COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS European Agenda for the Integration of Third-Country Nationals
Date: 2011-07-20
Institutions: European Commission
Subjects: EU migration policy, foreign national, integration of migrants, third country

EUROPEAN COMMISSION 

Brussels, 20.7.2011 
COM(2011) 455 final 

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

European Agenda for the Integration of Third-Country Nationals 

{SEC(2011) 957 final} 

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TABLE OF CONTENTS 

1. 

2. 

A. 

B. 

C. 

3. 

INTEGRATION AS A WAY OF REALISING THE POTENTIAL OF 
MIGRATION ............................................................................................................. 2 

MANAGING INTEGRATION IS A SHARED RESPONSIBILITY ................... 3 

INTEGRATION THROUGH PARTICIPATION....................................................... 4 

MORE ACTION AT LOCAL LEVEL........................................................................ 8 

INVOLVEMENT OF COUNTRIES OF ORIGIN .................................................... 10 

THE WAY FORWARD .......................................................................................... 11 

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1. 

INTEGRATION  AS  A  WAY  OF  REALISING  THE  POTENTIAL  OF 
MIGRATION 

Over  the  past  decades,  most  EU  Member  States  have  experienced  increasing  migration. 
Migrants from third countries represent around four percent of the total EU population1. The 
composition  of  EU's  population  is  thus  changing,  and  European  societies  are  faced  with 
increasing  diversity.  This  leads  to  new  conditions  for  social  cohesion  and  government 
response to public concerns. 

Europe is also strongly influenced by demographic changes, including the ageing population, 
longer life expectancies and a declining working-age population2. Legal migration can help to 
address these issues, in addition to maximising the use of the labour force and skills already 
available in the EU and improving the productivity of the EU economy. Demographic trends 
vary from region to region and need to be addressed through tailor made solutions. If the full 
benefits from migration are to be realised, Europe needs to find a way to better cope with its 
diverse and multicultural societies through more effective integration of migrants. 

The  Europe  2020  Strategy3  and  the  Stockholm  Programme4  fully  recognise  the  potential  of 
migration  for  building  a  competitive  and  sustainable  economy  and  they  set  out,  as  a  clear 
political objective, the effective integration of legal migrants, underpinned by the respect and 
promotion of human rights5. 

Member  States  have  confirmed  their  commitment  to  further  developing  the  core  idea  of 
integration  as  a  driver  for  economic  development  and  social  cohesion,  in  order  to  better 
enhance migrants' contribution to economic growth and cultural richness6. There is already a 
framework  for  EU  co-operation  on  integration  through  the  Common  Basic  Principles  for 
Immigrant  Integration  Policy  in  the  European  Union,  which  were  agreed  by  the  Council  in 
20047.  The  Principles  underline  that  integration  is  a  dynamic,  two-way  process  of  mutual 
accommodation by migrants and by the societies that receive them. All EU actions presented 
by  the  Commission  in  the  2005  Common  Agenda  for  Integration  have  been  completed.8 
However,  the  social,  economic  and  political  context  has  changed  and  not  all  integration 
measures  have  been  successful  in  meeting  their  objectives.  Integration  policies  also  require 
the will and commitment of migrants to be part of the society that receives them. 

1 

2 

3 
4 
5 

6 

7 
8 

in 

focus, 

1/2011, 

A breakdown of the population by citizenship in 2010 showed that there were 32.4 million foreigners 
living in the EU-27 Member States (6.5% of the total population). Of those, 12.3 million were EU-27 
nationals living in another Member State and 20.1 million were citizens from a non-EU-27 country (4% 
of the total population), http://epp.eurostat.ec.europa.eu/portal/page/portal/population/introduction.  
The increase in the total population of the EU in recent years was mainly due to net immigration. At the 
same time, the Union has witnessed a downward trend in immigration over the last few years, Eurostat, 
http://epp.eurostat.ec.europa.eu/cache/ITY_OFFPUB/KS-SF-11-
Statistics 
001/EN/KS-SF-11-001-EN.PDF. 
Conclusions of the European Council, 25/26 March 2010, EUCO 7/10, CO EUR 4, CONCL 1. 
The Stockholm Programme - An open and secure Europe serving and protecting citizens, OJ 2010/C 115/01. 
The Annual Growth Survey 2011, which brings together different actions which are essential for the EU 
to move towards its Europe 2020 objectives, has shown the need for urgent reforms to promote skills 
and  to  create  incentives  to  work  both  for  the  national  and  migrant  population,  COM(2011)  11  final, 
Annex 2, Macro economic report. 
Conclusions  of  the  Council  and  the  Representatives  of  the  Governments  of  the  Member  States  on 
Integration as a Driver for Development and Social Cohesion, Council document 9248/10. 
Council document 14615/04, 19.11.2004. 
COM(2005) 389 final; SEC(2010) 357 final. 

