Source: http://www.red-network.eu/?i=red-network.en.countries&id=7&view=racismAtlas&s=EQUALITY&sc=1&iid=17
Timestamp: 2020-01-27 10:58:22
Document Index: 530487951

Matched Legal Cases: ['art. 5', '§ 5', 'art. 22', 'art. 23', 'art. 23', 'art. 17', 'art. 15', 'art. 7', 'Art 28', 'art. 38', 'art.12', 'art. 13', 'art. 22', 'art. 28', 'art.15', 'art. 4', 'art. 29', 'art. 8']

Countries | RED Network
You are at: Home / Countries
RED Early Warning System
RED Atlas of racism & discrimination
In Germany, there exists one nationwide statutory anti-discrimination body. In addition, the two Länder Hamburg and Berlin have installed a statutory anti-discrimination body as well as a number of non-governmental organisations have established anti-discrimination offices in recent years. A provision on the possibility to adopt ‘positive action’ aimed to prevent or compensate for disadvantages arising out of any of the grounds listed in the AGG is included in the act.
Year: -- Please Select -- 2011 2012 Target Group: All Africans/black people Asylum seekers Ethnic minorities Lesbian, Gay, Bisexual and Transgender Linguistic minorities Majority Migrants Muslims National minorities Persons with disability Refugees Religious minorities Roma & Travelers Discrimination Phenomenon: All Afrophobia Anti-migrant/xenophobia Anti-roma/ romaphobia Anti-roma/zinghanophobia Anti-semitism Arabophobia Extremism - organised Racist Violence Homophobia Inter-ethnic Intra-ethnic Islamophobia Nationalism On grounds of disability On grounds of other belief Religious intolerance Xenophobia Institutional Area: All Anti-discrimination Anti-racism Culture Daily life Education Employment - labour market Health and social protection Housing Integration - social cohesion Internet Media Policing - law enforcement Political discourse -parties - orgs Political participation Religion Sport Clear
Anti-discrimination Legislation & Implementation
The constitutional article No. 3 of the Basic Law (Grundgesetz, GG) and the Federal General Equal Treatment Act (AGG), transposing the EU directive 2000/43 and other EU equality directives, prohibit unequal treatment due to, among other characteristics, someone’s race or ethnic origin.
Are there specialised bodies/agencies/mechanisms which receive, handle/investigate complaints in discrimination cases?
With the AGG entering into effect in August 2006, a new independent body, the anti-discrimination body (Antidiskriminierungsstelle des Bundes, ADS), was established according to the minimum requirements of the directive 2000/43. The ADS covers all grounds of discrimination equally in its function as complaint body. Among other duties, the ADS is in charge of receiving complaints and provide support to victims of discrimination; the ADS can mediate between the accused perpetrator and the complainant seeking to find an amicable solution. The ADS has no investigative powers and is not mandate to assist the victim in legal procedures.
Furthermore, the two states Hamburg and Berlin have installed a statutory anti-discrimination body in recent years. While the Hamburg state body (Arbeitsstelle Vielfalt) is also concerned with handling complaints and providing support to victims of discrimination (with a similar mandate as the ADS on federal level), the Berlin LADS has successfully set up a Berlin-wide network of (mainly non-governmental) organisations specialised on dealing with discrimination complaints and offering professional support to the complainants.
In addition to the three government agencies, a number of non-governmental organisations have established anti-discrimination offices.
Peucker, Mario/ Lechner, Claudia (2010), Machbarkeitsstudie: Standardisierte Datenerhebung zum Nachweis von Diskriminierung!? – Bestandsaufnahme und Ausblick, Antidiskriminierungsstelle des Bundes (ed.), Berlin.
Groups affected/interested
Roma & Travelers
Key socio-economic / Institutional Areas
See other countriesSee indicator history
Are there mechanisms in place to collect data on racial discrimination in line with data protection legislation as an effective means of, monitoring and reviewing policies and practices to combat racial discrimination and promote racial equality?
No. There is no systematic data collection.
No systematic monitoring and review procedures in place.
However, various governmental bodies on federal, state and local level (including the federal equality body FADA, anti-discrimination bodies in the state of Berlin and Hamburg and in several municipalities) and non-governmental organizations/networks have been established that offer professional support to victims of discrimination and register discrimination-related complaints. The documentation activities of many of these organizations have been increasingly professionalized in recent years. A nationwide network of such organisations and support offers does not exist in Germany; thus, a systematic monitoring of discrimination does not exist. One of the currently most advanced systems of documenting discrimination has been implemented in Berlin, coordinated by the state equality body LADS and based on the counselling and registration of mainly non-governmental organisations specialised in anti-discrimination support.
Does legislation provide for the possibility of adopting special/positive measures prevent or compensate for disadvantages linked to racial or ethnic origin in order to ensure full equality in practice?
The AGG does include a provision on the possibility to adopt ‘positive action’ aimed to ‘prevent or compensate for disadvantages arising on any of the grounds listed in the act (art. 5 AGG).
General Equal Treatment Act (Allgemeines Gleichbehandlungsgesetz, AGG), 14.08.2006, http://www.gesetze-im-internet.de/agg/ (accessed on 21.12.2011).
Are special/positive measures for securing advancement and protection of certain racial or ethnic groups widely adopted and implemented?
The general stance of relevant actors (e.g. employers, local or state governments/administration) towards special/positive measures for securing advancement and protection of certain racial or ethnic groups can be described as sceptical and reluctant; accordingly, the adoption of such measures is uncommon.
Klose, Alexander/ Merx, Andreas (2010), Positive Maßnahmen zur Verhinderung oder zum Ausgleich bestehender Nachteile im Sinne des § 5 AGG.
Policing - law enforcement
Is legal support for victims available from public agencies/bodies? Is there access for victims to assistance and justice?
Legal assistance in court procedure is provided only by a limited number of specialised NGOs; in addition, support is provided by the foundation “Life without racism” ("Leben ohne Rassismus") and the Office for the Implementation of Equal Treatment (Buero zur Umsetzung von Gleichbehandlung, BUG) (the latter specialised mainly strategic litigation).
Does the law foresee the shift of the burden of proof in civil / administrative procedures? Are there problems of implementation reported by independent authoritative sources?
The AGG contains a provision on the burden of proof (art. 22 AGG): As a first step, the victim of discrimination needs to establish facts ‘from which it may be presumed’ that discrimination has taken place. If this is done successfully, the burden of proof shifts to the accused party which then has to prove that ‘there has been no breach of the provisions prohibiting discrimination’.
Can associations, organisations or other legal entities, who have a legitimate interest, engage, either on behalf or in support of the complainant, with his or her approval, in any judicial and/or administrative procedure concerning discrimination?
Yes, according to art. 23 AGG, anti-discrimination organisations are authorized ‘to be entrusted with the legal affairs’ of the alleged victim of discrimination and ‘to act as a legal advisor’ in the court hearing. The AGG provision also outlines what criteria need to be met to be recognised as an ‘anti-discrimination organisation’ according to the act (art. 23 (1) AGG): The association/organisation must comprise at least 75 members (or seven member associations respectively) and the organisation must strive for the special interests of disadvantaged persons or groups of persons – on a non-profit basis and not only temporarily – which must be enshrined in its statutes.
Several specialised anti-discrimination NGOs have successfully provided support and legal assistance to victims of discrimination before court.
Is class action or actio popularis possible? (court claims or action in the name of a group)
The AGG allow for class action or action popularis only to a very limited degree: solely trade unions and work councils are entitled, according to art. 17 AGG, to take legal actions against employers who are suspected to have severely breached an AGG provision.
Is there provision within anti-discrimination legislation/practice forfinancial compensation/restitution of rights and are these applied in practice?
The sanctions (i.e. compensation payments) that employers, who have been convicted of unlawful discrimination, have to pay have been fairly low in practice. In the context of racial discrimination, sanctions of more than three monthly salaries have not been recorded yet. Payment for the financial loss caused by the discriminatory non-recruitment has not imposed thus far (in cases determined to be unlawful forms of ethnic discrimination). In the context of civil law (primarily access to housing and to goods and services, especially night clubs), the courts have obliged the convicted perpetrators to only very low compensation payments.
Bosch, Nicole/ Peucker, Mario/ Reiter, Stefanie (2008), Racism, Xenophobia and Ethnic Discrimination in Germany 2007, p. 8-11.
Are there any problems concerning the implementation of national legislation prohibiting discrimination?
While generally welcoming the introduction of the AGG, several international monitoring and/or human rights bodies have criticised certain elements of Germany’s anti-discrimination legislations and, more precisely selected AGG provisions. CERD (2008), ECRI (2009) and the UN Special Rapporteur on Contemporary Forms of Racism (UN General Assembly 2010) all critically pinpointed article 19 (3) AGG which exempts landlords from the non-discrimination if the differential treatment aims at creating and maintaining ‘stable social structures regarding inhabitants and balanced settlement structures, as well as balanced economic, social and cultural conditions’. The CERD (2008: 4), for example, underscored the ‘possible negative effects in terms of indirect discrimination on the grounds of ethnic origin’ in the access to housing.
In addition, ECRI pointed out in its fourth country report on Germany to the short timeframe of two months during which victims of discrimination have to formally initiate a complain (art. 15 (4) and 21 (5) AGG); moreover ECRI criticised that the Act does not explicitly ban discrimination due to one’s nationality and language and that the severely limited protection against discrimination that results from the fact that ‘public (state-funded) schools are not [subject to the provisions of the AGG]’ due to the prime responsibility of the federal states (Bundesländer) (ECRI 2009: 23).
The UN Special Rapporteur on Contemporary Forms of Racism, Muigai, critically commented on the limited human and financial resources at the disposal of the equality agency FADA and, ‘more importantly, the limited mandate of the Agency to carry out investigations and its inability to initiate legal proceedings, or provide legal support to victims’ (UN General Assembly 2010: 17).
In October 2009, the EU Commission argued in its reasoned opinion on Germany’s implementation of the directive 2000/43 that
(1) dismissals are not covered by the law on protection against ethnic discrimination,
(2) protection against victimisation is expressively only guaranteed in the context of employment but should clearly also apply outside employment and
(3) that a claim for sanctions on grounds of discrimination in employment is excluded if the employer is not personally liable for the non-compliance (EC 2009). The German government’s response to these critical points was recognized by the Commission and the legal proceedings against Germany were formally closed in October 2010 (EC 2010).
European Commission (EC) (2010), Equality: European Commission closes cases against Germany on anti-discrimination rules, Press release IP/10/1429, 28.10.2010.
European Commission (EC) (2010), Race equality rules: cases closed for Finland and Estonia; reasoned opinions to Germany and Netherlands, Press release IP/09/1617, 29.10.2009.
European Commission on Racism and Intolerance (ECRI) (2009), Fourth Country Report on Germany – fourth monitoring cycle.
United Nations General Assembly/Human Rights Council (2010) Report of the Special Rapporteur on contemporary forms of racism, racial discrimination, xenophobia and related intolerances, Githu Muigai. Mission to Germany. UN Committee on the Elimination of Racial Discrimination (CERD) (2008), Consideration of reports submitted by States parties under article 9 of the Convention: International Convention on the Elimination of All Forms of Racial Discrimination: concluding observations of the Committee on the Elimination of Racial Discrimination: Germany, CERD/C/DEU/CO/18, 22.09.2008.
Has there been a thorough evaluation/assessment of the effectiveness of the national implementation of EU Anti-discrimination Directives?
No systematic evaluation of the AGG has been conducted.
