Wir machen mit. National Integration Plan

Transcription

1 Wir machen mit. National Integration Plan New paths new opportunities

2 Contents Foreword by German Chancellor Angela Merkel 7 Introduction by Minister of State Maria Böhmer 9 1. Declaration of German Government on the National Integration Plan Contribution of the federal states to the National Integration Plan Contribution of the Federation of the German Local Authority Associations Topical area 6: Culture and integration Topical focus: Cultural education Topical focus: Cultural institutions Topical focus: Integration as an interdisciplinary topic in cultural policy and cultural administration 131 Members Topical area 1: Improvement of integration courses 1. Review of current situation 2. Definition of targets 3. Agreement of measures and self-commitments Members Topical area 7: Integration through sports utilise potential, increase activities, extend networks 1. Structural and personnel requirements for the utilisation of sports as a motor for integration Enclosure 1 Enclosure 2 Members Topical area 2: Promotion of German language right from the start 1. Encouragement of linguistic development and learning of language through parents 2. Language promotion in child day-care institutions and private child day care 3. Continuous language tuition during transition period nursery school school Members Topical area 8: Media utilise diversity 1. Topical area: Media and integration Members Topical area 9: Encouragement of integration through civic commitment and equal participation 1. Review of current situation 2. Definition of targets 3. Implementation measures and reciprocal voluntary self-commitments 4. Standards for integration projects 5. Evaluation Members Results of working groups Introduction 4.3. Topical area 3: Securing of good education and vocational training to improve employment market opportunities Objective Results 1. Integration and education 2. Integration and vocational training 3. Integration and employment market Members 4.4. Topical area 4: Improvement of circumstances for girls and women and the achievement of gender equality 1. Topical focus: Integration through legislation 2. Topical focus: Participation 3. Topical focus: Health, sex education and care of the elderly Members of the sub-group 1 Members of the sub-group Topical area 5: Community support for integration Preliminary remarks 1. Topical focus 1: General community concepts 2. Topical focus 2: Living and social environment in local neighbourhoods 3. Topical focus 3: Schools and education within the neighbourhood 4. Topical focus 4: Local Economy 5. Topical focus 5: Indicators, monitoring and evaluation Members Topical area 10: Science and scholarship open to the world 1. Task 2. Recommendations 3. Increasing the attractiveness and internationality of Germany as a location for study and research 4. Advancing integration: improved utilisation and encouragement of the potentials of educational nationals and highly qualified immigrants 5. Encouragement of research into migration and integration: investigation of factors for successful integration and improvement of data basis Members

3 Foreword Foreword by the German Chancellor Angela Merkel Dear fellow citizens, Germany is an open-minded country in which around 15 million people with a background of migration are resident. The majority of these people have already found their place in our society, but we are also aware of significant deficits in the integration of a regrettably substantial number of citizens. This concerns, for example, an insufficient command of the German language and weaknesses within the areas of education and professional training. These deficits express themselves for example in a relatively high unemployment rate and even also social isolation. Integration does not take place automatically and cannot merely be superimposed from above. A comprehensive, systematic approach in integration policy is the only possible path to success in the encouragement of the abilities and potential of people from immigrant families this potential is fundamental for the social cohesion and economic future of our nation. The development of a common integration concept is imperative. This must include the recognition of the German legal system and the values protected by the constitution. Those who wish to take up permanent residence in our country must ensure that they acquire a sufficient command of the German language. 6 Integration is a key challenge of our times and is steadily increasing in significance as a result of demographic change. For this reason, the German government has selected this topic as a focal point. With the aid of the National Integration Plan, we aim to involve all state levels and engage committed public figures and associations in order to improve integration in Germany step by step. Our society will become richer and more humane through tolerance and open-mindedness within our society. Integration is a topic which concerns us all people from migrant families as well as citizens who are long-term residents. Integration can only succeed in cooperation. It is our task to be able to perceive and experience our common house Germany as a likeable and liveable home. Angela Merkel German Chancellor 7

4 Foreword Introduction by the Minister of State Maria Böhmer It is now five decades since the first recruitment of workers from foreign countries. These people came to us as guest workers : at first alone and subsequently accompanied by their families. Initially, the intention and their wish was that their stay would be temporary, but many made the decision to take up residence in Germany. A large number of these people have in the meantime found a new home in our country, but many have remained foreigners who in frequent cases have viewed their life in Germany as years of unfulfilled hopes and opportunities for the future. In later decades, the nature of immigration changed; people came to Germany for other reasons in a large number of cases, it was possible for them to take up permanent residence. The political changes in Central and Eastern Europe enabled many ethnic Germans to return to the home of their ancestors. Today fifteen million people from 200 different countries are resident in Germany. Our society has experienced comprehensive cultural, economic and political changes which were partially influenced by living alongside this variety of international residents. This is, however, not a new process: Germany as a cultural nation which has developed within Europe has always assimilated a wide range of outside influences which we now take for granted as part of our country and its culture. It has however taken substantial time to see this development for what it is: a reality which opens up great opportunities, but also holds the potential 8 danger of social tensions. This is a reality which necessitates a future-orientated and sustainable integration policy. Last year, the German Chancellor issued invitations to the first integration summit. What began as a meeting in the Federal Chancellery in July 2006 has during the past few months triggered off a dynamic development within our society. A spirit of optimism can also be detected in German integration politics. Within the circle of immigrants and representatives of the German government, federal states and local authorities, culture, sports, sciences, media and civil areas we agreed to work together to compile a National Integration Plan. We express the desire to follow new paths which are oriented towards two guidelines: 1. Integration must be experienced personally. It cannot be superimposed on either the majority or the minority of the population in Germany. Cooperation is created in an environment in which people feel welcome and at home, if they are able to participate in our society, both in their profession and in private life, and if they experience recognition for their efforts. Cooperation also necessitates mutual respect for each other. For this reason, our first guideline for our integration policy is: to work directly and with trust with people from immigration families and to create a common future. 9

5 2. The German Federal Government, federal states and local authorities can secure the vital foundations for the success of integration. The state guarantees security, ensures access to education and encourages integration in professional training and within the employment market. The state cannot, however, undertake complete responsibility for all aspects of integration in our society. This is only possible if we all immigrants and the native population undertake concrete and practical responsibility: at work, in sport, cultural, media and scientific fields and in our local neighbourhoods. This is the only way to create a climate which encourages migrants to take themselves for granted as a natural part of our society. For this reason, our second guideline for our integration policy is: to urge each and everyone to undertake the commitment within his or her personal area of responsibility, as we can all make a contribution to the success of integration in Germany. The National Integration Plan has been created on the basis of specialised knowledge and the commitment of all participants: a strategy in new form. The diversity of the topic is reflected in the varied nature of the individual chapters. In chapter 1, the German government defines the fundamental basis of its integration policy and highlights the central measures within the context of the fields of responsibility. The reports on specific topical areas contain a wealth of further proposed governmental measures. Chapter 2 documents the joint position on the part of the federal states. These sixteen states are charged with significant responsibilities due to the federal nature of their competence within the fields of education, encouragement of language tuition, culture and 10 media. The declaration on the part of the minister presidents dated 14 June 2007 presents the contribution on the part of all federal states towards the National Integration Plan. Ten topical areas were covered by the six working groups: 1. Improvement of integration courses In chapter 3, Local Authority Associations formulate their contribution to the action field of integration in which these organisations aim to support their members in the continuation and extension of integration efforts. 