B Explanatory memorandum
by Ms Kate Osamor, rapporteur
1 Introduction
1. In November 2022, the Committee
on Migration, Refugees and Displaced Persons was seized for a report
based on the motion for a resolution put forward by Mr Pierre-Alain
Fridez (Switzerland, SOC) entitled “Immigration, one of the answers
to Europe's demographic ageing”. I was appointed rapporteur on 15
March 2023. To enhance the discussion surrounding immigration as
one of the answers to European demographic ageing, I have conducted
consultations with several grassroots organisations operating within
Council of Europe member States to gather valuable insights and
good practices that have been implemented in different Council of
Europe member States
Note.
Furthermore, on 19 March 2024, the Committee on Migration, Refugees and
Displaced persons held an exchange of views with Mr Zakaria Ibrahim,
cultural mediator of EUROCOOP Servizi “Jungi Mundu”, Italy (online),
Ms Dragana Curovic, project manager at SällBo, Sweden, and Ms Giulia Cortellesi,
co-director at International Child Development Initiatives (ICDI),
Netherlands.
2. Migration pressure has become a key issue for our continent.
Faced with an unprecedented arrival of migrants since 2015, Europe
has great difficulty in facing this challenge in a united and responsible
manner. European solidarity has shown its limits and many countries
have refused to contribute to the common effort in this area. The
very definition of the right to asylum is being questioned by some
countries. Some talk of “Fortress Europe”. And we may not have seen
anything yet, as suggested by the consequences of the climate crisis
looming ahead.
3. Migration, however, may well be an opportunity for Europe,
an ageing continent with several of its countries depopulating.
This phenomenon finds its causes in the increasing life expectancy
thanks to medical progress and improved living conditions, coupled
with declining birth rates on the continent, as a whole.
4. The age pyramid in several countries shows a worrying reduction
in the youth and working age cohorts, as opposed to the exponential
growth of the number of retirees, many of whom are now reaching
the fourth age, which is often associated with dependency.
Note
5. As demonstrated by Eurostat’s statistics, in Europe the share
of population aged 65 and over is constantly increasing, while the
share of population aged 15-24 and 25-64 is decreasing.
Note Demographic ageing will
have profound implications, not only for individuals, but also for
public services, business and civil society, impacting, among others:
health and social care systems, labour markets, public finances
and pension entitlements. Demographic indicators that describe the
latest developments for an ageing Europe show that, in the timespan
of 50 years, the old-age dependency ratio is projected to more than
double.
6. The old age dependency ratio may be used to study the level
of support that can potentially be given to older people by the
working-age population (people aged 20-64 years). This ratio expresses
the relative size of the older part of the population compared with
the working-age population. The old age dependency ratio for the
EU-27 was 25.9% in 2001. As such, there were slightly fewer than
four persons of working age for every person aged 65 years or more.
By 2019, the old age dependency ratio was 34.1%, in other words,
there were fewer than three persons of working age for every older
person. Population projections suggest that the EU-27 old age dependency
ratio will continue to climb and will reach 56.7% by 2050, when
there will be fewer than two persons of working age for each older
person.
Note
7. In 2012 already, the Parliamentary Assembly noted in
Resolution 1864 (2012) “Demographic trends in Europe: turning challenge into
opportunities” that in 2050, people aged 60 and over are expected
to make up one third of Europe’s population, and highlighted that
Europe is going to face a “double ageing” phenomenon as the share
of the population aged 75 and over will also be greatly increasing”.
Note
8. This demographic ageing trend determines an increase in the
age dependency ratio and impacts the economy, the social structure,
and the well-being of ageing societies.
Note It
triggers an important slowdown of economic growth and raises concerns
over the financing of social security and pension scheme systems.
Note It
is likely to impact investment and public budget, exacerbate labour
shortages, and affect productivity and entrepreneurial activity.
In addition, it has implications in health care, urban planning,
housing, and transport schemes, hence requiring age-friendly adjustments
to enable people of all ages to lead healthy and fulfilling lives.
Note
9. As rapporteur Domagoj Hajduković (Croatia, SOC) pointed out
in his 2021 report entitled “Integration of migrants and refugees:
benefits for all parties involved”,
Note increasing immigration could represent
an opportunity to tackle these structural challenges. Moreover,
immigration can also be perceived as a sound and sustainable solution
to concrete, practical needs induced by demographic ageing. States
should, therefore, take concrete steps to implement the Assembly
Resolution 2502 (2023) “Integration of migrants and refugees: benefits for
all parties involved”.
10. What will be the future of demographics in Europe? Who will
take care of our elderly? Who will keep society running? What can
States do to cover the shortages of personnel in various sectors?
The answer, at least in part, may lie with work force from elsewhere.
11. This report aims to draw up an analysis of the demographic
situation in Europe, globally but also regionally, as well as to
explore innovative solutions towards the opening of legal and safe
mobility channels articulated around reception policies and respect
for the common norms and values that unite Council of Europe member
States.
2 Practical challenges of demographic
ageing in economic and social terms
2.1 Demographic
data
12. To begin with a brief overview
of current demographic dynamics, according to the World Health Organization
(WHO), Europe has one of the highest shares of the population aged
60 and older in the world, and it is expected to continue to grow
rapidly in the coming decades.
Note More specifically,
according to a report released by the European Commission in October
2023, the European Union’s population is projected to reach its
peak around 2026 and then gradually decrease, with a dependency
ratio expected to rise from 33% today to 60% by the end of the century.