To the occasion of the fifth anniversary of the AGG (August 2011), the federal equality body FADA took stock of its anti-discrimination work and published a press release calling for improvements of the protection against discrimination; five points were highlighted (ADS 2011):
- More comprehensive rights for anti-discrimination organisations to take legal actions on behalf of victims of discrimination (Verbandsklage)
- Stiffer sanctions for unlawful discrimination
- Prolonged timeframe for taking legal action
- More commitment of policymakers and administrations
- Chronic illness to be included in the grounds of discrimination covered by the AGG
The not-for-profit network of expert anti-discrimination organisations, advd, also published a press release to the occasion of five years AGG in August 2011, in which shortcomings and positive developments were highlighted (advd 2011). On the positive side, advd representatives stated that the federal equality body FADA has become more visible and active since the new chairwomen (Ms Lüders) took office in early 2010. Over the past five years, the issue of discrimination has been discussed more calmly than before and a few important court rulings have occurred. While welcoming these positive developments, the advd stresses that many shortcomings of the AGG continue to prevail:
- Short timeframe for lodging formal legal action
- Organisations are not allowed to take legal action on behalf of a victim
- Insufficient shift of burden of proof
- Often insufficient knowledge of the AGG (even) among lawyers and courts
- Insufficient ban of (ethnic) discrimination in the realm of public administration and education
Antidiskriminierungsverband Deutschland (advd) (2011), 5 Jahre Allgemeines Gleichbehandlungsgesetz (AGG) - Der Antidiskriminierungsverband Deutschland (advd) zieht Bilanz, Press Release, 16.08.2011, http://www.antidiskriminierung.org/?q=node/338 (accessed on 30.11.2011)
Anti-discrimination body (Antidiskriminierungsstelle, ADS) (2011), 5 Jahre AGG – 5 Forderungen der ADS, http://www.antidiskriminierungsstelle.de/SharedDocs/Aktuelles/DE/2011/20110816_Forderung_5Jahre.html; %20jsessionid=5217F9C3FE550BCCC24A0FA8ED07DC0E.2_cid103 (accessed on 30.11.2011).
The unemployment rate of persons with migration background is twice as high as that of persons without a migration background. Foreigners have the highest unemployment rate. There is no data available for the employment situation of ethnic minorities.
Legal restrictions and/or effective practices of exclusion of migrants regarding membership of and participation in trade unions
No, there are no legal restrictions or effective practices of exclusion of migrants and minorities regarding membership of and participation in trade unions.
There are no legal restrictions or effective practices of exclusion of migrants regarding membership of and participation in trade unions. Foreign nationals can join a German trade union, and if they do, they have the same rights and duties as German members.
German Federation of Trade Unions (Deutscher Gewerkschaftsbund, DGB), http://www.dgb.de/uber-uns/dgb-heute/satzung (accessed on 19.01.2012).
Legal obstacles to access employment in the public sector under equal conditions for migrants
Yes, partly. There are no legal obstacles to access employment in the public sector, except for the area of civil service which, in principle, only German nationals and EU citizens are entitled to work in.
Whereas a person, irrespective of nationality, can be employed in the public sector (e.g. by the city), one can only become a civil servant if one is a German national, or has the nationality of another EU country (art. 7 BBG). Consequently, third country migrants cannot be employed as civil servants, but only as employees in the public sector.
The Microcensus data reveal a substantial under-representation of migrants in the public services. Persons with a migration background were represented in the public services only by 9.6 per cent in 2010 (2009: 9.8 per cent) compared to18.2 per cent (2009: 18.7 per cent) of persons without a migration background. Foreigners were employed in the public services even less often, with a rate of solely 7.7 per cent for 2010 (2009: 8.1).
Die Beauftragte der Bundesregierung für Migration, Flüchtlinge und Integration (ed.) (2011): Zweiter Integrationsindikatorenbericht, p.131 ff., http://www.bundesregierung.de/Content/DE/_Anlagen/2012/01/2012-01-12-integrationsbericht.pdf;jsessionid=A07701E41DE227773CE79446453F372B.s2t1?__blob=publicationFile (accessed on 19.01.2012).
European Foundation for the Improvement of Living and Working Conditions (2009), Diversity policy in employment and service provision - Case study: Frankfurt, Germany: http://www.eurofound.europa.eu/pubdocs/2009/174/en/1/EF09174EN.pdf (accessed on 19.01.2012).
Bundesbeamtengesetz (BBG), http://www.gesetze-im-internet.de/bbg_2009/index.html (accessed on 19.01.2012).
Legal restrictions and/or effective practices of exclusion of minorities regarding membership of and participation in trade unions
There are no legal restrictions or effective practices of exclusion of minorities regarding membership of and participation in trade unions. Minorities can join a German trade union, and if they do, they have the same rights and duties as German members.
Does the law provides for legalizing the situation of illegal immigrants in order to ensure their right to work and access to social protection and care?
No. In general, the German law does not provide for legalising the situation of irregular immigrants.
Are there examples of good practices and positive initiatives against discrimination/racism at the workplace?
Yes, there are several good practices and positive initiatives against discrimination/racism at the workplace.
One of the most significant large-scale programmes against discrimination in employment are the nationwide programme ‘XENOS – living and working in diversity’ (Xenos- Leben und Arbeiten in Vielfalt), financially and politically supported by the German government. XENOS aims at combating ethnic discrimination in employment and fostering migrants’ access to the labour market and diversity in general. Within the large-scale funding scheme XENOS, the Federal Ministry of Labour and Social Affairs launched a sub-programme that seeks to improve the labour market integration of groups of refugees and migrants with a tolerated status (Duldung). It aims to strengthen those local and regional networks and initiatives which assist the target group in securing employment and provide further training to those who have a job already in order to enhance their chances to keep their job.
Another notable initiative is the German diversity management campaign ‘Diversity Charter’ (Charter der Vielfalt), which constitutes one of the most important networks of companies and institutions in Germany to foster diversity and anti-discrimination principles in the labour market. By signing the charter, the member companies and institutions commit themselves to values such as tolerance and fairness.
In November 2010, the Federal Anti-Discrimination Office (Antidiskriminierungsstelle des Bundes, ADS) has initiated a nationwide pilot project in order to test the method of anonymous job applications. Different companies as well as government agencies and municipalities implemented this method of staff recruitment. In the course of this pilot project, several thousands of applications have been made anonymous
Federal Ministry for Labour and Social Affairs (Bundesministerium für Arbeit und Soziales), XENOS - Leben und Arbeiten in Vielfalt, http://www.esf.de/portal/generator/6734/xenos__leben__arbeiten__in__vielfalt__inhalte.html (accessed on 19.01.2012).
Diversity Charter (Charter der Vielfalt e.V.), http://www.charta-der-vielfalt.de/ (accessed on 19.01.2012).
Federal Anti-Discrimination Agency (Antidiskriminierungsstelle des Bundes, ADS), Anonymisierte Bewerbungsverfahren - das Pilotprojekt, http://www.antidiskriminierungsstelle.de/DE/Projekte_ADS/anonymisierte_bewerbungen/anonymisierte_bewerbungen_node.html;jsessionid=4B1303E7942A5A389E671FF668E11053.2_cid094 (accessed on 19.01.2012).
Africans/black people
Housing & Segregation
In general, quality in housing is more expensive for persons with a migration background than for persons without a migration background, in particular those with a Turkish migration background. Persons with a migration background also usually live in less socially accepted areas. Besides social and economic factors, discrimination also seems to be a factor for disadvantaged housing situations.
Is there evidence of particular difficulties faced by migrant/minority groups in purchasing or renting property of their choice?
Yes. In the area of housing, the degree of discrimination remains significant.
In the area of housing, the degree of discrimination remains significant as several studies show. According to a study conducted by the social scientist Emsal Kılıç [1], discrimination exclusively occurs due to the foreign sounding name [4, p. 17 ff.].
Further, the AGG features shortcomings as it contains exceptional regulations that limit prohibition of housing discrimination on grounds of ´race` or ethnic origin. Discriminatory treatment is allowed in order to maintain socially stable housing structures and a ‘balanced mixture concerning the economic, social and cultural composition of a neighbourhood’ [3].
Although the housing situation of migrants has improved in the last few years, migrants have to pay a higher rent, have less per-capita living space and lesser ownership rates compared to persons without a migration background [2, 43 ff.].
Emsal Kılıç, Diskriminierung von Migranten bei der Wohnungssuche- eine Untersuchung in Berlin, Schriften der Landesstelle für Gleichbehandlung- gegen Diskriminierung, Berlin 2010.
Federal Office for Migration and Refugees (Bundesamt für Migration und Flüchtlinge, BAMF) (2008), Daten zu Wohnverhältnissen und innerstädtischer Segregation von Migranten, Working Paper 21, http://www.bamf.de/SharedDocs/Anlagen/DE/Publikationen/WorkingPapers/wp21-wohnen-innerstaedtische-segregation.pdf?__blob=publicationFile, Accessed on 12.12.2011, p.43f.
General Equal Treatment Act (Allgemeines Gleichbehandlungsgesetz, AGG), 14.08.2006, http://www.gesetze-im-internet.de/bundesrecht/agg/gesamt.pdf, Accessed on 30.11.2011.
Hieronymus, Andreas/ Fögen, Ines/ Mehreoglu, Yücel/ Kröger, Justin, ENAR Shadow report 2009/2010 - Racism and Discrimination in Germany, http://cms.horus.be/files/99935/MediaArchive/Germany.pdf, Accessed on 05.01.2012, p. 17f.
Affected group with particular difficulties in purchasing or renting property of own choice
There is no sufficient information available in order to identify specific affected groups with particular difficulties.
Many studies assessing the housing situation of migrants and discrimination in the area of housing focus on people of Turkish origin, as they constitute the main migrant group in Germany. The research institute Centre for Studies on Turkey (Zentrum für Türkeistudien, ZfT) published its 11th annual report on the situation of people of Turkish origin in North Rhine-Westphalia in January 2011. The level of perceived discrimination increased in most spheres of life, including the search for a flat. 39.1 per cent of the respondents experienced discrimination in the area of housing, especially when looking for a flat [1]. Another survey conducted by Planerladen showed that 42 per cent of 150 tested landlords give German interested parties the preference compared to Turkish interested parties [2].
Sauer, Martina (2011), Partizipation und Engagement türkeistämmiger Migrantinnen und Migranten in Nordrhein-Westfalen - Ergebnisse der elften Mehrthemenbefragung 2010, p. 69, 147.
Planerladen e.V. (2007), Ungleichbehandlung von Migranten auf dem Wohnungsmarkt. Ergebnisse eines "Paired Ethnic Testing" bei Internet- Immobilien- Börsen.
Are there positive initiatives with an impact on housing of migrant and minority groups?
Yes. There are several positive initiatives with an impact on housing of migrant and minority groups.
Initiatives nationwide programme Soziale Stadt (Social City), several strategies and initiatives on the local and regional level
One of the most important housing-related measures is the nationwide programme Soziale Stadt (Social City). Within the programme, projects are supported in about 603 neighbourhoods in almost 375 municipalities all over Germany (2010) [4]. The thematic fields of action ‘Local Economy’,‘Education in the Neighbourhood’ and ‘Integration of Migrants’ have turned out to be of core importance for the programme. Yet, financial cuts threaten the further progress and improvement and thus the sustainability of the programme.
Furthermore, there are a series of housing and neighbourhood-related integration strategies on the local and regional level.
The Department for Economic and Urban Development in Nuremberg established so called “Guidelines of the City of Nuremberg and the Nuremberg Housing Companies for Rentals and Sales of Housing Space” (Leitlinien der Stadt Nürnberg und der Nürnberger Wohnungswirtschaft bei Vermietung und Verkauf von Wohnraum) to fight discrimination in the housing market. The guidelines should support the city, real estate companies, estate agents and landlords to consider migrants who want to rent or buy a flat without prejudice and free of discrimination [2].