2. Early child education: promotion of German language right from the start 3. Securing of good education and vocational training to improve employment market opportunities 4. Improvement of circumstances for women and girls and the achievement of gender equality 5. Community support for integration 6. Strengthening of integration through civil commitment and equal participation 7. Living in cultural diversity strengthening of intercultural competence 8. Integration through sports utilising potential, increase in activities extension of networks 9. Media utilise diversity 10. Sciences open to the world According to the declaration of the German Government Cabinet on 12 July 2006, working groups were set up to cover ten thematic areas of integration policy, including representatives from immigrants, the Federal Government, federal states, local authorities and numerous non-governmental actors each group a small topical summit in itself. These working groups held meetings from October 2006 onwards and presented their results at the end of March These reports display the numerous common opinions, but also the intensive and constructive discussion which took place to define appropriate aims and suitable methods. The German Federal Government supervised these working groups, but as in the case of other participants also involved itself in voluntary commitments. The result is almost 170 pages with analyses and concrete measures to be undertaken which display great variety and are formulated from a wide range of perspectives. The reports of the working groups are reproduced in full in chapter 4 a sign of respect and thanks, particularly to the participating immigrants. It was not possible for all organisations, institutions and associations to coordinate and incorporate their contributions within the time allotted. Voluntary commitments which were received by us at a later point are included with an appropriate indication within the relevant working group reports. In my appointment as the German Federal Government s Commissioner for integration issues, I experi- enced twelve lively and often moving months in my supervision and coordination of the efforts to set up the National Integration Plan. During this period, it became clear that integration can never be a merely a technical or purely abstract issue; it demands a rational approach to realities and deficits must never be allowed to become taboo. Above all, it is vital not to forget the most important aspect: this issue concerns individuals with their own personal needs, views, free will, motivation and inner feelings. Those who recognise and understand that all people with permanent residence in Germany have a common future, also perceive the political aim: the future will be good. The positive resonance from all parts of Germany relating to activities associated with the National Integration Plan shows that this message has been received. We are prepared to take up new concepts and pursue a new common path. I would like offer my sincere thanks to all who participated in the working groups in particular the immigrants themselves for their expert knowledge and their commitment, but also for their willingness to make a concrete contribution to the implementation of the National Integration Plan. My thanks also go to all those who participated with the German Chancellor in the Youth Integration Forum in May 2007 for their views of the future. My heartfelt thanks go to all participants for their excellent and targeted cooperation. Maria Böhmer The German Government Commissioner for Migration, Refugees and Integration Minister of State for the German Chancellor 11

6 Declaration of the Federal German Government on the National Integration Plan 1. Immigration and integration 2. A challenge with national significance Our nation can look back on a long and formative tradition of immigration with numerous examples of successful integration. At the end of the Second World War, millions of German refugees and displaced persons were integrated into our society. At a later point in time, over four million ethnic Germans were resettled within the country. It is now also five decades since Germany recruited the first guest workers from abroad. Millions of people have followed in their steps and have come to Germany to take up employment, join other family members already employed in the country or for humanitarian reasons; many of these people have taken up permanent residence. In the future, we would like to capitalise on this valuable experience to a much greater degree in order to create a more positive and pragmatic approach to immigration and integration. A wide range of efforts to encourage integration have been undertaken on federal, regional and local government levels. At the same time, certain problems associated with integration have increased during the last few years. In an international comparison, the influences of social origin and emigrational background on educational success are relatively high in Germany. Systematic and consistent support for school pupils with a background of migration learning German also appears to have been less successful than in other countries. There is still much progress to be made within the field of integration, particularly concerning numerous second and third generation immigrants. are part of our history Today, there are approximately fifteen million citizens in Germany with an immigration background: almost a fifth of the total population. In the under-25 age group, this proportion exceeds one in four. Over half of citizens with an immigration background possess German nationality and many of these people were also born here. A large number of immigrants have already found their place within our society; they have experienced success and their abilities and efforts have contributed to the wealth of the nation and its wide social and cultural spectrum. These people deserve recognition and respect for their efforts. In view of demographic changes and the growing global competition for a highly skilled workforce, we must also systematically utilise immigration to further Germany s economic and social interests; this is an additional reason for the necessity of a sustainable integration policy for our country. 12 A certain proportion of the immigrant population has not sufficiently mastered the German language, achieves scant success in education and professional training and displays a higher than average rate of unemployment. Additionally, some of these citizens have not adopted the fundamental standards of our society, for example women s rights. Great efforts are necessary to prevent the lack of future prospects and low degree of acceptance experienced by a large number of young immigrants leading to a socio-political dead-end. The development of a lost generation must be prevented at all costs. It is vital for the future of all people in our country that everyone is ready and willing to solve these problems to prevent the threat of cooperation turning into coexistence. For this reason, integration is an issue of national significance built on the foundations of our moral concepts and cultural identity and also our liberal, democratic system which has developed out of German and European history and finds expression in the German constitution. Integration cannot simply be imposed, but demands efforts from all sides: from the state and from society which is composed of people both with and without a migrational background. What is decisive is firstly the willingness on the part of migrants to engage in life within our society, accept our basic constitution and entire legal system without limitation and the mastery of the German language as a visible sign of affiliation to Germany. This demands self-initiative, industriousness and personal responsibility. In turn, acceptance, tolerance, civil commitment are required from the host society and a willingness to extend a genuine welcome to all legitimate residents of our country. The readiness to undertake change and undertake responsibility is vital for all those concerned. 