrants and their descendants, or
3.16
people belonging to ethnic or cultural minorities, suffer from
workplace discrimination (with equal vocational qualifications):
greater difficulty in gaining employment, low-quality jobs and
more frequent dismissal.

Integration is a process with many dimensions, and must
4.6
draw in all
the different public administrations and social
players. European, national, regional and local authorities should
draw up programmes reflecting the scope of their respective
powers. In order to guarantee the efficacy and overall consis-
tency of the programmes and actions, they must be properly
backed and coordinated.

the social partners at

It
is essential
level combat

that
local and
3.17
regional
these discriminatory practices, which
infringe European legislation and are obstacles to integration.
Discrimination at work is also an obstacle to successful busi-
nesses. Workplace integration, ensuring equal treatment free of
work-related discrimination vis-à-vis national workers, is a prere-
quisite for business success and social integration (23). Appendix
3 contains a report on the hearing held in Dublin to examine
best practice in employment integration.

4. Regional and local integration programmes

4.1
It was, in the past, believed in some Member States that
there was no need for integration policies, since they considered
immigrants to be no more than ‘guests’ who would return to
their countries of origin when they finished working. This
mistaken approach has caused numerous problems of segrega-
tion and social marginalisation, which present policies are
attempting to resolve.

4.2
The thinking in other Member States was for years that
immigrant integration would happen easily and automatically,
without active policies. However, segregation and marginalisa-
tion have solidified with time, triggering serious social conflicts.
New policies are now setting out to put right the problems of
the past.

(22) Directives 2000/43/EC and 2000/78/EC.
(23) Cf the positive work of the social partners in Ireland, as referred to in

Appendix 3.

4.7
The general public and local authorities suffer the conse-
quences of mistaken government policies. Urban authorities are
the first to bear the consequences of these policies' failures. As a
result, numerous local and regional governments have long
been pursuing their own introduction and integration policies.
Their experiences vary widely: some offer examples of best prac-
tice, while others have failed.

4.8
The scale of the problems, and of present and future
migration flows, suggest that the challenges are great — but the
economic means and political work of local and regional autho-
rities are not enough.

4.9
The EESC believes that local and regional governments
should, in cooperation with civil society organisations, draw up
integration plans and programmes which lay down the objec-
tives and allocate the necessary resources.
‘Paper policies’ —
programmes without funding — are ineffective.

4.10
In the EESC's view, it is reasonable to earmark a part of
the economic benefits generated by immigration for introduc-
tion and integration policies.

is highly important

4.11
It
immigrant
programmes and plans are being drafted.

associations

are

that
consulted when

the most representative
integration

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A number of municipalities and regions in Europe have
4.12
participatory and advisory bodies which bring civil society orga-
nisations together with the authorities in framing and imple-
menting integration policies.

the aims are not being met. Although circumstances vary
between Member States and some problems are country-
specific, policies for equal treatment, integration and combating
discrimination need to be improved throughout Europe.

5. Instruments, budgets and evaluation

5.1
Adequate budgets must be allocated to local and regional
integration plans and programmes, and they must be equipped
with their own management and evaluation instruments.

5.2
There are many examples of European cities and regions
which have dedicated bodies and services, with wide-ranging
policy and technical content.

5.11
The EESC proposes that the various public administra-
tions, at European, national, regional and municipal level — in
keeping with each country's particular practices — prepare inte-
gration programmes, with adequate funding, which have a
proactive approach.

These programmes need to possess evaluation systems,
5.12
with accurate indicators and transparent procedures. Civil
society must be involved in evaluation procedures.

5.3 Many cities also have advisory and participatory bodies
for civil society organisations. A number of forums and consul-
tative committees have been set up, in which civil society orga-
nisations and immigrant associations take part.

6. Objectives

The EESC sees these as examples of best practice which

5.4
should be extended across the EU.

The issues and approaches which must be covered by
integration programmes are highly diverse;

6.1
regional and local
the most important are as follows:

5.5
Some cities also provide examples of specialist services
for immigrants, which implement practical aspects of integra-
tion plans.

Observing the actual situation. The reality of immigration
6.2
and the position of minorities in a given territory must be
analysed by the institutions in order to devise appropriate future
actions.

