B Explanatory memorandum
by Mr Domagoj Hajduković, rapporteur
1 Introduction
1. Migration is a natural phenomenon
in the history of mankind. Throughout centuries, people have been on
the move within Europe as well as to and from Europe. This has been
important for the progress and benefit of each individual and society
as a whole. The European Union (EU) has received wide public support
by overcoming national borders as dividing lines, creating an area
of free movement of persons and even lifting border controls under
the Schengen Agreement. Integration of migrants has therefore become
a cornerstone of building stable and prosperous societies and nations.
Failures in such integration lead to human suffering, fractured
societies as well as social, economic and political instability.
2. While data of all Council of Europe member States are less
accessible, Eurostat provides up dated figures for the EU:
Note for 2019, it found that 2.7 million
persons immigrated to the EU and 1.5 million emigrated from the
EU. 39% of all EU residence permits at the end of 2020 were issued
for family purposes, 17% for work purposes and 9% for asylum. According
to the United Nations High Commissioner for Refugees (UNHCR) figures
of Council of Europe member States, the highest numbers of refugees
were in Türkiye with approximately 4.4% of the population and in
Germany with approximately 1.5%.
3. Behind these numbers are human beings who deserve our attention
and whose integration must be a common objective of all States in
Europe. Marginalised, discriminated or excluded migrants are a source
of serious concern. From a human perspective, but also socially,
economically and politically, migrants should be well integrated
into society. This understanding led to the motion for a resolution
which this report originates from (
Doc. 15335), which was tabled on 25 June 2021.
Note
2 Definitions
4. Within the immigration process
there is a distinction between the assimilation, integration, and
inclusion of migrants and refugees. Assimilation describes the process,
in which migrants and refugees are the only ones that need to adapt
to existing norms, behaviours, values and the culture of the host
country and therefore become similar to the native majority. Integration
on the other side is defined as a “two-way” street, where all members
of society find common ground and make compromises. Critics say
that this is only theoretical and that the burden is most often
placed only on the refugees and migrants. Inclusion therefore implies
that all members of the society have the opportunity to participate
in social, cultural and political life and encourages a sense of
togetherness.
Note In my report the term “integration”
will be used in a broader way, which implies inclusive participation
coming from both sides, along the lines of the definition used by
the UNHCR with regard to the integration of refugees
Note:
a dynamic and multi-faceted two-way process leading to full and
equal membership in society. This includes preparedness by refugee
communities to adapt to host societies without giving up cultural
identity, and the receiving communities and institutions equally
ready to welcome refugees and meet the needs of a diverse population.
The process is complex and gradual, comprising legal, economic, social,
and cultural dimensions.
5. Scholars have proposed a conceptual framework for integration,
grouped into four key areas: i.
Foundational:
refugee status, access to rights, and citizenship; ii.
Functional: access to housing, health,
social security, decent work, financial services and education;
iii.
Social: social connections
and bonds within the host community, social bridges, networks, social
links; iv.
Facilitation: language,
training, counseling, cultural knowledge, safety, and stability.
Note Most theories define successful integration
for newcomers as equitable access to opportunities and resources,
participation in the community and society, and feelings of security
and belonging in their new homes.
Note
6. It’s interesting to note that the International Organisation
for Migration (IOM) and the EU adopted two definitions sharing common
features: the term integration would identify a dynamic process
of mutual adaptation where both migrants and host societies bear
some responsibilities in its fulfilment. This understanding of the
concept has informed all the policies of the European Commission
on the subject, including the recent Action plan on Integration
and Inclusion 2021-2027. Contrariwise, the OECD relied on a definition
focused on the outcome, not the process. Accordingly, integration
is “the ability of immigrants to achieve the same social and economic
outcomes as natives taking into account their characteristics.”
7. The lack of integration of migrants and refugees does not
only lead to social, economic, and psychological problems of the
person arriving in a new country, but also to the loss of income
taxes and contributions to the pension and social security due to
poor integration in the labour market.
Note Furthermore, the lack of integration
leads to fragmented societies and political instability.
8. In the past years, not only governments focused on the topics
of migration and integration, but also the rising right-wing populists.
By using dehumanising and harmful narratives they have increasingly
influenced media, public discourse, and political movements. Rhetoric
and policies which criminalise and dehumanise migrants and refugees
leave them without a place in society. That is why it is essential
to ensure successful integration of migrants and refugees in all
Council of Europe member States and to focus on the benefits to
all parties involved in that process. The assimilationist approach
to integration policy has been widely criticised, given that it
would annihilate the identities of minorities.
9. Finally, multiculturalism is sometimes cited as an approach
to integration as opposed to assimilation. It promotes the integration
of migrants in society, while advocating the preservation of their
cultural identities. This approach has been criticised because it
would encourage migrants’ segregation rather than fostering the cohesion
among different communities in society.
3 European
action
10. Several legal standards set
by the Council of Europe as well as by the EU and the United Nations
protect migrants and refugees against discrimination, exploitation
and neglect. In addition, specific programmes and action have been
created to improve integration of people on the move. The European
Convention on Human Rights (ETS No. 5) and the European Social Charter
(ETS No. 35) are two of the major achievements of the Council of
Europe that should guide member States in all policies, including
as regards integration of refugees and migrants.
11. In 1956, the Council of Europe Development Bank was founded,
with one of the main purposes being the support, integration and
social development of persons displaced in member States as a consequence
of the Second World War.
Note This objective is still valid and
necessary, given the continued presence of migrants and refugees
in Europe.
12. The EU, having been created on the basis of the fundamental
values and freedoms enshrined in the Council of Europe treaties,
added the freedom of movement of persons among member States as
one of the pillars of the European Economic Community of 1957.
Note The latter freedom is now enshrined
in Article 3(2) of the Treaty on European Union, Article 21 of the
Treaty on the Functioning of the European Union and Article 45 of
the Charter of Fundamental Rights of the European Union. However,
specific attention must also be paid to non-EU citizens on the move
within the EU. New developments in the EU will certainly have repercussions on
the integration policies in the Council of Europe member States,
as mentioned in Resolution 2416 (2022) “European Union Pact on Migration
and Asylum: a human rights perspective”.
13. People on the move are also protected by the International
Covenant on Civil and Political Rights and the International Covenant
on Economic, Social and Cultural Rights of the United Nations. The
rights of refugees are enshrined in the 1951 Convention Relating
to the Status of Refugees and its 1967 Protocol. States in different
parts of the world have also developed regional laws and standards
that complement the international refugee protection regime. UNHCR
acts as ‘guardian’ of the 1951 Convention and its 1967 Protocol,
however the 1951 Convention expressly provides that States are expected
to co-operate with UNHCR in ensuring that the rights of refugees
are respected and protected.