Since 1982, the non-profit association “Planerladen” (Association for the Promotion of Democratic Town Planning and Area-Based Community Work) have been working with the focus on the improvement of living and housing conditions of all inhabitants in the city Dortmund. Therefore, the Planerladen established area-based initiatives and projects [1].
Another project, called Lively Neighbourhood (Lebendige Nachbarschaft), was initiated by the local NGO association Citizens’ House Trier Nord (Bürgerhaus Trier-Nord). The project aims to promote positive neighbourhood structures and relationships between residents with and without a migration background. A crucial point of the initiative is the importance of the residents´ commitment to and for the neighbourhood. Through low-threshold activities, it is aimed to develop sustainable relationships between the residents and to decrease prejudices against persons with migration background. The project is funded by the Federal Office for Migration and Refugees (BAMF) [3].
Another project aimed at improving the housing situation of Roma is the “Apartment complex on the corner of Harzer/Treptower Street” (Wohnkomplex Harzer- Ecke Treptower Straße) in Berlin-Neukölln which started in 2012. It offers Roma an opportunity to obtain adequate housing together with other services like child care or German language courses in order to facilitate their future integration into German society [6].
Planerladen e.V., Siegel "Herkunftsunabhängige Gleichbehandlung bei Vermietung" von Wohnraum, http://www.integrationsprojekt.net/siegel_gleichbehandlung.html, Accessed on 04.01.2012.
Stadt Nuremberg, Stadt Nürnberg setzt Akzente in Sachen Menschenrechte: Leitlinien für das Wohnungswesen vorgelegt, Press release 994, 02.10.2009, http://www.nuernberg.de/presse/mitteilungen/presse_24854.html, Accessed on 04.01.2012.
Bürgerhaus Trier‐Nord, Lively Neighbourhood, http://www.buergerhaus-trier-nord.de/sozial-kulturarbeit/lebendige-nachbarschaft/, Accessed on 04.01.2012.
Deutsches Institut für Urbanistik/Bundestransferstelle Soziale Stadt (2006), Dritter Fachpolitischer Dialog zur Sozialen Stadt: Praxiserfahrungen und Perspektiven - Auswertungsbericht, http://edoc.difu.de/edoc.php?id=VTPRJ1LU, Accessed on 30.01.2012.
Franke, Thomas (2011), Auswirkungen der Mittelkürzungen im Programm Soziale Stadt, http://library.fes.de/pdf-files/wiso/08707.pdf, Accessed on 30.01.2012.
Wohnkomplex Harzer- Ecke Treptower Straße: http://opus.kobv.de/zlb/volltexte/2012/12895/pdf/domus_2012_011.pdf, Accessed on 23.01.2013.
Integration - social cohesion
There remains a gap between the level of education of persons with and without a migration background. Even considering the social status, pupils with a migration background are less represented in higher secondary education and more in lower secondary education compared to pupils without a migration background.
Some schools show a high proportion of pupils with a migration background, if the school is located in socially disadvantaged neighbourhood.
Practical obstacles and evidence of problems and differential enrollment rates for certain minorities?
A study on the educational situation of German Sinti and Roma (Studie zur aktuellen Bildungssituation deutscher Sinti und Roma) shows that the low level of education and educational achievements is caused by a variety of factors. It indicates that this minority group has to deal with direct and indirect discrimination in the education system. On the one hand, the reasons are found within the family and its attitude to education, respectively to the level of education. Yet, on the other hand, institutional and societal circumstances also restrain the educational careers of Roma and Sinti. Although to a lesser degree, subtle discrimination by teachers in schools can be observed. Sinti and Roma are often confronted with prejudices and are stigmatized in a negative way as “gypsies”, etc. Some respondents mentioned discrimination by teachers as in paying less attention to their needs and by making discriminatory comments related to common stereotypes about their ethnic group [1-3].
The results of the survey on the experiences of teachers with Sinti and Roma show, that especially teachers of the lower school tracks (Hauptschule) state having had a certain number of pupils with Sinti and Roma background in their classes (58.33 per cent of German and 75 per cent of foreign Sinti and Roma). In comparison, the questioned teachers in higher tracks (Gymnasium) seem less likely to teach Sinti and Roma pupils (11 per cent German and 4 per cent of foreign Sinti and Roma). Further, poor knowledge of teachers and pupils on the history of Sinti and Roma can be observed [4].
Migazin (2011), Aus dir wird ohnehin nichts“ – Bildungssituation in Deutschland, 28.07.2011, http://www.migazin.de/2011/07/28/sinti-und-roma-bildungssituation-in-deutschland/, Accessed on 16.01.2012.
Peucker, Mario (2010), Racism and Ethnic Discrimination in Germany Update Report 2010, http://www.efms.uni-bamberg.de/pdf/CDC_Germany_2010_efms.pdf, Accessed on 09.02.2012.
Strauß, Daniel (2011), Studie zur aktuellen Bildungssituation deutscher Sinti und Roma: Dokumentation und Forschungsbericht, http://www.stiftung-evz.de/w/files/roma/2011_strauss_studie_sinti_bildung.pdf, Accessed on 19.12.2011.
Mengersen, O. (2012), Sinti und Roma in der Schule – die Meinung von Lehrerinnen und Lehrern, in: Zentralrat Deutscher Sinti und Roma (ed.), Gleichberechtigte Teilhabe für Sinti und Roma in Deutschland, Heidelberg. http://zentralrat.sintiundroma.de/content/downloads/stellungnahmen/7Mengersen.pdf, Accessed on 10.01.2013.
Anti-roma/zinghanophobia
Anti-roma/ romaphobia
Practical obstacles and evidence of problems and differential enrollment rates for migrants?
In the German school system, the first selection in separate educational tiers takes place after four years. This is seen as a factor which hampers students whose mother tongue is not German to enter higher educational tiers. The result is an overrepresentation of migrants in the lower educational stratum. The early selection in different educational tiers has also been criticised by the UN Special Rapporteur on Racism [2, p. 19].
In general, foreign pupils are underrepresented in the higher secondary education (´Gymnasium`, ´Realschule`) and at the same time overrepresented in lower education (´Hauptschule`, ´Förderschule`) and in evening classes as well as integrated comprehensive schools.
Kindergartens, schools and other institutions of education exert a significant influence in the way they are dealing with persons of different social backgrounds. Because of their institutional structure, programmes, underlying rules, ways of communication and routines, these institutions can contribute to the manifestation of social differences in levels of education and in access to higher levels of education [1].
The Bertelsmann Foundation evaluated Germany’s integration policy in a study in 2011. It found deficits, inter alia, in the area of education, and criticised especially the unequal burden to access the education system. Success in education is significantly dependent on the origin and social status of the child [3, p. 9-10].
In another study conducted by the Bertelsmann Foundation on the change of an already chosen school form it is stated that pupils of lower social groups and especially with a migration background are negatively affected by the educational system in two ways: first, they are less likely to participate in higher school tracks. Secondly, they are more likely to be “downgraded” in regard to changes from a higher to a lower school track [5].
According to the umbrella anti-discrimination organisation advd (Antidiskriminierungsverband Deutschland), more than 10 per cent of all registered discrimination complaints refer to the area of education. Other organisations, such as AMIGRA (anti-discrimination department within the Munich municipality), or the Berlin anti-discrimination body LADS (Landesstelle für Gleichbehandlung – gegen Diskriminierung) observe an increase in discrimination in the area of education [2, p. 18].
Migazin (2010), Institutionelle Diskriminierung im Bildungs- und Erziehungssystem, 22.04.2010, http://www.migazin.de/2010/04/22/institutionelle-diskriminierung-im-bildungs-und-erziehungssystem/all/1/, Accessed on 16.01.2012.
Schraad-Tischer, D., Hellmann, T., Azahaf, N., Schwarz, R. (2011), Nachhaltiges Regieren in der OECD – Wie zukunftsfähig ist Deutschland? Sustainable Governance Indicators 2011, Gütersloh, Bertelsmann Stiftung, http://www.bertelsmann-stiftung.de/bst/de/media/xcms_bst_dms_33521_33522_2.pdf, Accessed on 07.09.2011.
Siegert, Manuel (2008), Schulische Bildung von Migranten in Deutschland, Working Paper 23, der Forschungsgruppe des Bundesamtes aus der Reihe „Integrationsreport“, http://www.bamf.de/SharedDocs/Anlagen/DE/Publikationen/WorkingPapers/wp13-schulische-bildung.pdf?__blob=publicationFile, Accessed on 16.01.2010.
Schulformwechsel in Deutschland (2012): http://www.bertelsmann-stiftung.de/bst/de/media/xcms_bst_dms_36755__2.pdf, Accessed on 10.01.2013.
Poorer educational performance by certain groups?
Positive trend, but the school year 2011/2012 showed again: the lower the school track the higher the number/proportion of pupils with a migration background.
The second Integration Indicator Report issued by the Federal Government Commissioner for Migration, Refugees and Integration (Beauftragte der Bundesregierung für Migration, Flüchtlinge und Integration) shows a positive trend in the educational level of pupils with a migration background in the period from 2004/2005 to 2009/2010. Still, a significant difference in the level of education between pupils with a migration background and pupils without a migration background remains [1, 11/12/34-38].
The school year 2011/2012 showed again: the lower the school track the higher the number/proportion of pupils with a migration background. While there is a proportion of only slightly more than 4 per cent of migration background pupils in the Gymnasium, one can find 8 per cent in the Realschule and the highest percentage (18.7%) in the lowest track (Hauptschule). Yet, since a couple of years one can observe a positive trend: especially regarding secondary schools that offer several educational backgrounds (Schularten mit mehreren Bildungsgängen) the numbers of migration background pupils rises (2003: 2.7%; 2011: 4.9%) [2].
Engels, Dietrich/ Köller, Regine/ Koopmans, Ruud/ Höhne, Jutta (2011), Zweiter Integrationsindikatorenbericht, http://www.bundesregierung.de/Content/DE/_Anlagen/2012/01/2012-01-12-integrationsbericht.pdf?__blob=publicationFile, Accessed on 13.02.2012.
Federal Statistical Office (Statistisches Bundesamt, Destatis), Schüler/innen in allgemeinbildenden und beruflichen Schulen: https://www.destatis.de/DE/Publikationen/Thematisch/BildungForschungKultur/Schulen/AllgemeinbildendeSchulen2110100127004.pdf?__blob=publicationFile, Accessed on 11.01.2013.
Problems with educational attainement by certain groups (drop out - fragmentation of educational experience)?
One of the core results of a working paper published by the Federal Ministry for Migration, Refugees and Integration (Bundesamt für Migration und Flüchtlinge) in 2008 shows that foreign pupils drop out of secondary school before graduation more often than German pupils. 11.6 per cent of men and 14.4 per cent of women with a migration background do not obtain a general certificate of school graduation; compared to 1.7 per cent men and 1.8 per cent women without a migration background.
Still, a trend can be observed that persons with a migration background hold, with decreasing age, more often a graduation certificate. For example, women with a migration background between 15 and 25 obtain two and a half times more often a graduation than women aged between 45 and 65 [2, pp. 5, 46, 48]. The second Integration Indicator Report issued by the Federal Government Commissioner for Migration, Refugees and Integration (Beauftragte der Bundesregierung für Migration, Flüchtlinge und Integration) confirmed the positive trend, not only within the general population but also within the group of persons with a migration background [1, pp. 11/12].
A study on the current educational situation of German Sinti and Roma (2007–2011) showed that 13 per cent of the Sinti and Roma respondents have never attended school. Among those who attended school, 44 per cent did not graduate. A general problem for Sinti and Roma to achieve better education are antiziganistic stereotypes, which result in discrimination coming from pupils as well as from teachers [3, pp. 11, 94].
