Opinion of the Committee of the Regions on Integration Policy and Intercultural Dialogue
Date: 2008-11-26
Institutions: European Committee of the Regions
Subjects: European Committee of the Regions, European cultural event, European identity, cultural pluralism, cultural policy, integration of migrants

31.3.2009

EN

Official Journal of the European Union

C 76/1

III

(Preparatory Acts)

COMMITTEE OF THE REGIONS

77th PLENARY SESSION HELD ON 26 AND 27 NOVEMBER 2008

Opinion of the Committee of the Regions on ‘Integration Policy and Intercultural Dialogue’

(2009/C 76/01)

THE COMMITTEE OF THE REGIONS

— believes that intercultural dialogue is a key instrument in promoting understanding of cultural diver-

sity and strengthening and uniting people in a multilingual, multicultural Europe;

— is convinced that dialogue between different religions and world views is one of the prime instru-

ments for sustainable intercultural dialogue;

— calls on the European Parliament, therefore, to promote a European Charter for intercultural dialogue
and suggests that the European Commission and the Member States set up a permanent European
Platform for intercultural dialogue, including local and regional authorities, with a view to developing
a systematic dialogue starting out from our cities and regions;

— believes that local and regional authorities have important powers when it comes to promoting inter-

cultural dialogue;

— feels that local authorities should establish an open dialogue with individual groups or sections within
society, and then promote and support communication between these groups, organise meetings and
educate people through lectures, festivals, exhibitions and other forms of activity.

— points out that in many of the Member States regional and local authorities are responsible for legisla-
tion relating to integration policy and its implementation and thus play a key role in the integration
of immigrants;

— believes that intercultural dialogue is a prerequisite of successful

integration. Being closest to the
people, local and regional authorities are able to encourage mutual recognition and a more active
involvement in intercultural dialogue.

C 76/2

EN

Official Journal of the European Union

31.3.2009

Rapporteur: Milan BELICA (SK/EPP), President of the Nitra Self-governing Region

Reference document

Referral from the French Presidency on ‘Integration Policy and Intercultural Dialogue: The Role of Local
and Regional Authorities’

I. POLICY RECOMMENDATIONS

THE COMMITTEE OF THE REGIONS

The principle of multicultural dialogue

believes that the basic principle underlying the process of
1.
European integration is respect
for, and the promotion of,
cultural diversity. In this sense, intercultural dialogue is a key
instrument in promoting understanding of cultural diversity and
strengthening and uniting people in a multilingual, multicultural
Europe;

2.
stresses that the concept of intercultural dialogue, allied
with social and territorial cohesion, can help to instil the basic
values of private, social and civic life, such as solidarity, respon-
sibility, tolerance, respect, traditional values, striving for social
progress and understanding of social and cultural diversity. It
can also foster the ability to communicate between individuals
and groups with a different cultural background and help them
live together in solidarity;

3.
highlights the fact that equality of access to culture and
freedom of cultural expression are essential features of the Euro-
pean values base and preconditions for intercultural dialogue
and integration;

4.
stresses that in order to promote intercultural dialogue
effectively, there is a need for cooperation at regional and local
level that involves local and regional decision-makers, social
partners, education and training establishments, NGOs, and
youth, sports and cultural organisations, as well as bodies repre-
senting immigrants and other relevant partners at grassroots
level. Religious and secular associations are also important part-
ners in this dialogue to help create mutual understanding and
tolerance, provided that this is indeed what they do;

5.
is convinced that dialogue between different religions and
world views is one of the prime instruments for sustainable
intercultural dialogue. The different faith organisations are key
players in our society. At local and regional level, public and
religious authorities are in a position to develop working
methods
for promoting mutual understanding and hence
strengthening intercultural dialogue. Supporting these methods
and activities developed at local and regional level can also help
to foster the principle of mutual understanding;

6.
calls on the European Parliament, therefore, to promote a
European Charter for intercultural dialogue and suggests that
the European Commission and the Member States set up a
permanent European Platform for
intercultural dialogue,
including local and regional authorities, with a view to devel-

oping a systematic dialogue starting out from our cities and
regions.