14. The adoption of the Global Compact on Refugees (GCR) in 2018,
subsequent pledges made at the first Global Refugee Forum in 2019,
as well as the upcoming next Global Refugee Forum in December 2023, provide
renewed impetus for refugees’ integration in Europe. The GCR, affirmed
in 2018 by the UN General Assembly, sets out a vision for a more
predictable, equitable, comprehensive, and timely refugee response
and calls for a whole-of-society approach. It recognises local authorities,
including in urban settings, as frontline actors and notes opportunities
for the engagement of city networks. In parallel, efforts were undertaken
to anchor city implementation of the GCR in international refugee
and migrant policy fora, including the Intergovernmental Conference
to adopt the Global Compact for Safe, Orderly and Regular Migration.
Note
15. Looking at the current situation of migrants and refugees
in Council of Europe member States, one can acknowledge that a lot
has been achieved, but still much remains to be done for their full
integration into the societies where they have chosen to live. The
situation of irregular and undocumented migrants as well as stateless
persons is of particular concern in this regard. The lack of a legal
status for many stateless hinders access to rights and services.
In addition, refugees and asylum seekers face multiple legal, administrative
and practical barriers.
Note
16. The Council of Europe dealt with the topic of migration and
integration in various resolutions and reports. In 2005 the Parliamentary
Assembly adopted Resolution 1437 (2005) “Migration and integration:
a challenge and an opportunity for Europe” that pointed out the
importance of effective policies to ensure the successful integration
of migrants and refugees and to address the challenges of migration.
Note
17. In 2014 the Assembly adopted Resolution 2006 (2014) “Integration
of migrants in Europe: the need for a proactive, long-term and global
policy”.
Note The focus of the report and the
resolution was on the unsatisfactory progress that the member States
had made so far in integrating migrants and refugees into society.
To ensure better integration of migrants, the Assembly underlined
the need to return to comprehensive policies, to facilitate vocational
training and recognition of diplomas and, if possible, to grant
long-term residence permits.
18. In 2017 the Assembly adopted Resolution 2175 (2017) “Migration
as an opportunity for European development” that provided concrete
examples of how migrants contribute to increasing economic growth, challenging
the misconception that migrants are a threat to local populations.
Note
19. Furthermore, the Assembly adopted Resolution 2176 (2017) “Integration
of refugees in times of critical pressure: learning from recent
experience and examples of best practice”.
Note It provided an overview of different national
approaches to the integration of migrants in Council of Europe member
States and put emphasis on good practices which could be broadly
used to succeed in engaging refugees in the daily economic, social
and cultural life of host communities.
20. A year later, the Assembly adopted Resolution 2220 (2018)
“Integration, empowerment and protection of migrant children through
compulsory education”.
Note The report highlighted the gap between
States’ undertakings under domestic and international law on primary
and secondary education and its actual delivery to migrant and refugee
children. Examples from Council of Europe member States illustrated
good practices and many areas for improvement. The recommendations
constituted a “checklist” of conditions for ensuring migrant children’s
education.
21. As regards integration, member States should base their actions
on the goals stipulated in the UN global compacts for migrants and
refugees, as agreed in Resolution 2379 (2021) “Role of parliaments
in implementing the United Nations global compacts for migrants
and refugees” and Resolution 2408 (2021) “70th anniversary of the
1951 Refugee Convention: the Council of Europe and the international
protection of refugees”.
22. For the preparation of this report, various exchanges of views
were held. On 19 September 2022, during its meeting in Athens, the
Committee on Migration, Refugees and Displaced Persons held an exchange
of views with Ms Maria Clara Martin, UNHCR Representative in Greece,
Mr Gianluca Rocco, Chief of Mission and Regional Response Coordinator
of the IOM Greece, Ms Melina Daskalaki, Special Advisor to the Mayor
of Athens for Migrants and Refugees and President at City of Athens
Reception and Solidarity Centre, and Mr Christos Papadopoulos, Special
Advisor to the Mayor on the field of culture, city of Ioannina (Greece).
On 11 October 2022, the committee held an exchange of views with
Ms Salomé Brun, Conference of INGOs’ Communication unit (Médecins
du Monde), and Mr Samir Hećo, Project Officer at the Education Department, Council
of Europe. Finally, on 7 December 2022, the committee saw the presentation
by Mr Sølve Sætre, Head of section for diversity and inclusion,
City of Bergen, Norway, on the asylum policy implementation at local
level, in Bergen, and a video projection about the “Straight to
work” programme of integration of refugees carried out in the municipality
of Øygarden. The report will highlight some key elements of these
contributions.
4 Benefits
for all parties involved
23. Studies have shown that host
countries benefit from the successful integration of migrants and
refugees. Although the State has to invest money in integration,
when the migrants arrive and a few years after, their macroeconomic
impact becomes positive as they become permanent residents, are
integrated in the labour market and pay taxes. Furthermore, migrants
and refugees boost the working-age population, arrive with skills, and
therefore contribute to human capital development as well as to
technological progress.
Note
24. On 19 September 2022, Ms Martin described integration as fundamental
to achieving self-sufficiency and stability, as well as social peace
and to preventing conflict. Full integration is defined as the ability
to provide for oneself and being part of the hosting community.
She illustrated the benefits stakeholders may gain from integration.
First, all migrants can benefit the hosting communities by providing
an increase in the workforce, the demand of goods and the entrepreneurial
initiatives. Inclusion of diverse people improves productivity and
stimulates innovation. Economically speaking, according to EU studies,
spending 1 euro on the integration of refugees can generate 2 euros
in benefits within a period of no more than 5 years. Regarding societal
aspects, it was noted that peace and social cohesion are promoted
and subsequently the cost of social conflict decreases. In conclusion,
she highlighted the contributions of the Council of Europe and mentioned
the parliaments’ role in fostering positive dialogue and legislation.
25. Mr Rocco stressed the following advantages of integration
of migrants: when they become economically independent, they decongest
reception facilities and support the housing market. He referred
to some studies demonstrating the positive impact of integration
on economic growth, whatever the level of development of the country.
Migrants can find a job, pay taxes and mitigate the brain-drain
phenomenon. Besides, integration avoids the high social and economic
costs of marginalisation. Furthermore, he emphasised the need that migrants
are trained, speak the local language and share the values of the
hosting country, otherwise interaction with the society is hard.
