NATIONAL REPORT GERMANY. 1. History of immigration in Germany 1

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1 NATIONAL REPORT GERMANY 1. History of immigration in Germany 1 Migration to and from Germany has a long history. The reasons for moving to another country have basically remained the same for centuries: the desire for a better life for oneself and one s children; flight from political, ethnic, or religious persecution; forced expulsion. Long before the targeted recruitment of foreign labour began in 1955, Germany was the destination for numerous immigrants. Already in the second half of the 17 th century, for example, Prussia took in large numbers of French Protestants, known as Huguenots, whose lives and livelihoods were threatened in Catholic France. Approximately 20,000 sought refuge in Brandenburg. The reception and integration of the Huguenots was not entirely free of conflict at the start. But this early example of migration is an especially good illustration of how immigration can benefit a society over the medium and long term and become a significant growth factor. Another example is the many Polish immigrants who settled in the Ruhr region following the Franco-Prussian War of Expulsion and flight have long been major causes of migration. As a result of World War II, Germany took in more than 12 million German expellees between 1945 and About 500,000 foreigners lived in the Federal Republic of Germany in 1950, making up only one percent of the total population. Later immigrants came in several waves. Most of the growth in Germany s foreign population after 1945 was composed of foreign workers, known as guest workers, who entered the country from 1955 to 1973, and asylum seekers, who began arriving in greater numbers starting in late As more members of these groups arrived in Germany, more of their family members accompanied or rejoined them later, and more children were born to them in Germany. In the 1950s, the Federal Republic of Germany s economic miracle led to a growing demand for unskilled and semi-skilled labour. The domestic supply of labour was insufficient to meet the demand, and the government signed 1 Based on: Federal Ministery of Interior: Migration and Integration. Residence law and policy on migration and integration in Germany. Berlin 2008, p

2 recruitment agreements with Italy (1955), Spain and Greece (1960), Turkey (1961), Morocco (1963), Portugal (1964), Tunisia (1965) and Yugoslavia (1968). From 1955 until 1961, however, the number of foreigners living in Germany rose by only about 200,000. After 1961, steady economic growth and the German Democratic Republic s decision to close its borders to the West and build the Berlin Wall, which cut off the flow of workers from East Germany, contributed to increasing labour shortages. This development was further exacerbated by the introduction of a shorter working week and a shrinking labour force. From 1960 to 1972, the number of employed Germans fell by 2.3 million, leading to increased recruitment of foreign workers. In addition to immigration by foreign workers and their family members, Germany has taken in asylum seekers since the 1950s. Up to the late 1970s, however, the number of those seeking asylum was relatively insignificant at around 10,000 persons a year, most of them from Eastern Bloc countries. The number of asylum seekers saw a temporary rise in 1979 and Of the 107,000 persons who applied for asylum in 1980, more than 50 percent were Turkish citizens (Table 1). Table 1: Number of applicants for asylum in 1980 Tota Asylum seekers by country: Turkey 57,913 Pakistan 6,824 Afghanistan 5,466 India 6,693 Sri Lanka 2,673 Czechoslovakia 2,385 Poland 2,090 Source: Federal Office for Migration and Refugees (BAMF) 2 Since the reform of asylum law in 1993, the number of asylum seekers has steadily shrunk; in 2006, there were only about 21,000 applications, the lowest level since