Siegert, Manuel (2008), Schulische Bildung von Migranten in Deutschland, Working Paper 23, der Forschungsgruppe des Bundesamtes aus der Reihe „Integrationsreport“, http://www.bamf.de/SharedDocs/Anlagen/DE/Publikationen/WorkingPapers/wp13-schulische-bildung.pdf?__blob=publicationFile, Acessed on 16.01.2010.
Strauß, Daniel (ed.) (2011), Studie zur aktuellen Bildungssituation deutscher Sinti und Roma, http://www.stiftung-evz.de/w/files/roma/2011_strauss_studie_sinti_bildung.pdf, Accessed on 06.02.2012.
Are there positive initiatives to improve/support poor educational provision for migrant and minority groups?
In October 2008, acting within the framework of their Qualification Initiative for Germany, the Federal Government announced that the promotion measures for adolescents should be enhanced. The goal is to offer young persons, especially those with a migration background, the possibility to graduate from lower secondary school [1, p. 10].
The Federal Government plans to increase its budget for education and science by 12 billion euros until 2013. The Federal Ministry for Education and Science (Bundesministerium für Bildung und Forschung, BMBF) will develop new measures addressing the special needs of young people with a migration background and will continue to implement positive measures [4].
A working group on “Integration through education” (Integration durch Bildung) has been established in 2011 aiming to improve the education for young migrants and to enhance parental involvement. The group consists of representatives of the Federal Government and the Länder (Bund-Länder-Arbeitsgruppen) (German Federal Government 2011).
In the Federal States North-Rhine Westphalia and Hesse, practical barriers for undocumented migrants to enrol their children at school have been removed since March 2008 and December 2009. Families are not in the duty to provide official registration documents when they intend to enrol their children at school. Further, schools are not obliged to inform the foreigners´ department about the undocumented status of the children. In Berlin, the State Senate for Education, Sciences and Research issued an official information statement to all public schools in Berlin in November 2009 to underline the right of children with undocumented status to attend school [6, p. 20]. Since July 2011, these provisions have been applied at the national level. The German Bundestag passed a bill which suspends the obligation of public authorities in the field of education to inform the foreigners´ authorities in case they become aware of an irregular status of migrants [3].
The promotion of German language skills is a key issue in education policies. In all Federal States a language proficiency assessment is common followed by promotion of the children prior to their enrolment. Nevertheless, no data is available that could give a summary of children with migration background who have special educational needs. Municipalities aim to promote language skills, especially in the early childhood education. Therefore, the programme “Mothers learn German” (Mütter lernen Deutsch) was implemented to improve the language skills of the parents and thus increase the incentive for children to speak German. Such measures are very important, especially in regard to the fact, that 15.7 per cent of the children in kindergartens do not speak German in the first place in their parents´ home. [6, pp. 83-85].
On the local level, the project „Bildungslotse Nürnberg“ (Education guide Nuremberg) was honoured for its role as a mediator between schools, parents and children in 2012. Volunteers with a migration background support parents and their children of the same background to understand the school system and to find their way through it. Thus it offers practical help for problems concerning language, organisation, and uncertainties [7].
“Mehr Migranten werden Lehrer” (More migrants as teachers) is a project to encourage students of a migration background for a teacher training. During a four-day programme in several German towns they are provided with information on teacher’s education and their future chances as a teacher. They can directly ask teachers, head of schools, and educationalists on their work experience. Furthermore the potential teachers get an overview of the different subjects and an individual mentoring [8].
German Federal Government (2008), Aufstieg durch Bildung – Die Qualifizierungsinitiative für Deutschland, 22.10.2008, http://www.bmbf.de/pubRD/beschluss_bildungsgipfel_dresden.pdf, Accessed on 13.02.12012.
German Federal Government (2011), Vorfahrt für bessere Bildungschancen von jungen Migranten / Konstituierende Sitzung der Bund-Länder-Arbeitsgruppe „Integration durch Bildung“, 22.02.2011, http://www.bundesregierung.de/Content/DE/Artikel/IB/Artikel/BildungUndAusbildung/2011-02-22-Konstituierung-AG-Bildung-und-Integration.html, Accessed on 20.02.2012.
German Federal Press Office (Presse- und Informationsamt der Bundesregierung) (2011), Schul- und Kindergartenbesuch für Kinder von Zuwanderern ohne Aufenthaltsstatus möglich, Press Release 254, 11.07.2011, http://www.bundesregierung.de/Content/DE/Pressemitteilungen/BPA/2011/07/2011-07-11-ib-statuslose-kinder.html, Accessed on 20.02.2012.
Federal Ministry for Education and Science (Bundesministerium für Bildung und Forschung, BMBF) (2012), Integration durch Bildung, http://www.bmbf.de/de/15624.php,Accessed on 13.02.2012.
Federal Office for Migration, Refugees and Integration (Bundesamt für Migration, Flüchtlinge und Integration) (2010), 8. Bericht der Beauftragten der Bundesregierung für Migration, Flüchtlinge und Integration über die Lage der Ausländerinnen und Ausländer in Deutschland, June 2010, http://www.bundesregierung.de/Content/DE/_Anlagen/2010/2010-07-07-langfassung-lagebericht-ib.pdf?__blob=publicationFile, Accessed on 9 February 2012.
Bildungslotse Nürnberg: http://www.land-der-ideen.de/presse/meldung/bildungslotsen-fuer-nuernberger-migranten, Accessed on 11.01.2013.
Mehr Migranten werden Lehrer: http://www.mehr-migranten-werden-lehrer.de/h/was__3.php, Accessed on 15.01.2013.
Victimisation in schools (bullying/harassment/racist violence) ?
Concerning racist violence, some Federal States (e.g. Saxony, Saxony-Anhalt) provide official statistics on extremist right-wing crimes in and around schools. These data are based on police statistics on politically motivated right-wing crimes. In 2003, Berlin implemented a special reporting scheme on violent incidents at schools. The statistics by the Berlin reporting system record a relatively low number of ‘extremist’ incidents in the term 2008/2009. A general trend cannot be identified [2, p.18].
On regional and local level, anti-discrimination offices record complaints of discrimination in the field of education. For instance, the Munich based anti-discrimination agency AMIGRA reported that 13.8 per cent of 238 persons who approached AMIGRA for different reasons between 2007 and 2009 felt discriminated in the area of education [1, p. 22).
AMIGRA (2009), Antidiskriminierungsarbeit für Menschen mit Migrationshintergrund, http://www.muenchen.de/rathaus/dms/Home/Stadtverwaltung/Direktorium/Amigra/PDF/bericht2_2007_2009.pdf, Accessed on 13.02.2012.
Anti-migrant/xenophobia
Provision of option to learn mother language other than the majority's
In general, the promotion of multilingualism has been favoured in the field of education policy already since 1996; the measures to implement these propositions remain very heterogeneous due to the education system, which is organised at the federal level [1, pp. 29/30]. Provisions to provide targeted mother language education and promotion for children with a migration background who are raised in a multilingual context have been discussed but not been implemented extensively on the national level yet. In kindergardens, the promotion of the mother language of children with migration background is hardly supported [2, p. 86].
Motakef, Mona (2006), Das Menschenrecht auf Bildung und der Schutz vor Diskriminierung: Exklusionsrisiken und Inklusionschancen, http://www.institut-fuer-menschenrechte.de/uploads/tx_commerce/studie_das_menschenrecht_auf_bildung_u_der_schutz_vor_diskriminierung.pdf, Accessed on 12.02.2012.
Evidence of modifying school curricula and teaching materials can be modified to reflect the diversity of the school population
The IAF Munich (Association of Binational Families and Partnerships) started a project in 2005 to highlight racism in school books and teaching material. AMIGRA supported the working group to address and raise awareness among the relevant agencies. The Federal Anti-discrimination Agency addressed the relevant publishers with the request to change the concerned parts in the books [1, pp. 39/40].
The Hesse State association of Sinti and Roma compiled a set of educational materials on Sinti and Roma (‘Media Suitcase’) in 2009. These materials have been distributed among schools in Darmstadt and should raise awareness amongst the pupils about the situation of Sinti and Roma and redress anti-Roma prejudices. This education initiative was funded within the federal programme “Vielfalt tut gut.” [2, p. 21].
Interkulturelle Schulentwicklung und Fortbildung Nürnberg (2011): http://www.nuernberg.de/imperia/md/paedagogisches_institut/dokumente/pi/interk_se_juli2011.pdf, Accessed on 15.01.2013.
Are there in schools good practices/positive initiatives and intercultural coexistence plans designed to solve problems of discrimination racism or xenophobia?
On the school level, pupils support a project called “school without racism – school with courage” (Schule ohne Rassismus – Schule mit Courage). More than 1000 school are part of the network. The participating schools are obliged to support initiatives against discrimination and racism, to address and eliminate discriminatory practices in school and to organize an event on the topic of discrimination once a year. The aim is to obtain a certificate as a “school without racism – school with courage”. If a school intends to obtain this certificate, the pupils need to take the initiative. They have to collect signatures of at least 70 per cent of school staff (teachers, secretaries, janitor, etc.) who commit themselves to actively combat every form of discrimination in their school. Further, the pupils have to look for a sponsor, usually persons from the fields of politics, arts, media, sports, etc., to support the pupils in their commitment [2].
The Federal Anti-Discrimination Agency (Antidiskriminierungsstelle des Bundes, ADS) launched a pilot project entitled 'Non-Discriminatory University' (Diskriminierungsfreie Hochschule) in 2010. Indicators should be developed that identify discriminating structures and mechanisms. Eleven universities of Applied Sciences and universities from West and East German Federal States participate in this project, which last until 2012. The project develops a handbook of standards and indicators for non-discrimination and for approaches to encourage non-discriminatory practices at universities [1].
Czock, Heidrun/ Heinzelmann, Susanne/ Donges, Dominik (2010/2011), Diskriminierungsfreie Hochschule: Mit Vielfalt Wissen schaffen, http://www.antidiskriminierungsstelle.de/SharedDocs/Downloads/DE/publikationen/20110715_Diskriminierungsfreie_Hochschule_ErsterBericht.pdf?__blob=publicationFile, Accessed on 13.02.2012.
‘School without racism – school with courage’ (Schule ohne Rassismus – Schule mit Courage), http://www.schule-ohne-rassismus.org/faq.html, Accessed 16.02.2012.
Is the teacher regular curricula/training dealing with specific reference to immigrants or ethnic minorities and respect/promotion of diversity?
Intercultural social education is substantiated as a teaching principle in the school curricula as well as in the curricula for the teachers training programme. Within the school curricula, the principle is implemented in plans for interdisciplinary teaching/ cross-curricula teaching (for example, intercultural competence as key competence, intercultural learning, etc.) but also in the curricula of specific subjects [1]. How and to what extend intercultural social education is incorporated in the curricula depends on the Federal State.
As the education is a competency of every single Federal State there are several projects or changes in curricula observed. For example, Baden-Württemberg [2] has introduced Syrain-orthodox religion classes, Bavaria [3] offers courses in “German as second language” as well as pilot project “Islamic classes”. In North Rhine-Westphalia there are also Turkish classes available [4].
Deutscher Bildungsserver, Lehrpläne/Richtlinien, http://www.bildungsserver.de/Lehrplaene-Richtlinien-3164.html, Accessed on 16.02.2012.
Lehrplan Baden-Württemberg: http://www.bildung-staerkt-menschen.de/service/downloads/Bildungsstandards/Gym/Gym_soR_bs.pdf/view?searchterm=lehrplan, Accessed on 15.01.2013.
Lehrplan Bayern: http://www.isb.bayern.de/gymnasium/lehrplan/, Accessed on 15.01.2013.