5.6
There is an on-going debate about the risk of segregation
arising from immigrants being dealt with by specialist services
set up for them. The EESC believed that segregation in the use
of public services is to be avoided, although dedicated services
may sometimes be necessary, especially for the initial reception
of immigrants on arrival.

6.3
Initial arrival. Establishment of reception centres; health
care and legal assistance; temporary accommodation for specific
cases; introductory language courses; information on the laws
and customs of the host society; help in gaining initial employ-
ment, etc. Particular attention needs to be given to minors and
other vulnerable persons under this action.

The EESC is convinced of the necessity of involving the
5.7
social partners and other civil society organisations in drawing
up and operating regional and local
integration plans and
programmes.

5.8
Encouraging cooperation between the local and regional
authorities of European host societies and their counterparts in
the countries of origin is also helpful. There are examples of
good practice which should be replicated.

5.9
Some authorities only allocate funds to reduce conflict
once it has broken out. Integration policies must be proactive if
they are to be effective.

6.4
Language teaching. Local and regional authorities must
pursue active language learning policies, since adequate knowl-
edge of the host society language is necessary for integration.
Language courses should be held in locations close to the places
of residence, and with highly flexible timetables. It is incumbent
upon the authorities to ensure that all
immigrants have the
opportunity to attend courses.

Access to employment. Work is certainly a priority aspect
services
should operate
training courses, careers

6.5
of
integration. Public employment
appropriate programmes: vocational
advice, etc.

Integration poses a challenge to European societies.
5.10
Recent events in a number of countries have highlighted that

6.6 Workplace discrimination is a major obstacle in the path
level should be
of integration. Partners at local and regional
active players in opposing discrimination.

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Access to housing. Discrimination-free access to decent
6.7
housing is one of the greatest challenges for local and regional
policy. Authorities must prevent the formation of run-down
urban ghettoes in which large numbers of
immigrants are
concentrated. To this end, urban planning policies must be
life in such
adjusted in good time. Improving the quality of
areas must be a priority.

level by human rights conventions.

Everyone should be able to exercise the right to live
6.16
with their family: this is one of the fundamental rights recog-
nised at international
In
spite of this, many national
laws — and even the European
family reunification directive (24) — fail to provide sufficient
guarantees for many immigrants that they can exercise the right
to family life, although this is a very beneficial factor for integra-
tion policies.

6.8
Education. Education systems should ensure that the chil-
dren of immigrants have access to high-quality schools. Over-
concentration of these pupils in poor quality ‘ghetto-schools’ —
as frequently occurs — must be prevented. School education, at
all stages, lays down the foundations for the integration of new
generations.

6.17
The gender dimension. The gender dimension must also
be mainstreamed in all integration policies. Policies on training
for employment, aimed at facilitating access to employment, are
of especial importance.

6.9
Education should reflect the internal diversity of Euro-
pean societies. Intercultural mediators should be available and
teaching resources should be boosted in order
to resolve
linguistic and cultural difficulties.

Public participation. Access to means of civic participa-
6.18
tion is one of the key components of integration. Citizenship
rights and the right to vote in municipal elections must be guar-
anteed for third-country nationals who are stable or long-term
residents, as the EESC has proposed in several opinions (25).

6.10
Adult education programmes should draw in the immi-
grant population, especially women. Training for employment is
vital to facilitating access to employment for immigrants.

6.11
immigrants should be promoted. The help of
mediator services may be necessary in some circumstances.

Access to health. Access to health and health care for
intercultural

Adjustment of social services.

6.12
Immigration often places
demands on social services for which they are not prepared.
Adjustments must be made in line with the new state of diver-
sity.

Training for the professionals. Those working in social
6.13
services, education, police forces, health services and all other
public services should receive new training courses so that they
can deal appropriately with immigrant and minority popula-
tions.

6.14
recognise cultural diversity. Diversity is a typical
present-day European cities. Religious beliefs are also diverse.

Diversity is a good thing. Cultural programmes ought to
feature of

6.15
There is also a need for local authorities to promote
learning to coexist, and encourage everyone, of whatever origin,
to adjust to the lifestyles of the cities in which they live. Both
immigrant and host society populations must play a part in this
process of learning, in order to increase understanding between
cultures and foster social integration.