3. New paths for improved integration Great efforts are necessary to enable people from different cultures to live together permanently on a long-term basis. The German government is pursuing new paths towards an activating and sustainable integration policy which recognises and strengthens immigrants potential and does not merely focus on deficits. Immigrants who refuse to participate in long-term integration must reckon with sanctions. Our integration policy particularly focuses on modern immigration laws and an institutionalised dialogue with migrants, particularly within the framework of the National Integration Plan and the German Islam Conference. The German government created a platform for political dialogue on the subject of integration within the framework of the National Integration Plan with its position paper Good cohabitation clear rules dated 12 July This forms the basis for the following integration policy guidelines: A successful integration policy means dialogue and close cooperation. The National Integration Plan is the result of a close and constructive cooperation with immigrants. Our principle is and remains: we will talk to immigrants, not about them. At the integration summit, in the working groups and at the numerous accompanying forum integration events, immigrants have been involved as active partners. Immigrant organisations build bridges between men and women, children and families with a background of migration and our native population. These organisations can act as a cultural intermediary to communi- cate to immigrants the necessity of individual integration efforts. This includes language acquisition, commitments within the civil society, early attendance of child care facilities and the involvement of parents. The associations can inform the general population and the political world of the particular problems experienced by immigrants. The greater involvement of immigrants and their organisations in the planning and creation of integration measures on national, federal, local and non-governmental levels is a significant step in the right direction. A successful integration policy awakens and nurtures potential. A successful integration policy focuses on the wide range of abilities, efforts and commitment on the part of immigrants, avoids clichés and views problems as challenges and an opportunity for further political and social development. The social conditions and barriers encountered by immigrants also have an influence on whether they are able to capitalise on their competences. It is vital that children and young persons with a background of migration have access to excellent educational possibilities in order that they are able to develop their potential. Targeted language tuition right from the start in nursery school and schools improves the subsequent chances of a successful education, professional training, a good career and therefore also social recognition. To support this process, the proportion of the employees with a background of migration in all areas of public administration and services must be increased, for example in child care centres, schools and public authorities ranging from family and youth welfare to the police force. A successful integration policy recognises the key role of women with a background of migration. Women have a particularly significant influence on the integration of the next generation, whether within the family and at work, or through social and political commitment. For this reason, it is imperative to increase the potential of women and girls. The opportunities for social and political participation must be improved and should be undertaken at the earliest possible stages, i. e. also in schools and during professional training. Political integration measures must be targeted specifically towards the needs of women and girls with a background of migration; this also includes areas which have been neglected up until now, such as health promotion, sex education and care of the elderly. 13

7 This will enable gender equality which is already embodied in a central part of the German Constitution to be encouraged and implemented in everyday life. Women and girls with a background of migration are particularly subject to domestic violence, including specific forms of violence such as genital mutilation and forced marriages. Improved prevention and better protection are essential. A successful integration policy is built on the basis of an active civil society. Integration is not purely a task for the state; an active civil society is necessary in which a maximum number of citizens can undertake responsibilities and develop their own initiatives. This was the reason for representatives from a wide spectrum of our society to be involved in the compilation of the National Integration Plan: immigrants, social partners, the business sector, churches and other religious communities, welfare associations, sports organisations, the media, cultural representatives, foundations, associations and clubs operating nationwide and representatives from the academic world. Alongside major function-aries, individual persons have employed their specialised knowledge and experience. A successful integration policy gains momentum through the responsibility and commitment of all participants. Integration as a multi-functional task at state level also demands a multi-layered policy: the Federal Government took the initiative in the formulation of the National Integration Plan, but the close involvement of federal state and local governmental levels was also seen as a primary task. These levels are also chiefly responsible for the key areas school education and support for early (language) tuition in childcare centres, cultural affairs and concrete local integration efforts. The government will extend the already completed establishment of existing integration measures within the area of language promotion offered nationally, by federal states, on a local level and by private organisations based on the national integration programme according to 45 of the German Residence Act [AufenthG] to other areas of action and will submit recommendations for the further development of integration opportunities., The specifications of the National Integration Plan will be implemented through integration programme activities. The National Integration Plan is sustainable, effective and tangible as all actors are involved with individual contributions. The plan has a binding character due to the approximately 400 voluntary commitments undertaken by all participants in and for their responsible areas (see chapter 2 for federal states, chapter 3 for local government organisations; chapter 4 contains the voluntary commitments made in the non-governmental sector and the complete voluntary commitments made by the Federal Government). A successful integration policy must be targeted. A successful integration policy is a cross-functional task for all levels. Immigrants in Germany are not a homogenous group: for this reason, support programmes must be aimed at individuals and their abilities, skills and integration needs. A successful integration policy targets points of participation and provides easily accessible information and advisory services. National, regional and local governments have undertaken commitments to pursue an activating and sustainable integration policy. All departments of the Federal Government are already involved with various aspects of integration policy. Federal states and numerous local authorities have additionally developed a wide range of concepts and guidelines for integration on a local level. It is however necessary that individual measures are better coordinated and that the wide variety of activities becomes more targeted. The National Integration Plan supports this comprehensive consolidation within the area of integration politics. 14 All governmental levels and other organisations involved in integration politics recognise the necessity for the substantially improved coordination and cross-linking of integration measures. For example, cooperative projects involving cultural associations and childcare and educational institutions, child and youth welfare, language courses and measures within the employment market in local districts, towns and boroughs must be supported and extended. Our society requires a targeted integration policy in the sense of equal opportunities. This will ensure that support programmes, facilities and infrastructures are systematically oriented towards contact with immigrants. Comprehensive concepts are necessary which will span the entire spectrum from nursery school to adult education and allow all parties involved to pull together. account as a criterion for the planning and review of integration policy. A successful integration policy must be measurable through clear indicators. These indicators must be further developed and become the basis for regular reports and evaluation. A successful integration policy functions on a secure financial basis. During the financial planning period, the Federal Government will allocate an annual sum of around 750 million Euros for direct support for integration and measures primarily aimed at encouraging integration planned in individual government departments. The Federal Government will also continue to finance a large number of measures for the direct encouragement of integration. Members of immigrant families will particularly benefit from the general support programmes within the area of family, education and employment market politics such as financial support for the federal states in the establishment of all-day schools through the investment programme Future education and childcare, financial support for the laws concerning the extension and further development of childcare facilities and childcare facilities available for children under three and also measures for employment promotion. The government will review existing support programmes and, if necessary, direct these towards more effective utilisation within the immigrant target group. standards in an international comparison. Our country needs the potential of children and young people from immigrant families. Their educational success is an investment for the future of our country, as our primary resource is all people resident in Germany. Learning and utilising the German language adequately is one of the most important requirements for educational and professional success and therefore also for social integration. Individual language promotion should be carried out in cooperation with parents. This must be begun at the earliest possible stage in childcare institutions and continue to be guaranteed throughout the entire scholastic career. This requires an educational system which provides opportunities, develops potential and guarantees educational success irrespective of social origins. All children, young people and adults should be able to develop their potential to the full, have access to equal educational opportunities and social, cultural and economic participation. To this end, the Federal Government aims within its sphere of competency to support the federal states in their efforts to improve the educational success of immigrants, including the following measures: Additional course of action By 2008, the Federal Government will produce an interim report on the implementation of the National Integration Plan. The Federal Government s Integration forum will be continued. 