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The  introduction  of  a  new  legal  provision  in  the  Treaty  concerning  EU  support  to  the 
promotion of integration of third-country nationals9 residing legally in Member States (Article 
79.4 TFEU) allows further concerted action while excluding harmonisation. This action has to 
take  into  account  the  fact  that  the  demographic,  social,  economic  and  political  context  has 
changed. 

Figures10 confirm that the most pressing challenges include:  

•  the prevailing low employment levels of migrants, especially for migrant women,  

•  rising unemployment and high levels of 'over-qualification',  

•  increasing risks of social exclusion,  

•  gaps in educational achievement,  

•  public concerns with the lack of integration of migrants. 

The  renewed  European  Agenda  for  the  Integration  of  Third-Country  Nationals  is  a 
contribution to the debate on how to understand and better support integration. A diversity of 
approaches  is  called  for,  depending  on  the  different  integration  challenges  faced  by  various 
types  of  migrants,  both  low  and  highly  skilled,  as  well  as  beneficiaries  of  international 
protection.  Europe  needs  a  positive  attitude  towards  diversity  and  strong  guaranties  for 
fundamental  rights  and  equal  treatment,  building  on  the  mutual  respect of  different  cultures 
and traditions. Actions targeting especially vulnerable groups of migrants are also needed.  

Building on experiences across the EU, this Communication highlights European integration 
challenges.  To  address  these  challenges,  it  suggests  recommendations  and  areas  for  action. 
Together with the accompanying Commission Staff Working Paper, it provides an overview 
of EU initiatives to support the integration of third-country nationals. The EU can contribute 
to  steering  and  guiding  Member  States'  efforts  via  different  instruments.  The  European 
Agenda  for  Integration  cannot  be  implemented  through  European  instruments  alone. 
Integration  is  a  dynamic,  long-term  process  requiring  efforts  by  a  wide  range  of  actors  in 
different  policy  areas  and  at  various  levels.  This  is  the  reason  why  the  recommendations 
included in this Communication target all actors involved in the integration process. 

2. 

MANAGING INTEGRATION IS A SHARED RESPONSIBILITY 

In the light of the above, it is clear that integration policies should create favourable conditions 
for  migrants'  economic,  social,  cultural  and  political  participation  to  realise  the  potential  of 
migration.  Effective  solutions  to  integration  challenges  must  be  found  in  each  national  and 
local context but as these challenges are common to many Member States, experiences could 
be shared. Although it is not the prerogative of the EU to determine integration strategies, the 
EU can provide a framework for monitoring, benchmarking and exchange of good practice, 
and create incentives through the European financial instruments. Examples of good practice 

9 

10 

Third-country  nationals  are  referred  to  as  migrants  coming  from  countries  outside  the  EU  and  not 
holding the citizenship of an EU country. This group includes both persons born in a country outside 
the EU and persons born in the EU but not holding the citizenship of a Member State. 
See the accompanying Commission Staff Working Paper. 

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and  knowledge  exchange  are  presented  in  the  accompanying  Commission  Staff  Working 
Paper.  

Integration is linked to a framework of legislation and policy defined and coordinated at EU 
level11.  Ensuring  a  legislative  framework  for  equal  treatment  and  granting  all  migrants  a 
proper  level  of  rights  is  part  of  EU  action  in  support  of  integration.  Integration  priorities 
should be fully taken into account in all relevant areas, so as to contribute in a coherent way 
towards meeting integration challenges as well as other political priorities. 