Lehrplan NRW: http://www.standardsicherung.schulministerium.nrw.de/lehrplaene/upload/klp_SI/GE/TU/KLP_Tuerkisch_GE_Sek-I_121029.pdf, Accessed on 15.01.2013.
Due to their often lower social status, particular migrant groups deal with health issues resulting from physically and psychologically stressful work and living situations. Furthermore, migrants show a higher risk of psycho-social burdens caused by traumatic events in the country of origin (for example torture) or during the migration process. Especially older migrants show a comparatively worse state of health and higher need for care.
Is there evidence of increased morbidity rates for minority and migrant groups?
According to data from the German Microcensus the morbidity rate has increased in general and for all groups between 2005 and 2009. During this period of time, the rate increased by 18 per cent for persons with a migration background and by 19 per cent for foreigners, whereas the rate for persons without a migration background increased only by 15 per cent. While the morbidity rate for the whole population with a migration background (12.1 per cent) is lower than the morbidity rate of the German population without a migration background (14.5 per cent), the population with a migration background has a higher morbidity rate among the middle and higher age groups [1, 2].
A report on morbidity and mortality of migrants in Germany (2011) shows that some migrant groups (refugees, asylum-seekers, late repatriate, migrants from Turkey and Eastern Europe) are facing higher risks of certain diseases such as infectious and parasitic diseases. They also suffer diseases such as cancer caused by a higher concentration of harmful substances or environmental pollutants in the country of origin [3]. Besides they are also at higher risk of psychological problems. Poor mental and physical health is caused by uncertainty about the future, long-term detention, lack of information and isolation from family members and friends [4].
Federal Commissioner for Migration, Refugees and Integration (Beauftragte der Bundesregierung für Migration, Flüchtlinge und Integration) (ed.) (2011): Zweiter Integrationsindikatorenbericht, p.121-123, http://www.bundesregierung.de/Content/DE/_Anlagen/2012/01/2012-01-12-integrationsbericht.pdf;jsessionid=A07701E41DE227773CE79446453F372B.s2t1?__blob=publicationFile, Accessed on 30.01.2012.
Federal Commissioner for Migration, Refugees and Integration (Beauftragte der Bundesregierung für Migration, Flüchtlinge und Integration) (2010): 8. Bericht der Beauftragten der Bundesregierung für Migration, Flüchtlinge und Integration über die Lage der Ausländerinnen und Ausländer in Deutschland, p. 340, http://www.bundesregierung.de/Content/DE/_Anlagen/2010/2010-07-07-langfassung-lagebericht-ib.pdf;jsessionid=302B1C999D11829D7D54EEABEBEC1CFA.s2t1?__blob=publicationFile, Accessed on 30.01.2012.
Bundesamt für Migration und Flüchtlinge (2011), Morbidität und Mortalität von Migranten in Deutschland, p. 61-70, http://www.bamf.de/SharedDocs/Anlagen/DE/Publikationen/Forschungsberichte/fb09-mortalitaet.pdf?__blob=publicationFile, Accessed on 15.01.2013.
German Society for Psychiatry, Psychotherapy and Neurology (Deutsche Gesellschaft für Psychiatrie, Psychotherapie und Nervenheilkunde), Position paper (2012), ‘Psychisch krank durch Migration? Perspektiven der Migrationspsychiatrie in Deutschland’, available at: http://www.dgppn.de/veranstaltungen/hauptstadtsymposium/migration.html, Accessed on 25.01.2013.
Specific health issues such as diseases specific to particular groups
A migration background cannot be considered as the determining variable causing illness or higher risk of morbidity. Rather the socio-economic status influences the state of health of persons with a migration background, who comparatively often belong to a socially disadvantaged segment of the population.
According to the study “Migration and Health” (Migration und Gesundheit) conducted by the Konrad-Adenauer Foundation, a migration background cannot be considered as the determining variable causing illness or higher risk of morbidity. Rather the socio-economic status influences the state of health of persons with a migration background, who comparatively often belong to a socially disadvantaged segment of the population [2, pp. 342/343]. Due to their often lower social status, particular migrant groups deal with health issues resulting from physically and psychologically stressful work and living situations. Furthermore, migrants show a higher risk of psycho-social burden caused by traumatic events in the country of origin (for example torture) or during the migration process. Especially older migrants show a comparatively worse state of health and higher need for care [2, p. 339]. Not only past events during or prior to the migration cause suffering, but also the detention of asylum-seekers, who will be deported, causes physical and mental problems [3, pp. 31/32].
In contrast, migrants are less prone to fall ill with cardiovascular diseases than Germans do. Children with a migration background suffer for instance less from asthma or hay fever, but show more oral health problems compared to children without a migration background due to the comparatively low use of precautionary measures amongst persons with a migration background [2, pp.338/ 342]. In contrast to the assumption that the state of health of persons with a migration background is caused by their often lower social status, a study in 2010 shows that there is a correlation between the state of health and the experience of discrimination. Mental and physical health issues can be explained by the discrimination to which persons with a migration background, as well as asylum-seekers and refugees, are more often exposed to, because discrimination causes psycho-social stress [3, pp. 30/31].
Federal Office for Migration and Refugees (Bundesamt für Migration und Flüchtlinge) (ed.) / Martin Kohls (2011), Morbidität und Mortalität von Migranten in Deutschland, p.62-69, http://www.bamf.de/SharedDocs/Anlagen/EN/Publikationen/Forschungsberichte/fb9-mortalitaet.pdf?__blob=publicationFile, Accessed on 30.01.2012.
Federal Commissioner for Migration, Refugees and Integration (Beauftragte der Bundesregierung für Migration, Flüchtlinge und Integration) (June 2010), 8. Bericht der Beauftragten der Bundesregierung für Migration, Flüchtlinge und Integration über die Lage der Ausländerinnen und Ausländer in Deutschland, p. 337-345, http://www.bundesregierung.de/Content/DE/_Anlagen/2010/2010-07-07-langfassung-lagebericht-ib.pdf;jsessionid=302B1C999D11829D7D54EEABEBEC1CFA.s2t1?__blob=publicationFile, Accessed on 30.01.2012.
ENAR (2012). ENAR Shadow Report 2010-2011: Racism and related discriminatory practices in Germany, http://cms.horus.be/files/99935/MediaArchive/publications/shadow%20report%202010-11/10.%20Germany%20%282%29.pdf, Accessed on 28.03.2012.
Differential access to social protection system and benefits - Do some or more categories of migrants minorities or stateless/non-citizens face limitations and restrictions?
In general, migrants do not face limitations or restrictions in accessing the social protection system and benefits. However, asylum seekers whose procedure is still running and the so called ‘tolerated’ persons only receive a basic social protection to cover their basic needs.
In a significant court ruling regarding welfare allowances for asylum seekers and tolerated persons, the Federal Constitutional Court (Bundesverfassungsgericht) found it to be unconstitutional that asylum seekers and tolerated persons receive lower allowances which are 40% lower than the standard rates. The Court decided that the current regulation is unconstitutional as it does not provide for a decent subsistence [5, 6]. Currently, transitional regulations are in place until welfare rates are recalculated. In December 2012, the Federal Ministry of Labour and Social Affairs (Bundesministerium für Arbeit und Soziales, BMAS) submitted the third draft bill to amend the Asylum Seekers Benefits Act (Asylbewerberleistungsgesetz, AsylbLG) [7].
Concerning the regulations on access to health care for undocumented migrants, the German federal upper house (Bundesrat) passed a new regulation in 2009 which lifts the obligation of medical personnel and administration as well as of social welfare offices to inform the Social Security Office about undocumented migrants in case of emergency care. Thus, no personal data is forwarded to the Foreigner’s Office. If the undocumented migrant is not seeking emergency help but other medical services, the obligation to denounce is still in place. Although this new regulation is in force, practical obstacles remain. The hospital fears to bear the costs as it is not guaranteed that the cost for the emergency care is reimbursed and therefore might refuse to treat an undocumented migrant [3, p.19; 4, p.3).
ECRI (2009), ECRI Report on Germany – fourth monitoring cycle, http://hudoc.ecri.coe.int/XMLEcri/ENGLISH/Cycle_04/04_CbC_eng/DEU-CbC-IV-2009-019-ENG.pdf, Accessed on 01.03.2012.
PICUM (2010a), PICUM’s Main Concerns about the Fundamental Right of Undocumented Migrants in Europe, http://picum.org/picum.org/uploads/publication/Annual%20Concerns%202010%20EN.pdf, Accessed on 29.03.2012.
PICUM (2010b), Undocumented Migrants’ Health Needs and Strategies to Access Health Care in 17 EU countries: Country Report Germany, http://files.nowhereland.info/709.pdf, Accessed on 29.03.2012.
Mahler, C. (2012) ‘Das Asylbewerberleistungsgesetz verletzt die Menschenrechte’, aktuell 3/2012, Deutsches Institut für Menschenrechte (ed.), available at:http://www.institut-fuer-menschenrechte.de/fileadmin/user_upload/Publikationen/aktuell/aktuell_3_2012_asylbewerberleistungsgesetz.pdf, Accessed on 29.03.2012.
Federal Constitutional Court (Bundesverfassungsgericht )(2012), Karlsruhe/1 BvL 2/11, available at http://www.bundesverfassungsgericht.de/entscheidungen/ls20120718_1bvl001010.html, Accessed on 25.01.2013.
Federal Ministry of Labour and Social Affairs (Bundesministeriums für Arbeit und Soziales) (2012) ‘Entwurf eines Dritten Gesetzes zur Änderung des Asylbewerberleistungsgesetzes’, draft bill, 4 December 2012, available at: http://www.brak.de/w/files/newsletter_archiv/berlin/2012/pdf/nab_referentenentwurf-asylblg-v.-4.12.2012.pdf, Accessed on 04.12.2012.
Do migrants have a higher risk of poverty than the rest of the population?
Yes. Persons with a migration background have a higher risk of poverty than the rest of the population.
In general, the data of the German Microcensus reveal that the at-risk-of-poverty rate slightly decreased between 2005 and 2010. Among the group of persons with a migration background the rate decreased by 7 per cent while the decrease for the total population only amounted to 2 per cent. Yet, with 26.2 per cent in 2010 (2009: 26.7) the at-risk-of-poverty rate for persons with a migration background was still significantly higher than for persons without a migration background, which had a rate of 14.5 per cent (2009: 14.6). The rate for the foreign population was even higher with 31.7 per cent (2009: 31.8 per cent).
Federal Commissioner for Migration, Refugees and Integration (Beauftragte der Bundesregierung für Migration, Flüchtlinge und Integration) (ed.) (2011), Zweiter Integrationsindikatorenbericht, p.86ff., http://www.bundesregierung.de/Content/DE/_Anlagen/2012/01/2012-01-12-integrationsbericht.pdf;jsessionid=298EFC176E6478E0F8AA3034B5AD2384.s1t1?__blob=publicationFile, Accessed on 30.01.2012.
Armutsgefährdung von Menschen mit Migrationshintergrund (Juli, 2012), Statistisches Bundesamt (Herausgeber): https://www.destatis.de/DE/Publikationen/WirtschaftStatistik/Bevoelkerung/ArmutsgefaehrdungMigrationshintergrund_72012.pdf?__blob=publicationFile, Accessed on 16.01.2013.
Are there policies and/or good practices accomodating culture/ traditions' respect in health care
One main objective of the National Action Plan (NAP), which was recently presented by the federal government, is to improve the access to preventative and health promotion programmes, health system facilities and services, healthcare facilities and services and employment in the health and healthcare system for migrants.
In addition, there have been a lot of governmental and non-governmental good practices accommodating culture/traditions’ respect in health care, in the last years, most of them on the local or regional level:
In 2010, the annual conference of the independent German Ethics Council was entitled “Migration and Health – Cultural Diversity as a Challenge for Medical Care”, sought to provide answers to questions in the area of immigrant health care by providing scientific and practical lectures in medical, legal and ethical perspectives.