4. Federal Government measures Within the framework of its administrative responsibility, the Federal Government will make the following contributions to the National Integration Plan: The Federal Government is in favour of utilising budget resources which will become available through demographic development and the reduction of the number of children and young people in education for the purpose of improvements in education. The Federal Government will develop a concept for the general promotion of language in day-care facilities which will also guarantee successful support for children with a background of migration who are learning the German language. Integration through education A successful integration policy is based on facts. For this reason, research, statistics and our knowledge of the framework requirements of successful integration must undergo comprehensive improvement. Over half of all persons with a background of migration possess German passports. This means that not only the differentiation according to nationality but also the migrational background must be taken into Education is the decisive key to social, cultural and economic integration. This is a challenge that shapes the future of our nation which is gauged by the public according to results rather than competency debates. The federal states are responsible for education issues and the Federal Government in cooperation with the federal states for the establishment of educational In order to utilise childcare institutions as early as possible for integration and language promotion, specially tailored and quality-oriented conditions must be provided nationwide. In cooperation with the federal states and local authorities, the Federal Government plans to expand the quota of childcare places available for children under three to an average of 35 per cent by The government will contribute substantially to the costs entailed by these measures. This expansion is also oriented towards children with a background of migration and will achieve positive effects for early language promotion. The government will support the federal states in the establishment of all-day schools through its investment programme Future education and childcare with a total volume of 4 billion Euros up to the year All-day schools also play a major role in the improvement of educational opportunities and success for children and young persons from immigrant families. 15

8 The Federal Government will support research into the current state of the language situation in order to facilitate a continuous and individual language promotion from childcare institutions right through to vocational training. This should permit the compilation of individual support plans for school pupils and specialised training courses for teachers involved in language promotion. In cooperation with ten federal states, the Federal Government will support the development of an overall concept for the linguistic education and support of children and young people with a background of migration through the programme entitled FörMig. In order to reduce the number of school drop-outs, the Federal Government will implement a model programme School truancy the second chance in cooperation with local project partners which specifically targets pupils attending the secondary school type Hauptschule [approximate equivalent: secondary modern school]. The aim is the reintegration of pupils who have dropped out of school and the improvement of their chance of achieving a school leaving qualification. The Federal Government will support the federal states in educational research and the development of concepts and instruments, for example on issues concerning the improvement of integration (such as the establishment of the current language situation and intercultural education). The results of international comparative studies and regular national educational reports supported by the government and federal states provide information which can be utilised to establish progress in the integration of young persons with a background of migration into the educational system. For the long-term success of Germany as a knowledge society, it is imperative that the potential of young immigrants who have progressed through the complete German education system (educational nationals) is utilised to a greater degree and that this leads to a greater number of young persons with a background of migration achieving better school and higher education certificates. Integration through language national integration courses Language acquisition is a prerequisite for integration. Integration can only succeed if immigrants are able to familiarise themselves to a sufficient degree with the living conditions in Germany so that they are able to act independently in all matters of everyday life without help or assistance from third persons. For this purpose, the Federal Government has set up standardised language and orientation courses for immigrants for the first time since the statutory introduction of integration courses on 1 January This is the 16 largest-scale individual measure within the Federal Government s integration policy and was accompanied by a nationwide system of targeted individual accompaniment during the integration process. These courses have met with high demand. Almost 250,000 people have attended an integration course within the first two years following introduction: more than half of these persons have been resident in Germany for an extensive period of time. An evaluation of the integration courses published in December 2006 also produced suggestions for the qualitative improvement of these courses. The evaluation of the courses views the language level B1 of the Common European Framework of Reference for Languages as being the minimum requirement for the successful continuation of the integration process. The aim must be for substantially more participants to achieve this level than has been the case up until now. A significant requirement for the effectiveness of these integration courses is therefore a greater orientation towards the success of participants. The quota of hours will be extended and the quality of courses offered improved. Additionally, childcare provided by qualified staff will be offered within the framework of integration courses, in particular for courses concerning the integration of parents and women. The Federal Government undertakes the commitment to extend the range of integration courses offered swiftly and nationwide. The government will investigate whether the measures for the increase in the success of courses, the qualification of teaching personnel, the optimisation of course management, a targeted financing system and the sustainability of the integration courses can be integrated into the language course system. in opportunities of employment and income levels. The Federal Government will continue to concentrate its activities in order to improve the access of young persons with a background of migration to vocational training and professional life. The government will undertake efforts to improve the career choice spectrum and ensure that public support services are more precisely tailored to needs and more target-grouporiented. The government will provide particular support for measures which increase the number of training positions for young persons with a background of migration. The Federal Government additionally aims: together with partners of the Training Pact to intensify the commitment for the professional integration of young persons with a background of migration who are willing to enter education and vocational training, to accompany efforts by partners of the Training Pact with the EQJ-Programme (special federal programme for entry qualifications for young persons), increase this successful programme to encompass 40,000 places and extend its duration. The EQJ has proved to have been a particularly successful bridge leading to vocational training for young persons with a background of migration, to implement the initiative Active for training places together with the DIHK (German Association of the Chambers of Commerce and Industry) and German-foreign trade associations with the aim of creating up to 10,000 new jobs in businesses with proprietors of foreign origin by the year 2010, to make a contribution to the support of regional vocational training opportunities and the improvement of the vocational training situation with the structural programme for vocational training JOBSTARTER, including the Coordination Office for Training in Foreign-owned Companies (KAUSA), from which young persons with a background of migration have been particularly able to profit, The Federal Government undertakes the commitment to strengthen cooperation between initial migration consultation and/or youth migration services and the language course organisations according to the concepts of specific immigration consultation services. The Federal Government plans to measure the effectiveness and sustainability of integration courses on a representational basis. Integration in vocational training and the working environment The Federal Government places a strong emphasis on measures for the promotion of integration in its employment market policy. to campaign within its own area of responsibility of public administration and services for an increase in the number of trainees with a background of migration, to extend financial support for foreign vocational trainees with the vocational training allowance and the Federal Education and Trainings Assistance Act (BAföG), in particular for young persons with right of residence and perspectives of remaining in Germany and to offer young women with a background of migration who often lack examples for professional orientation a mentoring programme for individual employment market and career orientation, for example through the project network.21. Success in significant areas of integration is determined on the employment market. Integration is most successful where persons from immigrant families are already professionally active. The business and administration sectors will in future be dependent on personnel with specific linguistic and intercultural knowledge. For this reason, a significant improvement in employment market integration is imperative for social, socio-political and economic reasons. The employment opportunities for immigrants must be improved, employment market measures and opportunities for consultation, information and communication better tailored to their needs and their integration in employment specifically targeted. On behalf of the Federal Government and in cooperation with the German Federal Employment Office and non-governmental organisations, the consultancy and information network Integration through Qualification (IQ) is developing new strategies for the improvement of the employment situation for immigrants, resettled Ethnic Germans and recognised refugees. Following the completion of the current evaluation, the government will examine to what extent successful action approaches and instruments can be transferred to the regular system of employment market measures and incorporated on a long-term basis. The Federal Government will continue to support the vocational training, integration and encouragement of applicants from all population groups in order to guarantee equal opportunities. The Federal Government is aware of its own role as employer and will increase the proportion of personnel with a background of migration according to suitability, qualification and ability within the framework of its possibilities. The Federal Government supports the German industry s initiative Diversity as chance charter of diversity in businesses in Germany. This will be accompanied by a campaign and series of competitions Diversity at the workplace/diversity as employment resource which is aimed at the improvement of immigrant integration on the employment market and in vocational training and the consideration of immigrants in business and public sector recruitment and personnel politics. Education and vocational training are core factors for the social integration of immigrants. These factors play a decisive role in enabling equal participation in political, cultural and economic life and therefore also 17

9 With the implementation of the ESF national programme for the subsidy period 2007 to 2013, the Federal Government will turn its particular attention to political immigration aspects and support the National Integration Plan through a series of additional measures. The employment-related promotion of the German language within the framework of the ESF programme will be extended from the middle of This is planned as an extension to the national integration courses and will in future be accessible to all persons with a background of migration. Integration in the academic world The German academic system universities and research organisations is an example of successful integration in many areas. The academic world thrives on open-mindedness and cooperative competition. The over 180,000 foreign students and highly qualified academics in Germany are very welcome in our country. 18 Women and girls Almost half of the persons with a background of migration resident in Germany are girls and women, and for this reason integration policy must be particularly addressed to females. This group simultaneously represents a central pillar and the motor for an active integration policy. Female immigrants in the role of mothers have a key position in the integration of the next generation. Numerous girls with a background of migration are successful at school and have a command of the German language, but do not receive the opportunity to utilise their potential to the full. The Federal Government will continue its efforts to strengthen the potential of female immigrants in their diverse plans for the future and support women and girls in their opportunities for social and political participation. The Federal Government supports integration in the academic world in order to attract the worldwide best academics to Germany, ranking it internationally in a favourable position as a place of study and a country of ideas. The Federal Government will focus on increased support for gifted and highly gifted educational nationals and foreign students and researchers above all through the extension of the support specifically for immigrants within the general framework of support for vocational trainees and gifted students. The Federal Government supports research into migration and integration. The Federal Government welcomes the commitment by the federal states to contribute to the local improvement of the academic achievement of foreign students and their selection, supervision, control of study progress and advisory services in universities: the Federal Government will support these measures within the framework of intermediary organisations. The Federal Government will additionally extend support for measures aiding the qualification of foreign academics within the German employment market and undertake further target-group-oriented development. Essential factors aiding the integration of women are the extension of the quota of hours for parents and women s integration courses, the obligation on the part of the course organisers to provide evidence that childcare with qualified staff is available, the improvement of financial support for foreign trainees and students through the vocational training allowance and the Federal Education and Trainings Assistance Act (BAföG) and progress towards the easing of restrictions in the practising of a profession such as the issue of the approbation for medical practitioners. The Federal Government will continue the dialogue with female immigrants and programmes for their support, encourage their participation in the state and society and in future also involve their organisations more closely in the planning and implementation of projects. Forced marriages destroy individual perspectives and seriously violate the human rights of the victims. The Federal Government will continue its efforts to combat forced marriages and provide aid for the victims. This necessitates among other measures improved information and education on the topics of human rights, women s rights and forced marriages and additionally the provision of secure shelter accommodation. Local integration tal policies and measures. The cooperation of all participants also takes place on a national level through the coordination of programmes and a broad transfer of information concerning existing possibilities for action and support. The Federal Government also runs the programme Local employment, education and participation in the programme areas of the Socially integrative city which receives financial support from the European Social Fund. This enhances the socioenvironmental concentration with measures to encourage employment and vocational qualification. The further development of this programme with a greater volume of financial support for the subsidy period 2007 to 2013 is planned. Monitoring and evaluation in the programme Socially integrative city will also be anchored as permanent elements in the fundable neighbourhood development concept from the aspect of integration measures. The discussion of experiences will be intensified, for example via the transfer office of the Socially integrative city programme. In the model programme Migration/integration and urban district politics run by the Federal Government department for experimental housing construction and urban planning, further urban planning strategies and approaches for action associated with the encouragement of practical integration will be accompanied and tested. Integration takes place on a local level. The immediate neighbourhood plays a central function in the integration process and provides a centre of vital interests and place of contact for both immigrants and the resident population. Local living conditions, the nature of the residential environment and public and private infrastructures provide vital general framework conditions for social cohabitation and opportunities for integration. The Federal Government specifically welcomes the integration efforts undertaken by local authorities who have recognised integration as a major task for the future and have in many cases already developed relevant local concepts. The contribution on the part of Local Authority Associations shows that cities, districts and communities are aware of their future mission and are prepared to utilise their great potential for the integration of persons from immigrant families. There is consensus across the board that integration is an issue for the entire community and that multidisciplinary overall concepts are necessary. There is particular need for action in disadvantaged neighbourhoods which frequently house a large number of immigrants. A central instrument of action for the improvement of housing and living conditions in these types of environments is the national-regional programme Districts with special development needs the socially integrative city. The support for 450 neighbourhoods in almost 300 districts combines investment in housing with supplementary measures for the improvement of the social living conditions of local residents. Within the framework of its area of responsibility, the Federal Government will test an online consultation