Note
13. In particular, a historic shift is about to occur in Europe
by 2024. That is, the number of older individuals aged over 65 will
outnumber younger individuals aged under 15 across the 53 countries
of the WHO European Region, according to the WHO projections.
Note
14. The population decline is sharper in some countries than in
others. To illustrate this, according to United Nations predictions,
Germany's population is expected to drop from 84 million to 74 million
by 2050, while Italy's population will decrease from 60 million
to 51 million.
Note Greece
is the EU member State with the fastest ageing population, and,
together with Italy, Portugal, and Spain, will experience major
demographic shifts, with more than seven people aged over 65 for
every ten people between the ages of 20 and 64 by 2050.
Note
15. This reflects a major global trend. Notably, while the population
ageing trend started in high-income countries, it is now low- and
middle-income countries that are witnessing the most significant
shifts. By 2050, the global population of people aged 60 or older
is expected to double, with those aged 80 or older tripling, with 2/3
of those over 60 expected to live in these countries.
Note
16. This data shows how the achievement of broad social and economic
progress over the past decades has turned into a challenge due to
the widespread decline in both mortality and fertility rates, with
significant economic and social implications.
2.2 Macroeconomic
and social structural challenges
17. An ageing population reveals
a decline in its working-age cohorts. Labour shortages are at unprecedented
levels in the European Union already now. As highlighted by a 2023
European Commission Communication, about 30% of all firms in the
European Union report labour shortages, with SMEs reporting 74%.
Note These
shortages affect different sectors and concern all skill levels.
There is high demand in STEM skills (science, technology, engineering,
mathematics), ICT (information and communications technology), construction,
care, and transportation (notably truck and coach drivers) across
multiple member States and regions.
Note
18. Fewer children being born also implies a smaller labour force
in the future, suggesting long-term effects on economic growth and
sustainability. The European Commission has recently projected that
the European Union will lose 57,4 million working-aged people by
2100.
Note Among
the implications, the decline in working-age population exerts downward
pressure on revenues from personal income taxes and social security contributions.
Note
19. An ageing population reveals an increase in the elderly cohorts.
Notably, as older individuals require more healthcare resources,
the demand for medical services grows as life expectancy increases.
This results in rising spending on healthcare – especially long-term
care – and pensions. Such an expenditure is projected to increase
in the European Union from 24,6% of GDP in 2019 to almost 27% in
2040.
Note
20. Combining the two trends, fewer working-age people supporting
a growing elderly population places a strain on social welfare systems
and pensions, increasing overall pressure on public budgets.
21. The effects of these dynamics overlap at the regional level
too. The need to fill labour shortages in some countries may foster
a brain drain in others, exacerbating further shortages in countries
of origin. A example of this fallout concerns Albania, which, already
having the lowest number of doctors and nurses
per capita in Europe, has tried
to prevent doctors and nurses from leaving for other countries in
need of workforce, such as Germany.
Note The
case of Poland provides a further example. Poland faces one of the
most severe shortages of care workers in the European Union. Due
to an ageing population together with inadequate care infrastructure,
Poland, a historic supplier of overseas healthcare workers, has
become a country that relies on migrant healthcare workers, the
majority of whom are Ukrainian.
Note
22. By taking a deeper look into healthcare, the healthcare workforce
and caregiver occupations are already among the most scarce in Europe.
Note Ireland,
Czechia and Italy, already fall below the threshold set by the International
Labour Organization (ILO) for adequacy of service delivery.
Note The ratio of
elderly persons per care provider is already too high and is likely
to increase in the future if policy changes are not set up.
Note The
situation is even more worrying for older persons living in rural
areas, where access to care services is already generally inadequate.
Note
23. In the coming decades, not only the demand for long-term care
is expected to grow, but also the supply of both informal and formal
long-term care workers is expected to shrink. To maintain the current
ratio across OECD member countries, it would be necessary to add
13.5 million care workers by 2040.
Note Notably,
in Europe, countries such as Luxembourg, Ireland, and France, would
require an 80% or more increase in the workforce over 2016 levels.
Note
24. Alongside the structural economic and social needs related
to population ageing, it is paramount to also consider the specific
needs experienced by the growing social group of the elderly, at
the individual as well as collective levels, to ensure their rights
to dignity and healthy ageing.
Note
2.3 Specific
care-related challenges
25. As people are getting older,
they are more likely to suffer from chronic diseases, and/or to
develop some medical conditions, due to their increased frailty,
also facing greater risks of dependency. Besides physical health,
elderly people may also develop cognitive impairments such as aggregated
cognitive decline, dementia, Alzheimer's disease, etc.
26. These conditions present significant challenges in the daily
lives of older people, as they can prevent them from carrying out
activities of daily living. Therefore, as people age, beside facing
enhanced healthcare needs, they also require daily support to ensure
they meet their basic needs.
Note
27. Physical and cognitive impairments also reduce mobility, resulting
in increased vulnerability and, often, social isolation. The help
of social care workers might be of vital importance to meet daily
transport needs of older dependent people and ensure a minimum of
socialisation, which, alongside healthcare, improves the emotional
well-being of the elderly.
28. Numerous studies now belonging to a specific scientific field,
namely, the economics of happiness, find that social relations improve
people’s both physical and cognitive well-being. Loneliness and
social isolation, to the contrary, have been associated with increased
risks of dementia and premature deaths.
Note
29. To address these age-related health and social challenges,
older people may need to rely on specific assistance, and may consider
moving to a nursing home or seekinh support from home caregivers.