Integration  is  an  ever  evolving  process,  which  requires  close  monitoring,  constant  efforts, 
innovative  approaches  and  bold  ideas.  The  solutions  are  not  easy  to  define  but  if  migrants 
integrate  successfully  in  the  EU,  this  will  represent  a  significant  contribution  to  the 
achievement by the EU of the targets it has set in the Europe 2020 Strategy, namely to raise 
the  employment  rate  to  75%  by  2020,  to  reduce  school  drop  out  rates  to  less  than  10%,  to 
increase the share of the population having completed tertiary education and to lift 20 million 
people out of poverty or social exclusion12. 

The proposed actions focus on the following key areas:  

A. Integration through participation.  

B. More action at local level. 

C. Involvement of countries of origin. 

A. INTEGRATION THROUGH PARTICIPATION 

Integration is a process that starts on the ground and integration policies should be developed 
with  a  genuine  'bottom-up'  approach,  close  to  the  local  level.  Such  policies  include  actions 
such  as  support  for  language  learning,  introductory  measures,  access  to  employment, 
education  and  vocational  training  and  the  fight  against  discrimination,  which  all  aim  at 
increasing migrants' participation in society.  

Integration requires the engagement by the receiving society in accommodating the migrants, 
respecting their rights and cultures and informing them about their obligations. At the same 
time, migrants need to show the willingness to integrate and to respect rules and values of the 
society in which they live. 

1. 

The socio-economic contribution of migrants 

1.1. 

Acquiring language knowledge 

It is broadly agreed that the acquisition of language skills is critical for integration. Enhanced 
language  skills  lead  to  improved  job  opportunities,  independence  and  migrant  women 
participation in the labour market. 

Language  training,  as  well  as  introduction  programmes,  must  be  accessible  both  financially 
and  geographically.  It  is  important  to  offer  different  levels  of  language  courses  based  on 

11 

12 

An overview of recent EU initiatives supporting the integration of third-country nationals is presented 
in the accompanying Commission Staff Working Paper.  
Conclusions of the European Council, 25/26 March 2010, EUCO 7/10, CO EUR 4, CONCL 1. 

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participants’  knowledge  and  conditions  for  learning.  It  can  be  relevant  to  use  the  Common 
European Framework of Reference for Languages (CEFR), which is a basis developed by the 
Council  of  Europe  for  mutual  recognition  of  language  qualifications,  when  determining 
language proficiency levels13.  

1.2. 

Participation in the labour market 

In  many  Member  States,  there  is  a  considerable  gap  in  employment  levels  between  third-
country nationals and EU nationals. In 2010, the employment rate of third-country nationals 
aged 20-64 was ten percentage points lower than that of the total population in the same age-
group at the EU level14. In particular, employment rates of migrant women are substantially 
lower than both the average employment rate and the employment rates of migrant men15. As 
participating  in  the  labour  market  is  one  of  the  best  and  most  concrete  ways  to  integrate  in 
society, efforts to reduce these gaps must target both labour migrants and migrants who come 
to the EU in the context of family reunification or as beneficiaries of international protection.  

Over-qualification  of  third-country  nationals  for  their  jobs,  especially  of  women16,  is 
noticeable in all Member States where data are available. Unemployed migrants or migrants 
employed  in  positions  for  which  they  are  overqualified  are  an  underutilised  resource  and  a 
waste  of  human  capital.  In  addtion,  this  situation  can  be  perceived  by  the  migrants  as 
degrading.  Services  should  be  developed  with  the  aim  to  enable  the  recognition  of 
qualifications and competences from the country of origin facilitating immigrants’ possibilities 
to take up employment which matches their skills. 

A  first  step  would  be  to  enhance  our  tools  for  mapping  of  educational  background,  previous 
work  experience,  comparability  of  diplomas  and  qualifications,  and  identifying  the  possible 
need for training. 

Secondly,  transparency  of  information  on  available  jobs  and  the  support  of  public 
employment  services  are  also  important.  The  role  of  employers  and  social  partners  in 
promoting diversity and combating discrimination is crucial. The important role of migrants 
as entrepreneurs and their creativity and innovation capacity should also be reinforced17, with 
the support of authorities with information on the conditions to set up business.  