Finally, he illustrated the positive outcome of the integration
programme started in Greece in 2018. In 3 years, 18 000 migrants
received subsidies, training and education; 6 000 were put in contact
with employers, although they were mainly employed as seasonal workers.
The Greek case stands as an example to other countries, showing
that integration benefiting both migrants and society is possible.
26. Numerous studies show the economic effects of migration, which
are often positive also for the host countries. For example, an
International Monetary Fund (IMF) study found that the longer-term
impact of migration on the GDP per capita was positive, mainly due
to an increase in the labour productivity.
Note The
rise in firms’ productivity as a result of the influx of migrants
on the labour market has been solidly proven by several scholars,
for example by Ottaviano, Peri and Wright, who concentrated on the
United Kingdom services sector.
Note Academic research has also suggested
that an increase in the number of refugees pushed less qualified
natives towards less manual intensive jobs, so their wages and their
occupational mobility ramped up.
Note
27. In addition, immigration of skilled workers has greatly contributed
to innovation and patenting in the US. Recently, it was also demonstrated
that even in Europe an increase in skilled immigrants leads to an
increase in the innovation and patenting of firms.
Note These findings are consistent with
the studies showing that in Denmark and the Netherlands culturally
diverse firms tend to be more innovative and more likely to apply
for patents.
Note
28. Scientific literature has also studied the effects of integration
policies, which are usually deemed essential in amplifying the economic
benefits of migration. In Europe, a great number of studies has concentrated
on the integration of migrants in the labour market of the Nordic
countries because of their high-quality accessible data and their
comprehensive integration policies.
29. Overall, consolidated results show that better schooling outcomes
and social integration of migrants’ children are positively associated
with their parents’ economic success.
Note Consequently, integration policies aimed
at promoting access of adult migrants to the labour market have
significant positive spillover effects on their children, who attain
better education and employment results than in the absence of such
policies.
Note
30. Moreover, it was pointed out that when a group of migrants
is excluded by certain integration programmes (language courses,
training programmes) it experiences a loss in human capital development
and tends to end up in the informal economy.
Note An IMF study found that providing
support to young migrants is key to reducing the risk of involvement
in criminal and violent activities.
Note
31. As regards refugees, since they are not selected on the basis
of their schooling and skills and often experienced trauma and loss
of human capital, their access to the labour market is extremely
difficult but would be instrumental in greatly reducing poverty
and inequalities in the host country.
Note Moreover, as a consequence of refugees’
integration, public costs in supporting them would fall, and their
economic outcomes would boost. Some works have estimated that an
incomplete integration of refugees into the labour market would
cost the EU between 0.4% and 0.6% of its GDP.
Note Another study has projected that
refugees’ integration could in the long-term lead to a GDP growth
between 0.2% and 1.6 % above the baseline, depending on the designing
and the financing of integration policies.
Note Another important factor is time.
A reduction in the length of the process to assess the asylum application
increases the chances of the asylum seeker to find a job. A study
on Switzerland found that a reduction of one year of the waiting
time increases the employment rate by 4 or 5 percentage points.
Note
32. There is a shared consensus that language training for migrants
bring benefits to the economy of a host country. Consequently, policies
that make language courses mandatory for the newly arrived have
positive economic effects.
Note Strong evidence in this direction
comes from Denmark, Finland, Norway, Sweden.
Note This result is extremely pronounced
in Nordic countries probably because they have a higher share of
jobs requiring high-skilled workers, for whom linguistic competences
are essential.
33. Some findings on the Danish integration policies demonstrated
that language training, together with settlement in areas with a
strong labour market, significantly improve the long-run labour
market outcomes of migrants.
Note In particular, a Danish reform that
encouraged language training for adult refugees generated intergenerational
spillover effects, decreasing the school dropout rate.
Note This
being said, the Danish decision of cutting welfare payments for
migrants was not very successful. In the short-term, migrants’ employment rates
grew, yet in the long-term their employability was negatively affected.
Note
34. Other scholars found that an improvement in the immigrant
workers’ proficiency in Norwegian led to a surge in productivity.
Note A study on the integration of migrants
in the Norwegian job market pointed out that the acquisition of
human capital, through additional schooling and language courses,
was key to increasing the long-term employability prospects of migrants.
35. In general, active labour market policies focused on matching
refugees with simple jobs boost occupation in the short-term, but
their effects in the long run are unclear, since a quick entrance
into the labour market could not ensure a job in the long run.
Note For instance it was shown that in
Sweden only a long education track ensures a solid establishment
in the labour market for the following years.
Note So,
job matching policies may prove more effective if combined with
other policies aimed at honing migrants’ skills and language proficiency.
Note
36. A 2013 Danish policy aimed at training refugees in occupations
where there were local labour shortages was very effective, increasing
the employment rate of the targeted group by 5-6 percentage points
after one year and by 10 percentage points after two years.
Note
37. Scientific literature also shows that integration is beneficial
not only from an economic point of view. For instance, it was found
that in countries with inclusive integration policies native population
tend to have a lower perception of the economic threat coming from
immigrants and more friendly attitudes towards them.
Note Consistently, whereas policies discouraging
integration are enacted, locals become more likely to hold anti-immigrant
sentiments.
Note
5 Existing
shortcomings
38. States should pursue an evidence-based
approach to inclusion planning, through expanding the collection
and analysis of socio-economic data, building upon existing tools
and programmes by national and sub-national authorities. This would
enable them to obtain a detailed overview on refugees’ and migrants’ profiles
and practical, legal and administrative barriers impeding the full
enjoyment of their economic and social rights.
39. In many countries, the government finances the integration
of migrants and refugees by providing lump-sum payments to local
and regional authorities, which are not tailor-made to meet individual
needs. The payment of a certain amount of money per person should,
therefore, take into account different local costs or the needs
of certain groups of migrants and refugees. There is a need for
a person-centred approach to integration support and adaptation
of national services to take into account specific needs and circumstances. More
efficient and effective funding mechanisms should be designed and
implemented based on dialogue between policy makers and those local
authorities/actors often in charge of finding solutions (mayors,
municipal authorities, local civil society organisations, and service
providers).
Note
40. Most migrants and refugees have participated in the labour
market in their country of origin, and many have vocational training,
diplomas, or university degrees. However, when they arrive in the
host countries, these skills and diplomas are often not recognised
and cannot be transferred. As a result, integration into the labour
market of the host countries is made more difficult and migrants
and refugees work in positions for which they are overqualified.