The role of local and regional authorities in intercultural
dialogue

7.
believes that local and regional authorities have important
powers when it comes to promoting intercultural dialogue. They
bear a major responsibility for shaping and supporting our rich
variety of cultures. They have a key role in disseminating and
applying best practice and exchange of experience in intercul-
tural dialogue, in particular through their coordination of multi-
dimensional local and regional networks involving all the rele-
vant players;

8.
believes that local and regional authorities could use their
position to raise awareness of the present complex situation and
the co-existence of various cultural identities and belief systems.
Accordingly,
it is important for them to have a real under-
standing of individual groups and their activity and influence
within society. It is therefore necessary to identify as wide a
range of stakeholders in the multicultural dialogue as possible
and to include them in structures for a direct and intensive
exchange with the appropriate local or regional authorities;

9.
observes that many intercultural initiatives are managed at
the local and/or regional level. Local and regional authorities,
through their proximity to the public, are strategically well
placed to respond — in partnership with other local players —
to the specific needs and demands of
the different cultural
groups within their territories, and to promote greater intercul-
tural dialogue;

feels that

10.
local authorities should establish an open
dialogue with individual groups or sections within society, and
then promote and support communication between these
groups, organise meetings and educate people through lectures,
festivals, exhibitions and other forms of activity. Local and
regional authorities should initiate an open dialogue in which
they would have an impartial role and respect the freedom and
rights of the individual and groups; subsequently, they would
only act as intermediaries, possibly providing ‘advisory services’
(information, projects).

believes that immigrants should have the opportunity to

11.
vote in local, regional and European Parliament elections;

12.
would therefore encourage the relevant authorities and
political groups to promote their participation to help facilitate
integration into society;

31.3.2009

EN

Official Journal of the European Union

C 76/3

Intercultural dialogue as a key condition for integration
policy

believes that intercultural dialogue is a prerequisite of
13.
successful
local and
integration. Being closest to the people,
regional authorities are able to encourage mutual recognition
and a more active involvement in intercultural dialogue;

recommends that the European Union, acting within its
14.
for
ensures
remit,
successful integration, but also recognises that immigration and
integration policy is a national competence and the principle of
subsidiarity must be respected;

and pre-conditions

frameworks

clear

15.
points out the need for the creation and support of
management structures (one-stop shops) that can help immi-
grants with the practical issues they face (as well as the usual
bureaucratic problems) and offer useful information, especially
for newcomers;

16.
points out that in many of the Member States regional
and local authorities are responsible for legislation relating to
integration policy and its implementation and thus play a key
role in the integration of immigrants. Differences in national
systems, as well as the geographical position of each Member
State, existing customs and historical and cultural characteristics
must be taken into account when elaborating common Euro-
pean frameworks, in accordance with Point 14. This also means
that local and regional authorities should apply an integrationist
model depending on their specific circumstances;

17.
underlines the fact that local and regional authorities are
often involved in determining the effectiveness and efficiency of
a number of aspects of integration policy through the way in
which they fulfil their responsibilities in these areas;

18.
calls for adequate resources to be provided for integration
measures at local and regional level while existing programmes
are explored. Local and regional authorities should be assisted in
managing the integration process — with information and
funding as well as the development of best practices. Strands
and measures should be included that enable the funding at
level of projects and measures to integrate
local and regional
immigrants;

notes the huge scale of immigration to the European
19.
Union. In this case cooperation and dialogue need to be stepped
up in the cultural sphere so as to ensure that cultural differences
do not provoke disharmony but instead become a tool of devel-
opment and an instrument
for strengthening tolerance and
uniting populations in a multicultural Europe based on mutual
respect and solidarity;

calls for the intensification of efforts to draw up a
20.
common European Policy to manage irregular immigration.
Many of the legal aspects of irregular immigration are beyond
the social conse-
the competencies of

local authorities, but

quences of this phenomenon are first and foremost felt at local
and regional level. Ways should be found and efforts should be
made to consult the regions and the local level when developing
common policies on the issue and address the specific problems
of irregular migration in the context of intercultural dialogue;

believes that regional and local authorities play a special
21.
role when it comes to migration policy, because many of the
services that are important for successful integration — such as
housing, healthcare, education and learning programmes for
skills and languages — are provided by local and regional
authorities and therefore they are also the first concerned by
problems in these areas;