Thirdly,  introduction  programmes  should  be  organised  to  support  newly  arrived  migrants' 
entry into employment and other vital arenas of the receiving societies. Introduction measures 
can  be  framed  in  a  contractual  agreement  to  ensure  commitment  and  include  obligations  and 
rights on both sides. 

13 
14 

15 

16 

17 

See CEFR, http://www.coe.int/t/dg4/linguistic/cadre_en.asp.  
In  2010,  the  average  employment  rate  of  the  total  population  aged  20-64  was  68.6%  (compared  to 
69.1% in 2009) and that of third-country nationals aged 20-64 was 58.5% (compared to 59.1% in 2009). 
At the prime-working age, 25-54, the employment rate of female third-country nationals in 2010 was 
almost 20 percentage points lower than the average employment rate of all women in that age group. 
Eurostat,  EU  Labour  Force  Survey,  quarterly  data  on  employment  rates  by  sex,  age  groups  and 
nationality – comparison of employment rates for nationals and citizens of countries outside the EU-27: 
http://epp.eurostat.ec.europa.eu/portal/page/portal/employment_unemployment_lfs/data/database.  
Ethnic minority and Roma women in Europe: A case for gender equality? Synthesis report prepared for 
the European Commission 2009. 
Recent statistics provided by the Chamber of Commerce of the Region Lombardy show that 60% of the 
new enterprises created in the region are founded by migrants, www.lom.camcom.it.  

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1.3. 

Efforts in the education system 

Most  EU  countries  have  a  growing  proportion  of  students  with  a  migrant  background18. 
School systems need to adapt to the increasing diversity of the student body to deliver high-
quality education for all and to capitalise on the potential of this diversity. In order to facilitate 
successful learning of the language, measures taken at an early age, starting from the pre-school 
stage are beneficial.  

The  average  educational  level  of  third-country  nationals  is  below  that  of  EU  nationals19. 
Young  people  with  a  migrant  background  are  at  greater  risk  of  exiting  the  education  and 
training system without having obtained an upper secondary qualification. Additional efforts 
are needed to prevent early school leaving among migrant youth20. 

Teachers  and  other  staff  should  receive  training  for  managing  diversity.  The  recruitment  of 
migrants  as  teachers  or  in  the  childcare  workforce  may  also  be  useful  both  to  encourage 
learning  in  classes  with  a  concentration  of  migrants  and  as  a  means  of  further  opening 
national  education  systems  to  other  European  and  non-European  cultures.  Language  classes 
for parents in connection with their children's schooling guidance, mentoring and tutoring are 
examples  of  useful  actions.  Schools  in  especially  disadvantaged  areas  with  a  high 
concentration  of  migrant  youth  could  develop  specialised  programmes,  mentoring  systems 
and access to training to have competitive advantages.  

1.4. 

Ensuring better living conditions 

Social inclusion measures targeted at migrants should aim to remove possible barriers blocking 
effective  access  to  social  and  health  services,  and  fight  against  poverty  and  exclusion  of  the 
most  vulnerable21.  The  integration  of  beneficiaries  of  international  protection  requires 
particular attention. They have often had traumatic experiences, which require specific social 
and  psychological  care.  Policies  should,  therefore,  be  designed  to  minimise  isolation  of 
beneficiaries  of  international  protection  and  restrictions  to  their  rights,  and  provide  for 
effective language learning, access to accommodation, access to health care in health systems 
that  promote  integration  and  culturally  adapted  health  promotion  programmes.  Access  to 
vocational training and assistance in seeking employment should also be targeted.  

The situation of Roma third-country nationals legally residing in the EU deserves particular 
attention. 

1.5. 