The resulting frustration further complicates the integration process.
Note
41. Many countries show a lack of policy focus on the integration
of vulnerable groups and apply standardized policies. These one-fits-all
policies do not take into account the special needs of vulnerable migrant
and refugee groups. Vulnerable groups within our society include,
but are not limited to women, (unaccompanied) children, people with
disabilities, elderly people, members of the LGBTQI+ community, stateless
persons, victims of human trafficking and victims of torture that
need specific psychological support.
Note
42. Since the aggression of the Russian Federation against Ukraine,
millions of Ukrainians fled their country seeking protection in
other European countries. Across Europe, free phone service and
public transportation are provided for Ukrainians. Furthermore,
the Temporary Protection Directive of the European Union
Note has been activated which allows Ukrainian
refugees to stay up to three years in a country without having to
apply for asylum. It also includes right to a residence permit and
access to housing, education, the labour market, social welfare,
medical care, banking services, and free movement within EU countries,
among others. While this example shows how international refugee
protection and integration should work, the reality for millions
of migrants and refugees from Middle Eastern and African countries
looked completely different in the past years. They often faced
racism, xenophobia, and discrimination not only at borders, where
often they have been violently pushed back, but also in the host
countries where the public discourse is tainted by dehumanizing
and discriminating rhetoric. This double standard hinders a successful
integration of all migrants and refugees and fractions societies.
Note This is an example of how political
will can make a difference. Certainly, there was very strong political
will to demonstrate unity against the aggression of a Council of
Europe member State. Such political will is, however, lacking when
it comes to integration of migrants and refugees coming to Europe
from other parts of the world.
43. Finally, the Covid-19 pandemic slowed down the integration
of migrants and refugees all over the world. In many countries,
integration programmes were put on hold and school closures and
distant learning put migrants, refugees, and their children at a
disadvantage in several ways. Because government offices have scaled
back their services or shut down at this time, the Covid-19 outbreak
has had an influence on the processes for requesting and obtaining
residence and work permits which led to social and economic uncertainty
for the migrants and refugees and hindered a successful integration.
Note
6 How
can integration policies be improved?
6.1 A
new social contract
44. Public authorities, when confronted
with major changes in society, are often prompted to make significant
changes. Such changes may need to be better prepared. Integration
of migrants and refugees would benefit from a new social contract
respectful of rights and responsibilities of all parties involved
in refugees’ and migrants’ integration. Acceptance of such a new
social contract depends on democratic processes in place to build
social support.
45. Highlighting the rights and responsibilities for the newly
arrived groups of populations allows to clarify things from the
start and build trust and respectful co-operation between local
communities and the beneficiaries of resettlement programmes. As
regards the integration of refugees, member States should base their
actions on the goals stipulated in the UN global compacts for migrants
and refugees, as underscored in Resolution 2379 (2021) “Role of
parliaments in implementing the United Nations global compacts for
migrants and refugees” and Resolution 2408 (2021) “70th anniversary
of the 1951 Refugee Convention: the Council of Europe and the international
protection of refugees”.
6.2 Mentor
programmes and integration guides
46. One solution that proved to
improve the integration of migrants are mentor programmes or so-called “integration
guides”. Through these programmes, local mentors accompany and support
migrants and refugees when they first arrive in the host countries,
support them in their cultural and social orientation, practice
the language of the host country with them, and support them with
personal relationships and networking in the new community. In cities
in Bulgaria and Germany, these programmes have shown great results
in integrating the migrants and refugees into their new environment.
Although some of these programmes rely on volunteers providing assistance,
a proper funding by the member States is necessary to ensure a constant
level of quality and the evaluation of the integration outcome.
Note Positive practices include also
tying mentorship to labour market integration of refugees. Partnerships
between the public and private sectors could be developed to support
the implementation of mentorship programmes.
Note
47. Another example of a mentoring scheme, called the “Bergen
Opportunity” was set up in the City of Bergen (Norway). Originally,
the “Mentor and leadership development programme” involved 20 diverse participants
and 20 mentors with 10 modules and 6 to 12 mentor meetings per year.
The latest group that is currently working has 80 participants and
80 leaders from private and public sector that agreed to work with them.
As a result, 6 out of 10 programme participants had career progress
after 1 year, some with new job or position including a leading
position. Mentors and mentees rated the program highly. It improved
participants’ CV and self-efficacy and enhanced their visibility
on the job market. Amongst the advantages cited by the mentors were
the following: the programme supports the most important issue:
attracting and retaining talent; it puts diversity and inclusion
on the agenda; skills meet potential; it affects attitudes among
leaders, and it improves the networking capacity, as an important
factor for career progress.
48. The “Bergen Opportunity” was implemented in other regions.
A project template was created for the European Union through REGAL
– Regional Capacity for Adults Learning and Education. Today it
includes the Stavanger Opportunity, the Trondheim Opportunity, and
the Bergen Opportunity Alumni network. Synergies across classes
are created and new networks developed as a result.
6.3 Nationwide
interpretation services
49. Another crucial factor for
the successful integration of migrants and refugees is the availability
of interpretation services during the entire integration process.
The possibility to understand and actively participate is especially
important in the fields of health, justice, asylum and issues in
the municipalities. In the German state of Thuringia, for example,
professional interpreting services are offered in more than 50 languages.
The languages are available to users within certain response times
via the internet or by telephone. Across the state, more than 400
institutions, namely local authorities, public administration, schools, hospitals,
doctors, counselling centres, women's shelters and many more, use
this service and thus ensure communication with people whose knowledge
of German is insufficient. The interpretation services are funded by
the Ministry of Migration, Justice and Consumer Protection.
Note
6.4 Education:
from language training to democratic citizenship and human rights
education
50. Language training is crucial
for being able to live in a new country, including for getting access
to employment. The better the training, the higher the likelihood
that the person will become less dependent on support services and
more autonomous in his/her daily life. Given the importance of speaking
a language to get a job, a Swiss study found that the distribution
of migrants in a multilingual territory should aim to reduce the
likelihood of language mismatch in order to facilitate the integration
in the labour market.
Note In addition, specific programmes
designed to educate about societal developments in the host country,
including programmes promoting democratic citizenship and human
rights education, would benefit both the newly arrived migrants
and host communities.
51. Refugees stress the need for access to accelerated language
learning, as even working knowledge may often not be enough to secure
employment, while fluency unlocks most opportunities. States are
advised to develop language training that takes into account and
caters for different education levels, fluency levels, time commitments
(accelerated or reduced hours), modalities (in person or remote)
and care responsibilities.