In 2008, the Federal Office for Migration and Refugees (BAMF) financially supported the three-year project of the municipal health department in Nuremberg that aims to identify existing barriers in the access to health care services for migrants and to find adequate ways to redress them.
In late 2008, the Diakonie (DW EKD) and three of its regional branches launched the three year project Mitten im Leben, which seeks to redress existing structural barrier that migrants face in the access to social and health care services of the Diakonie. More precisely, the process of intercultural adaptation (“Intercultural Opening”) of health and social care providers should be promoted on several levels: through organisational changes, culturally sensitive internal and external communication, changes regarding the staff and the quality of the services provided.
In the area of nursing care, there have been good practice examples on the integration of migrant seniors into the general services of the care system for elderly. For instance, the nursing home for elderly Adam Müller-Guttenbrunn (AMG), run by the welfare organisation Caritas Stuttgart, has implemented several measures pursuing an intercultural transformation of their services. Amongst other activities, the AMG conducted intercultural training for all their staff, which consists of employees from different countries. A working group, comprising representatives of the management and employees, was commissioned to develop a nursing concept and standards which takes into account the specific needs of migrants. Furthermore, a new ‘biography questionnaire’ has been used in order to gain information on the cultural and religious needs of the individual residents.
As another good practice example, the project Dong Ban Ja – Cross-cultural Hospice (Dong Ban Ja – Interkulturelles Hospiz) run since 2005 can be mentioned. This hospice helps and nurses critically ill and dying persons and their families independent of their religion or nationality. It offers spiritual, bereavement, and care support. The families are not charged any fees. Instantly it is building up a multilingual mobile hospice service to overcome potential cultural or language problems. The project won the second place in a nationwide competition on integration.
Federal Government (27.12.2011): Der Nationale Aktionsplan Integration. http://www.bundesregierung.de/Content/DE/Artikel/2011/12/2011-12-27-integration-nationaler-aktionsplan.html, Accessed on 12.01.2012.
http://www.bundesregierung.de/Content/DE/_Anlagen/IB/2012-01-31-flyer-nap-deutsch.pdf?__blob=publicationFile, Accessed on 12.01.2012.
http://www.ethikrat.org/veranstaltungen/jahrestagungen/migration-und-gesundheit, Accessed on 12.01.2012.
http://www.nuernberg.de/internet/gesundheitsamt/migration.html#0, Accessed on 12.01.2012.
http://www.diakonie.de/kooperationsprojekt-mitten-im-leben-5296.htm, Accessed on 12.01.2012.
http://www.caritas-stuttgart.de/66288.html, Accessed on 12.01.2012.
Interkulturelles Hospiz: http://www.dongbanja.de/de/aufgaben, Accessed on 16.01.2013.
Migrants are only entitled to vote or to stand for elections if they have acquired the German citizenship. Exempted from this regulation are EU citizens living in Germany, who have the right to vote or to stand in local and European elections.
Migrants continue to be under-represented in all fields of public administration which therefore does not reflect the ethnic diversity of the German society.
Migrants' political rights - right to vote to national/local elections
Migrants are only entitled to vote if they have acquired the German citizenship. Exempted are EU citizens living in Germany, who have the right to vote in local and European elections (Art 28 (1) Basic Law (GG)).
The opposition parties have drafted bills in order to amend this provision by expanding the right to vote in local elections also to TCN with permanent residence in Germany. These proposals were discussed in parliament in March 2010, yet not passed as the conservative parties refuse to support such a motion.
Constitution (Grundgesetz, GG), art. 38, http://www.gesetze-im-internet.de/bundesrecht/gg/gesamt.pdf, Accessed on 11.01.2012.
Federal Electoral Law (Bundeswahlgesetz, BWahlG), art.12 and art. 13, http://www.gesetze-im-internet.de/bundesrecht/bwahlg/gesamt.pdf, Accessed on 11.01.2012.
Treaty on the Functioning of the European Union (Vertrag über die Arbeitsweise der Europäischen Union, AEUV), art. 22, http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:C:2010:083:FULL:DE:PDF, Accessed on 11.01.2012.
Germany, Bundestag, printed matter 17/1074 (16.03.2010), http://www.demokratie.agaby.de/AKTUELLES.391.0.html, Accessed on 05.10.2012.
Germany, Bundestag, plenary protocol 17/34 (25.03.2010).
Outreach - encourage participation - Practical obstacles or problems for migrants in exercising their right to vote
There are no particular practical obstacles or problems for the group of German citizens with a migration background in exercising their right to vote.
There is no evidence that German citizens with a migration background face particular practical obstacles or problems in exercising their right to vote. Based on poll data in 2002, approximately 5 per cent of voters in the elections to the national parliament were naturalized citizens (naturalized migrants and their German-born descendants). Compared to a survey between 2001 and 2002 on the self-reported participation in elections, the participation of naturalised citizens is only a little bit lower then participation of natives [2, pp.48/49]. For German citizens who have a migration background, the participation in elections is nearly as high as for Germans without a migrations background.
Moreover, the participation of foreigners from an EU member state in local elections and for the European parliament, on the other hand, is clearly below the rates of Germans.
Wüst, Andreas M. (2006): Wahlverhalten und politische Partizipation von Migranten. in: Der Bürger im Staat. 56. Jahrgang, Heft 4/2006, p. 228-234, http://www.buergerimstaat.de/4_06/integration.pdf , Accessed on 16.01.2012.
Diel, Claudia/ Wüst, Andreas M. (2011), Voters turnout among immigrants and visible minorities in comparative perspectives: Germany, in: Bird, K./ Saalfeld, T./ Wüst, A. M. (ed.): The Political Representation of Immigrants and Minorities: Voters, parties and parliaments in liberal democracies. New York: Routledge.
Migrants have the right to stand for elections at local/national level?
Migrants are only entitled to stand for elections if they have required the German citizenship.
Exempted are EU-citizens who are allowed to stand as candidate in local elections.
Constitution (Grundgesetz, GG), art. 28, http://www.gesetze-im-internet.de/bundesrecht/gg/gesamt.pdf, Accessed on 11.01.2012.
Federal Electoral Law (Bundeswahlgesetz, BWahlG), art.15, http://www.gesetze-im-internet.de/bundesrecht/bwahlg/gesamt.pdf, Accessed on 11.01.2012.
Minority members have certain rights to self-government?
Rights for minorities to self-government do not exist. Yet, the national minorities are granted specific rights that consider their special status and allow for certain forms of political representation.
In late 2004, leading organisations of each of the four national minorities founded the Minderheitenrat (Minority Council). The Minority Council initiated for a parliamentary working group on minority issues to be set up. Also, an independent Secretary for Minority Issues has been installed at the Office of the Federal Commissioner for Minorities. These developments have led to an enhanced political impact on the part of the national minorities.
Peucker, Mario (2009): Racism, Xenophobia and Ethnic Discrimination in Germany – Update Report 2009, p. 36f.
http://www.efms.uni-bamberg.de/pdf/RAXEN-Jahresbericht_2009_DE.pdf, Accessed on 16.01.2012.
Political discourse -parties - orgs
Are there migrants' consultative/advisory/representative bodies established by law?
There are migrants' advisory bodies established by law. This is true for most of the Federal States that have established Foreigners Advisory Councils in their local constitution (e.g. Hesse, Rhineland-Palatinate, North Rhine-Westphalia).
There is no federal law establishing migrants’ consultative/advisory/representative bodies.
List der Ausländerbeiräte: http://www.bundesregierung.de/Content/DE/StatischeSeiten/Breg/IB/ib-auslaenderbeiraete-migrationsraete-integrationsraete.html, Accessed on 17.01.2013.
Public administration (including judiciary and executive) reflects the ethnic diversity of society?
Migrants continue to be under-represented in all fields of public administration which therefore does not reflect the ethnic diversity of society.
Migrants continue to be under-represented in all fields of public administration which therefore does not reflect the ethnic diversity of society. Even though migrants are generally disadvantaged on the German labour market, this holds especially true for their under-representation in public administration. However, several Länder governments and municipalities have made efforts to increase the number of migrant employees in public administration and the police force also wants to increasingly incorporate the issue of ethnic diversity.
In December 2012, an OECD study on integration showed that in the case of Germany the proportion of people with a migration background working in the public sector is one of the lowest of all analysed countries. According to the study only 13.4 per cent of people born to immigrant parents in Germany work in the public sector while 25.8 per cent of those born to German parents have a job in the public sector [4].
Süddeutsche Zeitung, Migrantenkinder werden benachteiligt, 15.10.2009, http://www.sueddeutsche.de/karriere/oecd-studie-zu-integration-migrantenkinder-werden-benachteiligt-1.26498, Accessed 05.01.2012.
Liebig, Thomas/ Widmaier Sarah (2009), “Children of Immigrants in the Labour Markets of EU and OECD Countries: An Overview”, OECD Social, Employment and Migration Working Papers no. 97; p.36, http://www.oecd.org/dataoecd/62/35/43903354.pdf, Accessed 05.01.2012.
Commissioner for Migration, Refugees and Integration (Bundesbeauftragte für Migration, Flüchtlinge und Integration), Migranten im öffentlichen Dienst, http://www.bundesregierung.de/Webs/Breg/DE/Bundesregierung/BeauftragtefuerIntegration/arbeitsmarkt/migranten/_node.html, Accessed on 16.01.2012.
OECD integration study (2012): http://www.oecd.org/berlin/presse/ersteroecd-integrationsberichtfortschrittebeibildungundbeschaftigung.htm, Accessed on 17.01.2013.
Is there automatic citizenship acquisition by birth for migrant children born in the country?
Migrant children born in Germany automatically receive the German citizenship if at least one of their parents has rightfully and ordinarily had his/her residence in Germany for eight years and holds a permanent residence permit or is a Swiss national or a family member of a Swiss citizen.
However, migrant children who have thus attained the German citizenship and are also in possession of a further foreign citizenship have to decide between the age of 18 and 23 whether they want to keep the German or the foreign citizenship – German law does not allow for dual or multiple citizenships after the age of 23 in such a case. If a person affected by this regulation does not formally request to keep his/her German citizenshipbefore he/she turns 21, it is automatically lost by the time the person turns 23.
A study by the Federal Office for Migration and Refugees (Bundesamt für Migration und Flüchtlinge, BAMF) found information deficits with regard to this procedure among young adults who are expected to make this decision in the near future.
Nationality Act (Staatsangehörigkeitsgesetz, StAG), art. 4 and art. 29, http://www.gesetze-im-internet.de/bundesrecht/rustag/gesamt.pdf, Accessed on 11.01.12.
Bundesministerium für Migration, Flüchtlinge und Integration, Einbürgerungsverhalten von Ausländerinnen und Ausländern in Deutschland sowie Erkenntnisse zu Optionspflichtigen (2012):
http://www.bamf.de/SharedDocs/Anlagen/DE/Publikationen/Forschungsberichte/fb15-einbuergerungsverhalten.pdf;jsessionid=BC0F51DCCAD28CA02EABA17A 05B0FA1E.1_cid251?__blob=publicationFile, Accessed on 18.01.2013.
What is the general law provision for naturalisation?
In Germany, a foreign person can apply for naturalisation if the following criteria are fulfilled:
- He/She holds an unlimited residence permit for Germany
- He/She has ordinarily and rightfully lived in Germany for at least the last eight years
- He/She can assure a livelihood for him-/herself and his/her family without receiving social welfare or unemployment benefits
- He/She can prove to have a sufficient German language proficiency
- He/She has passed a naturalisation test on the German legal and social system
- He/She is not convicted due to a criminal offence
- He/She commit him-/herself to the German constitution
- He/She has lost his/her old citizenship or abandons it
Naturalisation costs EUR 255 per person. For minors who are to be naturalised (with their parents) there is a fee of EUR 51 or for those who are naturalised without their parents there is a fee of EUR 255.