Better use of EU funding 

A better use of existing EU instruments should therefore support migrants' participation and 
the implementation of bottom-up integration policies. The European Fund for the Integration 
of  Third-Country  Nationals  and  the  European  Refugee  Fund  support  measures  such  as 

18 

19 

20 
21 

Progress  Report,  SEC(2011) 526. Across  the  EU,  the  share  of  non-nationals  in  the  age  group  6-17  is 
5.7%, respectively 7.9% in the age group 18-24. In Germany and Austria over 9% of children aged 6-17 
are non-nationals, in Spain and Ireland over 11%, while in Luxembourg over 45% are non-nationals. 
The  EU  Labour  Force  Survey  shows  that  migrants  are  significantly  under-represented  at  the  medium 
educational  level  and  over-represented  to  a  much  greater  extent  at  the  lowest  educational  level.  At  the 
same time, the overqualification rate of third-country nationals was 45% in 2009 compared to 29% for EU 
citizens, http://epp.eurostat.ec.europa.eu/portal/page/portal/employment_unemployment_lfs/data/database.  
COM(2010) 296; COM(2011) 18. 
COM(2010) 758. 

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reception and introductory schemes, participation in social and civic life and equal access to 
services. They are complemented by measures to facilitate access to and integration into the 
labour  market  funded  under  the  European  Social  Fund,  and  the  European  Regional 
Development  Fund  can  support  a  large  range  of  integration  measures  in  the  context  of 
regional development. 

Recommendations 

Member States should ensure: 

•  the provision of language courses, reflecting migrants varying needs at different stages of 

their integration process; 

•  the  organisation  of  introductory  programmes  for  newly  arrived  migrants,  including 
language  and  civic  orientation  courses.  These  programmes  should  address  the  specific 
needs of migrant women in order to promote their participation in the labour market and 
strengthen their economic independence; 

•  measures  to  map  and  assess  the  individual's  needs  and  to  validate  qualifications  and 

professional experiences; 

•  increasing labour market participation of migrants through active labour market policies; 

•  efforts  in  education  systems  equipping  teachers  and  school  leaders  with  the  skills  for 
managing  diversity;  recruiting  teachers  from  migrant  backgrounds;  and  participation  of 
migrant children in early childhood education; and 

•  special attention to specific needs of vulnerable groups of migrants. 

The Commission should support: 

•  the  exchange  of  practice  and  policy  coordination  in  the  areas  of  employment,  education 

and social policies; and 

•  a better use of existing EU financial instruments to support migrants' participation. 

2. 

Rights and obligations – achieving equal treatment and a sense of belonging 

The  respect  of  universal  values  and  fundamental  human  rights  is  enshrined  in  the  Treaty. 
Efforts to fight against discrimination and to give migrants instruments to become acquainted 
with the fundamental values of the EU and its Member States should be strengthened.  

Migrants' participation in the democratic process is important for their integration. Obstacles 
to  migrants'  political  participation  in  terms  of  legislative  and  structural  barriers  must  be 
overcome  to  the  greatest  extent  possible.  The  involvement  of  migrant  representatives, 
including  women,  in  the  drawing  up  and  implementation  of  integration  policies  and 
programmes should be enhanced. 

Outreach  programmes  and  work  placements  can  help  to  build  capacity  within  migrant 
organisations and encourage and support the participation of these organisations at the local 
level, such as school boards, housing administration etc.  

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Measures  to  enhance  democratic  participation  could  include  training  and  mentors,  granting 
migrants  access  to  voting  rights  in  local  elections,  creating  local,  regional  and  national 
consultative bodies, encouraging entrepreneurship, creativity and innovation22. 

Recommendations 

Member States should ensure: 

•  measures  to  implement  in  practice  the  principle  of  equal  treatment  and  to  prevent 

institutional as well as every-day discrimination; and 

•  efforts to remove obstacles to migrants' political participation. The involvement of migrant 
representatives  in  the  drawing  up  of  and  implementation  of  integration  policies  and 
programmes should be further enhanced.  

The Commission should ensure: 

•  the  full  and  correct  implementation  of  existing  directives on non-discrimination and in the 

area of legal migration.  

B. MORE ACTION AT LOCAL LEVEL 

Integration  policies  should  be  formulated  and  implemented  with  the  active  involvement  of 
local authorities. Local authorities are responsible for a wide range of services and activities 
and they play an important role in shaping the interaction between migrants and the receiving 
society. 

1. 