3 In 1991, war broke out in Bosnia and Herzegovina; by the time it ended, with the Dayton Accords of December 1995, Germany had granted temporary residence on humanitarian grounds to around 345,000 Bosnian refugees, more than all the other EU countries combined. The great majority of these refugees has since left Germany, most of them voluntarily and with help from the relevant repatriation aid programmes. Fewer than 10,000 of these refugees are still in Germany; some were granted the right to remain, enabling them to establish permanent residence, while the rest were ordered to leave the country. During the Kosovo crisis in 1999, Germany took in about 15,000 evacuees from Kosovo as part of an international humanitarian initiative. These persons also returned to their homeland after the conflict ended. Starting in the mid-1960s, the German Democratic Republic (GDR) also experienced an influx of foreign workers within the framework of labour cooperation in the Council for Mutual Economic Assistance (Comecon). As in the Federal Republic of Germany, foreign workers were usually employed in areas that Germans found less attractive. But the GDR strictly enforced the rotation principle, so there was no subsequent immigration of family members. Workers residence permits in the GDR were explicitly linked to their place of work, which made it practically impossible for them to become integrated. According to GDR sources, foreigners made up about one percent of the labour force. It is almost impossible to compare figures for asylum granted in the Federal Republic and the GDR. While the GDR did acknowledge a right of asylum, in line with the constraints of the system this right was extended only under strict political requirements. But due to the prevailing conditions in the GDR, few people facing political persecution sought refuge there. In late 1989, GDR statistics recorded a total of 334 Chilean and 482 Greek refugees.

4 2. Description of VET in Germany 3 In Germany children enter compulsory full-time schooling at age 6. This schooling period lasts 9 years (10 years in 5 Länder). On completion, young people who do not attend any full-time-school are required to attend parttime (vocational) school for 3 years. This means in practice that young people are required to attend school from the ages of 6 to 18. Trainees in the dual system (even those older than 18) are also subject to compulsory schooling. After 4 years of primary school, pupils move into different educational 3 based on: Hippach-Schneider U., Krause M., Woll C.: Vocational education and training in Germany. Cedefop Panorama series; 138 Luxembourg 2007.

5 branches either: secondary general school (Hauptschule), intermediate school (Realschule) or grammar school (Gymnasium). Often these different pathways merge through the dual system. The dual system is the largest provider of education at upper secondary level, with approximately 53% of an age cohort training for a recognised training occupation. After completing their training in the dual system, the majority of participants then take up employment as a skilled worker later on, many of them make use of the opportunities for continuing vocational training. Under certain conditions, however, those who have qualified may also obtain the academic standard required for entrance to a Fachhochschule in one year at school full-time, and go on to higher education. Successful participants in continuing vocational training are also increasingly permitted to study at colleges. Of the vocational schools, the full-time vocational schools have the highest numbers of students. These schools prepare students for an occupation or for vocational training, usually in the dual system. Under certain conditions, attendance at a full-time vocational school is credited as the first year of training in the dual system. Entitlement to study at a college or Fachhochschule can be acquired in some educational programmes in the fulltime vocational schools. Large numbers of students also attend the schools for nurses, midwives, etc., which provide training for non-academic occupations in the healthcare sector, such as nursing and paediatric nursing, midwifery, therapeutic massage and occupational therapy. As regards organisation and premises, many of these schools are attached to hospitals, in which both theoretical and practical training takes place. Senior technical schools (Fachoberschulen) and senior vocational schools (Berufsoberschulen) normally build on vocational training in the dual system, consolidate vocational knowledge and lead to the academic standard required for entrance to a college. Overall, there are many points of transition between school-based and dual vocational training and from vocational training to colleges. In 2005, some 20% of those beginning academic studies had completed a course of training in the dual system. Tertiary education includes the colleges and other institutions offering programmes of study providing vocational qualifications for students who

6 have completed upper secondary education with an entitlement to study at a college or Fachhochschule. School-based IVET (vollzeitschulische Berufsausbildung) at upper secondary level includes the Berufsfachschule, the Fachoberschule, the Berufliches Gymnasium or Fachgymnasium, the Berufsoberschule and other types of school that exist only in individual Länder or only on a very small scale. Some vocational/trade and technical grammar schools also offer the opportunity to acquire more than one qualification (educational programmes leading to dual qualifications): an academic qualification (entitling holders to study at a college or Fachhochschule) and a vocational qualification under Land law (e.g. for working in an occupation as an assistant). Courses of education leading to dual qualifications last three to four years. 3. Statistical information Of the approximately 6.75 million foreigners in Germany (as of 31 December 2006, according to the Central Aliens Register), about 2.3 million are citizens of one of the other 26 European Union Member States (34 percent including Romania and Bulgaria, which joined the EU on 1 January 2007). The largest proportion of foreigners consists of Turkish citizens (1.74 million, or 25.8 percent of all foreigners), Italians (approx. 530,000 or 7.9 percent), citizens of Serbia and Montenegro (approx. 480,000 or 7.1 percent), Poles (360,000 or 5.4 percent) and Greeks (300,000 or 4.5 percent). Roughly one of every five foreigners living in Germany was born here (1.4 million persons) and is thus a second- or third-generation immigrant. Thirty-four percent of the Turkish citizens living in Germany were born here, as were 30 percent of the Italians, 28 percent of the Greeks, 23 percent of the citizens of Serbia and Montenegro and 4 percent of the Poles.