7. New strategies for local and regional authorities (some

conclusions from the Barcelona hearing)

7.1 The need for networking and coordination between different insti-

tutions

Networking and inter-institutional

7.1.1
coordination is
crucial, and takes two forms: horizontal, between local authori-
ties; and vertical, between the local, regional and state levels of
government. The challenges of
immigration and integration
cannot be met by individual authorities in isolation. The EESC
proposes
improve coordination
arrangements and that evaluation procedures should be intro-
duced for networking. The EESC would also like to forge closer
cooperation links with the Committee of
to
promote integration policies.

the public authorities

the Regions

that

Some

regions,

such as Catalonia and Schleswig-
7.1.2
Holstein, reported that one of
their
the central planks of
approach has been to involve local authorities in planning their
initiatives. The Campania region also pointed to its decision to
forge networks with trade unions, church bodies, etc. Local
authorities,
their part, emphasised the importance of
networking with specialist bodies in areas such as initial recep-
tion.

for

(24) See Directive 2003/86/EC and the EESC opinions in OJ C 204 of
18.7.2000 (rapporteur: Ms Cassina) and OJ C 241 of 7.10.2002
(rapporteur: Mr Mengozzi).

(25) See EESC opinion on Access to European Union citizenship, OJ C 208

of 3.9.2003 (rapporteur: Mr Pariza Castaños).

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Experience with networking between local government
7.1.3
and the European level is growing. Eurocities was set up in 1986,
and now has a membership of 123 European cities. It is orga-
nised into working groups, one of which deals with immigration
and integration. A number of the cities present at the hearing,
such as Rotterdam and Leeds, belong to this working group. As
well as exchanging experience and best practices, the working
groups promote European projects involving a number of cities.

Another more recent network, ERLAI,

is specifically
7.1.4
geared to immigration and integration. 26 local and regional
authorities have already joined the network. It also sets out to
swap information and experience, and to carry out joint actions
and projects.

Other ventures are also being promoted by a range of
7.1.5
bodies. The European Foundation for
the Improvement of
Living and Working Conditions also works through a network
of cities to coordinate integration policies.

the purpose of

At European level,

7.1.6
the network of
National Contact Points for integration, coordinated by the
European Commission, is also to exchange experience. It helped
to draw up the Handbook on Integration (26) and the annual
report on migration and integration (27).

respond to this
results in this regard.

requirement, having achieved encouraging

Other local authorities, as in the cases of Ljubljana and
7.3.2
Brescia, have pointed out that the scant support they receive
from their respective governments prevents them from imple-
menting more wide-reaching policies
sphere. The
problem is worse still where regional governments have few
own resources. This was mentioned by the French Midi-Pyrénées
region.

in this

7.3.3
The European Fund for Integration, approved by the
Council and Parliament for the 2007-2013 period, is essential,
since it will mobilise significant economic resources for integra-
tion policies and help to ensure that policies are carried out
within a coherent and comprehensive EU framework, which
respects subsidiarity. The new Member States have voiced par-
in this fund. The EESC again expresses its
ticular
support
the fund, and urges the
Commission to consult the Committee when preparing the rele-
vant regulation.

the establishment of

interest
for

7.2 Integration plans and civil society participation

7.4 Specialist services must not generate segregation

Those local and regional authorities which have drawn
7.2.1
up comprehensive plans, and which have integration manage-
ment services, obtain better results than those which only
mount one-off actions. Planning, provision of resources and
management instruments are necessary if immigration and inte-
gration are to be addressed.

7.2.2
The EESC believes it is of great importance that civil
society organisations play a part in drawing up policies and
implementing actions. If an integration plan is to succeed, it is
for civil society to be involved. The Schleswig-
important
Holstein region has understood this, and brought
in social
players and a range of bodies in a broad debate on integration
before adopting its project. As a result, society was alerted to
the need for
integration policies. Other cities and regions
(including Copenhagen, Barcelona and Helsinki) also offer exam-
ples of participatory processes.

7.3 European Fund for Integration

State

The effectiveness of

local and regional authorities is
7.3.1
from
enhanced when they can rely on economic support
Member
require
economic resources and the Members States should make a
greater commitment. The Schleswig-Holstein region mentioned
this aspect, indicating that much of its work has been directed
to confronting the German federal government with the need to

integration policies

governments:

(26) http://europa.eu.int/comm/justice_home/doc_centre/immigration/

integration/doc/handbook_en.pdf.