Addressing especially disadvantaged urban areas  

Many migrants settle in urban areas and face particular integration challenges there. Integration 
policies must specifically address the challenges of deprived neighbourhoods in order to allow 
urban  areas  to  stimulate  economic  and  cultural  activity  and  contribute  to  social  cohesion. 
Contracts  or  other  agreements  between  national,  regional  and  local  authorities  have  been 
successfully  developed  in  several  Member  States  to  support  urban  development.  Involving 
representatives  of  local  organisations  and  inhabitants  in  such  agreements  is  fundamental. 
Effective  integration  also  requires  supportive  measures  to  ensure  social  infrastructures  and 
urban regeneration, based on an integrated approach in order to avoid segregation. 

2. 

Improvement of multi-level cooperation 

Even  if  integration  measures  are  mainly  for  local  authorities,  close  cooperation  between  the 
different levels of governance is important to coordinate the provision, financing and evaluation 
of services. Effective integration can only be realised in partnership between the whole range of 
stakeholders such as the European institutions, Member States and national, regional and local 
actors. The EU can provide a framework for monitoring, benchmarking and for the exchange of 
good  practice  among  the  various  governance  levels,  as  well  as  creating  incentives  promoting 
good local and regional models. 

22 

Summary  report  of  the  fourth  meeting  of  the  European  Integration  Forum,  6-7  December  2010, 
http://ec.europa.eu/ewsi/UDRW/images/items/static_38_812142537.pdf.  

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'Territorial  pacts'  between  relevant  stakeholders  at  different  levels  should  provide  all 
participants the necessary flexibility of means to achieve certain policy goals, while providing 
the possibility to streamline policy instruments and funding channels and procedures. In this 
regard, the Committee of the Regions could have a role to play. 

Examples: 

The  INTI-Cities  project  was  built  to  assess  local  integration  policies,  practices  and  governance 
arrangements  based  on  a  benchmark  and  was  successfully  tested  in  the  municipalities  of  Helsinki, 
Rotterdam,  Malmö,  Düsseldorf,  Genoa  and  Lyon.  Moreover,  the  DIVE  project  was  developed  to 
evaluate how municipalities use diversity and equality principles when acting as employers, buyers of 
goods  and  services,  policy-makers  and  service-providers.  The  DIVE  benchmark  was  applied  on  the 
ground in Amsterdam, Leeds, Berlin and Rome. Cities participating in DIVE committed to a Charter 
on Integrating Cities23. 

The Region of Valencia has a legal framework providing for the active cooperation between a range of 
actors for the integration of newcomers. In addition, a 'Pact for Immigration' has been signed between 
the  regional  government,  trade  unions  and  the  employers'  association  to  manage  diversity  in  the 
workplace and encourage the active participation of migrant workers, and a 'Local Pact for Integration' 
brings together public authorities from the local, provincial and regional level to boost cooperation and 
ensure coherence of the actions developed in different areas to support integration. 

3. 

EU financial support to local action 

The  European  Fund  for  the  Integration  of  third-country  nationals  has  proven  valuable  in 
supporting Member States' efforts to enable third-country nationals to fulfil the conditions of 
residence  and  to  facilitate  their  integration24.  For  the  next  multiannual  financial  framework, 
the Commission proposes to simplify the structure of the expenditure instruments by reducing 
the  number  of  programmes  to  a  two  pillar  structure,  including  a  Migration  and  Asylum 
Fund25. One component will be actions supporting the integration of third-country nationals. 
The  funding  will  also  have  an  external  dimension  covering  action  in  both  the  EU  and  third 
countries.  

The focus of future EU funding on integration should be on a local, more targeted approach, 
in support of consistent strategies specifically designed to promote integration at local level. 
These strategies would be implemented mainly by local or regional authorities and non-state 
actors  taking  into  account  their  particular  situation.  Results  would  be  measured  in  terms  of 
their  contribution  to  the  overall  objective  of  enhanced  participation,  on  the  basis  of  1)  an 
increased employment rate; 2) a higher level of education; 3) better social inclusion; and 4) 
active citizenship. 

Recommendations 

Member States should ensure: 

•  comprehensive  integration  strategies  designed  and  implemented  with  the  effective 

involvement of all local and regional stakeholders with a 'bottom-up' approach. 