Note
6.5 Recognition
of skills obtained abroad
52. In order to ensure a successful
integration into the labour market and to enable migrants and refugees to
participate in social security and pension systems the transfer
of skills and degrees obtained abroad is particularly necessary.
So called “quick assessments” have proven to be particularly successful.
In Norway and Germany these assessments are used successfully and
give migrants and refugees the chance to get proof of their abilities
and thus to integrate successfully into the labour market without
having to accept jobs for which they are overqualified.
53. Recognition of qualifications and prior learning is of fundamental
importance. Whether partial or full, recognition opens up further
education or employment opportunities and allows refugees and migrants
to make more efficient use of their knowledge, skills and competences.
54. In Germany, the MYSKILLS test was created in collaboration
between the Federal Employment Agency and the Bertelsmann Stiftung.
The exam reveals professional expertise and is meant to create chances
on the labour market for those who, up until now, have had difficulty
demonstrating their informal or non-formal learning of certain skills.
The MYSKILLS assessment is available in 12 languages and for 30
different professions offered by employment agencies and job centres.
Note
55. The Norwegian Agency for Quality Assurance has developed a
similar assessment tool that comprises a quick assessment of the
candidate's vocational qualifications for a particular job rather
than formal acknowledgement of those qualifications. In addition,
a toolkit has been developed specifically for the recognition of
refugees’ qualifications.
Note
56. On 11 October 2022, Mr Hećo presented the European Qualifications
Passport for Refugees (EQPR)
Note, an
international project grounded in the Convention on the Recognition
of Qualifications concerning Higher Education in the European Region
(CETS No. 165, “Lisbon Convention”), ultimately aiming at the integration of
refugees in the host societies. He informed the committee that 70%
of States parties to the Lisbon Convention had either no or very
few means to implement their obligation under its Article 7, which
referred to the recognition of qualifications held by refugees,
even in the absence of available documentation. The EQPR serves
as a practical tool to help member States comply with the aforementioned
article. The project was financed by the Council of Europe’s ordinary
budget.
57. The evaluation process for the EQPR is conducted in three
steps by professional credential evaluators who come from different
international recognition centres. The outcome of the evaluation
is a credible, document that summarises the academic background,
qualifications, working experience and languages spoken by its holder.
Besides the obvious benefits that the EQPR provides for the refugees,
Mr Hećo listed the benefits for other parties, for example admission
officers of higher education institutions, employers and national
recognition centres.
6.6 Consideration
of the special needs of vulnerable groups
58. Vulnerable groups like women,
(unaccompanied) children, elderly people, people with disabilities, members
of the LGBTQI+ community, stateless persons and others need specific
support in order to integrate into the host country. Increasing
the possibility for migrant children to attend kindergartens and
other day-care facilities would allow women to continue education
and have access to employment. The EU Action Plan for Integration
and Inclusion 2021-2027”
Note, which the European Commission released
in November 2020, was welcomed for the extent to which it engaged
with the specific needs of migrant women, not least by acknowledging
the challenges arising from weaker social networks and greater childcare
and family responsibilities.
59. Involvement of healthcare professionals with a migrant background
in elderly homes and communal living can help improve the integration
of elderly migrants and refugees into the society and allow them
to age in dignity. Empowering refugees and asylum seekers with disabilities
and/or long-term illnesses would give them the tools they need to
assert their human rights. In the Netherlands, there is communal
housing where local and elderly migrants live together and support
each other. Furthermore, ethnic community health professionals serve
as the liaison for senior immigrant clients and neighbourhood medical
and social services. This leads to an improvement of care for elderly
migrants and refugees by developing culturally sensitive care where
the seniors can actively participate.
Note
60. The National Confederation of Disabled People of Greece implemented
the project “Planning together: Empowering refugees with disabilities”.
Refugees and asylum seekers with disabilities and/or long-term illnesses
were given the tools they needed to assert their human rights. The
project placed a strong emphasis on the importance of the numerous
advantages resulting from the involvement of refugees and asylum
seekers with disabilities and/or chronic illnesses in the planning
and execution of initiatives and services aimed at them. The special
requirements of refugees and asylum seekers with disabilities were
made more widely known to professionals and the public, increasing
the likelihood that this group would receive adequate help. The
actions included the implementation of awareness-raising and training
seminars on disability and chronic diseases addressed to staff active
in the provision of services to refugees and asylum seekers, the
implementation of consultation meetings with refugees and asylum
seekers with disabilities, chronic diseases and their families as
well as a hotline for the support of refugees and asylum seekers
with disabilities and/or chronic diseases also in Arabic and Farsi
languages.
Note
61. The Norwegian city of Bergen pays special attention to the
particular vulnerability of LGBTQI+ refugees. Bergen gives residence
to vulnerable refugees with various sexual identities, gender identity
or gender expression. Furthermore, training and instruction are
given to staff working with refugees. In Berlin, the organisation
“Schwulenberatung Berlin” runs an official shelter exclusively for
LGBTQI+ refugees where they find a safe space and are provided with
legal advice on asylum procedures and psychological support.
Note
6.7 Create
spaces to bring migrants, refugees, and the local community together
62. States should do their utmost
to avoid building new retention camps. This is contrary to the goal
of integration and full inclusion of refugees and migrants in their
host country. Even without camps, segregation of refugees and migrants
in certain urban areas is detrimental to societal progress. Supporting
the refugees’ and migrants’ diaspora to meet and share their experiences
and form mutual support networks can be beneficial short-term in
terms of local job opportunities, resilience, and social networks,
but it can become problematic, as it prevents certain groups of
people from accessing the opportunities and services that would allow
them to fully participate in economic and social development of
the host country. It is essential for successful integration to
create spaces in the public sphere that bring the local community,
migrants, and refugees together. This allows to reduce tensions
and strengthen social cohesion, building bridges between various
groups in society.
63. Bergen (Norway) is building a centre combining services and
learning as part of the global project “Building Dignity”, uniting
all necessary activities under one roof in a desirable location.
The centre will be located in Landås, in a former education facility
for teachers. The administration, adult training centre, and refugee
integration centre will all be housed in the Bergen Inclusion Centre,
which will also have sports and cultural facilities so that it can
be used throughout the day. The centre, which aims to promote inclusion
and cross-cultural dialogue, will be accessible to members of the
neighbourhood community and organisations.
