Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions - Towards a Common Immigration Policy {SEC(2007) 1632}
Date: 2007-12-05
Institutions: European Commission
Subjects: EU migration policy, admission of aliens, foreign policy, illegal migration, integration of migrants, political cooperation

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 5.12.2007 
COM(2007) 780 final 

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

Towards a Common Immigration Policy 

{SEC(2007) 1632} 

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

Towards a Common Immigration Policy 

1. 

INTRODUCTION 

Immigration presents both a challenge and an opportunity for the EU. It has an impact on the 
economy,  society  and  external  relations  and  against  the  background  of  ageing  European  societies 
and of growing market needs, demand for immigration in the EU is set to increase. Europe looks 
likely  to  rely  more  on  immigrants  to  balance  supply  and  demand  in  labour  markets,  and  more 
generally to fuel economic growth. So the economic interest in immigration will add to the complex 
mix of questions raised by immigration arranging from respect for the rights of the individual and 
the  need  for  integration,  through  security  and  Europe's  relations  with  immigrants'  countries  of 
origin, and last but not least, the need to tackle illegal immigration. 

Globalisation  is  accelerating  the  pace  of  change  for  immigration.  It  has  sparked  increased  human 
mobility,  resulting  in  a  substantial  rise  in  the  number  of  third-country  nationals  in  the  EU  over 
recent decades. Many parts of Europe have become net recipients of immigration flows, including 
areas which previously experienced persistent net emigration flows. 

At the same time, demographic trends are posing a considerable challenge for the sustainability of 
public  finances  and  for  the  viability  of  social  protection  systems  in  many  EU  Member  States. 
Although no substitute for structural reforms, well-managed immigration - together with enhanced 
intra-EU  labour  mobility  -  could  help  increase  the  overall  size  of  the  labour  force  and  alleviate 
labour shortages.  

However, immigration brings with it new demands on policy. Fighting illegal immigration requires 
particular efforts from relevant authorities. A lack of integration of legal migrants carries real socio-
economic  costs  –  mostly  felt  by  first  and  second  generation  immigrant  communities.  Integration 
policies  must  lie  at  the  very  core  of  immigration  policies.  An  integration  policy  based  on  non-
discrimination, equal treatment, rights and duties allows immigrants to contribute more to society, 
and  improves  their  potential  in  education  and  employment.  It  also  improves  mixed  public 
perceptions of immigration.  

In  both  Eurobarometer  and  national  surveys,  migration  consistently  comes  out  as  one  of  the  top 
concerns of European citizens: With immigration so important for the economic and social fabric of 
Europe,  some  concerns  are  of  course  inevitable,  but  fear  fuels  many  misconceptions.  European 
needs a coherent and consistent immigration policy to show that public policy is tackling justified 
concerns and to enjoy the support of the European public. There is an urgent need to provide better, 
more accurate information and to avoid sensationalised stories about migration in the media.  

In parallel to immigration from outside the EU, the EU is also experiencing increasing movements 
of  people  within  its  territory.  The  advantages  created  by  the  European  Union  have  stimulated 
Europeans  to  move  inside  its  borders,  and  more  and  more  people  are  taking  advantage  of  this 
possibility.  These  internal  movements  are  fundamentally  different  from  immigration  from  outside 
and are not covered in this Communication.  

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•  The population of the EU is close to 493 million persons. Of these, 18.5 million are third-country 

nationals, equivalent to just under 3.8% of the total population.  

•  The most significant groups of third-country nationals residing in the EU, in terms of size, are 

citizens from Turkey, Morocco, Albania and Algeria.  

•  Since 2002, net immigration into the EU has oscillated between 1.5 and 2 million per year. Most 

recent newcomers have settled in Greece, Italy, Spain and the United Kingdom. 

•  Whilst  demographic  challenges  differ  for  each  of  the  European  countries  and  regions,  recent 
projections suggest that there will be a natural decrease of the EU population between 2010 and 
2050. Assuming zero net immigration, the population of the EU would be about 26 million lower 
than today in 2030, and 50 million lower in 2050.  

•  In economic terms, the main change will involve the size of the working-age population (15-64 
years), which according to current trends will decrease by 59 million by 2050. The EU will go 
from having four to only two people of working-age for each citizen aged 65 and above, if the 
participation rate remains unchanged. 

