An integration policy for third country nationals

Too wide a gap between the rights of EU citizens and those of third country nationals could seriously curtail integration of immigrants into the social, economic and political fabric of EU. Policy-makers are increasingly aware of this danger, and throughout its Presidency, the Netherlands accordingly assigned high priority to defining an EU framework for the integration of immigrants. At an informal meeting of ministers responsible for integration policy organised in Groningen on November 10th 2004, the European Commission presented the first edition of the «European Handbook on Integration», highlighting best practices and lessons learned within the EU in the integration of immigrants. While these developments are certainly welcome, one should not underestimate the difficulty of evaluating the success and shortcomings of integration policies across different member states. These policies are highly variegated and reflect the divergent experiences of a selection of countries from which it is risky to draw generalisations. Also, the number of policy and social factors to be taken into account is staggering. Not only formal policies, but informal practices are relevant.

The first indication of limited integration in Europe is that most migrants remain permanent aliens. This will persist if naturalisation rates continue to be as low as they presently are in Europe as a whole. Not all migrants want to adopt the nationality of the host country, but this should not be a decisive factor in gaining access to basic services.

In principle, migrants in Europe enjoy many rights, particularly those who have obtained permanent residency status, but most of these are social and economic in nature. A much-valued right is the right to family reunion, which despite progress in some member states is still denied or highly circumscribed in others. At the same time, the importance of extending political rights should not be downplayed, both for their symbolic effect and for their direct role in fostering self-esteem and ethnic mobilisation.

Beyond a limited endowment of rights, informal factors also discourage the integration of immigrants, such as low socio-economic status, discrimination or disadvantage in the labour market, residential segregation, poor educational results, limited social mobility, scant political and trade union participation, unemployment and racism. Anti-discrimination legislation has been developed at European level, but progress in implementing such measures at member state level is far from satisfactory.

An EU framework for successful integration policies must guarantee inclusive participation of migrant communities in the economic, social, political and cultural life while respecting the values and fundamental norms of the host state. A ‘holistic approach’ advocates employment, education, language training, health and social services, involvement in social and political life as well as demographic developments in the EU member states. Failure to develop such an approach would in the long term create deep social problems that may reinforce exclusion, discrimination and racism. This is particularly important in light of Europe’s need for migrants to ameliorate its demographic situation and labour market shortages.