service for victims of forced marriages and professional helpers as a model project for a low threshold advisory service. The Federal Government will improve empirical research into the extent and statistics of forced marriages. The Federal Government will make a contribution to the long-term provision of sheltered accommodation in sufficient quantities, a reliable network between national and regional advisory services and the securing of relevant financial aid. The Federal Government provides annual funding for the Socially integrative city programme measures, financing a third of the programme volume: the federal states and local authorities combine to provide the remaining two-thirds of investment. This programme also works towards the integration of immigrants. Additional measures for social integration can receive financial support from funds for model projects. This financial support will be continued and is guaranteed to remain at current levels on a long-term basis. The socio-environmental approach integrated in the Socially integrative city programme demands the cross-functional concentration of departmen- Cultural Integration Culture is an essential basis of communal life which unites people of different origins. The structuring of the immigration society is also a cultural challenge in which the moderate handling of cultural diversity is a necessary skill which has not yet been universally acquired. The Federal Government will intensify its activities for the cultural integration of immigrants and places the focal point on cultural education. The government s support of cultural integration includes the following measures: an inter-ministerial working group Culture and integration to be established to approach the topic as a cross-functional focal point. the adoption of integration concepts in the working group s policy for support and the upholding of its aims in cultural projects supported by the group. the recommendation for the establishment of a working group Museum migration culture integration to be incorporated into the International Council of Museums (ICOM). 19

10 the intensification of exchange of information and governmental cooperation between France and Great Britain concerning cultural-political measures for integration and cultural education within the framework of the twice-yearly German-French Council of Ministers and the European Year for Intercultural Dialogue In consideration of the independence of reporting and programme planning and the media-political responsibility of the federal states, the Federal Government s support for the media in their integration-political contribution will include the following measures: The Federal Government supports the development of integrative and innovative programme formats within the framework of concept workshops with producers and programme planners and developers and will cooperate to this end with the Grimme Institute, the CIVIS Media Foundation, the German international broadcasting service Deutsche Welle and the national initiative Integration and Television. Within the framework of the German Foreign Office s Ernst Reuter Initiative, the Federal Government will investigate possibilities of support for cooperation between German and Turkish media such as workshops or a German-Turkish television conference involving high-ranking officials responsible for programme conception. Integration through sports Sports can play a large part in bringing people of different origins together in a friendly and fair manner and can thereby act as a motor for integration. Sports clubs and organisations have for many years already made a significant contribution to the integration of immigrants. The Federal Government recognises and supports the sporting world s extensive commitment to the integration of persons from immigrant families. Sporting activities for immigrants must be socially, culturally, linguistically and geographically accessible. Target-group oriented activities play a particularly significant role for girls and women from immigrant families. Activities which are open to all and available locally in addition to sports clubs provide a good opportunity for participation. Since 1989, the Federal Government has financed the programme Integration through sports which has compiled information on the integration potential of sporting activities over the last 18 years. The government aims to build on this experience and further increase the future effectiveness of the programme; a comprehensive scientific evaluation of the programme is planned. There are a substantial number of further integration projects involving sporting activities. The government will set up an information platform for the documentation of national and regional activities in order to increase the exchange of information between the individual programmes and encourage the networking of the projects. The media shape the public image of immigrants and can influence the formation of opinions concerning integration; for this reason, they have a great responsibility. Both public and private media have undertaken extensive action concerning the social integration of immigrants for which they must receive recognition. 20 The guarantee of equal participation is a process which above all demands the support and qualification of immigrant organisations. The Federal Government will offer qualified help for immigrant organisations as project initiators and thereby support the construction of a network of immigrant organisations. Integration through civic commitment Integration is not possible without wide-ranging activities in civil society. Civic commitment creates social cohesion and acts as a catalyser for integration. The tangible experience of participation on an equal level and being able to help to shape society plays a part in creating identity and strengthens personal responsibility and competency. Commitments on the part of persons from immigrant families in associations, clubs, organisations and institutions embedded in the host society enrich the developing diversity of our society. These commitments must however receive recognition and targeted support. Here the Federal Government will orientate its policy to a greater extent towards the encouragement of equal participation of immigrants and their organisations. The government will guarantee the proportionate involvement of immigrants and their organisations, i. e. within the framework of national programmes, government-supported infrastructure and network projects, in invitations to tender and representation on advisory boards and expert committees. The government will define a greater intercultural openness and interconnectedness as criteria for the support of infrastructural projects and will incorporate these aspects in support agreements. Institutionally supported organisations will be encouraged to open their personnel development concepts and projects to permit equal participation of immigrants. The Federal Government supports the efforts of organised sports towards an intercultural opening through its public relations campaign Forum integration. We will take part. Integration through media 21

11 sibilities. The guiding principle is unity of purpose diversity of methods. From the aspect of immigration, political, social and infrastructural conditions vary among the 16 federal states; there is a wide spectrum of requirements which has produced great diversity in integration-political approaches. Contribution of the federal states to the National Integration Plan United for greater integration The federal states are aware of the significance of integration for the cohesion and sustainability of our society and present their joint contribution to the National Integration Plan. During the last few years, the federal states have developed integration-political general concepts and guidelines to consolidate and harmonise the wide range of individual measures. The states have also initiated and carried out discussion processes on federal and local levels involving immigrants, social groups and organisations. The federal states thank the German Chancellor for her initiative in setting up the National Integration Plan. The invitation to the integration summit on 14 July 2006 triggered off a discussion process at all state levels and throughout civil society which in its dimensions and intensity has not previously taken place in Germany. This dialogue has resulted in improved communication regarding the aims and core content of integration policy, whereby the active involvement of immigrants themselves and their organisations in the activities of the working groups have played a central role. Their commitment has had a significant influence on the progress of the National Integration Plan. The federal states would like to offer their thanks and recognition to all working group participants for their achievements and will utilise the groups final reports for further developments in integration policy and actively continue the dialogue in progress. The Federal Government, federal states and local authorities have a common responsibility in integration policy and no level is able to implement a successful integration policy without the involvement of other levels. An effective, practical and citizen-oriented integration policy can only be achieved through cooperation between the Federal Government, federal states, local authorities and civil society and the creation of a network linking all measures and actions. 