(27) COM(2004) 508 final.

7.4.1
The creation of dedicated services for immigrants must
not be allowed to breed segregation. The Budapest representa-
tive, for example, reported that in Hungary,
local authorities
have family support, early childhood, employment etc. services,
which immigrants — along with all other citizens — must use.
In general, however, all cities and regions which have drawn up
integration policies have done so by developing specific plans
and providing dedicated resources and services. The Helsinki
representative argued that
‘specialist services for immigrants
should not be necessary — but they are’, showing that support
from general services alone cannot cope with the shortcomings,
disadvantages, difficulties and special needs experienced by
immigrants.

7.4.2
Specific plans, projects and resources are needed for
immigration and integration. The problem of how to move
towards a more normal situation
forward from this point
continues to give cause for concern: how to prevent specificity
generating segregation? The Brescia representative pointed out
that the immigration-related services that had been set up ‘are
not parallel, but complementary, services’. They do not replace
the other ordinary services, to which immigrants must apply for
all the matters for which such services are responsible.

7.4.3
Copenhagen also emphasised that once of the concerns
of its Integration Council is that its work should not legitimise
any form of segregation of immigrant or minority populations.
The aim is for its actions to be inclusive, encouraging a closer
relationship and integration between all sectors of the popula-
tion.

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It is important, in this regard, that the local population
7.4.4
should not see initiatives geared to immigrants as a form of
privilege, which could accentuate prejudice and foster segrega-
tion. Catalonia is aware of this,
indicating that when imple-
menting tailor-made actions for the immigration population,
great care must be taken regarding the possible feelings of rejec-
tion this may trigger among the local population. The steps
taken by local and regional governments concerning immigrants
must be clearly and carefully explained.

7.5 Integration objectives

7.5.1
A number of cities and regions contributed their ideas
regarding integration as a concept, demonstrating that this is an
on-going debate in Europe, since it contains differing political
and legal cultures, as well as differing models for integration.

Following a major debate,

7.5.2
the Schleswig-Holstein
region argued that integration should focus on three central
aspects: equal participation, equal rights and duties, and inclu-
sive, anti-discriminatory measures involving both immigrants
and the host society.

This

inclusive line is

7.5.3
followed by the Misericórdia
church-based social work organisation in Portugal, which directs
integration policies in the country. The emphasis is mainly on
equality policies and on facilitating access to Portuguese nation-
ality.

7.5.4
Barcelona identified three areas of action: promoting
equality (recognition of rights, promotion of equal opportunities
and treatment); recognising cultural diversity; and promoting
coexistence (facilitating initiatives
social cohesion and
preventing the growth of parallel societies between the local
population and immigrant groups).

for

7.5.5
A major debate was launched in Rotterdam in 2004,
challenging the integration model so far followed. The need for
the debate arose from the observation that although active inte-
gration policies had been implemented for years, society was
becoming fragmented and a process of segregation was under
way (particularly concerning the Muslim population). The most
intensive discussions centred on the ‘us and them’ attitude
which had permeated society.

The European Liaison Committee

7.5.6
for Social Housing
couched the debate on integration in terms of removing inequal-
ities and equal opportunities. Their work focused on housing,
and they explained that discrimination in this area was one of
the main causes factors in the segregation of immigrant popula-
tions.

7.5.7
The EESC is convinced that the 11 common basic prin-
ciples (set out in Appendix 1) governing the European integra-
tion programme have a proper and balanced focus. The majority
of participants at the Barcelona hearing agreed with this view.

8. New challenges for employment integration (some of the

conclusions of the Dublin hearing)

Through their work, immigrants make a positive contri-
8.1
bution to Europe's economic development and social well-being.
The EESC considers that immigration in Europe can provide
new opportunities for company competitiveness, working condi-
tions and social well-being.

8.2
Employment is a key part of the integration process,
because decent jobs are vital to immigrants' self-sufficiency, and
they enhance social relations and mutual understanding with
the host society. The EESC proposes that integration into the
labour market should take place on a level playing field, without
discrimination between workers from the host country and
immigrants, taking the necessary professional requirements into
account.