Immigration  is  by  nature  a  cross-border  phenomenon.  A  coordinated  approach  is  essential  to 
help Member States to manage it more successfully.  

This  Communication  explains  why  an  effective  European  immigration  policy  is  so  important.  It 
looks at what has been achieved so far, analyses some of the remaining gaps and weaknesses and 
sets out the core elements of what is needed to take forward the EU's common immigration policy 
over the coming years.  

2. 

THE FOUNDATIONS OF THE COMMON POLICY ON IMMIGRATION  

During  the  last  decade,  the  foundations  of  a  common  immigration  policy  have  been  gradually 
established under the Tampere and Hague Programme. At Hampton Court in October 2005, Heads 
of State and Government identified immigration as a key area for future work, inviting the Union 
and  the  Member  States  to  further  develop  a  common  approach.  This  led  to  the  adoption  of  the 
Global Approach to Migration by the European Council in December 2005, which was reinforced 
by  the  European  Council  in  December  2006.  The  Commission  also  established  a  Group  of 
Commissioners on Migration.  

Most recently, the Commission's Communication on 'The European Interest: Succeeding in the age 
of globalisation'1, confirmed that in a Europe with no internal borders, the changing demands of an 
ageing society and a labour market in constant evolution have challenged established assumptions 
about immigration. 

Legal immigration 

The approach taken to legal immigration in the spirit of the Tampere mandate was ambitious, but 
the  policy  is  still  largely  incomplete.  Attempts  at  harmonisation  have  been  reduced  to  the  bare 
minimum. The foundations have, however, been laid for a right of family reunification, subject to a 
number  of  conditions.  The  rights  of  third-country  nationals  who  have  been  resident  in  a 

1 

COM(2007) 581, 3.10.2007. 

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Member State for more than five years have been underpinned, and they are now entitled to work or 
set  up  a  business  in  another  Member State.  The  admission  of  students  is  now  subject  to  common 
rules,  though  the  challenge  of  the  attractiveness  of  our  universities  to  young  talent  remains 
unresolved. 

Although  the  urgency  of  the  demographic  and  economic  needs  is  acknowledged,  it  has  not  been 
possible to arrive at common rules for the admission of workers from outside the Union. Only the 
admission  of  researchers  has  been  regulated,  in  order  partly  to  fill  the  gaps  observed  in  this  vital 
area.  But  initial  assessments  of  the  transposition  of  this  directive  show  that  it  is  being  applied  in 
only 6 Member States out of 27.  

Any policy of immigration must now go hand in hand with a policy of integration, and integration 
policy  has  been  the  subject  of  a  pragmatic  approach  sustained  by  strong  political  demand, 
symbolically reflected in the adoption of common basic principles. The funding of € 825 million to 
be given to the Integration Fund up to 2013 will allow work to continue. This comes in addition to 
the measures to facilitate integration that have for a long time been financed by the Member States 
through the European Regional Development Fund and above all the European Social Fund. 

The needs of the labour market are clear, and will not be remedied by the sometimes contradictory 
policies of recruitment being pursued by the Member States. A category-by-category approach such 
as that called for in the Policy Plan on Legal Migration of 2005 currently seems to be the only way 
to  move  out  of  the  impasse  and  beyond  the  Member States’  reservations  regarding  a  matter  they 
view as falling within national jurisdiction. There is special urgency with regard to highly qualified 
workers, and in October the Commission presented a proposal for a Directive that would facilitate 
their admission (providing for an “EU blue card”). There are other sectors of the economy with a 
need  for  unskilled  workers,  such  as  seasonal  workers,  where  a  proposal  for  legislation  will  be 
brought  forward 
this 
category-by-category legislation should be rendered consistent by a Directive on a common set of 
rights  for  third-country  workers,  to  prevent  social  dumping  and  exploitation.  Finally,  it  is 
important  to  recall  that  any  common  policy  in  the  area  of  economic  migration  must  be  fully 
compatible with the principle of Community preference.  

the  Commission  proposed 

in  autumn 2008.  As 

in  October 

last, 

Schengen, visas, management of external borders, new technology 

The Schengen area is growing and strengthening; it is one of the great successes of the Union, and 
is  one  of  the  most  perceptible  achievements  to  the  ordinary  citizen  in  recent  times.  After  several 
years of operating within the Union, the Schengen acquis will be the subject of a review in 2008 
which  will  cover  both  the  legal  and  the  operational  aspects.  The  Community  code  on  the  rules 
governing  the  movement  of  persons  across  borders  will  be  followed  by  a  code  on  visas:  the  two 
together will provide a clear and consistent procedural framework for border control and the issue 
of visas. Other legislation has been adopted or is to be adopted to make provision for local border 
traffic, to regulate the recording and checking of biometric identifiers, or to lay the foundations for 
the establishment of joint centres for visa applications. 

The Frontex agency, set up in 2005, has facilitated practical cooperation between Member States 
and has given a highly operational dimension to the control of persons crossing the EU’s external 
borders. Frontex also plays an important role in the management of sea borders and in coordinating 
the action of Member States in reducing illegal immigration flows. But the agency’s full potential 
will  be  achieved  only  when  there  is  an  even  more  determined  commitment  on  the  part  of 
Member States  and  a  real  involvement  of  the  non-EU  countries  concerned  in  its  operational 
activities. The Schengen Information System (SIS II) is to undergo a thorough modernisation of 
its  technical  features,  and  new  functions  are  to  be  added.  The  Visa  Information  System, 

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immediately  it  is  launched,  will  make  the  process  of  issuing  short-term  visas  more  effective  and 
more secure. 

The Union needs to make better use of new technologies for monitoring and detection, by ensuring 
the  full  interoperability  of  existing  systems,  developing  new  tools,  and  making  full  use  of  the 
potential offered by biometrics. Work must continue on the rapid development at European level of 
an  integrated  model  of  border  management,  and  on  achieving  a  coherent  policy  for  integrated 
control of access to the Union and its Member States. 

These operational and legislative tools have been backed up by a solid financial effort: the External 
Border Fund is to spend € 1 590 million between 2007 and 2013.  

Illegal immigration 

Better  management  of  legal  immigration  and  determined  measures  to  combat  illegal  immigration 
are  two  sides  of  the  same  coin.  Rapid  progress  has  been  made  in  the  fight  against  illegal 
immigration through the use of a range of legislative and operational measures under three sets of 
policy  priorities,  on  illegal  immigration,  external  border  controls  and  the  return  of  illegal 
immigrants. 

Statistics  on  the  presence  of  irregular  migrants  are  –  by  their  very  nature  –  difficult  to  obtain. 
Regularisations can provide information on the population of irregular migrants. At least 3.7 million 
people  have  been  regularised  in  EU  Member  States  (France,  Germany,  Greece,  Italy,  the 
Netherlands, Portugal and Spain) since the early 1980s. One of the weaknesses in the machinery set 
up so far is the inadequacy of European policy on returning immigrants. Only one expulsion order 
in three is enforced. European rules are before the Council and Parliament, and have been there too 
long: legislation is needed very rapidly. Work has begun, though, in a related area, namely the pull 
factors  that  attract  illegal  immigrants,  in  particular  undeclared  work.  As  long  as  the  European 
market offers such openings it will not be possible to manage immigration flows coherently; indeed 
they can be expected to increase. The directive proposed last May should allow the fight to be taken 
to the source, the employers of workers staying illegally in the Member States. The Commission’s 
Communication  on  undeclared  work  of  23 October 2007  takes  stock  of  the  actions  undertaken  in 
the Member States in order to discourage undeclared work including by means other than repressive 
ones, for instance by the use of fiscal instruments, and illustrates the scope for mutual learning on 
successful practices. 

Legal  immigration  policies  and  measures  to  combat  illegal  immigration  lose  much  of  their 
relevance  when  Member States  mount  large-scale  legalisation  operations.  Moving  beyond  the 
mutual  information  mechanism  that  is  in  place,  it  is  time  for  a  genuine  debate  on  a  common 
approach to this question. National measures taken in isolation may weaken European cohesion and 
solidarity. 

Effective  measures  against  illegal  immigration  will  involve  the  cooperation  of  the  countries  of 
origin and transit, through active participation in the following mechanisms: 

–  the establishment of machinery for cooperation in the fight against the networks and groups that 

organise and participate in human trafficking; 

–  for the management of the external borders, training of the responsible staffs in the countries of 
origin and transit, cooperation with them, and a strengthening of joint arrangements for border 
surveillance; 

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–  cooperation  in  the  steps  needed  for  the  return  of  illegal  immigrants,  with  special  reference  to 
their  identification  and  documentation,  and  the  establishment  of  more  effective  return 
mechanisms;  this  will  include  effective  implementation  of  the  readmission  obligation  in 
Article 13  of  the  Cotonou  Agreement  as  well  as  the  conclusion  of  EC  readmission  agreements 
with further third countries. 

The external dimension 

The  external  dimension  of  EU  migration  policy  has  grown  in  importance  in  recent  years,  and 
migration  related  concerns  have  been  integrated  into  the  EU's  external  relations  policies  and 
programmes, as well as the development agenda. There has been a particular concentration on the 
EU's  neighbouring  countries,  with  a  dedicated  institutional  framework.  Within  this  framework, 
political dialogue and cooperation on migration and related issues are already well developed and 
are being strengthened where necessary.  

Most  recently,  the  EU  has  defined  the  Global  Approach  to  Migration,  based  on  enhancing 
dialogue and cooperation with third countries in partnership, solidarity and shared responsibility. Its 
initial focus has been on Africa and the Mediterranean. 

The Global Approach builds on political dialogue and cooperation developed in the framework of 
the  European  Neighbourhood  Policy  through  bilateral  agendas.  It  covers  the  whole  of  Africa  and 
also addresses the regional and multilateral levels. The political framework for such dialogue and 
cooperation with Sub-Saharan African countries is Article 13 of the Cotonou Agreement. The EU-
Africa Strategy and its ‘Partnership on migration, mobility and employment’, to be adopted at the 
Summit  in  Lisbon  in  December,  will  be  the  consolidation  of  the  longer  term  migration  and 
development agenda taken forward with Africa to date. 

In  the  context  of  the  Global  Approach,  more  targeted  financial  and  technical  instruments  of 
cooperation have also been developed, which are being used and applied where appropriate. New 
EU  initiatives  include:  Africa-driven  migration  information  and  management  centres;  circular 
migration  to  try  to  manage  labour  migration  in  a  more  flexible  manner  to  the  benefit  of  both 
countries of origin and destination and the migrants themselves; mobility partnerships to provide a 
balanced  framework  to  better  organise  cooperation  between  countries  of  origin  and  destination; 
migration profiles that provide a tool for policy-makers; as well as cooperation platforms to bring 
together migration and development actors in countries and regions. 

However,  now  that  priorities  have  been  set,  the  real  test  of  the  Global  Approach’s  value  and 
effectiveness in Africa is just beginning. Over the coming years, all actors involved – the Member 
States,  the  Commission  and  the  international  organisations,  in  partnership  with  third  countries  – 
need  to  intensify  the  process  already  under  way  and  to  deliver  results.  In  particular,  there  is  an 
urgent need to ensure proper follow-up to and delivery on the political milestones that were agreed 
between Europe and Africa at the Rabat and Tripoli conferences last year. 

The Global Approach has now been extended to the eastern and south-eastern regions neighbouring 
the  EU.  The  nature  of  EU  dialogue  and  cooperation  on  migration  with  these  regions  is  quite 
different  from  sub-Saharan  Africa.  The  real  challenge  with  these  regions  is  to  reconcile  the  EU's 
security  concerns  with  our  neighbours'  expectations  (and  the  EU’s  own  interest)  in  terms  of 
increased mobility.  

The  Global  Approach  to  the  East  also  covers  Asia  where,  so  far,  the  interest  of  the  EU  Member 
States seems limited to readmission issues. Efforts therefore need to be made to open the approach 
further  to  other  dimensions  relevant  to  our  relations  with  these  countries,  such  as  immigration  of 

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highly  skilled  workers.  Migration  is  a  priority  of  the  new  EU  Central  Asia  Strategy.  It  is  worth 
noting that the main themes of the second Global Forum on Migration and Development, which will 
take place in Manila in October 2008, will be the protection of migrants' rights and the link between 
migration, development and security. 

As  far  as  Latin  America  and  the  Caribbean  are  concerned,  migration  should  continue  to  be 
addressed in the context of the preparation of the EU/LAC Summits (in particular the Lima Summit 
in May 2008), with the objective of arousing more structured and regular dialogue and cooperation. 

The staff working document annexed to this Communication gives an overview of implementation 
of the Global Approach with both Africa and the East and South-East to date. 

3. 

THE NEED FOR A COMMON POLICY ON IMMIGRATION: OPPORTUNITIES AND CHALLENGES  

In a single market with free movement of persons, there is a clear need to go beyond 27 national 
immigration policies. Member States have varying needs, due to their different economic situations, 
demographic prospects, social standards and historical ties, and as a result, their policies to manage 
immigration  also  vary  greatly.  However,  this  has  resulted  in  inconsistencies  and  a  lack  of  co-
ordination  at  EU  level.  Moreover,  national  immigration  policies  clearly  have  an  impact  beyond 
national borders; and actions taken in one Member State for national or regional reasons can rapidly 
have an impact on other Member States. EU citizens need to be confident that action at EU level 
will address their concerns so both leadership and a sustained communication effort are needed.  

This  is  why  a  step  change  is  necessary:  the  foundations  which  have  been  laid  should  be  used  to 
develop  a  new  commitment  and  build  a  common  European  policy  on  immigration,  enhancing 
economic opportunities and integration measures, based on solidarity and burden sharing.  

Many  policies  must  adapt  to  a  new  world  of  work  to  sustain  publicly  funded  healthcare,  social 
protection and pensions against the backdrop of demographic change, and to enable EU citizens to 
successfully adjust to change. 

This common approach requires a European framework within which the national and EU levels 
can complement each other – one that respects national differences and needs, but that recognises 
the  common  challenges  facing  Europe’s  open  economy  and  territory  and  enhances  our  ability  to 
deal with them. This should factor immigration into decisions on economic, social, international and 
development  issues.  Such  mainstreaming  of  immigration  will  not  only  help  European  society  to 
tackle the challenges of migration, but will also benefit the immigrants themselves. 

If  well  managed,  immigration  can  play  a  significant  role  in  alleviating  the  effects  of  population 
ageing  and  help  European  societies  deal  with  labour  and  skill  shortages.  Without  a  credible 
European  strategic  initiative  on  economic  immigration,  the  strong  push  and  pull  factors  of 
immigration  will  continue  to  overpower  existing  national  rules  and  legislation.  EU  discussion 
should  now  focus  on  the  actions  needed  to  manage  immigration  effectively  and  on  the  resources 
needed.  A  first  step  in  the  process  is  to  have  a  deeper  understanding  of  the  potential  impact  of 
immigration and the challenges it poses. 

Economic opportunities 

While  immigration  is  not  a  panacea  for  Europe's  skills  and  labour  shortages,  low-,  medium-  and 
its  economic  prosperity.  Our 
highly-skilled 
immigration strategy needs to take account of our demographic and employment trends, as well as 

third-country  national  workers  contribute 

to 

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the role that outsourcing of certain activities play for both countries of origin and of destination. As 
the European population decreases and our labour markets suffer from shortages in certain sectors, 
we need to assess how immigration can help meet our objectives of growth and jobs. 

–  Immigrants  do  more  than  just  increase  the  overall  size  of  the  labour  force.  The  potential  of 
migrants to establish themselves as entrepreneurs is increasingly recognised and there is growing 
evidence of a business case for diversity, such as ethnic diversity.  

–  Immigrants also help to alleviate labour shortages. On the one hand, some Member States are 
suffering  shortages  of  highly-skilled  workers.  Such  migrants  will  not  only  contribute  to  filling 
labour  gaps,  but  will  also  inject  technical  expertise,  broaden  the  skills  base  and  improve  the 
quality of human capital. On the other hand, we can already see growing needs in the services 
sector,  in  particular  in  households,  hotels  and  restaurants,  construction  and  in  sectors 
characterised  by  strong  seasonality  such  as  agriculture.  These  key  sectors  also  face  growing 
demands  as  an  increasing  proportion  of  women  join  the  labour  market  and  as  our  population 
ages, requiring greater labour in health and long-term care, nursing, child care and the care of the 
elderly.  There  is  a  clear  role  here  for  strengthening  of  labour  market  infrastructures,  above  all 
public employment services.  

-  The  share  of  skilled  migrant  workers  is  1.7%  in  the  EU.  This  compares  to  9.9%  in 

Australia, 7.3% in Canada, 5.3% in Switzerland and 3.2% in the US.  

-  The  economic  weight  of  the  lower-wage  jobs  in  the  total  employment  in  each  Member 
State is  very significant,  ranging from 10.8% in Sweden  to  38.8% in Romania in  20052. 
Immigrant workers play a key role in these sectors in a number of Member States, and this 
role is likely to expand in the future, given current trends. 

–  The ageing of the EU population has budgetary implications. The decline of the working age 
population  may  have  serious  implications  for  the  financing  of  pensions  and  put  additional 
pressure on health spending and long-term care. Immigration can contribute to the financing of 
the  public  pay-as-you-go  pension  schemes,  but  only  in  the  medium  term  as  immigrants 
accumulate pension rights over time. In the long run, appropriate reforms of the pension systems 
will be needed to guarantee their long term sustainability.  

–  Legal immigrants contribute to the economic development of Member States because they are 

tax payers and consumers of goods and services.  

Integration challenges 

–  The EU lags behind other  main  immigration destinations in terms of integration. The potential 
for  significant  overall  gains  from  immigration  can  only  be  realised  if  integration  is  successful. 
Integration  policy  should  therefore  be  seen  as  a  continuum,  running  from  entry  through  to 
settlement and to social and economic inclusion. Effective and efficient integration policies are 
needed in particular in the areas of education, health, housing and the labour market, which fall 
within the direct competence of Member States, and where the EU can only have a supporting 
role.  Policy-makers  should  also  avoid  rigidities  in  labour  market  institutions  or  in  product  and 
financial markets, which prevent from reaping the advantages of immigration. Last but not least, 
anti-discrimination and equal rights policies are important for addressing some of the obstacles 

2 

These figures are based on the data collected by Eurostat for the following three sectors: agriculture, hunting 
and forestry; construction; and hotels and restaurants. 

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faced by immigrants and their descendents; in this context, intercultural and inter-faith dialogue 
needs to be promoted. 

–  Integration  policies  entail  short-term  costs  for  public  finances.  This  aspect  represents  an 
important  element  in  the  public  debate  on  immigration.  EU  Member  States  should  look  at  the 
interaction  between  immigration  and  social  policy  as  a  long-term  investment  in  their  own 
economic  and  social  progress  and  assess  the  short  term  costs  of  policies  aimed  at  promoting 
integration in the light of the long term. 

–  Access to the labour market remains one of the main conditions for successful integration. It 
entails  a  wide  range  of  benefits  for  the  individual,  enterprises,  society  and  the  economy. 
However, current figures show that migrants tend to have much lower employment rates than the 
EU nationals. Immigrants are often more exposed to undeclared work and to ‘brain waste’ (when 
they hold jobs for which they are over-qualified). In terms of gender, female non-EU nationals 
face particular  difficulties  compared  to  their  EU-national  counterparts, in particular for highly-
skilled  women  where  the  difference  between  employment  rates  for  non-EU  and  EU  nationals 
exceeds 20 percentage points. Lawful and gainful employment will be the most important way 
out of social and economic exclusion, and the shorter the integration period, the sooner migrants 
will  become  net  social  and  economic  contributors  to  the  societies  they  have  chosen  to  join. 
Restricting access to social rights and training can be an obstacle to labour market integration: 
full access to social protection and lifelong learning offer the best results. The recently adopted 
proposal for a framework directive laying down a common set of rights for third country workers 
legally residing in Member States is important in this respect. 

–  In  particular,  young  people  with  a  migrant  background  are  disproportionately  affected  by 
unemployment. The gap between the total unemployment rate and the rate for non-EU nationals 
for  the  total  working-age  population  is  high  (12-25  percentage  points).  Similar  gaps  exist  for 
young people in education. 

In  2005,  the  employment  rate  of  third-country  nationals  was  substantially  lower  (55%)  than 
the  EU  national  rate  (65%).  Unemployment  rates  were  almost  twice  as  high  for  non-EU 
nationals  (17%)  as  for  EU  nationals  (9%).  However,  it  is  not  universally  the  case  among 
Member States that employment rates for non-EU nationals are below those of EU nationals. 
In many of the new Member States, as well as Greece, Spain and Portugal, the employment 
rate of non-EU nationals was above that of EU nationals. 