Family and relatives-based solutions, where possible, present limits,
not only because they may have a negative impact on the family member’s
personal life by reducing the time available for other activities,
but also because the dependent elderly’s condition may call for
some specific support requiring professional assistance. In addition, isolated
older people may not have relatives who can provide the support
they need. It is therefore vital to support the well-being and healthy
ageing of the older population to ensure that they have access to
adequate care services.
2.4 Urban-rural
dichotomy specific challenges
30. The living environment is also
a key factor in the safe and healthy ageing of the population. If
urban areas are generally attractive for all age categories and
offer many socialisation opportunities for elders, they are also
a source of challenges, among which health issues (for example related
to high pollution levels) and material issues, in particular the
ability of people to afford to live in cities.
Note
31. Meanwhile, rural areas face different challenges, often including
severe difficulties in accessing basic services, with people being
forced to travel long distances to reach generic facilities, including
healthcare, also contributing to increase social isolation and loneliness.
Note For
the elderly, access to services is even more challenging, due to
their psychomotor and household conditions. Compared to the non-elderly
population, they face slightly higher average distances.
Note
32. Due to population ageing, rural areas are the ones experiencing
a tougher population decline, with acute labour shortages, which
can culminate in the abandonment of entire villages. People, often
the youth and working-age groups, tend to emigrate to urban and
industrialised centres in search of better opportunities for work,
education, and training. Such a population decline has been particularly
severe in some Eastern EU member States.
Note Overall, in the European Union,
rural areas have lost more than 5 million people since the 1960s,
and the trend for the future is expected to further deteriorate,
with an increasing old age dependency ratio in remote areas. Bulgaria,
Spain, Romania, Cyprus, and Austria are projected to experience
the worst-case depopulation scenario by 2050.
Note In this
regard, the Serbian Government has voiced alarm, warning that every
year the Balkans lose a city.
Note
33. Another reverse phenomenon sees adult people emigrating from
cities before they reach older age, so they can retire in quiet
and human-scale places. In the United Kingdom, a large proportion
of older adults tend to move to rural, semi-rural, and coastal areas
in the periphery. As many of these areas are often lacking healthcare
and transport services and infrastructure, including housing, people
who have settled in these areas in later life often lack the social
support networks they need.
Note
34. These two phenomena make ageing in rural areas growing more
rapidly compared to urban centres.
3 Contribution
of refugee and migrant communities in addressing elderly people’s
societal needs
3.1 The
economic impact of migrant integration
35. Coping with demographic challenges
would require targeted policies at the household level, promoting more
work/life balance, and at the territorial and societal levels, enabling
youth to fully contribute to society and the economy in a dignified
way, and supporting healthy and active ageing. The European Union
has already developed a set of policy tools to manage demographic
change and its impacts.
Note
36. Complementing these efforts, labour mobility appears to be
an effective policy tool to address the demographic crisis, going
beyond unpopular policies such as raising the retirement age or
labour taxes. Promoting legal migration and ensuring the effective
integration of third country nationals can be instrumental in easing
labour market pressures, also fostering innovation and well-being.
37. While rich countries age and struggle to fill vacancies in
key sectors of the economy, other countries face challenges in providing
economic opportunities to their citizens. For example, the working-age
population in Sub-Saharan Africa is projected to grow by another
2 billion.
38. Migration implies costs and benefits for both origin and destination
countries. However, as highlighted in the World Bank 2023 report,
when the skills of migrants strongly match destination countries’
needs, then destination countries gain significantly, especially
when migrants work in the formal market at their qualification level.
Note However, this is not always
the case as migrants, especially in the informal market, are often
employed in underqualified occupations. The costs associated with
receiving immigrants and related to the use of public services,
the support provided to negatively affected nationals, and social
integration, are far fewer than the benefits.
Note
39. Looking at data, in 2022, the European Union received 3 million
migrant workers through legal pathways, which represents a significant
boost to its workforce, compared to 300 000 who arrived irregularly.
Note By
taking part in the regular labour market, migrants pay taxes and
national insurance contributions that contribute to public revenue.
Migrants contributing to social security schemes during their working
lives, not only allow them to access their pensions but also make
them contribute to the pension funds’ income for the benefit of
all retirees, particularly natives. Moreover, as average migrants
have lower elderly dependency ratios than natives, they also help
alleviate the challenges posed by the pension system.
3.2 The
multidimensional impact of migrant integration in the care sector
40. Immigration can be one means
through which Europe could fulfil its current and future labour
shortages in care provision occupations, thereby decreasing the
caregiver support ratio. According to the OECD, foreign-born workers
already make up around 20% of the current caregiver workforce. However,
given the presence of large informal and home-based care provision,
this data is likely to be an understatement.
Note In general, most foreign-born
long-term care workers immigrated through non-economic channels,
including family reunification, student visas, general migration
routes for non-specialised workers, and international protection.
Note
41. Covid-19 has shown the reliance of many countries on precarious
and irregular foreign workers, notably in the elderly care sector.
Indeed, in countries where migrants made up most caregivers, special
policies had to be put in place to guarantee continuity of provision.
Note For instance,
Austria arranged specific transfers for migrant care workers, while
Italy granted temporary legal status to domestic and care workers.
Note
42. In the care sector, distinct migratory patterns together with
some specific migration chains have emerged in Europe.
Note High-income
EU countries tend to rely on workers coming from lower-income eastern
European countries like Romania, Poland, and Bulgaria. Ukrainian
and Belarusian care workers entered the informal economy in Poland
to fill the gaps left by Polish workers who moved to Germany and
the United Kingdom to work in the formal economy.