23 
24 

25 

See the Integrating Cities website, http://www.integratingcities.eu.  
Council Decision of 25 June 2007 establishing the European Fund for the Integration of third-country 
nationals for the period 2007 to 2013 as part of the General programme Solidarity and Management of 
Migration Flows (2007/435/EC). An amount of 825 Million Euro is available for the whole period. 
COM(2011) 500 final. 

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Actors at all levels of governance should support: 

•  'Territorial  pacts',  as  a  framework  for  cooperation  between  relevant  stakeholders  at 

different levels, to be developed for designing and implementing integration policies. 

The Commission should support: 

•  the involvement of local and regional actors in the definition of integration policies within 
the framework of EU programmes, through a strategic partnership with the Committee of 
the Regions and European networks of cities and regions; and 

•  a higher degree of coordinated programming of existing EU financial instruments to target 
local action. This should be done through the use of the European Fund for the Integration 
of third-country nationals, the European Refugee Fund, the European Social Fund and the 
European Regional Development Fund. 

C. INVOLVEMENT OF COUNTRIES OF ORIGIN 

Countries of origin can have a role to play in support of the integration process in three ways: 
1) to prepare the integration already before the migrants' departure; 2) to support the migrants 
while in the EU, e.g. through support via the Embassies; 3) to prepare the migrant's temporary 
or definitive return with acquired experience and knowledge. 

1. 

Pre-departure measures in support of integration 

Countries  of  origin  could  help  migrants  with  pre-departure  information  for  example  on  the 
required  visas  and  work  permits  but  also  with  language  tuition  or  by  offering  vocational 
training  to  reinforce  their  skills.  To  this  end,  support  to  third  countries  on  pre-departure 
measures  should  be  given  and  also  to  improving  methods  for  the  recognition  of  migrants' 
qualifications and skills. 

To  assist  people  who  want  to  migrate  to  the  EU  to  access  the  necessary  information  on  the 
application  procedures,  the  Commission  will  launch  the  'EU  Immigration  Portal'  later  this 
year. 

2. 

Beneficial contacts between diaspora communities and their countries of origin 

Remittances  as  well  as  the  transfer  of  skills,  innovation  and  knowledge  may  favour 
sustainable investments and the development of the countries of origin. 

The promotion of transnational entrepreneurship through a more dynamic strategy will favour 
entrepreneurs operating in both EU Member States and in partner countries. Such enterprises 
can create employment in the countries of origin and bring benefits both in terms of integration 
of migrants and increased trade between countries. 

3. 

Circular migration and development in countries of origin 

Temporary  and  circular  migrants should be supported by a rights-based framework that can 
ensure a clear legal status and facilitate mobility. Mobility partnerships with partner countries 
could be a suitable framework for promoting initiatives on integration in EU Member States 
that also benefit the countries of origin. Positive political messages from both sides could help 

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creating  a  more  favourable  environment  for  integration  but  also  for  temporary  and  circular 
migration. 

Recommendations 

Member States and countries of origin should ensure: 

•  pre-departure  support  to  migrants  in  order  to  facilitate  integration  to  be  part  of  the 
dialogue  and  cooperation  frameworks  between  the  EU  and  partner  countries.  A  key 
element in this regard is to improve methods for recognition of the migrant's qualifications 
and skills.  

3. 

THE WAY FORWARD  

Managing  integration  is  crucial  for  realising  the  full  potential  of  migration,  both  for  the 
migrants  and  the  EU.  Effective  integration  policies  are  fundamental  to  reconcile  economic 
growth  with  social  cohesion  and  to  deal  with  increasingly  diverse  European  societies.  This 
process  requires  a  structured  and  informed  debate.  Coherent  strategies  are  needed  in  order  to 
achieve better participation of migrants in the societies in which they live. 

3.1. 

Enhanced cooperation, consultation and coordination 

Integration  challenges  will  need  to  be  met  in  partnership  between  national  governments, 
regional and local authorities, while ensuring dialogue with relevant stakeholders at all levels 
of governance. Stronger cooperation with the countries of origin is also needed. The approach 
of a 'three-way process' between migrants, receiving societies and countries of origin could be 
strengthened. The EU should provide the necessary support to this process. 

The Commission plays an important role in bringing together relevant actors in dialogue on 
the main integration challenges. Exchange of knowledge and good practice between Member 
States takes place in the network of National Contact Points on Integration, which could be 
further  developed  through  targeted  meetings  and  benchmarking  exercises.  Coordination  and 
monitoring  of  policy  developments  within  existing  policy  frameworks  among  the  EU 
institutions, and in close cooperation with the Member States, can contribute to more efficient 
and effective integration policies. 

Civil  society  representatives  from  Member  States  and  EU  level  meet  in  the  European 
Integration Forum set up by the Commission in cooperation with the European Economic and 
Social  Committee.  Consultative  processes  should  be  further  strengthened  with  strategic 
meetings, for example with the Committee of the Regions and cities' associations. The Forum 
could  be  supported  by  national,  regional  or  local  forums.  The  European  Web  Site  on 
Integration  gathers  important  information  from  various  categories  of  stakeholders  and  it 
provides an interactive tool for exchanging information to be further developed through on-
line profiles. 

3.2. 

Developing a flexible European toolbox 

In  order  to  reinforce  coordination  and  knowledge  exchange,  a  flexible  European  toolbox  is 
being developed, allowing authorities in Member States to choose the measures which are most 
likely to prove effective in their context. So-called 'European modules' are being designed to 
support policies and practices. The modules build on the experiences of Member States and 

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other  actors  and  they  can  be  adapted  according  to  the  needs  of  individual  Member  States, 
regions  and  cities26.  The  modules  would  constitute  a  European  reference  framework  for  the 
design and implementation of integration practices in Member States. They are developed in 
three  thematic  areas:  1)  introductory  and  language  courses;  2)  strong  commitment  by  the 
receiving society; and 3) active participation of migrants in all aspects of collective life. 

3.3.  Monitoring of results 

Migration and integration policies rely heavily on high quality statistics for policy formulation 
and monitoring of results. The EU institutions and the Member States should work together to 
develop  a  framework  for  mainstreaming  migration  statistics  and  to  improve  the  capacity  to 
collect and publish statistics on migrants and their socio-economic situation. 

Common European 'indicators' have been identified in four areas of relevance for integration: 
employment, education, social inclusion and active citizenship27. They will be used to monitor 
results  of  integration  policies,  with  the  aim  of  increasing  comparability  and  enhancing  the 
European learning process. Common indicators will make it possible to assess the efforts in 
support of integration in relation to European targets in the areas of employment, education 
and social  inclusion and,  thereby,  to  enhance coordination of national and EU policies. The 
Commission  will  monitor  developments  and  formulate  recommendations,  in  dialogue  with 
Member States. 

Recommendations 

The Commission should support: 

•  the  further  use  and  coordination  of  European  platforms  for  consultation  and  knowledge 
exchange  (including  the  National  Contact  Points  on  Integration,  the  European  Integration 
Forum and the European Web Site on Integration), to enhance their input in policy decision-
making, monitoring and coordination of policies; 

•  the  further  development  of  a  flexible  tool-box,  including  'European  modules',  to  support 
national and local policies and practices. It will be implemented, in strategic alliance with 
the Committee of the Regions, by national, regional and local authorities and civil society; 
and 

•  common European 'indicators' in the areas of employment, education, social inclusion and 
active citizenship to monitor results of integration policies and which should serve as a basis 
for systematic follow-up. 

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27 

The  modules  are  a  natural  evolution  of  the  'Handbook  on  Integration  for  policy-makers  and 
practitioners', (the 3rd edition of the Handbook is available on the European Web Site on Integration: 
http://ec.europa.eu/ewsi/en/resources/detail.cfm?ID_ITEMS=12892). 
Conclusions  of  the  Justice  and  Home  Affairs  Council  of  3-4  June  2010,  Council  document  9248/10; 
Eurostat Methodologies and Working Papers, Indicators of Immigrant Integration - A Pilot Study,   
http://epp.eurostat.ec.europa.eu/portal/page/portal/product_details/publication?p_product_code=KS-SF-
11-030. 

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