7 4. Total percentage of immigrants in Germany According to official population projections, there are currently about 7.3 million foreigners living in Germany (8.85 percent of the total population) 4. Percentage of immigrants completing education from secondary education to third level education. (Male/Female); Percentage of immigrants who complete apprenticeships. Occupational qualifications of persons aged 25 and over by sex and immigrant status, Germany Source: Federal statistical office Results of the 200 micro census. 5 Unemployment figures of immigrants compared to national statistics 4 Federal Ministery of Interior: Migration and Integration. Residence law and policy on migration and integration in Germany. Berlin 2008, p in: Federal Ministery of Interior: Migration and Integration. Residence law and policy on migration and integration in Germany. Berlin 2008, p. 92.

8 Source: Federal statistical office Results of the 200 micro census 6. Percentage of age group unemployed: In Germany the number of unemployed people younger than 25 years has been constantly high in the past years and represented in There were in Western Germany and in Eastern Germany. This is in accordance to the rate 7,1 %(West) and 15,6% (East). 5. Legal restrictions imposed by each partner countries, which may restrict access to either employment or training opportunities. Immigration to Germany as a non-eu-citizen is still limited to skilled workers (individuals with either a university or polytechnic degree or at least 3 years of training together with job experience), students and their immediate family members. Germany knows 3 types of immigration titles: Visa (validity of up to 90 days), residence permit and settlement permit. Work permits if granted are no longer issued independently but included within the immigration title and are available for foreigners that either fall into one of the several available permit categories (IT specialists, company trained specialist within a group of companies, managing personnel, scientists, highly skilled workers with 6 Ibid, p. 94.

9 exceptional income, etc.) or can proof a public interest in the employment. The categories and all requirements are listed in the ordinance on employment.[1] The formerly well known IT-Greencard program has been followed by the introduction of a specific category within the ordinance on employment that allows IT specialists with a university or polytechnic degree to migrate to Germany for employment purposes. Self employment is also possible but requires either an initial investment of EUR 500,000 or the creation of a minimum 5 jobs or the support of the local chambers of commerce or similar organizations that confirm the socioeconomic value of the business plan for the region. As Germany does not know immigration without cause, it is necessary to be either enrolled with a school or university, have a specific job offer that fits the requirements of one of the work permit categories or intend to reunify with close family (spouse or minors) already within Germany (family reunification visa) Detail barriers encountered by immigrants to accessing vocational and educational opportunities. With respect to employment and unemployment rates, and particularly given their low educational attainment and the current economic situation, the labour market integration of immigrant men is relatively favourable in international comparison. However, immigrant women, and particularly those of Turkish origin, have very low employment rates. This is partly an outcome of policies which limited the labour market access of spouses. Most of these legal obstacles have been removed under the new Immigration Act. The situation of the so-called second generation is of concern, as they have very low educational outcomes. This hampers their access to vocational training, which appears to have an even stronger impact on their employment prospects than on those of natives. The low educational attainment of the second generation seems to be at least partly attributable to structural features in the German education system, such as the early streaming which puts migrants children in a lower track. Especially problematic is the relatively late starting age 7 compare: (last access: ).