Note On
the other hand, some countries of origin, notably the Philippines,
have opted to specialise in supplying healthcare professionals to
overseas destinations. Many migrants coming to Europe, in fact,
received healthcare or home care training.
Note
43. By increasing the size of the workforce and bringing potentially
new skills and methods, immigration help to ensure higher safety
of the dependent elderly (through the reduction of patient per care
provider ratio), and to improve the quality of the care services
provided in nursing homes or by “at home”-aides.
Note Several
case studies suggest that immigrant labour is associated with a
positive effect on patient outcomes, such as fewer falls, less usage
of restraints, and fewer injuries.
Note Moreover,
immigration fosters the opportunity for elderly and disabled people
to maintain their independence, since in places with higher immigrant
populations, natives are more likely to age in their own homes rather
than residing in institutional settings such as nursing homes.
Note
44. Other studies found evidence of a positive impact of immigration
on the mental health of older natives through social connections,
as well as on subjective well-being and depression.
Note Social
integration benefits as well, with increased institutional connections
and social participation. On the other side, working in local communities
helps migrants to build relationships and feel valued.
3.3 Social
and cultural benefits of labour immigration: the gender perspective
45. Labour immigration can bring
about a multitude of social and cultural benefits too. For example, migration
can empower women by increasing their agency, autonomy, and resilience
and lead to the re-formulation of gender roles, both in destination
and countries of origin, hence fostering overall social cohesion and
contributing to more inclusive societies.
Note
46. In recent decades there has been a feminisation of labour
migration, with women migrating alone in search of opportunities.
Note Women
migrant workers constitute approximately 20% of the female labour
force in Northern, Southern and Western Europe. Furthermore, the
labour force participation of women is higher for migrants as compared
to non-migrants. According to ILO figures, Northern, Southern and
Western Europe is the region that hosts the largest number of women
migrants, and their labour force participation rate was at 68.8%
in 2019. In the same year, in that region, the share of women surpassed
men among migrant workers.
Note
47. Female labour migration tends to be concentrated in services
sectors, and especially in the care industry, including health and
domestic work (for example includes nursing, elderly and childcare,
cleaning, and other related work in households). This type of work,
called reproductive labour, counts in a predominantly female labour
force being traditionally associated with specific gender roles,
and is typically undervalued, undercompensated, and with little
social protection.
Note
48. Women migrant workers present several intersectional vulnerabilities.
Indeed, in addition to facing the economic and non-economic barriers
as migrants, they are also exposed to gender discrimination in the
labour market. This may push them to the informal labour market
and calls for gender-responsive policies. In recognising migration
as a key aspect of development, the UN 2030 Sustainable Development
Agenda urges governments to “Protect labour rights and promote safe
and secure working environments for all workers, including migrant
workers, in particular women migrants, and those in precarious employment.”
(target 8.8).
3.4 The
impact of migrant contributions in urban-rural communities
49. Particularly in rural areas,
immigration might be a key source of sustainable development, sometimes essential
to ensure even the survival of rural communities, given the ongoing
depopulation process. Immigration in remote areas contributes to
covering the demand for labour, maintaining basic services (such as
education, health, and food facilities), and preserving the population
level. In short, it essentially contributes to boosting the economic
and social life of small municipalities.
50. In urban areas both youth and elderly individuals often experience
social isolation, with a general lack of social relations and social
support networks, both formal and informal, including childcare
facilities, and exclusion from the labour market, which can be detrimental
to their overall well-being and quality of life. Rethinking the
urban organisation, including migrants’ integration, is fundamental
to overcoming these challenges.
4 Creating
social bridges between migrants and ageing societies: good practices
51. Governments can adopt a wide
range of measures and policies at the international, national, and
local levels to address demographic ageing. Countries need to build
a ‘longevity society’, which aims to promote healthy ageing and
to exploit the advantages of longer quality lives.
Note It requires a cultural shift, investments in
research, and the development of social policies that empower older
citizens towards a more inclusive, healthy, and prosperous society
for all generations.
52. In doing so, it is important to focus on promoting the integration
of migrants, especially considering the significant and increasing
role that regular immigration will have in future ageing societies.
Note Indeed, immigration’s positive
impact on local and national labour markets and the social life
of ageing societies is highly dependent on the policies implemented
to facilitate migrants’ proper integration within host countries, i.e.,
through language training, access to education, employment opportunities,
adequate housing, and social welfare. Adequate immigration policies
must be implemented as well and should seek to guarantee the regular entry
of migrants. For example, policies to attract high-skilled migrants
should be developed in order to enhance Europe’s capacity to meet
future challenges. The implementation of the EU Blue Card -- a work
and residence permit for non-EU/EEA nationals that provide comprehensive
socio-economic rights and a path towards permanent residence and
EU citizenship -- should be supported.
Note Failure to address migrants' integration
needs might lead to negative outcomes, including social tension,
cultural clashes, and economic disparities, with a decline in overall
wellbeing for all.
53. Policies aiming at undermining bias and discrimination against
migrants, and promoting social cohesion can be implemented by host
countries.
Note With
regard to building bridges between migrants and elderly in local communities,
some European countries already set up community-based initiatives
such as intergenerational programs bringing together young migrants
with locals, especially the elderly, to promote interaction amongst generations
and cultural exchange (for example the “Migrantour” initiative,
operating hand in hand with local partners, that encourage dialogues,
as well as exchanges of culture and perspectives through migrants-led guided
tours of cities).