8.3
Europe's migrant workers must be treated fairly, because
they are protected by international human rights conventions
and the principles and laws enshrined in the ILO conventions.
The EESC reiterates its proposal that EU Member States sign up
to the UN's 1990 International Convention on the Protection of
the Rights of All Migrant Workers and Members of
their
Families.

8.4
The EU directives on equal treatment in employment and
equal treatment irrespective of racial or ethnic origin are essen-
tial legal instruments in shaping legislation and practice in the
in combating discrimination and fostering
Member States
employment integration.

8.5
In the field of employment, legislation and public policies
must complement one another through cooperation with the
social partners, because integration into the labour market is
also an issue of society's attitudes and of commitment on the
part of trade unions and employers.

Public employment services must boost programmes to
8.6
help immigrants
find work and these programmes might
include: helping with the recognition of professional qualifica-
tions,
improving language learning and occupational training,
and providing adequate information on employment systems in
the host country.

At grass-roots level, unions, employers' organisations,
8.7
immigrant associations and other civil society organisations play
a key role in conveying information and in helping immigrants
to find employment. Social organisations are actively involved
across Europe in helping immigrants and their children to find
employment by means of vocational training courses, employ-
ment advice, support for small business start-ups, etc.

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Companies are increasingly benefiting from the opportu-
8.8
nities and growing diversity brought by the integration of immi-
grants into the labour market. The EESC considers that compa-
nies could help to raise awareness within the host society
against discrimination, and provide employment contracts that
are not xenophobic and do not encourage exclusion.

8.9
Procedures must be set up based on the planning of
migratory flows, which should be carried out in the source
countries and should reflect the real possibilities for labour inte-
gration and, therefore, of social integration.

8.10
Poor quality employment is also a factor for discrimina-
tion, when immigrants are used as the ‘most vulnerable’ work-
force available.

Trade

unions

demonstrate

8.11
corporatist
sometimes
tendencies, only defending a few vested interests and excluding
immigrants. The EESC considers
trade unions must
welcome immigrant workers into their ranks and help them to
attain representative and management positions. Numerous
trade unions implement best practices which guarantee that
workers enjoy equal rights, regardless of their origin or nation-
ality.

that

Employers' associations face a major challenge in terms
8.12
of ensuring transparency in the labour markets. The EESC
considers that, together with the trade unions, they must coop-
erate with regional and local public authorities to avoid situa-
tions of discrimination and to foster attitudes that favour inte-
gration.

The social partners, who are key players in the opera-
8.13
the labour markets, and who are cornerstones of
tion of
Europe's economic and social
life, have an important role to
play in integration. In the context of collective bargaining, they
must accept their share of
the responsibility for integrating
immigrants, eliminating any direct or indirect discrimination

Brussels, 13 September 2006.

from collective agreements and from employment
practices.

laws and

experiences

in businesses,

8.14
There are many examples of good practice amongst the
social partners and civil society organisations in Europe, which
the EESC would like to see more widely adopted. At the Dublin
hearing, positive
trade unions,
employers' associations and social organisations were looked at,
and some that
the
commitments given by the social partners in Ireland to manage
diversity within companies and to combat discrimination, and
the agreement reached by the social partners in Spain to legalise
irregular employment and immigration and to manage labour
migration through cooperation and social dialogue.

the Committee wishes to highlight are:

8.15
The EESC believes that active policies and new commit-
ments on the part of the social partners are needed, in order to
foster social attitudes that encourage integration, equal treatment
and the efforts to combat discrimination in the workplace. Euro-
pean social dialogue can provide an appropriate framework
enabling the social partners to give new commitments as they
see fit.

8.16
European social dialogue is the exclusive responsibility
of the social partners; the ETUC and UNICE have drafted the
agenda for European social dialogue and the EESC hopes that
the objectives it sets out will be attained.

The EESC can form a permanent forum for dialogue on
8.17
good practices in the areas of integration and immigration is set
to continue working in cooperation with the Dublin Foundation
and the ILO to foster the development in Europe of integration-
friendly policies and practices. It will organise further meetings
and forums bringing together the social partners and other civil
society organisations with the aim of examining and exchanging
instances of current best integration practice in Europe.

The President

of the European Economic and Social Committee

Anne-Marie Sigmund