Note
64. As part of its intercultural strategy, the city of Ioannina
created a centre to welcome, inform, support, and counsel asylum
seekers, refugees, and migrants. By working with all municipal services,
the Intercultural Centre for Social Integration, called “Akadimia,”
also helps to improve their living situations and aids in gaining access
to social security programs. The centre organises social and cultural
events, as well as other intercultural activities, and offers interpretation
services and cultural mediation for all municipal services and their
corporate entities. With the use of promotional flyers that have
been translated into seven different languages, the centre’s services
are advertised across the city.
Note
65. On 19 September 2022, Mr Papadopoulos spoke about the Intercultural
Cities Programme, a programme that supports cities in reviewing
of their policies through an intercultural lens. The city of Ioannina has
been part of the programme since 2015 and has greatly benefitted
from this. The administration of the city was provided with practical
and technical know-how. Mr Papadopoulos invited parliamentarians
to discuss the inclusion of their cities in this programme. Speaking
about the Intercultural Centre for Social Integration “Akadimia”,
he underscored that it assisted migrants with interpretation, cultural
and administrative services, at organising cultural events and at
co-operating with other local, national and international services.
Due to the lack of funds of local governments in Greece, the project
was financed mainly by EU funds. Discussions were ongoing for the
centre to remain open for two more years of financing that could
make the Centre even more effective.
6.8 Improve
financial settings
66. Refugees and migrants require
housing as well as support for other fundamental necessities, such
as health care, and access to education for their children. Access
to the labour market is necessary for those who will be given refugee
status in order to promote their integration and economic contribution
to the host nation. Significant upfront investments are needed to
cover the costs of both immediate assistance for asylum seekers and
the education and training of refugees. Funding therefore is an
important tool for managing integration processes in a country and
works as a strong leverage for co-ordination in this area.
Note
67. Financial incentives from the central government could be
given to municipalities that are exceptionally effective at integrating
refugees. Municipalities throughout Europe are in many cases leading
and setting standards when it comes to tangible results on refugee
integration. As the Ukraine response has once again demonstrated,
local authorities throughout Europe are exceptionally effective
as frontline responders in delivering concrete solutions and providing
services for refugees. Along with ensuring adequate EU-central government
funding, the demands currently placed on municipal authorities and
local services call for a diversification of funding sources and
access to own-source revenue streams through innovative, non-traditional
partnerships, such as with private sector actors.
68. Refugees’ and migrants’ financial inclusion should also be
strengthened, including access to basic services such as bank accounts,
through awareness-raising and information provision, as well as
support to refugee and migrant entrepreneurs through effective access
to finance and business development services.
Note
69. Targeted housing policies can be developed to support integration.
An affordable and decent accommodation is a prerequisite for a successful
integration of migrants, a smooth access to the job market as well
as to basic services, such as healthcare and education. In addition,
there is a need for targeted settlement policies, aiming to distribute
the migrant population in a fair and balanced way on the national territory,
facilitate the connection between the newly arrived and the local
population, preventing the development of ghettos or parallel societies
thus reducing the likelihood for migrants to be involved in illegal activities.
70. Civil society and NGOs play a crucial role in the integration
of migrants and refugees. On 11 October 2022, Ms Brun presented
the Conference of INGOs of the Council of Europe, which focused
its work on the access of migrants and refugees to their fundamental
rights and to INGOs. She remarked that, although political discourses
did not particularly convey the ideas of integration, the war in
Ukraine had shown that the integration of migrants and refugees
in European societies was indeed possible. She underlined that,
unlike political actors, NGOs carried humanitarian work as close
as possible to the individual’s needs, with a particular attention
to the vulnerable population, which was often excluded from society
and marginalised. In addition, NGOs were not subject to electoral
deadlines and were, therefore, particularly well placed to work
on long term policy support. She stressed the importance of diploma
recognition for integration: education and professional engagement
helped individuals avoid marginalisation because they can thus more
easily adjust linguistically as well as culturally. Recalling the
aim of the report, she noted that the presentation of successful
examples in the field of migration should provide an opportunity
for governments to strengthen and better invest in solutions that
already existed and proved successful. To this end, she informed
the committee about the Greek NGO Smile of the Child, which worked
on holistic reception solutions, with an emphasis on the integration
through the earliest stages of education.
71. A long-term and independent funding of civil society organisations
is particularly important for successful integration. Social impact
bonds (SIB) are a possible solution for efficient funding. They
offer funding to solve societal issues and support preventative
measures and connect financial success with achieving quantified social
outcomes. The three partners that are involved in SIBs are private
investors, the government, and civil society organisations. One
of the most comprehensive projects is from Estonia, and it includes
a feasibility and impact study that provides specific information
for decision makers to determine whether this might be a good pilot
case in their country. A feasibility study on the potential introduction
of public SIB to strengthen the relationship between civil society
organisations and private investors on particular social issues
was led by the Estonian Ministry of Interior.
Note
6.9 Matching
migrant skills with job opportunities
72. Integration policies should
ideally take into account the unique profiles of immigrants and
their chances of integrating into local communities. In Sweden,
new immigrants are routinely advised of job opportunities in meetings
with the state employment office after receiving their residence
permit. Their placements are governed by agreements between municipalities
and the central government.
Note In Denmark, a subsidy was put in
place for municipalities that rewards local job placement agencies
for helping migrants find employment, matching their skills with
job opportunities.
Note
73. Job platforms with matching and wraparound services designed
for refugees based on their needs and experiences can streamline
access to decent work. Jobs4Ukr is one such example, offering comprehensive, accessible,
and trustworthy information to refugees, employers and service providers.
Note As well as providing the core function
of finding refugees jobs congruent with their skills and experience,
the platform constitutes an entry point for bringing together an
ensemble of actors engaged on refugee inclusion, ensuring a more
co-ordinated response, and facilitating the creation of new multi-stakeholder
partnerships for economic inclusion, particularly with the private
sector.
74. Working with employers and businesses through private sector
outreach programmes can help enhance refugees’ and migrants’ access
to decent employment opportunities. Specific guidance in this area
was developed by the UNHCR and the OECD.
Note
6.10 Effective
communication strategies, including welcoming programmes
75. The public's impression of
immigrants' integration may not match the facts. Integration policies
must have a communication component that encourages a fair and fact-based
approach while identifying and addressing the benefits and challenges
that migration can have for the host nation. New media channels
offer a variety of opportunities due to their ability to connect
with audiences that traditional media do not reach. But there are
other difficulties, like the spread of misleading information and
unfavourable stereotypes.