10 for kindergarten and the prevalence of half-day education in kindergarten and school, which limits exposure to the German language at a crucial age. Immigrants access to self-employment is hampered by legal obstacles and a lack of information and subsequent access to financial credits. Despite positive experiences with temporary employment as a labour market integration tool for immigrants in other OECD countries, immigrants are not a focus group of the Federal temporary employment programme Outline of current initiatives to assist immigrants to overcome barriers and encourage immigrants to accessing VET opportunities. These initiatives may highlight current Good practice Examples of policy measures Promoting Competences - Vocational Qualification for Target Groups with Special Needs (BQF Programme) The goal of the programme was to contribute to the further development of support for disadvantaged young people and to improving the educational and training situation of migrants. Over the entire period, 136 projects received financial support. To ensure that approaches from the programme phase can be taken forward, used and brought to bear in special needs VET practice, the BMBF decided to implement a transfer phase as a follow-up to BQF when the programme ended. This transfer phase itself is now concluded. Nevertheless, the results of the programme continue to be disseminated via the central transfer office at BIBB - the Good Practice Centre for the Support of Disadvantaged Young People in Vocational Education and Training (GPC) - and transfer efforts continue to be pursued ( Results and lessons learned from the BQF programme have already had an impact on overarching education policy developments during the course of the programme s implementation. The Second Act on Modern Services in the Labour Market (Zweites Gesetz für moderne Dienstleistungen am Arbeitsmarkt) of 1st January 2003 broadened the material scope of the Vocational Training Act and anchored prevocational training in the law as an independent element of VET. 8 compare: Liebig T.: The Labour Market Integration of Immigrants in Germany (OECD Social, Employment and Migration Working Papers No. 47. Paris 2007.

11 Furthermore, qualification modules (Qualifizierungsbausteine) were incorporated into the law as an important instrument of prevocational training. The law refers to them as units of learning of defined content and length, which are developed on the basis of the training curricula for state-recognised occupations regulated by training regulations. Companies thereby have greater scope to offer their own prevocational training courses and make use of qualification modules to help disadvantaged young people gain grounding in vocationally relevant learning and initial in-company work experience, as a means of exploring their potential and guiding them towards a suitable company-based apprenticeship. 8. Internet Links Government und public authorities off in Germany Antidiskriminierungsstelle des Bundes Beauftragte der Bundesregierung für Migration, Flüchtlinge und Integration Beauftragte der Bundesregierung für Migration, Flüchtlinge und Integration Internetportal Einbürgerung Bundesamt für Migration und Flüchtlinge nnn=true Bundesministerium des Inneren Berlin, Deutschland Bundesministerium des Inneren Internetportal Zuwanderung Bundesnachrichtendienst Pullach, Deutschland Bundesregierung Berlin, Deutschland Landesregierung NRW Internetportal Integration Non governmental organisations Aktion Courage Bonn, Deutschland amnesty international - Deutsche Sektion Bonn, Deutschland

12 Antirassistische Initiative Berlin, Deutschland Asylkoordination Österreich Aufenthaltstitel Bundesfachverband Unbegleitete Minderjährige Flüchtlinge e.v. Clandestino-Illegal DGB-Bildungswerk Migration Online Dokumentations- und Informations-Netzwerks Flucht & Migration e.v. Flüchtlingsrat NRW e.v. Forum Interkultur - Portal für Information und Austausch Integration durch Sport Programm des Deutschen Olympischen Sportbundes (DOSB) Interkultureller Rat in Deutschland e.v. Migrationsmuseum Deutschland Migrationsmuseum Schweiz Pro Asyl Qantara.de - Internetportal zum Dialog mit der islamischen Welt Verband für Interkulturelle Arbeit Berlin, Deutschland Others

13 This integration gateway is designed to support the integration process by highlighting programmes and facilities for specific target groups. Here, immigrants, players in integration work and other citizens with an interest in the field will find all they need to know about integration as well as the departments and people they should contact

14 9. Literature: Federal Ministry of Interior: Migration and Integration. Residence law and policy on migration and integration in Germany. Paderborn Federal Office for Migration and Refugees (BAMF): Welcome to Germany. Information for Immigrants. Paderborn 2008 Federal statistical office Results of the 200 micro census. Berlin Liebig Thomas. OECD Social, Employment and Migration Working Papers No. 47. Paris Ute Hippach-Schneider. VET in Germany. Cedefop Panorama series. Luxembourg Internet sources: