Opinion of the European Economic and Social Committee on the Elements for the structure, organisation and functioning of a platform for the greater involvement of civil society in the EU-level promotion of policies for the integration of third-country nationals
Date: 2008-07-09
Institutions: European Economic and Social Committee
Subjects: ESC opinion, EU migration policy, immigration, integration of migrants, rights of minorities, social integration

3.2.2009

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Official Journal of the European Union

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Opinion of the European Economic and Social Committee on the ‘Elements for the structure,
organisation and functioning of a platform for the greater involvement of civil society in the
EU-level promotion of policies for the integration of third-country nationals’

(2009/C 27/21)

In a letter dated 24 July 2007, Ms Margot Wallström and Mr Franco Frattini, Vice-Presidents of the European
Commission, asked the European Economic and Social Committee, under Article 262 of the Treaty estab-
lishing the European Community, to draw up an exploratory opinion on the

Elements for the structure, organisation and functioning of a platform for the greater involvement of civil society in the
EU-level promotion of policies for the integration of third-country nationals.

The Section for Employment, Social Affairs and Citizenship, which was responsible for preparing the
Committee's work on the subject, adopted its opinion on 10 June 2008. The rapporteur was
Mr Pariza Castaños.

At its 446th plenary session, held on 9 and 10 July 2008 (meeting of 9 July), the European Economic and
Social Committee adopted the following opinion by 136 votes to four, with seven abstentions.

1. Introduction

2. The European Framework for

the integration of

third-country nationals

in the person of

The European Commission,

the
1.1
Vice-Presidents Franco Frattini and Margot Wallström, asked the
EESC to draw up an exploratory opinion on the ‘elements for the
structure, organisation and functioning of a platform for the greater
involvement of civil society in the EU-level promotion of policies for the
integration of third-country nationals’.

The EESC has drawn up a number of opinions in recent
1.2
years (1) emphasising that
integration is a crucial aspect of
European immigration and asylum policies and has worked very
actively with the Commission, Parliament and Council
to
promote these policies.

The Committee has promoted the involvement of civil
1.3
society organisations in drawing up these opinions because
these organisations are key stakeholders in integration policies.
As long ago as 2002, the EESC and the European Commission
invited Member State social partners and civil society organisa-
tions to attend a major conference (2), which gave an initial
boost to a common approach to European integration policies:
the conference's conclusions proposed drawing up a Com-
munity integration programme and establishing a fund to
finance the aims agreed on.

(1) EESC opinion of 21.3.2002 on ‘Immigration,

integration and the
role of civil society organisations’, rapporteur: Mr Pariza Castaños
(OJ C 125, 27.5.2002).
EESC opinion of 10/11.12.2003 on the ‘Communication from the
Commission to the Council, the European Parliament, the European
Economic and Social Committee and the Committee of the Regions
on immigration, integration and employment’, rapporteur: Mr Pariza
Castaños (OJ C 80, 30.3.2004).
EESC opinion of 13/14.9.2006 on ‘Immigration in the EU and integra-
tion policies: cooperation between regional and local governments and
civil society organisations’, rapporteur: Mr Pariza Castaños (OJ C 318,
23.12.2006).

(2) Conference on ‘Immigration: The role of civil society in integration’,

Brussels, 9 and 10 September 2002.

2.1
In its opinion on ‘Immigration, Integration and the Role
of Civil Society’ of 21 March 2002 (3), the EESC highlighted the
need to develop clear and effective integration policies as part of
an EU framework programme. Although the process of estab-
lishing a common framework for integrating immigrants has
not been entirely free of problems, the European Union (EU)
will, when the Lisbon Treaty is ratified, have better political and
legal instruments necessary to implement this framework.

The Hague programme (4), aimed at strengthening the
2.2
EU's area of freedom, security and justice, stated that integrating
third-country nationals is a key political strategy for consoli-
dating freedom in the EU in the 2005-2009 period (5).

2.3
The European Council stated the need to improve coordi-
nation between national integration policies and EU initiatives;
this is being done by means of the Common Basic Principles
(CBPs), which form a common framework for the integration of
immigrants, adopted by the Justice and Home Affairs Council of
19 November 2004 (6). This need for coordination was also

(3) EESC opinion of 21.3.2002 on ‘Immigration, integration and the role
rapporteur: Mr Pariza Castaños:

society organisations’,

of civil
(OJ C 125, 27.5.2002).

(4) European Council,

‘The Hague Programme: strengthening freedom,
security and justice in the European Union’ (OJ C 53, 3.3.2005, p. 1).
(5) EESC opinion of 15.12.2005 on the ‘Communication from the
Commission to the Council and the European Parliament: The Hague
Programme: Ten priorities for the next five years — The Partnership for
European renewal in the field of Freedom, Security and Justice’, rappor-
teur: Mr Pariza Castaños (OJ C 65, 17.3.2006).

(6) Council of the European Union, Session No 2618 of the Justice and

Home Affairs Council, Brussels, 19 November 2004, 14615/04.

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confirmed by the European Commission in its communication
entitled ‘The Hague Programme:
five
years’ (7), which referred to the need to establish a European
framework for integration based on the CBPs that guarantees
respect for the EU's basic rights and values, and upholds the
principle of non-discrimination.

ten priorities for

the next

‘civic

integration’, which, as

2.4
The CBPs provide a coherent approach for the European
concept of the integration of third-country nationals, based on
the aim of
the Committee
proposed (8) consists of ‘bringing immigrants' rights and duties, as
well as access to goods, services and means of civic participation
progressively into line with those of the rest of the population, under
conditions of equal opportunities and treatment’. The CBPs represent
a two-way process, because integration involves adaptation and
responsibility on the part of both immigrants and host
communities.

2.5
In its communication of 1 September 2005 on ‘A
Common Agenda for Integration: Framework for the Integration
of Third-Country Nationals in the European Union’ (9),
the
European Commission put forward practical measures aimed at
enforcing and strengthening the implementation of CBPs at
both the national
and EU level. The Commission also
acknowledged the need to ensure that all parties concerned are
involved in making integration a success and in adopting a
global and coherent approach under the EU framework.

2.6
To this end, it proposed initiatives, in conjunction with
the network of National Contact Points, including an Internet
site, producing handbooks, the annual reports on migration and
integration, and a European Integration Forum.

intercultural dialogue must be key components of
immigration policy.

the EU's

2.9
The complementary and indissoluble link between inte-
gration and immigration was acknowledged in the conclusions
of the Justice and Home Affairs Council of 12 and 13 June
2007 (11). Adopting the recommendations made at the informal
meeting of ministers responsible for integration in Potsdam on
10 and 11 May, which the EESC attended, the Council high-
lighted the need for a political review of the scope of new
measures aimed at strengthening the European framework for
integration and the Member States' integration policies.

2.10
Civil society organisations and the social partners have
a particularly important role to play in ensuring the coherence
and effectiveness of the social processes of integrating immi-
grants, in defining policies in the EU and in evaluating these
policies. In its opinion on ‘Immigration in the EU and integration
policies: cooperation between regional and local governments and civil
society organisations’ of 13 September 2006 (12), the EESC consid-
ered that active cooperation with civil society and the social
partners was a key aspect of promoting European integration
policies. In particular, the EESC emphasised the importance of
the role played by the social partners, human rights organisa-
immigrants' organisations, cultural and sports associa-
tions,
faith communities, neighbourhood associations, educa-
tions,
tional communities, schools and universities, the media, etc. in
the integration processes at the national, regional and local
levels. The EESC also highlighted the need to promote the devel-
opment, consolidation and recognition of these organisations at
European level when overhauling the EU's framework for the
integration of immigrants.

The conclusions of

the June 2007 European Council
2.7
state that:
‘The European Council likewise welcomes the efforts that
have been made in order to improve the continued and deepened coop-
eration at EU level and between Member States in the area of integra-
tion and intercultural dialogue. The European Council welcomes,
in
particular, the Council conclusions of 12 June on the strengthening of
It
integration policies in the EU by promoting unity in diversity.
emphasises
the
the Member
exchange of
States’ (10).

experience on integration policies of

importance of

to facilitate

initiatives

further

the

2.11
Establishing reception and integration policies and
programmes for immigrants should go hand in hand with the
widespread participation and direct involvement of social orga-
nisations and immigrant associations. This approach was also
confirmed in the Third Annual Report on Migration and Inte-
gration,
on
11 September 2007 (13). The Annual Report reiterates the initia-
tive to establish a European Integration Forum,
in which
stakeholders working in the field of integration in the EU can
exchange experiences and make recommendations (14).

European Commission

published

the

by

forward
The EESC shares the holistic approach put
2.8
recently by the European Council, because integration and

(7) Commission Communication, The Hague Programme: Ten priorities
for the next five years The Partnership for European renewal in the field
of Freedom, Security and Justice, COM(2005) 184 final, Brussels,
10.5.2005.

(8) EESC opinion of 21.3.2002 on ‘Immigration, integration and the role
of civil society organisations’, rapporteur: Mr Pariza Castaños (OJ C 125,
27.5.2002).

(9) A Common Agenda for Integration: Framework for the Integration of
Third-Country Nationals in the European Union, COM(2005) 389
final, Brussels, 1.9.2005.

(10) http://www.consilium.europa.eu/ueDocs/cms_Data/docs/pressdata/

en/ec/94932.pdf, point 20.

Promoting

integration

2.12
exchanging
experiences will also be greatly assisted by the adoption of a
sound and ambitious financial
the
programme entitled ‘Solidarity and management of migration

framework. As part of

policies

and

(11) Council of the European Union, Session No 2807 of the Justice and

Home Affairs Council, 12 and 13 June 2007, 10267/07.

(12) EESC opinion of 13/14.9.2006 on ‘Immigration in the EU and integra-
tion policies: cooperation between regional and local governments
and civil society organisations’, rapporteur: Mr Pariza Castaños
(OJ C 318, 23.12.2006).

(13) Commission communication: Third Annual Report on Migration and

Integration, COM(2007) 512 final, Brussels, 11.9.2007.
(14) See the communication COM(2007) 512 final, point 3.1.

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flows 2007-2013’, the European Fund for the Integration of
Third-country Nationals (15) will help to develop national poli-
cies based on the CBPs and produce a new EU policy on the
integration of immigrants.

2.13
The Reform Treaty adopted in Lisbon on 18 October
2007 (the ‘Lisbon Treaty’) also acknowledged that establishing a
common European policy for integrating immigrants is a key
policy for the EU. As a consequence of Title V of the Treaty on
the Functioning of the Union (TFU), the European Union will
for the first time have a legal base (Article 63 a4, the new
Article 79.4) on which to develop common legislative measures
to encourage and support the work of the Member States to
integrate third-country nationals (16).

3. EESC proposal to establish the European Integration

Forum

the European Integration Fund,

The EESC considers that the coherence of the EU's poli-
3.1
cies needs to be improved, given that a number of instruments
are already in place, including the Common Agenda for Integra-
the National Contact
tion,
the
Points on Integration,
Annual Reports on Migration and Integration, the website, etc.
The Committee considers that it would be useful to revive the
debate on the open method of coordination. The European
Commission should propose that the Council make use of the
open method of coordination on integration, which the Council
rejected a few years ago.

the Handbooks on Integration,

In order to improve the coherence of this policy and its
3.2
instruments, a platform for civil society participation should
in place. The EESC therefore welcomes and feels
be put
honoured by the European Commission's
for an
exploratory opinion.

request

3.3
Bearing in mind other existing platforms (for other EU
policies) and the different national experiences, the Committee
proposes
the
European Integration Forum (the name adopted by the
European Commission (17)).

the European platform be known as

that

3.4
The Committee considers that the Forum should be set
up gradually. Its first meeting should be held in the autumn of
2008 to draw up its work programme and finalise its structure.

3.5 The tasks of the European Integration Forum

In a number of opinions (18), the EESC has stated the
3.5.1
need for a holistic approach to integration, requiring the invol-
vement of all players concerned, especially the social partners
and organised civil society.

3.5.2
In its communication on the Common Agenda for
Integration (19) the Commission considers that the Forum's main
tasks could be ‘consultation, exchange of expertise and drawing
up recommendations’.

3.5.3
The Committee agrees and considers that these tasks
could be fulfilled by drawing up reports (which could include
guidelines) on integration policies.

3.5.4
consult the Forum on European integration policies.

The Commission, Parliament and the Council could

3.5.5
The Forum could draw up own-initiative reports for
the EU institutions in order to improve the integration of
third-country nationals.

3.5.6
Exchanging technical know-how and good practice
should be one of the Forum's main tasks, to be carried out in
cooperation with the network of National Contact Points.

3.5.7
The Forum could contribute to the Conferences on the
Handbook on Integration and to National Contact Point
meetings.

3.5.8
The Forum's activities, reports and conclusions will be
published on the EESC website and on the Commission's dedi-
cated website for integration, which will enable European citi-
zens and third-country nationals to become involved (a virtual
forum).

3.6 Membership of the Forum

3.6.1
will meet twice a year.

The Forum will have a maximum of 100 members and

3.6.2
The Commission considers that ‘Its added value would be
to assemble a range of stakeholders active in the area of integration at
EU level; […] for example, EU umbrella organisations having a
membership across a number of Member States (20)’. The EESC
shares the Commission's view and considers that labour integra-
tion with equal treatment is a priority, and it is therefore impor-
tant that the social partners also have a place in the Forum.

(15) http://ec.europa.eu/justice_home/funding/integration/funding_inte-

gration_en.htm.

(16) Article 63.a.4: ‘The European Parliament and the Council, acting in
accordance with the ordinary legislative procedure, may establish
measures to provide incentives and support for the action of Member
States with a view to promoting the integration of third-country
nationals residing legally in their territories, excluding any harmonisa-
tion of the laws and regulations of the Member States’.

(17) COM(2005) 389 final.

(18) Opinions of

the European Economic and Social Committee of
21.3.2002 on ‘Immigration, integration and the role of civil society
organisations’, rapporteur: Mr Pariza Castaños (OJ C 125, 27.5.2002)
and of 13 and 14.9.2006 on ‘Immigration in the EU and integration
policies: cooperation between regional and local governments and
civil society organisations’, rapporteur: Mr Pariza Castaños (OJ C 318,
23.12.2006).

(19) COM(2005) 389 final.
(20) COM(2005) 389 final.

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3.6.3
It is crucial that the Forum's work adopt a European
approach, based on national experiences and practice. The EESC
therefore proposes that the Forum's members include represen-
tatives of organisations working at both the EU and national
levels.

3.6.4
One-third of the Forum's members will represent EU
organisations which work in the field of immigrant integration,
and this could include the social partners.

3.6.5
The remaining participants will come from consultative
bodies from the Member States (with each Member State
sending between one and four representatives). In this way, the
forums, platforms, councils and similar institutions that exist in
the Member States — especially those involving immigrant
organisations — will also be represented in the European
Forum. In those Member States where no such organisations
exist, the economic and social councils (or similar institutions)
could have a place in the Forum.

The EESC considers that

3.6.6
immigrants' organisations,
most of which are organised on national lines and do not have
European networks, must be encouraged to become involved in
the European Integration Forum; the Member State forums, plat-
forms, councils or ESCs should, therefore, nominate delegates
from the most representative immigrants' organisations.

3.7 When nominating participants, organisations should take
account of the gender balance.

The Forum could invite observers and experts, in par-
from the specialist European agencies, as well as
authority

3.7.1
ticular
academics
networks, to attend its meetings.

and European local

and researchers

3.7.2
In order to promote the broadest possible participa-
tion, the European Integration Forum should network with civil
society organisations
regional, national and
the local,
European levels).

(at

in point 3.8;

The EESC will take part in the Forum's meetings, as set
3.7.3
out
the
European Parliament and the Committee of the Regions could
also take part.

representatives of

the Commission,

3.8 The EESC's commitment

3.8.1
The Committee will be highly committed to the
Forum's activities and to this end will set up a permanent
15-member study group on integration within the SOC Section.
Through this permanent group, the Forum will work together
with the EESC on drawing up opinions.

3.8.3
Bearing in mind the new legal base that is the Lisbon
Treaty, the EESC will draw up new opinions containing propo-
sals and political recommendations to encourage and support
Member States' action in the field of integration.

3.9 Structure of the Forum

3.9.1
structure:

The EESC proposes that the Forum adopt a very simple

— A president, appointed by the EESC in agreement with the

Commission.

— Three vice-presidents appointed by the Forum.

— The president and the three vice-presidents will constitute
the Forum's Bureau, which will meet at least four times per
year.

— A small secretariat (of 2 people) from the EESC.

— The Forum will meet in the EESC building, where it will be

based.

— The Forum's plenary will meet twice a year, when convened

by the president.

— For drawing up reports, small study groups could be set up.

3.10 The Forum's Agenda

3.10.1
the
roadmap for the Forum's activities and consequently its agenda.

The Common Basic Principles will provide

3.10.2
The work agenda will be drawn up by the Forum's
Bureau, taking account of the agendas of the EU institutions
and civil society organisations.

The

Forum could

3.10.3
and
programmes of the European Integration Fund, as well as the
instruments provided for under European integration
other
policy.

objectives

assess

the

3.11 Rules of Procedure

The EESC proposes that the European Commission
3.11.1
approve the Forum's Rules of Procedure, at the proposal of the
EESC.

3.11.2
the proposal of the EESC, appoint the Forum's members.

The EESC proposes that the European Commission, at

3.12 Financial framework

3.8.2
part in the Forum's plenary meetings.

The members of the permanent study group will take

3.12.1
provided by the EU institutions.

The Forum should be funded by economic resources

Brussels, 9 July 2008.

The president

of the European Economic and Social Committee

Dimitris DIMITRIADIS