Commissioner for Migration, Refugees and Integration (Bundesbeauftragte für Migration, Flüchtlinge und Integration), http://www.bundesauslaenderbeauftragte.de/einbuergerung.html, Accessed on 16.01.2012.
Nationality Act (Staatsangehörigkeitsgesetz, StAG), art. 8 to 16, 40a and 40b, http://www.gesetze-im-internet.de/bundesrecht/rustag/gesamt.pdf, Accessed on 11.01.12.
Ministry of Migration, Refugees, and Integration: http://www.bamf.de/EN/Einbuergerung/InDeutschland/indeutschland-node.html, Accessed on 18.01.2013.
The German integration framework is based on language, education, vocational qualification, social counselling services, and the promotion of integration into the local community. The most important element of German federal integration policy is the integration course programme.
Recently, the government developed the National Action Plan, which aims at formulating obligatory and testable integration goals.
Is there a formal national strategy on the integration of migrants/minorities?
Yes. There is a formal national strategy on the integration of migrants/minorities.
The German integration framework is based- under the motto “Promoting and demanding” (“Fördern und Fordern”)- on five pillars: language training, education, vocational qualification, social counselling services, and the promotion of integration into the local community in general.
The Immigration Act entering into force in January 2005 introduced state-run statutory integration measures in Germany. The most important element of German federal integration policy is the integration course programme. It consists of two components: a basic and an advanced language course, and an orientation course with the aim to obtain a basic knowledge of the legal system, culture, history and political system of Germany.
In 2007, the Federal Integration Commissioner, Maria Böhmer, introduced the National Integration Plan which forms a framework for all integration policies of the central government, the federal states, communities and civil society actors.
The Nationwide Integration Programme which was presented in September 2010 by the Federal Office for Migration and Refugees is highly linked to the National Integration Plan as it includes recommendations of how to implement themes addressed in the latter. Both the National Integration Plan and the results of the Nationwide Integration Programme were used to develop the National Action Plan, which was presented to the public in January 2012 by Chancellor Angela Merkel. The National Action Plan aims at formulating concrete, obligatory and testable integration goals.
Germany, Federal Government (July 2007): Der Nationale Integrationsplan. Neue Wege – Neue Chancen. http://www.bundesregierung.de/Content/DE/Archiv16/Artikel/2007/07/Anlage/2007-07-12-nationaler-integrationsplan.pdf;jsessionid=D533AFA61BC91814D547B2774DB9AD78.s2t1?__blob=publicationFile (Accessed on 28.02.2012)
Germany, Federal Ministry of the Interior (October 2011): Migration und Integration – Aufenthaltsrecht, Migrations- und Integrationspolitik in Deutschland; p.85.
Germany, Federal Office for Migration and Refugees (July 2010): Bundesweites Integrationsprogramm. Angebote der Integrationsförderung in Deutschland – Empfehlungen zu ihrer Weiterentwicklung. http://www.bmi.bund.de/cae/servlet/contentblob/1303978/publicationFile/96911/integrationsprogramm.pdf (Accessed on 28.02.2012)
Federal Office for Migration and Refugees (18.01.2011): Bundesweites Integrationsprogramm. http://www.bamf.de/DE/DasBAMF/Aufgaben/Integrationsprogramm/integrationsprogramm.html;jsessionid=DA674CE6D649C2E691A4C3DCF25DA6E9.1_cid251 (Accessed on 28.02.2012)
MIGAZIN (15.12.2011): Nationaler Aktionsplan. Wieder nur Klein-Klein – der große Wurf bleibt aus. http://www.migazin.de/2011/12/15/wieder-nur-klein-klein-der-grose-wurf-bleibt-aus/ (Accessed on 28.02.2012)
Is there a formal definition of integration
No. There is no formal definition of integration.
Against the background of numerous competing concepts of integration within the scientific field, it seems highly improbable of finding a consensus on a common definition as well as theory of ‘integration’. Yet, the National Integration Plan urges that an operational definition, which can be used interdisciplinary and which allows its implementation ought to be developed.
An increasing number of German cities have developed individual integration concepts which generally share a number of aspects – the emphasis on the importance of language and education, labour market participation as a central aspect for integration, and the objective to develop the potential of cultural diversity – but also differ in the concrete contents and measures taken.
Germany, Federal Government (July 2007): Der Nationale Integrationsplan. Neue Wege – Neue Chancen, p.12-34.196f. http://www.bundesregierung.de/Content/DE/Archiv16/Artikel/2007/07/Anlage/2007-07-12-nationaler-integrationsplan.pdf;jsessionid=D533AFA61BC91814D547B2774DB9AD78.s2t1?__blob=publicationFile (Accessed on 28.02.2012)
To which groups does the integration strategy apply?
The integration stategy generally applies to the entire population.
The Nationwide Integration Programme discerns three fields of action: language integration, education and integration, and societal integration. The programme does not focus on any special groups but has a general focus.
The National Integration Plan as well as the National Action Plan (NAP) are structured by different topics that focus on specific groups as well as the general population with and without a migration background. Specific groups which are addressed by one or more of these topics are pre-school and elementary school children, women and girls, migrants in education as well as the labour market, and migrants in the public service sector (only NAP). Further, more generally addressed topics, are local integration efforts and the fields of culture, sports, the media, science, healthcare and nursing care (only NAP), and citizens’ involvement. A last topic is the enhancement of the comprehensive as well as the voluntary German language courses.
Participation in the integration course programme is granted to all immigrants whose stay is not regarded as temporary. Moreover, third country national newcomers, but also foreigners who are recipients of social benefits or have “special integration needs”, are even obliged to attend an integration course if they do not have sufficient German language skills.
Federal Government (27.12.2011): Der Nationale Aktionsplan Integration. http://www.bundesregierung.de/Content/DE/Artikel/2011/12/2011-12-27-integration-nationaler-aktionsplan.html (Accessed on 28.02.2012)
Yes, there are formal policies and practises associated with the German integration strategy.
The most important element of German federal integration policy is the integration course programme. It consists of two components: a basic and an advanced language course, and an orientation course with the aim to obtain a basic knowledge of the legal system, culture, history and political system of Germany.
In addition, while the National Integration Plan does not directly implement concrete measures, the National Action Plan postulates concrete, obligatory and testable goals for future policies and practises in the field of integration.
Germany, Federal Office for Migration and Refugees (July 2010): Bundesweites Integrationsprogramm. Angebote der Integrationsförderung in Deutschland – Empfehlungen zu ihrer Weiterentwicklung.
http://www.bmi.bund.de/cae/servlet/contentblob/1303978/publicationFile/96911/integrationsprogramm.pdf (Accessed on 28.02.2012)
Is the integration strategy effective and, if so, what are the tangible results at a local, regional and national level?
There has been a lot of criticism on the national integration strategy. Mainly, it aims at the fact that the National Integration Plan does not directly implement specific measures. In addition, the recently presented National Action Plan, which aims at phrasing specific, obligatory and testable integration goals, is often criticised by the opposition and by welfare and migrant organisations as being non-legally binding and thus ineffective.
With regard to the integration courses, the results of an evaluation study conducted by the Federal Office for Migration and Refugees (2011) indicated that integration courses are generally effective: They have a great and sustainable impact on the German language proficiency, on the frequency of contacts with Germans and on the employment situation.
By contrast, there is also criticism, for instance by integration course providers relating to the financing of the courses.
Friedrich Heckmann: 50 Jahre Integrationspolitik in Deutschland? efms paper 2010-5, p. 8f.
http://www.efms.uni-bamberg.de/pdf/efms%20paper%202010-5.pdf
Germany, Federal Government (October 2008): Nationaler Integrationsplan – Erster Fortschrittsbericht.
http://www.bundesregierung.de/Content/DE/Publikation/IB/Anlagen/nationaler-integrationsplan-fortschrittsbericht.pdf?__blob=publicationFile
Germany, Federal Office for Migration and Refugees (December 2011): Das Integrationspanel – Ergebnisse einer Längsschnittstudie zur Wirksamkeit und Nachhaltigkeit von Integrationskursen.
http://www.bamf.de/SharedDocs/Anlagen/DE/Publikationen/Forschungsberichte/fb11-integrationspanel.pdf?__blob=publicationFile
MIGAZIN / Dağdelen, Sevim (13.09.2011): Populistische Integrationspolitik nach Kassenlage. http://www.migazin.de/2011/09/13/populistische-integrationspolitik-nach-kassenlage/
Migration und Bevölkerung (2008): Deutschland: Dritter Integrationsgipfel. Ausgabe 9, November 2008, p.1f.
http://www.migration-info.de/migration_und_bevoelkerung/archiv/ausgaben/ausgabe0809.pdf
Is there a formal national strategy on social and/or community cohesion?
Yes. There is a formal national strategy on social cohesion.
Against the background of the adoption of twelve common goals by the European Council in March 2006, the German Federal Government drafted the National Report on Strategies for Social Protection and Social Inclusion 2008-2010 (Nationaler Strategiebericht Sozialschutz und soziale Eingliederung 2008-2010). The strategies on social cohesion mentioned in the report consider the common goals which have been agreed upon at the European level. The goals include reduction of poverty and social exclusion, sustainable and adequate pensions as well as a sustainable and high-quality health care protection and long-term care.
The Federal Government emphasises the importance of social cohesion; for example by defining the goal a - Social Cohesion, Equal Treatment and Equal Opportunities (Sozialer Zusammenhalt, Gleichbehandlung und Chancengleichheit für alle – Ziel a) (BMAS 2009, 13).
The key issues of the National Report cover the chapters National Action Plan on Social Integration (Nationaler Aktionsplan soziale Integration), National Report on Strategies for Pension (Nationaler Strategiebericht Alterssicherung) and National Report on Strategies for Health and Log-Term Care (Nationaler Strategiebericht Gesundheit und Pflege).
Federal Ministry of Labour and Social Affairs (Bundesministerium für Arbeit und Soziales, BMAS) (2009), Nationaler Strategiebericht Gesundheit und Pflege, http://www.bmas.de/SharedDocs/Downloads/DE/PDF-Publikationen/a360-nationaler-strategiebericht-2008-2010-deutsch.pdf?__blob=publicationFile (accessed on 01.03.2012).
Sozialverband Deutschland e.V. (2008), Strategiebericht Sozialschutz und soziale Eingliederung, http://www.sovd.de/1337.0.html (accessed on 01.03.2012).
Is there a clear definition of social/community cohesion?
No. The national strategy on social cohesion is expressed in the National Report on Strategies for Social Protection and Social Inclusion 2008-2010, yet it does not include a clear definition of social cohesion.
External Url www.bmas.de/SharedDocs/Downloads/DE/PDF-Publikationen/a360-nationaler-strategiebericht-2008-2010-deutsch.pdf?__blob=publicationFile
Does the social cohesion strategy apply to all migrant/minority groups?
The measures brought up in the National Report on Strategies for Social Protection and Social Inclusion 2008-2010 (Nationaler Strategiebericht Sozialschutz und soziale Eingliederung 2008-2010) to improve social cohesion apply to all migrants residing permanently and regularly in Germany. According to the Report, social integration of all migrants is important to ensure social cohesion. With regard to minority groups, the report does not explicitly mention minorities and social cohesion in Germany (BMAS 2009, 42).
Is/are social/community cohesion strategies effective and producing results?
There is no systematic evaluation available.
If there is a national strategy covering both integration and cohesion? Are the two key elements of the strategy joined up formally?