22 The federal states are ready to undertake responsibility together with the Federal Government, local authorities and civil society; in all federal states, integration is viewed as a central social task for the future in the Federal Republic of Germany. Integration takes place on a local level. The success of the integration of persons with a background of migration can be judged in local communities, towns and districts: this is where both opportunities and problems become visible. The local community forms the basis in which all inhabitants can live together peacefully on an equal standing. The federal states welcome the wide range of efforts already undertaken by local authorities and will continue to cooperate in their further development. The contribution of the Federation of the German Local Authority Associations to the National Integration Plan demonstrates that local authorities are aware of their responsibilities and are willing to continue to utilise their organisational potential for the integration of persons with a background of migration. The federal states foresee the anchoring of the contribution by the Federation of the German Local Authority Associations as an element within the National Integration Plan. The federal states are in agreement that integration policy must be viewed as a cross-functional task and organised and coordinated accordingly. Integration policy is far more than merely the sum of all departmental measure packages. Integration affects all areas of federal politics and this must be recognised by all departments. During the past few years, the federal states have reacted to the increasing significance of integration through the adjustment of their administrative structures. The federal states are united in their commitment to the comprehensive conception of integration policy and will continue to pursue their aims of improvements the coordination of individual existing measures, the embedding of these measures in coherent overall structures and the clear definition of respon- Integration policy can be divided into two general problem complexes. The first substantial task which is shared by all federal states is the strengthening of open-mindedness, tolerance and peaceful coexistence in Germany. The second task which chiefly affects the Western federal states is to catch up on the integration process. The large majority of persons with a background of migration are resident in these parts of Germany, including numerous families from educationally distant social strata of the former guest worker recruitment countries. Enormous efforts are necessary, above all in the political fields of education, employment and social welfare, to guarantee the future prospects of these persons and their children and also the future of our country. The dimensions and structure of the immigrant population differs within the federal states, as do the existing integration infrastructure and political measures undertaken to achieve integration. This wide range and great diversity is both a result and a strength of the federal structure of the German Federal Republic. The federal states have however agreed upon common benchmarks for integration policy which were expressed in a resolution adopted by the Bundesrat [Federal Assembly] on 7 July Differences can also be observed in the individual concepts and terms utilised by individual federal states. All federal states are striving towards a precise linguistic expression of the multi-facetted reality of immigration to avoid the mere differentiation between foreigners and Germans. The federal states are searching for a definition which expresses both the aspect of origin and affiliation. Various terms have been utilised in different federal states which can be roughly translated as immigrants, persons with a background of migration or persons with a history of migration. In this position paper, all similar terms utilised should be understood as being synonymous. The close cooperation between the Federal Government and civil society and the sustainability of the dialogue between the individual federal states are considered to be indispensable. The target is the exchange of experiences of both good and bad practices and, where reasonable and feasible, the development of common strategies. For this reason, the federal states express their commitment to follow up the collaboration on the National Integration Plan with further close coopera- tion in order to guarantee a regular exchange of experiences of programmes and measures for integration policy in the sense of good practice. The federal ministers and senators responsible for integration will in future also hold regular meetings during the implementation process of the National Integration Plan which will also investigate topical integration policy issues. The states North Rhine-Westphalia and Schleswig-Holstein have been selected to issue invitations for a relevant meeting during the first quarter of 2008 in which the good practice of all 16 states will be presented and the form and procedures for further cooperation discussed. The political responsibility for integration is allocated to different ministries in different federal states. Independent of this fact, parallels do however exist between the federal states regarding the administrative organisation of integration policy. In numerous states, coordinating bodies have been set up (cabinet committees, state secretary committees and interministerial working groups for integration) which will improve the harmonisation and controlling of action undertaken by the relevant departments. In addition to this inter-ministerial network, a variety of advisory councils have been established in several federal states which, under the supervision of the regional governments, involve representatives from various sectors of civil society including businesses, trade unions, the academic world, independent welfare organisations, churches and religious communities, organisations run by immigrants, etc. which are integrated into a structured dialogue process. Additionally, representatives have been appointed for issues concerning integration, foreign citizens and resettled ethnic Germans. In certain cases, the umbrella organisations of local foreign citizen or integration councils on a regional level receive financial aid, but in other cases existing opportunities for the inclusion of immigrants in foreign citizen or integration councils must be further extended in order to encourage participation and achieve a greater involvement in community structures. Within the framework of the national integration programme according to 45 German Residence Act in which the federal states are actively involved, numerous existing integration-political programmes and measures are being compiled and recommendations made for their further development. The federal states view integration as not merely a one-sided adaptation process, but one which also requires the willingness for straightforward dialogue between immigrants and the host society. Integration should involve much more than friendly cohabitation and requires a culture of mutual respect. 23

12 Here the basic principles of demand and support are valid: immigrants and their families utilise their abilities and potential to achieve participation and make use of activities encouraging integration. Should they not be in a position to help themselves to a sufficient degree, the host society will provide solidarity and support. The federal states have undertaken significant efforts involving a high level of financial support and are in a position to offer a wide range of general and specific integration support. It is generally agreed amongst the federal states that the existing infrastructure is productive and plays a large part in improving the integration of persons with a history of migration. The federal states view an insufficient command of the German language, social-environmental segregation and the retreat into individual ethnic structures as the greatest obstacles for successful integration. The results are problems at school and in vocational training, a high level of unemployment and the reinforcement of anti-integration and, to a certain degree, religiously motivated currents of thought. The federal states outline their common position on the essential areas of integration policy for the National Integration Plan in the following pages. The dimensions and timetable for the realisation of political plans and measures below are dependent on the allocation of budgetary funds in regional parliaments. Local integration The federal states are in agreement that integration policy is not only a task for the state, but is also equally dependent on the active participation of civil society organisations and the individual willingness on the part of immigrants themselves to become integrated. The federal states expect a clear acceptance of the German Constitution and regional constitutions from all people resident in our country and also an acceptance of fundamental rights and values within our society, particularly democracy, the constitutional state, the observance of human rights, self-determination and the equality of men and women. Integration can only succeed if state and social institutions are accessible to immigrants and take into account the realities of immigration. For this reason, the federal states are working towards the intercultural accessibility of their administration structure, including qualification measures for all public employees and efforts to increase the proportion of employees with a background of migration (also see page 27 federal states as employers ). The federal states unanimously place a strong emphasis on education and the early acquirement of the German language beginning in the elementary stages of education. The federal states will undertake further developments in integrative concepts for the promotion of the German language, including the earliest possible establishment of linguistic standards for all children. Particularly during the past few years, public recognition of integration-related political challenges associated with the development of religious diversity has grown in all federal states; the federal states are aware of their particular responsibility which is inherent in their cultural autonomy. For this reason, they seek a structured and continuous dialogue, particularly with Islamic organisations. 