22.
points out that the process of integration is sometimes
spread over several generations — particularly at local level. For
this reason it considers it very important that local and regional
authorities provide for effective structural, social, economic and
cultural integration, while it is an absolute pre-condition to help
to ensure that newcomers are not discriminated against and
have rights and access to resources, employment and services so
that they can fully take part in European society. Access to the
normal labour market — an issue which Member States have
responsibility for — is crucial;

23.
recommends considering a possibility that a system of
networks of local and regional authorities be set up in each
Member State in order to increase cooperation to effectively
deal with migratory flows and to integrate immigrants in an
informed way by means of local projects promoted by these
authorities;

would refer

to the European Year of

24.
intercultural
dialogue in 2008, which by promoting understanding of
different cultures is providing a key impetus for the integration
of people with a migration background. The Commission
should consider whether an annual ‘European Day for integra-
tion and intercultural tolerance’ could raise awareness, and high-
light the enrichment that can come from cultural diversity.

Support for housing policies as part of the integration
process

25.
recommends creating conditions for the integration of
immigrant families with local families and communities through
integrated programmes set up, with the active participation of
immigrants, to improve the built environment and urban plan-
ning, provide services, improve the quality of the environment
and combat social exclusion. Points out the need to carry out
further research that collates experience in all
the Member
recent years concerning the ability to provide
States over
housing,
including for immigrants with special emphasis on
experience in implementing programmes for improving neigh-
bourhoods with high migrant populations;

C 76/4

EN

Official Journal of the European Union

31.3.2009

26.
encourages local and regional authorities to make use of
existing EU funding possibilities for helping migrants, asylum
seekers and refugees find employment and to gain access to
social, health and housing services. Local and regional authori-
ties should ensure the quality and quantity of public services as
well as education and learning programmes and the quality of
life in cities by providing effective urban planning and adequate
housing policy to avoid the degradation of urban areas and
run-down
setting up effective regeneration programmes for
urban areas.

Qualification and employment in regards to integration

27.
draws attention to the fact that, in the absence of recep-
immi-
tion and integration projects and stable employment,
grants may fall victim to exploitation and crime or may them-
selves, voluntarily or involuntarily, become criminals, creating a
possible source of problems in terms of security and social
cohesion;

suggests that the Member States,

28.
in cooperation with
local and regional authorities, all economic and social partners,
should make efforts to improve the access of immigrants to
work,
in line with national competences in this area, and to
fight discrimination in the labour market. Member States should
inform them of the possibilities and encourage them to prepare
for work through continuous, and if necessary, specific training
programmes;

Multilingualism and foreign language teaching as a means
of promoting intercultural dialogue

29.
believes that developing a sense of belonging starts at
school, and that reception and integration programmes can be
developed as an integral part of all preschool, school and univer-
sity systems in the Member States;

feels that local and regional authorities should highlight
30.
the role and importance of education as an important means of
raising awareness about diversity;

calls for greater attention to be paid to the cultural,
31.
linguistic and intellectual potential of immigrants, which are of
great
importance to the European Union in the globalising
world;

32.
stresses the need to support teaching which focuses on
mutual understanding. In order to achieve this, the school curri-
culum should be adapted to reflect the EU's multicultural envir-
onment and the principle of actively supporting multicultural
dialogue;

a

places

significant

33.
emphasis on foreign language
teaching and on developing the basis of multilingualism at pre-
school age. It stresses the importance of having a good knowl-
edge of the language of the host country and the area where
one lives. It suggests, therefore, that appropriate measures of
support and learning opportunities be developed both at school

and, for different age groups of migrants, outside the school
environment;

34.
also agrees on the need to encourage dialogue between
religious communities and associations and other cultural
players. People within the EU need to have a better knowledge
and understanding of both EU and non-EU countries, including
their history and their culture. Immigrants as well as locals must
receive a positive education on Europe: the discovery of shared
values and a common history, interaction between cultures, and
similar social and political rights and duties;

35.
suggests that local and regional authorities commit them-
selves to fostering intercultural awareness among the staff of
local and regional authorities and other public service providers
and promote a fair representation of staff with migrant/ethnic
minority backgrounds in these institutions;

36.
believes that local and regional authorities can play a role
in developing an environment for foreign students that enables
them to establish links with the city where they study, however
short the period involved.