Note
76. The Spanish city of Sabadell has a welcoming programme in
place, as well as a related communication campaign that makes use
of photos, posters, press releases, and social media. Additionally,
the communication division is encouraged to emphasise diversity
as an advantage. The city closely monitors local social media and
other channels to see how they portray minorities or migrants. The
communication department contacts the concerned media to explain
the City Council's communication policy when local media portray
people from immigrant/minority origins in an unfavourable way. Additionally,
as part of its “Sabadell Antirumors” Strategy, the city has conducted
media training workshops on how to avoid negative stereotypes.
Note This was done to ensure respect
for refugees and migrants’ dignity in media, which is essential for
the success of any integration programme.
6.11 Enhance
public health support for vulnerable refugees and migrants
77. Availability of public health
support is an important issue. Refugees, especially children, that
fled high intensity conflict areas may need psychological support.
While the protection of the health of migrants and refugees has
so far been linked solely to the guarantee of basic physical care,
it is essential to recognise that mental health and psychological
support are equally essential. The World Health Organization's “Strategy
and Action Plan for the Health of Refugees and Migrants in the WHO
European Region” (2016) places improving the mental health of refugees
and migrants on the political agenda.
6.12 A
systemic approach: examples of national integration policies
6.12.1 Norway
78. I take this opportunity to
thank the Norwegian Authorities and the Norwegian Delegation to
the Assembly for their help in organising the fact-finding visit
to Norway, which allowed me to get further acquainted with the refugees’
integration programme. I saw how the programme works in practice
in the city of Bergen, which is also a member of the Council of
Europe Intercultural Cities Programme, and wanted to share this
experience, which I find extremely useful and interesting.
79. Under the 2021 Integration Act, which extended the 2003 Introduction
Act, adult immigrants between the ages of 18 and 55, settled by
an agreement between the municipality and the Directorate of Integration
and Diversity, undertake an Introduction Program.
Note Through this Program, lasting
between three months and four years, migrants can improve their
fluency in the Norwegian language and acquire skills to better adapt
to the job market and to Norwegian society. The programme can be
adjusted to the individual needs and goals, after an accurate examination
of the migrant’s background. In addition, parents must attend a
parental guidance course. The participants in the program receive
an Introduction benefit that amounts to twice the basic allowance
in the National Insurance Scheme.
80. Since 2022, an Interpretation Act requires public agencies
to make qualified interpreters available to provide assistance or
services to migrants.
81. The number of refugees who arrive through the national refugees
settlement programme to Bergen increased and will rise further.
In 2021, approximately 150 refugees (main nationalities: Syria,
Afghanistan, Eritrea, Democratic Republic of the Congo), settled
in Bergen. In 2022 (by 6 November), approximately 550 refugees settled
in (main nationalities: Ukraine, Syria), with more people to come
in 2023. By October 2022, approximately 300 participants were enrolled
for the Introduction Program; and approximately 900 participants
were enrolled for Norwegian language training.
82. The basic document that governs refugees’ integration policies
in Norway is the “The Integration Act”. The integration framework
includes several key measures, as follows: introduction program
and training in Norwegian and social studies; early integration
into Norwegian society; financial independence; good Norwegian skills;
knowledge of Norwegian social life; formal qualifications; and a
lasting connection to working life. Participation of refugees in
the programmes offered is highly encouraged and is often based on
a social contract they sign with public authorities. During the
first 3 months after settlement, refugees get the support they may
need in order to settle in the host country. This includes a «Start
benefit» (financial support), help to getting settled in an apartment,
mapping their competences, access to education and non-formal learning experience,
access to health services, etc. Their participation in the Introduction
Programme is planned, determining their specific goals and training
programme content.
83. The Introduction Programme is designed for refugees between
18 and 55 years old. They have the right and duty to participate.
The goal is to help them apply to work or further studies, based
on their qualifications. The goals are defined for each individual,
based on interviews and mapping of education and experience, interests
and plans for their life in Norway. The full-time programme amounts
to 37,5 hours per week, 47 weeks per year. The duration and elements
of the program are individually adapted according to the persons’
goals and background. The goals vary according to the target group:
- If the person has minimum secondary
education, the goal is for him/her to get higher education and access
to work. The programme lasts for 6 months with a possible extension
for 6 months.
- If the person has no secondary education, the goal is
to complete secondary education. The programme lasts for 3 years,
with a possible extension for 1 year.
- As regards other categories, the goals may vary from access
to work, primary education, part of secondary education, etc. The
programme lasts for 2 years, with a possible extension for 1 year.
84. The Norwegian Agency for Quality Assurance in Education is
in charge of recognising foreign education and training. Employers
and recruitment agencies can also take advantage of a free of charge
and fast-track procedure for the assessment of foreign qualifications.
The Agency also offers an interview-based recognition procedure
for refugees and displaced persons without any documentation of
their education and training. Furthermore, refugees are given priority
enrolment in bridging courses, which allow individuals with a professional
qualification to practice in Norway.
85. Mandatory elements of the Introduction Program include learning
of Norwegian language, social science, life skills in a new country,
parental guiding, and work or education-oriented elements (different
job courses, such as health worker, bus driver, hotel, furniture
manufacturing). There are programmes that allow for a combination
of Norwegian language training and job training (formal education,
part time or full time). The target group for Norwegian language
training and social science includes refugees (part of the Introduction Program),
reunited families, and work immigrants. There are different levels,
from basic skills to university level with daytime, evening time
or internet-based courses.
86. Access to employment being the ultimate goal for the majority
of adult refugees, the “Straight to work”
Note programme that was implemented in
the municipality of Øygarden proved extremely interesting as it empowered
refugees, giving them the opportunity to take full responsibility
for their employment from the start.
6.12.2 Sweden
87. Sweden ranks first in the 2020
Migrant Integration Policy Index among 26 countries. The heart of
the Swedish integration policies is the Establishment Programme,
run by the Public Employment Service and aimed at making newly arrived
migrants self-sufficient as quickly as possible.
Note As soon as migrants between 18 and
64 years old obtain a residence, they follow an “Introduction Plan”
for their education and professional development, providing them
with language training and courses on Swedish society, vocational
training and work experience. During the 24-month program, they
receive a variable introduction benefit to cover their living costs.
The attendance of these activities is mandatory, under penalty of
the loss of the subsidy.
Note Since 2021, some of the newly arrived
in Sweden can participate in an Intensive Year programme whose goal
is to further speed up migrants’ access to the job market.
Note
88. Beneficiaries of international protection are fully entitled
to access the Swedish education system.
Note Targeted
programmes reach immigrant pupils, addressing their needs and ensuring
them equal opportunities.