–  Education  is  vital  in  many  ways,  not  least  for  ensuring  interaction  between  immigrants  and 
other  sectors  of  the  population.  However,  the  current  educational  attainment  of  children  of 
immigrants  in  many  cases  raises  concerns  about  their  future  personal  and  professional 
development, and will clearly influence their future participation in the labour market. Foreign 
ethnic  background  is  another  factor  significantly  influencing  pupils'  achievements  at  school  in 
many  countries,  with  data  from  all  relevant  international  surveys  confirming  this.  Curricula 
therefore need to be made increasingly sensitive to the needs of immigrant pupils, while teachers 
also  need  to  be  equipped  with  the  inter-cultural  skills  that  enable  them  to  make  the  most  of 
diversity  in  schools.  In  2008  the  Commission  will  adopt  a  Green  Paper  on  Migration  and 
Education. 

–  Language skills are crucial for integration. Migrants may be trapped in a vicious circle in which 
access to the labour market is restricted because of inadequate language skills, while language 
skills  are  developed  through  employment  and  training.  Acquiring  the  language  of  the  host 
country  can  be  particularly  important  for  migrant  women  who  may  otherwise  be  cut  off  from 
their new society and have difficulties in helping their children integrate at school. 

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–  Similarly, adequate provisions must also be made for immigrants in terms of housing. This plays 
a key role in terms of social integration of migrants and their families in local communities. On 
average,  migrants  are  disproportionably  disadvantaged  in  this  area  but  housing  integration 
measures represent a great challenge. There is a need for better forecasting regarding numbers of 
immigrants  and  where  they  are  likely  to  concentrate  for  reasons  of  employment  or  family 
reunification. Where migrant communities remain isolated or segregated, this is a real obstacle to 
participation in wider society. 

–  Immigration  and  health  are  linked  in  several  important  ways.  Immigrants  frequently  face 
additional health risks linked to their living and working conditions. Immigrants also need access 
to health services just like other members of the population, and may require specific help and 
information to do so. Illegal immigrants may find it particularly difficult to obtain the health care 
they need due to their precarious position. Meanwhile, emigration of skilled health professionals 
is  causing  severe  shortages  in  many  developing  countries.  Health  issues  related  to  immigrants 
will  be  further  addressed  through  initiatives  developed  in  the  context  of  the  new  EU  health 
strategy3. 

External challenges 

Immigration is now a core part of the Union's external relations policy, having been fully integrated 
in political dialogue, diplomacy and cooperation with third countries. This is particularly the case 
with the Eastern and Southern neighbourhood where the challenges now lie in balancing all aspects 
of  our  approach,  especially  those  related  to  security  and  mobility.  Much  progress  has  been  made 
with  the  countries  of  the  Western  Balkans  in  terms  of  mobility  and  people-to-people  contacts. 
Moreover,  dialogue  on  migration  issues  occupies  an  increasingly  important  place  on  the  agenda 
with  Latin  American,  Central  Asian  and  Asian  countries  and  the  EU  should  aim  to  reinforce  and 
broaden  the  scope  of  this  dialogue.  With  Africa,  the  Partnership  on  Migration,  Mobility  and 
Employment will provide a concrete common understanding on the way forward. 

The  full  integration  of  immigration  into  the  Union's  external  relations  has  helped  to  ensure 
coherence  and  complementarity  with  other  policy  areas  and  to  better  address  the  challenges 
associated  with  migration  in  partnership  with  the  third  countries  concerned.  In  addition, 
mainstreaming  immigration  into  development  policy  is  enabling  immigration  policy  to  take 
development concerns  into  consideration and development  policy  to  work  to  make  immigration  a 
positive factor for development. It is important that the EU helps to minimise brain drain and brain 
waste and maximise the benefits of mobility and migration for developing countries, for example by 
reducing  the  transfer  costs  of  remittances  sent  by  immigrants,  by  providing  migrants  increased 
possibilities  for  temporary  return,  or  by  protecting  those  sectors  with  a  severe  lack  of  human 
resources from active recruitment. 

The temporary or permanent return  of  migrant  workers  to  their country of origin can be a  'brain 
gain' as migrants may have acquired additional skills abroad – for example in language, technology 
or entrepreneurship – which will enhance their labour productivity and might also be transferable. 
Circular migration has clear advantages for destination countries, countries of origin and migrants. 
To favour circular migration, Europe has to establish a framework that recognises and encourages 
circularity  as  a  dynamic  pattern  of  transnational  movement,  not  just  as  a  means  of  avoiding  the 
challenges  of  immigrant  integration.  This  framework  needs  to  be  linked  with  the  EU  external 

3 

For the health strategy document, entitled 'Together for Health: A Strategic Approach for the EU 2008-2013', 
see http://ec.europa.eu/health/ph_overview/Documents/strategy_wp_en.pdf. 