Note
54. Alongside governmental policies, civil society initiatives
also play a prominent role in connecting migrants and local communities,
including the elderly (for example, the Neighbours for Newcomers
program, launched by the charity RESET, which connects local volunteers
with skilled healthcare migrant workers, as they start their new
life in communities across the UK). Such initiatives should be further
encouraged and upheld, including by public funding, to further enhance
intergenerational and intercultural exchanges, benefitting both
the elderly (increased socialisation) and foreign newcomers (better
inclusion and integration into local communities).
4.1 Rural
transformation: combating ageing and socioeconomic isolation through
immigration
55. The consultations with civil
society organisations have shed light, first of all, on the significant contribution
of immigration in addressing the challenges faced by depopulating
rural areas. This is particularly evident in villages located in
central inland Spain and in the South of Italy, as well as in the
rural, semi-rural, and coastal areas of the UK, succumbing to ageing,
isolation, and depopulation.
56. Many of these communities have been revitalized through the
successful welcoming, reception, and integration of migrants. Some
organisations stated that without immigration, they would have been
on the brink of extinction, but the influx of migrants has brought
them back to life, together with significant social development
and economic growth. Rural municipalities provide work and housing
for families in need, which in return help to cover the demand for
labour, maintain services and preserve population levels in these
areas.
57. To address continuous depopulation ongoing for decades in
the Spanish region known as “La España vaciada”, namely, “the hollowed-out
Spain”, the NGO Asociación Pueblos con Futuro is actively connecting villages
with less than 500 residents with families in need, many of whom
are migrants and refugees in search of a new life.
Note These families play a crucial role in sustaining
the villages by providing vital labour and maintaining local bars,
social centres, and other municipal facilities open, as well as
filling vacancies in elderly care both in private homes and nursing
homes.
58. The Jungi Mundu project prevented the extinction of an ageing
Italian village, Camini.
Note A successful program of
welcoming, reception, and integration of refugees with international
protection was carried out by the EUROCOOP Social Cooperative Society,
in collaboration with the municipality and local governments. This ground-breaking
initiative has brought about a positive transformation in the entire
village, revitalising it with new residents from other parts of
the world.
59. In Camini, the youth used to emigrate to the more industrialised
North – a historical pattern in Italy, leaving the elderly alone.
The elderly, being usually owners of shops and land, could not find
employees, and therefore everything was doomed to ruin, but since
the gradual welcoming of refugees, most of the population is now
made of young and working people. There are more education and transportation
services, and new circular economic and social activities, including
shops, labs, and workshops to learn new jobs that target both refugees
and locals, making the programme sustainable.
60. On 19 March 2024, the Committee on Migration, Refugees and
Displaced Persons held and exchange of views with Mr Zakaria Ibrahim,
a former refugee from Syria, who lived in the village of Camini
and served as cultural mediator of EUROCOOP Servizi “Jungi Mundu”.
He noted that from 1991 until 2011 the population of Camini decreased
dramatically by almost 27%, from 620 to 450 people. Young people
left to bigger cities and elderly people stayed. Provision of services
discontinued, given that the working age population left the village. The
authorities accepted to start welcoming migrants, who arrived in
small groups of 10-15 people, reaching about 120 people in total.
Service provision started improving with the arrival of families
with children. The village that risked having to close its school
(with only seven kids in the elementary school) had seen a considerable
change with more than 80 children going to school in the past two
years. The school has about 20 teachers now and is fully functioning.
The other problems that the people living in Camini saw was the
lack of labour force in the local farming communities. Many farmers
were getting older, and the village needed more people to work on
farms. Another example of positive changes is the various workshops
that were created, such as the pottery workshop and the musical
instruments workshop, where migrants’ experience and contribution
are quite appreciated.
61. Co-operation between the migrants and host community works
well. The Jungi Mundu co-operative is now counting about 60 workshops
and small companies. Businesses that were once about to close were revived
and the whole village got refreshed and became more dynamic. The
are also opportunities to meet and discuss things at local small
restaurants and a variety of trade fairs or cultural events in the
area. Finally, given that the village is more dynamic and offers
now new employment opportunities, the young Italian people who were
once gone in search for a better living in cities, came back to
Camini and the surrounding villages, which was highly appreciated
by the locals. The young migrants that arrived are studying the
Italian language and this allows them to communicate better, including
with the elderly Italians who do not communicate in English, a language
which is often spoken by the arriving migrants and refugees. The
revival of the village can also be seen in the restauration of once
abandoned houses. Almost 40% of houses in Camini needed to be restored. This
work has been taken care of by the local community with the participation
of the migrants. One of the projects consisted in refurbishing places
for social housing and, possibly, hotels for tourists. The village
and the surrounding area have been transformed into a multicultural
town. Mr Ibrahim concluded by stressing that immigrants were not
a problem, that they could be a solution for many problems that
the ageing population in Europe was confronted with.
62. Another good practice refers to a network of rural communities
in Southern Italy (Piccoli Comuni del Welcome) that has used the
Ministry of the Interior funds for the reception and integration
of asylum seekers to match the needs of the local population and
those of migrants.
Note
63. In these small towns, those over 70 years old used to be the
larger group. In the general lack of welfare services, community
co-operatives have been created to meet the needs especially of
the elderly. This represents a new paradigm shift, with a welfare
State becoming a welcoming State, ensuring the provision of welfare
to citizens. Several small and medium enterprises have been created,
run both by migrants and locals, with the first effect being the
reduction of young natives’ emigration to urban areas. New activities
have been implemented in different sectors such as agriculture,
skilled trades, tourism, and hospitality, improving living conditions
for everyone. One of the results was
the building up of circular, mutual help between the elderly and migrants,
showing a good example of social cohesion. In particular, the elderly
helped take care of migrants’ children.