Note Furthermore, The Swedish Council
for Higher Education can evaluate foreign qualifications so as to
provide support for people looking for work in Sweden, people who
wish to continue studying, or employers who wish to hire someone
with foreign qualifications.
Note Information is available in several languages.
Some universities also offer fast track courses for those already
possessing higher education degrees. Authorities at national and
regional levels devised some initiatives to fast-track foreign-born entrepreneurs
in order to support them in quickly establishing their own business.
Note
89. Both regular migrants and undocumented migrants have access
to the healthcare system as much as Swedish citizens. During the
last years, Swedish Child Health Services worked on improving the
cultural competence of its nurses, enabling them to deal properly
with migrant children; it has also taken steps to provide migrant
parents with a special support in educating their children.
Note In addition, migrants’ access to services
is facilitated through a host of tools, including interpretation.
Note They are also part of the Swedish pension
scheme. Finally, the Migration Agency has the duty to find suitable
accommodations for those hosted in its facilities.
6.12.3 Finland
90. In 2021, 8,5 % of Finnish population
had a foreign background, far less than in other countries of the region.
This figure is the result of recent waves of immigration, with the
country that until the 1990s had not hosted any large group of immigrants.
Russians and Estonians who arrived in Finland after the fall of
the Soviet Union still represent the two largest groups, although
in recent years significant arrivals of migrants from non-European
countries were registered.
Note Despite this recent history of migration,
thanks to its integration policies Finland ranks 2nd in the 2020
MIPEX index with an increase in the overall score since 2014.
91. The legal basis for the management of integration in Finland
is the 2010 Act on the Promotion of Immigrant Integration. It is
centred on the assessment of migrants’ starting skills, preparation
of an individualised integration plan and organisation of training
courses. These courses include lessons on Finnish or Swedish language,
communication, society, culture, labour and market skills. However,
unlike in other Nordic countries, immigrants are entitled to the
assessment and the integration plan only if they are unemployed
job seekers or if they are under 18 years old without a guardian
in Finland. In addition, their first residence permit cannot date
back to more than 3 years. 3 years is also the standard length of
the integration plan, which can be extended up to five years.
Note
92. Even though the Ministry of Economic Affairs and Employment
is competent for the development of integration policies, local
municipalities are in charge of their concrete implementation.
Note Within the Ministry, a Centre of
Expertise in Immigrant Integration raises awareness of Finnish integration
policies. It also deals with the training of young practitioners
in the field of integration.
93. The Finnish National Board of Education is usually competent
for recognising and validating in Finland qualifications obtained
abroad. The process requires the payment of some fees and can lead
to the recommendation of supplementary training for getting the
equivalent Finnish degree. Finland’s education policies provide
migrants’ children with additional linguistic, academic and social
support throughout their schooling.
Note
94. Among the other policies implemented to encourage migrants’
integration, one can mention the Startup Refugees, an initiative
designed to assist migrants in finding an employment, through a
matching platform, and starting a business.
Note Moreover, Finnish institutions try
to address the needs of refugees and unaccompanied minor migrants
for health care including mental care. To this end, the PALOMA Center
of Expertise in Refugee Mental Health Work offers assistance to
all professionals and organisations committed to working on refugees’ mental
health.
Note
6.13 Pan-European co-operation
95. On 19 September 2022, Ms Daskalaki
underscored the importance of international partnerships. According
to her, integration plans should consider the specific historical
framework of the given destination. She described the Greek Migrant
Integration Centre’s new holistic approach. The specialised services
offered included provision of information, psychological support,
legal advice, submission of applications for social benefits, networking,
social inclusion actions for adults, intercultural activities and
preparatory courses to apply for citizenship. The migrant centre
of Athens receives on average 60 to 80 persons daily coming there
for information. Classes of Greek, English, IT and support for citizenship
exam are attended by about 30 people. In addition, she mentioned
the MULTAKA project, a German programme where museums educate people
of migrant origin to become multicultural guides. Recently it was
implemented in Athens as well. Through this programme, migrants
contribute with their own culture, experience, and opinions. Ms
Daskalaki’s concrete policy proposals were: enhancing the participation
of cities in the decision-making process at national and EU levels,
granting more immediate access to EU funding to the cities, direct
consultation of the EU Commission with cities and/or regions. There
is a need for clarity and transparency on what Europe can offer
and wishes to receive, understanding and analysing migration as
a multifaceted issue. There is a need for a common framework of
integration indicators for evidence-based policy making, hearing
all voices and agreeing on a common agenda of priorities.
96. The fact-finding
Note mission
to Norway was an eye opener and clearly demonstrated the fact that successful
integration benefits the whole society, maximising the advantages
for all parties involved in that process. It also showed that when
there is a will, there is a way. All we need is political will.
97. The visit to Norway was based on the work carried out in the
framework of the Council of Europe’s Intercultural Cities Programme.
This programme “supports cities and regions in reviewing and adapting
their policies through an intercultural lens, and developing comprehensive
intercultural strategies to manage diversity as an advantage for
the whole society”.
Note Moreover, the Assembly should promote
cooperation with the Congress of Local and Regional Authorities
of the Council of Europe in the implementation by the Congress of
the Cities4Cities initiative – a new matchmaking platform launched
to support Ukrainian local and regional authorities.
7 Conclusions
98. Through this report, I intended
to focus on successful examples of integration while pointing out
existing shortcomings and their hugely negative consequences for
individuals as well as member States. Parliaments typically review
national progress in social development and integration of migrants
and refugees and adopt relevant measures. At the level of the Assembly,
a European review should lead to better political awareness and
enable setting priorities for Council of Europe action.
99. Europe had demonstrated its capacity to integrate refugees
and migrants in modern history, but more can be done to promote
integration of refugees and migrants based on the respect for the
rights and dignity of every individual. In that respect, States
should take into consideration, when devising public policies for refugees
and migrants’ integration, the recommendations put forward by the
Council of Europe Commissioner for Human Rights in the issue paper
“
Time
for Europe to get migrant integration right” (2016).
100. In the draft resolution, various measures that could improve
the capacity of host countries to integrate people arriving from
different countries are listed. Integration is a long-term investment
in human capital. The ultimate aim is inclusion or an inclusive
participation from both sides, which implies that all members of
the society have the opportunity to participate in social, cultural
and political life, encouraging a sense of togetherness. Positive
involvement of refugees and migrants, following quality integration
processes, can contribute to making European societies more dynamic,
more resilient, and more cohesive.