The National Report on Strategies for Social Protection and Social Inclusion 2008-2010 (Nationaler Strategiebericht Sozialschutz und soziale Eingliederung 2008-2010) defines social cohesion as an overall goal in several policy areas. The Report comprises the National Action Plan on Social Integration (Nationaler Aktionsplan soziale Integration), which also covers the area of integration of migrants. Therefore, integration and cohesion are linked and thus are joined up formally in the national strategy.
Public Life, Culture, Sport & Media
Despite the lack of official statistics, there is a broad consensus that migrants are under-represented as media representatives as well as as members of and, even more so, as volunteers and officials in sport clubs.
Is self-identification of individuals/groups a criterion for recognition and respect of minority or ethnic cultural linguistic religious groups' rights by the state/government?
Yes, self-identification of individuals/groups is a criterion for the recognition as a national minority.
In order to be recognised as a national minority in Germany, a group/individual has to fulfill five criteria:
- they hold the German citizenship
- they differ from the majority population in language, culture and history (i. e. have their own identity),
- they wish to preserve their identity as a minority
- they are traditionally native in Germany
- they live on what they consider their hereditary territory
The definition indicates that the self-identification is a crucial factor for the recognition as a minority by the German government.
Bundesministerium des Innern (2002), Stellungnahme der Bundesrepublik Deutschland zu der Stellungnahme des Beratenden Ausschusses zu dem Bericht über die Umsetzung des Rahmenübereinkommens zum Schutz nationaler Minderheiten in der Bundesrepublik Deutschland, http://www.bmi.bund.de/SharedDocs/Downloads/DE/Themen/MigrationIntegration/NationaleMinderheiten/Rahmenuebereinkommen_des_Europarates_zum_Id_23218_de.pdf?__blob=publicationFile, Accessed on 22.02.2012.
Association: are there restrictions of the freedom of peaceful assembly, and freedom of association for migrants
No, there are no specific restrictions of the freedom of peaceful assembly and freedom of association for migrants.
The German constitution guarantees freedom of peaceful assembly and freedom of association (according to Sec. 8 and 9 of the German constitution). There is no specific restriction of this freedom for migrants.
German constitution, available on: http://www.gesetze-im-internet.de/bundesrecht/gg/gesamt.pdf, Accessed on 03.01.2012.
Association: are there restrictions of the of the freedom of peaceful assembly, and freedom of association for minorities
No, there are no specific restrictions of the freedom of peaceful assembly and freedom of association for minorities.
The German constitution guarantees freedom of peaceful assembly and freedom of association (according to Sec. 8 and 9 of the German constitution). There is no specific restriction of this freedom for minorities.
German constitution, available on: http://www.gesetze-im-internet.de/bundesrecht/gg/gesamt.pdf, Accessed on 25.01.2012.
Religion: Persons belonging to minorities face legal and practical obstacles in exercising or manifesting their religion or belief?
In general, according to Sec. 4 of the German constitution there are no legal restrictions with regard to exercising or manifesting ones religion or belief. Yet, there are areas of life in which the exercise of religious beliefs is restricted.
In general, according to Sec. 4 of the German constitution there are no legal restrictions with regard to exercising or manifesting ones religion or belief.
Yet, there are areas of life in which the exercise of religious beliefs is restricted.
Against the background that schools are legally required to be a religiously and ideologically neutral area, several Federal States have enacted legislation to prohibit teachers in public schools from wearing visible items of religious clothing such as headscarfs and symbols. In Baden-Württemberg and Berlin similar legislation exists for kindergarten teachers in addition. In Hesse and Berlin the ban cover moreover, civil servants in the field of justice and law enforcement (including judges, prosecutors, police officers, and court and prison officials) [1].
The judgement by the regional court Cologne from May 2012, in which the court found circumcision of an infant boy to constitute bodily harm in spite of the agreement of the parents, triggered a heated debate in Germany. In this specific case of 2010, a local general practitioner circumcised a boy due to religious motives of the parents. No medical necessity for the circumcision was present. The accused doctor was acquitted of the charges of dangerous bodily harm by the regional court Cologne in 2011. The fundamental right of the child to be not harmed outweighs the parents’ right to freedom and education of their child. Due to the fact, that the accused could not have been aware of his actions being a criminal offence, the court reconfirmed the acquittal of the regional court [5]. Criticism was expressed from a wide range of actors, in particular the Jewish community. On 14 December 2012, the Federal Council adopted a new law on circumcision of the male child. According to the law, the operation has to be carried out under up-to-date medical standards and includes the use of anodyne [4].
Human Rights Watch (2009), Discrimination in the Name of Neutrality. Headscarf Bans for Teachers and Civil Servants in Germany, http://www.hrw.org/sites/default/files/reports/germany0209_web.pdf, Accessed on 20.02.2012.
German constitution, available on: http://www.gesetze-im-internet.de/bundesrecht/gg/gesamt.pdf, Accessed on 20.02.2012.
Peucker, Mario (2009), Racism and Ethnic Discrimination in Germany Update Report 2009, http://www.efms.uni-bamberg.de/pdf/RAXEN-Jahresbericht_2009_DE.pdf, Accessed on 20.02.2012.
Germany, Federal Council (Bundesrat) ‘Beschneidung von Jungen auch künftig zulässig‘, Press release 14 December 2012, available at: http://www.bundesrat.de/cln_227/nn_8538/DE/presse/pm/2012/202-2012.html?__nnn=true, Accessed on 22.01.2013.
Germany, Regional Court Cologne (Landgericht Köln), Köln/151 Ns 169/11, 07 May 2012, available at:http://www.justiz.nrw.de/nrwe/lgs/koeln/lg_koeln/j2012/151_Ns_169_11_Urteil_20120507.html, Accessed on 22.01.2013.
Media: Are there positive measures for promoting or restrictions for Migrant and minority media?
There are single positive measures for promoting and no restrictions for migrant and minority media.
According to Sec. 5 of the German constitution everyone has the right to express their opinion. There are no restrictions on the freedom of press for minorities and migrants.
There are examples that support especially pupils and students with a migration background to study and work in the media industry (e.g. “Medienvielfalt, anders” and “WDR grenzenlos”). Special internships, scholarships or just the chance to gain a look into this professional field is offered. The aim is to enrich the different medias like tv, internet and printed media with topics relevant for migrants and interesting for non-migrants.
German constitution, available on: http://www.gesetze-im-internet.de/bundesrecht/gg/gesamt.pdf, Accessed on 21.01.2013.
Migranten und Medien: http://www.grimme-institut.de/imblickpunkt/pdf/imblickpunkt_migranten-und-medien.pdf, Accessed on 21.01.2013.
Media: Are there positive measures for promoting or restrictions for minority and lesser used language in the media?
No. There are no positive measures for promoting but also no restrictions for minority and lesser used language in the media.
German constitution, available on: http://www.gesetze-im-internet.de/bundesrecht/gg/gesamt.pdf, Accessed on 13.01.2013.
Media: Is there a visible presence (or absence) of members of target groups as media professionals?
Media professionals with a migration background are highly underrepresented.
Journalists with a migration background are highly underrepresented in Germany. According to a nation-wide study in 2009, 84 per cent of all daily newspapers have no journalists with a migration background employed. Furthermore, only 1 per cent of all newspaper journalists have a migration background. The largest migrant groups are from Turkey (20 per cent), Poland (11 per cent) and Spain (9 per cent). It can be assumed that the public service broadcasters have a higher percentage of journalists with a migration background than the newspapers [1,2,3].
A report on the media usage of migrants in Germany (2010), shows very low numbers of people with migration background working in the media industry (as editors, journalist ect.). Depending on the single migrant groups their share in the media business varies between 0.3 per cent and 3.0 per cent [4].
Estimates suggest that only 2 to 3 per cent of journalists have a migration background [5, p.45].
Rainer Geißler, Kristina Enders und Verena Reuter (2009), Ergebnisse der empirischen Studie zur Beteiligung von Journalisten mit Migrationshintergrund in den deutschen Printmedien, http://www.integration-und-medien.de/projekt/JmMPrint.pdf, Accessed on 20.02.2012.
Rainer Geißler (2011), Welchen Beitrag leisten die Massenmedien zur Integration von Migranten? Forschungsbefunde zu Deutschland. Vortrag auf den Nürnberger Tagen zur Integration am 19. Mai 2011, http://www.bamf.de/SharedDocs/Anlagen/DE/Downloads/Infothek/Integration/Veranstaltungen/20110519-ntfi/20110801-ntfi-geissler-vortrag.pdf;jsessionid=196090C6EF3D0E5A4EC8E971174F2B3B.1_cid251?__blob=publicationFile, Accessed on 20.02.2012.
Beauftragte für Migration, Flüchtlinge und Integration (2007), Nationaler Integrationsplan. Arbeitsgruppe Medien – Vielfalt nutzen. Abschlussbericht, http://www.migration-online.de/data/ag_6_medien_endbericht.pdf, Accessed on 20.02.2012.
Mediennutzung von Migranten in Deutschland (2010), Federal Ministry of Migration and Refugees (Bundesamt für Migration und Flüchtlinge): http://www.bamf.de/SharedDocs/Anlagen/DE/Publikationen/WorkingPapers/wp34-mediennutzung-von-migranten.pdf?__blob=publicationFile, Accessed on 21.01.2013.
Sport: Effective participation of migrants in sport
Despite the lack of official statistics, there is a broad consensus that migrants are underrepresented in organised amateur sport.
Despite the lack of official statistics, there is a broad consensus that migrants are underrepresented as members of and, even more so, as volunteers and officials in sport clubs, i. e. organised amateur sport. Migrant girls and women, in particular Muslim girls, are even stronger under-represented.
According to a large-scale survey from 2008, more than 90,000 registered sport clubs in Germany count a total of about 2,760,000 migrant members; this represents 10.1 per cent of all members and illustrates the migrants’ under-representation compared to their total population share being almost 20 per cent.
Politicians as well as experts agree that one of the reasons for this lower participation rate is the lack of intercultural awareness of many German sport clubs and their often deficient adaptation to a multi-ethnic clientele.
In 2012, the federal government published numbers of sport club members with a migration background: in the year 2009/2010 there was a total of 2.9 million migrants visiting sport clubs. This is a share of only 9 per cent compared to a share of population of 19.3 per cent. Thus migrants are still underrepresented [4].
Peucker Mario (2009), Racism, xenophobia and structural discrimination in sports, Germany Country Report, http://www.efms.uni-bamberg.de/pdf/RACISM_in_SPORT_2010.pdf, Accessed on 28.02.2012.
Deutscher Sportbund (2004), http://www.migration-boell.de/downloads/diversity/Anlage_Pilz_Grundsatzerklrung_2004.pdf, Accessed on 28.02.2012.
DOSB, http://www.dosb.de/fileadmin/fm-dosb/arbeitsfelder/ids/files/downloads_pdf/downloads_2011/Zielgruppen_IdS_2011.pdf, Accessed on 28.02.2012.
German Federal Government (2012), Integration und Sport, http://www.bundesregierung.de/Content/DE/_Anlagen/IB/2012-09-18-integration-und-sport.pdf?__blob=publicationFile, Accessed on 21.01.2013.
Sport: Effective participation of minorities in sport
Despite the lack of official statistics, there is a broad consensus that minorities are underrepresented in organised amateur sport.
Despite the lack of official statistics, there is a broad consensus that minorities are underrepresented as members of and, even more so, as volunteers and officials in sport clubs, i. e. organised amateur sport.
Peucker Mario (2009), Racism, xenophobia and structural discrimination in sports, Country Report Germany,http://www.efms.uni-bamberg.de/pdf/RACISM_in_SPORT_2010.pdf, Accessed on 28.02.2012.