Strengthening cooperation with the media

37.
calls for local and regional authorities to collaborate
closely with local media, as well as organisations and associa-
tions of cultural interests, in conducting information campaigns
at local and regional level, reaching in particular ‘disadvantaged’
groups and thereby ensuring maximum benefit of opportunities
available;

considers that local media have an important role to play
38.
in informing people as objectively as possible about the situa-
tion and reality of Europe's multi-cultural societies and thus, on
the one hand, to strengthen the adaptability of the host country
population (raising of intercultural awareness and knowledge,
acceptance of migration) while, on the other, encouraging
migrants to integrate, and to respect the cultures, traditions,
customs and languages of the host country and of other EU
Member States;

suggests

targeting

and regional

39.
stakeholders
local
through decentralised events and encouraging appropriate
coverage of such events in the regional media. Local and
regional authorities should emphasise the clear role of
the
media in supporting equality and mutual understanding and
continue to create the conditions
supporting cultural
dialogue;

for

40.
notes the necessity to promote the creation of new
spaces (various digital environments, special cafés, activities in
parks or squares) of intercultural dialogue and proposes that
support be given to city debates, dialogues, language instruction,
naturalisation courses, employment schemes, equal opportunity
courses,
the
systematic
experience, new
approaches, successes and failures be ensured at local level.

anti-discrimination schemes,

and monitoring of

and that

exchange

etc.,

31.3.2009

EN

Official Journal of the European Union

C 76/5

II. APPENDIX

Ad 6

The Intercultural Cities programme of the Council of Europe and the
European Commission is a network of European cities for intercultural
dialogue. The aim of the network is the exchange of experience and
good practices amongst the members in issues relating to employment,
language, education, culture, media, etc.

Ad 23

In those Member States which have tried such service networks,
working through local commissions, the processing of asylum requests
has been accelerated and the living conditions of asylum seekers have
been improved. This has facilitated their integration into local host
communities, with significant benefits for security and quality of life.

Arco Latino suggests promoting networks and associations at European
level to boost the spirit of interregional cooperation and coordinate
actions between Member States with the same immigration challenges.
Only through this kind of cooperation will it be possible to foster coor-
dinated co-development actions with the countries of origin.

public park, which include work with different groups of youngsters
that spend their leisure time in the park, c) work on migrants' capacities
and skills (building upon the ‘Extracompetenze’ project, d) the organisa-
tion of activities in schools that would bring together parents of
different nationalities, and e) the setting-up of social economy enter-
prises (e.g. cooperatives) by migrants and locals.

Ad 30

The ‘Dvojičky’ (Twins) project set up by Regina radio, whose journalists
seek to identify parallels and compare Slovakia's historical figures and
traditions with those of other EU Member States.

Ad 32

Pan-European cultural traditions such as ‘Neighbours' Day’ and ‘Euro-
pean Music Day’ are gradually becoming established in Slovakia.

The initiative launched by the European Commission's DG DEV and the
sending of EU officials as ambassadors to schools on Schuman Day
(9 May).

Ad 28

Ad 33

REVES has begun involving immigrants in its work; and the results of
this cooperation are very positive. Members of the European Network of
Local and Regional Authorities for the Social Economy (REVES) are
carrying out a number of initiatives for intercultural dialogue and parti-
cipatory integration. Third-country nationals or other persons with a
migration background are partially involved not only in the implemen-
tation, but also in the planning of
these initiatives (which are still
ongoing). Experiments are being made with new spaces of participation
and intercultural dialogue. They include: a) a café as meeting place for
intercultural dialogue initiatives based around a
elderly migrants, b)

In young people and children the motivation to learn new languages
must be kindled at an early age. Language learning should begin as early
as possible because this makes it easier for them to learn the language
faster and more comprehensively. Progress in language acquisition at
primary and secondary school should be developed. The education
process must provide more opportunities to speak a foreign language at
primary school and to learn a third language at secondary school.
University facilities for further improving linguistic skills should be
expanded by broadening the scope of the Lifelong Learning programme,
which aims at promoting the mobility of students and workers.

Brussels, 26 November 2008.

The President

of the Committee of the Regions

Luc VAN DEN BRANDE