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relations and development agendas. The portability of pensions should be examined as an important 
issue relating to circular migration. 

4. 

CONCLUSION 

Immigration  will  shape  European  society  in  the  future  just  as  it  has  always  done  in  the  past.  A 
successful immigration policy requires a committed and consistent policy at both national and EU 
levels.  Only  a  common,  cross-cutting  approach  can  deliver  an  effective  policy  response  across  a 
wide  range  of  policy  areas.  A  coherent,  balanced  strategy  will  enable  the  EU  to  seize  the 
opportunities  of  immigration,  to  address  negative  public  perceptions,  and  to  tackle  the  challenges 
raised by immigration – including the poisonous practice of trafficking and exploitation associated 
with illegal immigration. 

Immigration can make a significant contribution to the prosperity of the EU, but this requires a 
big improvement in the match between labour market needs, the skills of migrants and their overall 
integration. Effective integration of new immigrants and those already present in the labour market 
is  an  essential  condition  for  achieving  the  Lisbon  goals  of  growth  and  jobs.  When  properly 
managed, legal immigration can contribute to labour market needs and provide a real alternative to 
illegal immigration and the informal economy.  

In  parallel,  fostering  integration  can  help  avoid  prejudices  and  promote  a  tolerant  and  inclusive 
society.  Anti-discrimination  and  equal  rights  policies  are  important  for  addressing  some  of  the 
obstacles faced by immigrants and their descendents. 

Immigration  also  requires  a  much  more  effective  degree  of  cooperation  and  mutual  learning 
between  all  relevant  branches  of  public  policy.  The  European  Union  and  its  Member  States  must 
work together and with foreign partners on these issues to bring the economic, social and external 
aspects of immigration under one coherent strategy.  

A renewed commitment to develop a common immigration policy is required to enable the Union 
to  turn  immigration  to  its  advantage  for  economic  growth  and  competitiveness.  This  does  not 
require any change in the existing competences of the EU, it is a political and practical matter of 
working together to achieve an outcome which no Member State can achieve alone. 

In general terms, this new commitment would: 

–  build on an assessment of the situation of migrants in the Member States, including the 

current and future needs and skills gaps;  

–  define  a  plan  leading  to  a  common  understanding  of  the  kind  of  immigration  Europe 

needs and the accompanying measures required to ensure proper integration;  

–  set out common measures on how to effectively tackle illegal immigration, addressing 

both new arrivals and illegal migrants already present in the EU; 

–  ensure  genuine  and  efficient  coordination  and  information  between  Member  States  as 
regards  major  decisions  in  the  immigration  field,  particularly  regularisation  measures 
and measures to tackle illegal immigration;  

–  ensure  policy  consistency:  all  policy  fields  need  to  contribute  and  work  in 
complementing each other to face common challenges; both national and EU levels and 
different sectorial policies; 

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–  continue  the  process  of  linking  the  EU  immigration  policy  with  the  external  agenda, 

including development. 

In practical terms, it would: 

–  see  the  Member  States  and  the  European  institutions  working  in  partnership  and 
transparency,  based  on  mutual  solidarity  and  burden  sharing  through  an  efficient 
and focused pooling of resources;  

–  turn the need for coherence and solidarity into common rules and principles; 

–  implement  the  initiatives  planned  in  the  context  of  the  Employment  Strategy,  and  the 
Open Method of Coordination on Social Inclusion, Social Protection and Health Care, 
as  well  as  within  non-discrimination  policies,  to  reinforce  coherence  between  these 
policies. 

–  provide  objectives  and  quantifiable  indicators  to  allow  for  regular  evaluation  of  the 

impact of measures adopted; 

–  lay the foundations for improved cooperation among Member States’ administrations 

by making best use of available funds and technology; 

–  encourage Member States to further enhance their action towards improving the labour 

market situation of migrants through Cohesion Policy. 

The Commission is ready to make proposals to develop and implement this new commitment by the 
end  of  the  first  semester  of  2008,  to  be  considered  and  agreed  by  the  European  Council  at  its 
meeting in December 2008. 

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