64. Community Catalysts, a social enterprise operating in the
United Kingdom, is dedicated to facilitating the engagement of individuals
in care and support services fostering strong and inclusive communities.
Its initiatives have been particularly beneficial for immigrants
seeking employment in the traditional job market, as they often
felt overlooked or discriminated against. The organisation aims
at empowering individuals to use their talents to set up community
enterprises.
65. One successful case study involves the Borough of Wrexham,
in North Wales, where the local authority commissioned the social
enterprise to help meet the increasing demand for home care and
fill gaps in services. The area, which has seen an increase in the
number of people aged 65 and over in the last decade, includes remote
villages, and the only care agency providing support ceased operating
there because it was not financially viable. Dozens of micro-enterprises
have been set up, providing care for many people and creating local
jobs, 10% of which are run by refugees or migrants, including a
Ukrainian couple who set up a cleaning business, thus earning a
living while contributing to the local economy and providing much-needed
support for older people.
66. Based on these experiences, one can underscore that refugees
can truly be an asset, even though, compared to other categories
of migrants, refugees may initially represent a cost for the host
country, as noted by the World Bank 2023 report: as refugees move
for safety, they are not always able to reach destinations where
their skills are in demand, and prolonged refugee situations can
result in a financial and social burden for host countries that
requires sustainable management.
Note Host countries can lessen
their expenses by implementing policies that foster internal mobility,
self-reliance, and integration into national services. International
co-operation through responsibility sharing is crucial for managing
these costs and demands complementing global efforts with regional
action.
67. These integration initiatives actively work towards resolving
crucial challenges faced by rural and remote areas due to their
ageing population, including social isolation, loneliness, and inequalities,
as highlighted by the studies mentioned previously. They aim to
build care capacity, facilitate the creation of local employment opportunities,
and support the healthcare system in managing the demands arising
from an ageing population. One significant outcome that emerge from
the welcoming and integration of third-country nationals, including resettled
refugees, is the restoration of essential services. Additional infrastructure
has been developed, greatly improving the quality of life of all
residents. The arrival of migrants had a positive impact on the population
size, benefiting local businesses and those facilities that depend
on regular attendance, such as doctor's offices, grocery stores,
schools, and transportation lines.
68. In terms of employment, in North Wales, another consideration
requires attention. Immigrants are often employed in positions that
have become less common for locals, such as shepherding. This trend
is the result of a broader issue, partly due to a lack of interest
among locals for these types of jobs, which are viewed as undignified
and low status. More attention needs to be directed towards improving
the working conditions of these valuable professions, to transform
these employment opportunities into dignified and desirable options, which
may get the interest of the local workforce.
69. The success of these initiatives largely depends on the effective
integration of newcomers. Language and cultural exchange programmes
can be implemented to foster mutual learning and support between different
cultural groups and generations. The tailored support services provided
in most of these programmes enabled migrants to learn the language.
Informal support from the local community, such as assistance with administrative
formalities has been also crucial. To prepare the hosting communities,
especially those with limited exposure to migration, localities
can organise meetings to provide detailed information about the
arriving individuals.
70. Several actions can be taken to ensure that beneficiaries
accept immigrant workers. For example, training and coaching programmes
could be offered to migrant care suppliers to improve their overall communication
skills; clients and co-workers could be educated on a zero-tolerance
policy towards racism; and training on the local cultural environment
and care delivery could be delivered.
Note Orientation sessions could also
be provided for municipal workers and community members who will
be interacting with incoming migrants, such as social workers and
teachers.
71. Promoting engagement within existing social infrastructures,
such as membership of sports associations or participation in local
events, can also lead to more sustainable integration.
Note For instance, in Italy,
local authorities and civil society partners included refugees in
traditional events, such as religious festivities and festivals
celebrating local products.
72. Matching job offers available in the villages with the job
demands of incoming families is crucial. Understanding the needs,
qualifications, and aspirations of the families is necessary to
ensure their successful integration. Field knowledge, gained through
visiting the local communities and assessing job opportunities as well
as housing options and proximity of educational and health facilities,
is also essential. Finally, to ensure the sustainability of integration
efforts, follow-up and support should be provided to the families
for several months until they have fully adapted to the rural environment.
73. The integration of migrants presents both opportunities and
challenges. In some cases, the inclusion of foreign families happens
naturally, as in the project in Spain. Successful integration can
be attributed to external factors that facilitate the immediate
assimilation of the migrant group, such as greater cultural affinity. In
Spain, most immigrants come from South America, so in addition to
sharing a similar culture and lifestyle, they also speak the same
language. The interviewed representatives of the Spanish co-operative
project noted, however, that their project did not include immigrants
with different cultural backgrounds, for example Arabs/Muslims,
given the difficulty they had in sharing a common collective life.
For example, it was challenging to get them to run a bar or social
centre that served alcoholic beverages (which was a cultural identity
feature in a specific village). This difficulty is amplified in
cities, where foreign families tend to concentrate in specific neighbourhoods,
enabling them to maintain their religious and cultural lifestyle,
on one hand, but isolating them from the rest of the city, on the
other. A more balanced and cosmopolitan approach to urban development
could help avoid ghettoization of certain migrant communities. The
promotion of cultural diversity and social cohesion all over the
municipality could help develop stronger ties between the autochthon
populations and newly arriving residents.
74. Rural communities may offer advantages for integration over
urban centres as they provide informal institutions that facilitate
information exchange, resource mobilisation, tailored support, and,
overall, a stronger human dimension.
Note On
the other hand, given the smaller size of the community, every detail
about the hosted families influences the perception of migration
of all the neighbours. In some cases, a family that is not integrated
well in the community may have to be relocated.
4.2 Urban
transformation: towards more inclusive, multicultural, and intergenerational
cities
75. Demographic ageing poses significant
challenges in the urban environment, making it necessary to reevaluate
urban planning processes by giving priority to the participation
of citizens in the transformation of cities. In light of rapid global
social and environmental changes, new approaches to build more resilient, inclusive,
multicultural and intergenerational cities should be adopted. Urban
planning should be centred around principles of equity and human
needs. By breaking down isolating barriers, particularly for both
the younger and older generations who tend to be confined to private
spaces, opportunities for socialisation and interactions with diverse
communities can be enhanced.
76. The participatory planning aims to overcome class, race, gender,
ethnic, and ideological biases. The Swedish co-operative Egnahemsfabriken
demonstrates how collaborative housing and community management
approaches can address housing shortage, exclusion, and the difficulty
for new arrivals to enter the labour market. By establishing a gathering
place that fosters integration, collaboration, and creativity, the project
supports anyone who wants to build their own house or help others
build theirs through idea-based, co-design, and collaborative housing
methods, especially empowering three vulnerable groups in the housing
or labour market: youth, elderly, and refugees.
77. Young migrants are hired so that they can get a work permit
while contributing to society. Furthermore, isolated elderly women,
often with limited financial resources, can continue living in their
own homes, remaining independent, but not alone. The project supported
retired women living in communities, fighting depression and social
isolation.
78. Decent housing is key to refugees’ and migrants’ successful
integration into the local community since it provides social contacts,
access to services, and employment. In contrast to traditional social
housing, new types of housing have emerged across Europe with a
stronger focus on collaboration, participation, and social support
among residents.
79. The Homefull project, managed by the Programma Integra association
in collaboration with the social cooperative Meta onlus, and backed
by the regional authority in Rome, Italy, promoted intergenerational
co-housing.
Note This
innovative model guides migrants towards self-sufficiency while
combating feelings of isolation in older people. Notably, the cohabitation
scheme posed some initial challenges as some families hesitated towards
this unusual living arrangement.
80. In Sweden, the SällBo co-housing project brings together young
people aged 18 to 25, including refugees, and individuals over 70
years old.
Note The
goal is to support social interactions of people who can easily
feel like outsiders, isolated, and lonely. This initiative aims
to combat involuntary loneliness and insecurity, while fostering
social inclusion for all residents, including the elderly, young
adults, and young refugees who arrived as unaccompanied children
seeking asylum in the country. The project adapted an existing empty
building by creating small apartments and common areas. Additionally,
it implemented a selective application process and mandatory socialisation
meetings to promote peaceful coexistence.
81. On 19 March 2024, the Committee on Migration, Refugees and
Displaced Persons, held an exchange of views with Ms Dragana Curovic,
who presented SällBo. The project started with a decision of the municipality
to build a senior-living home for elderly people over 70. Most of
them were ethnic Swedish people elderly people. Just as in Italy,
the youngsters had left the area and elderly people stayed. The
refugee crisis in Syria brought a high number of refugees. Public
authorities decided to find ways to accommodate refugees. In October
2015 about 459 persons were supposed to be placed in Helsingborg.
The social housing buildings where elderly people lived allowed
for the ground floor to be given to refugees, with 51 apartments
becoming home to migrant youngsters. Cohabitation was not always
easy, especially at the beginning when the youngsters smoking at
night was triggering fire alarms. Building social ties between the
two communities took time. A lot of efforts were put into social
mediation, to bring the two groups – the elderly people and the
young migrants – together.
82. The management of SällBo organised various meetings to facilitate
the dialogue between tenants. It was clear that the elderly people
felt very socially excluded and lonely, which was a big surprise
given that many had children. The argument was that their grown-up
children were in their 50’, working and having their children to
take care of. The young migrants were also lonely, with their families
being far away. Without mediation, these two groups would not have
naturally communicated with each other. This social housing project
allowed for a home to be created for people with diverse backgrounds,
embracing diversity in all its forms. Moreover, the direct democracy
that governs the project did not stop the focus on diversity, quite
to the contrary. When places are becoming vacant, the decision of
who to invite to live in that co-housing project, is voted on. The group
dynamic changes over the years but it is still an important intergenerational
and intercultural co-housing good practice that one could learn
a lot from.
83. The success of the project can be especially attributed to
the element of socialisation, which acts to the benefit of both
sides. Indeed, the social network the elderly had in the city helped
the youth to find jobs, attend schools, improve their language,
receive coaching, and generally integrate. On the other side, the
elderly’s sense of health improved, while they were kept updated
of the world around. During the global pandemic lockdown, it was
particularly clear how intergenerational collaboration could be
beneficial, with young people going shopping for the isolated and
vulnerable elderly. Young migrants helped elderly people with numerous daily
tasks. In addition, given that the elderly people could not physically
meet their own family due to social distancing requirements, the
presence of young people who lived in the same building, including
the refugees, helped them to cope with pandemic-related challenges.
84. Regarding intergenerational exchange, TOY for Inclusion, promotes
social inclusion, intergenerational learning, integration of services,
and community based early childhood education and care in 10 countries.
Note The initiative establishes
inclusive, high-quality Play Hubs where children of all backgrounds
and caregivers can connect, play, borrow toys, participate in workshops,
and access community services.
85. On 19 March 2024, the Committee on Migration, Refugees and
Displaced Persons also held an exchange of views with Ms Giulia
Cortellesi, co-director at International Child Development Initiatives
(ICDI) with headquarters in the Netherlands. Ms Cortellesi presented
the “TOY for Inclusion” project that worked for the development
and well-being of children and young people growing up in difficult
circumstances. In 2012, they started the intergenerational programme
putting together old and young people. This project began as a research
project sponsored by the European Commission in seven European countries.
86. To understand the benefits of intergenerational learning between
young children and older adults, they focused on the younger children.
They noticed that young children were spending most of their times
in childcare facilities or kindergartens from 8:00 am till 4:00
pm or even until 6:00 or 7:00 pm. Elderly people, especially the
vulnerable ones where spending their times in nursing homes, and
they were hardly meeting young children especially in urban settings.
Nursing homes for elderly people had very beautiful premises and gardens,
which the kindergartens and schools did not have. A decision was
taken to set up intergenerational activities. This would allow not
only to make use of the pleasant premises of the nursing homes,
but also to build bridges between the different groups.
87. There were many migrant families involved in that project.
Migrant families had experienced integration problems if they could
not speak the language of the host country. It became clear that
intergenerational practice could respond to three societal concerns:
one was the age segregation, another one was the global ageing population,
and the third one was the need for social cohesion and solidarity
in societies that are becoming more and more culturally biased.
They developed training materials and set up a network of intergenerational
practitioners and facilitators.
88. They started by establishing some intergenerational spaces
that use the excuse of play to bring young children and older adults
together as a trigger for social inclusion. These places were called
“Playhouses”. These are inclusive play hubs, where families from
all backgrounds can get together. They were designed to promote
the so called “progressive universalism”, which means that they
are for everyone but that they adopt special strategies to reach
out more vulnerable groups to ensure that their participation happens.
They might also promote some special projects to cover the specific
needs of specific groups (Roma or migrant children). There are toy
libraries families can borrow toys from, group activities and workshops.
89. Most of the activities are organised by volunteers and by
staff of different services. Staff from services devoted to young
children or refugees can work in co-ordination with each other and
not in silos. This includes education, health care, and social services
to develop a common vision and common plans to promote the well-being
of the population in these communities. When the Ukrainian refugees
came, there was an effort by the older Ukrainians to offer their
support and experience, including teaching in non-formal learning
setting. There were mostly women, mothers and their children, and
a lot of older people. They have been offered a space where they
would feel useful and valued. A lot of Ukrainian seniors also organised
workshops for Slovak and Hungarian children.
90. The European programme supporting non-formal education provided
space for intercultural learning. This work need proper recognition
and resources. In many communities where these projects were implemented,
they helped families to feel welcome: they make friends and are
better equipped to solve other problems they face on a daily basis,
they are able to find jobs, socialise, learn the language, access
courses, or have access to a variety of services or informal support.
Creating spaces for informal meetings where intergenerational and
intercultural contact is possible should be key in developing policies
at the local, national, and international levels. Intergenerational
learning for children brings higher self-esteem and helps them make new
friendships. As for the older adults, they feel valued, their health
and fitness improve, isolation is reduced. Finally, their general
physical well-being improves. Communities benefit from it, altogether,
thanks to the social cohesion and inclusion that intergenerational
solidarity brings.
91. Intergenerational contact fosters intercultural connection
and social learning. By involving grandparents and senior citizens
from the local community, including migrants, refugees, and minority
groups such as Roma and Sinti, intergenerational learning promotes
social inclusion in our diverse societies.
Note In particular, immigrant
communities are typically among the groups that have more children
but cannot count on the social support of grandparents. In this
context, intergenerational contact acts as a bridge with locals,
getting migrants to know the service system, making friends, building
trust with institutions, and coming out of the relatively close migrant
community. On the other side, participation in these hubs allows
especially the elderly to remain active and to combat social isolation.
5 Conclusions
92. With this report, I aimed to
focus on concrete examples of contributions of migrants in addressing
the challenges posed by demographic ageing in Europe. The continent
is ageing rapidly, and we need to take measures to avoid severe
macro-economic and social implications, for the benefit of all.
In fact, an ageing society not only poses challenges for the elderly,
who will need increasing support to meet their needs, but above
all for future generations, who will find themselves having to bear
the costs of an ageing society with less social security and a weaker
public welfare.
93. To address this demographic shift, member States should consider
developing effective policies and initiatives to ensure the well-being
and quality of life of the elderly population, as well as implementing strategies
to promote higher fertility rates. In parallel, regular migration
channels should be promoted to fill labour shortages already now.
94. The contribution of migrants affects both new and old generations.
From the introduction of new school classes and educational structures,
to frequent public transport links between neighbouring communities,
and migrant labour in support of home-based elderly care, the impact
of migrants on society is far-reaching and multifaceted.
95. Comprehensive, gender-responsive, and multidimensional integration
policies must be implemented in order to promote the overall integration
of migrants and social cohesion: from the regularisation of informal
and undocumented migrant workers to the promotion of direct and
targeted aid in local communities and job training. A further effort
is required to dignify core jobs in society. Urban planning also
needs to be reconsidered towards building multicultural and intergenerational
co-operation. Policies aimed at strengthening the non-formal sector
are also needed. States should foster positive communication and
information in local communities and counter hate speech in public
discourse, including during election campaigns. In conclusion, a
shift from emergency approaches to tackle immigration to structural
and sustainable approaches is crucial.