24 Integration takes place on a local level! Persons with and without a background of migration encounter one another in neighbourhoods, towns, districts and city quarters. The success or failure of integration can be observed on a communal level. The success but also problems of integration are most clearly visible on this level. For this reason, integration must begin locally: in residential areas, in local public administration, at work, in schools and nursery schools and with the participation of immigrants themselves. Social-environmental development The federal states specifically value local authorities as the central political actors for integration. Independent cities, districts and municipalities have undertaken extensive personnel-based and financial commitments for the purpose of integration. The federal states have, however, established that the requirements for integrations can vary widely among the individual states according to existing social structure and the dimensions and composition of the immigrant population. For the success of integration, the solving of problems relating to the social-environmental concentration of immigrants is a decisive issue and the programmes set up by the European Union, Federal Government and the federal states for integrated urban development are particularly vital for socio-environmental development. The federal states will take action to ensure that improved possibilities for support are increasingly also utilised for integration measures. Integration through education Education is the primary resource for successful integration. Core aspects of the state mandate for education include the protection of the right of all young persons to participate in general and vocational education, the nurturing of a free development of per- sonality and the individual and comprehensive preparation of children and young persons for their future social and professional life. The federal states are in agreement that the implementation of this constitutionally protected mandate must also be specifically guaranteed for schoolchildren with a background of migration. The federal states support the following positions on the basis of the previous resolutions of the conferences of ministers responsible for youth welfare and education. Early encouragement in child day-care institutions The federal states have already agreed on a common framework for the implementation and fulfilment of the education mandate for child day-care institutions at an elementary level. This framework is substantiated, implemented and extended in the existing regional education and orientation plans for all federal states. Within this joint framework, the individual states can pursue their own further differentiation and implementation according to prevailing conditions and situations. The focal point in implementation on an elementary level is the communication of basic skills and the development and strengthening of personal resources. Linguistic education is a core aspect of the education mandate for child day-care facilities. The promotion of language must therefore incorporate both a comprehensive and an individualised approach according to children s needs. To achieve success, this approach must be integrated into the children s general exploration of their environment, be implemented on a regular basis at the earliest possible stage and be systematically structured. Early encouragement in child day-care institutions requires supervision which is quantitatively and qualitatively tailored to existing needs. From the aspect of the promotion of language, the federal states plan to implement the topic of language education as a cross-functional task within the framework of general educational concepts for child day-care institutions. Common or closely harmonised educational plans for child day-care institutions and elementary schools have already been formulated or are still in progress in all federal states. During the last few years, immense progress has been made in the improved coordination of support provided by child day-care institutions and the expectations for children entering primary schools. Procedures for the establishment of linguistic ability or observation of language skills prior to school enrolment and any necessary subsequent remedial tuition have either already been implemented in the federal states or are currently at the planning stage. The federal states aim to introduce additional support measures for institutions with a majority or high proportion of children with a background of migration in order to provide an effective compensating promotion of language. The federal states plan to test the success of these measures through continuous assessment and enable the exchange of information on the basis of regionally based reports within the framework of national reporting in order to collect information on examples of good practice. The implementation of these language promotion measures cannot be fulfilled without the relevant qualification of child-care staff. The federal states are currently examining a variety of suitable measures for the provision of these qualification opportunities and are committed to incorporate the relevant decisions into the regular channels of information exchange. Language promotion/multilingualism in schools The significance of the German language as a teaching and communication language is universally accepted, as is the fact that all children with deficits in German must have access to language promotion in order to be able to take advantage of equal opportunities in education and vocational training. The federal states consider this to be a major task for all teaching personnel in all subjects and aim within their areas of responsibility to implement extra language support in all school forms and stages where required. At the same time, the federal states undertake the commitment to offer supplementary training during the next five years which will enable all teaching personnel to implement their language education mandate in school tuition. Alongside the learning of the German language, the federal states recognise the significance of multilingualism for all children and young persons. This includes the mother tongue or family language of children and young persons with a background of migration. Suitable measures for the anchoring of the principle of multilingualism within the normal school day must be identified. The federal states pledge their support for a continuous exchange of information concerning the encouragement of multilingualism on the basis of the national educational reports. Parent cooperation The federal states consider parent cooperation for the support of integrative work in schools to be a high priority and are particularly interested in strengthening the cooperation of parents with a background of migration. The federal states are planning a joint statement on parent cooperation which also involves the aid of immigrant associations. The federal states are examining the possibility of the involvement and qualification of voluntary multilingual parent advisors to form a linguistic bridge between families with a background of migration, child day-care centres and other institutions. They support the introduction of systematic and targeted contacting and provision 25

13 of information for parents covering the topics of early language promotion, early attendance of child daycare centres and the development of language. All-day schools All-day schools provide additional time for learning and education. Pupils from socially disadvantaged or educationally distanced homes receive a special opportunity in all-day schools to compensate for linguistic, cultural and social deficits. The federal states produce regular statistical reports on the development of general education schools in all-day form. The federal states will continue the all-day school programme financed by the Federal Government as planned up to the year 2009 and will continuously increase the proportion of participating schools offering all-day activities. The federal states additionally pledge to produce regular updates within the educational report system on the range of activities offered by all-day schools. Cooperation The federal states are in favour of cooperation between child day-care institutions and schools to provide improved support for children. This cooperation should be integrated in the concepts for youth welfare service organisations and work in schools, for example in school programmes. Improvement of scholastic success and transparency of the school system Independently of the differences between the individual federal states, the proportion of pupils repeating a year, school drop-outs and school leavers without school certificates is generally still too high. Children and young persons with a background of migration are over-represented within these groups, particularly boys and young males. Since the first results of the PISA Study, the federal states have been acutely aware of this situation and have cooperated in the development of priority fields of action to solve these problems. Short-term success cannot be expected, as a mental adjustment will be necessary in order to develop a school culture which does not exclusively focus on performance-related issues, but also leaves room for individual encouragement and support. The federal states will continue their regular reassessment of the effectiveness of measures implemented for the improvement of scholastic success in their schools and will submit relevant reports within the framework of national school reporting. They are united in their aim to reduce the proportion of pupils repeat- 26 ing a year and school drop-outs significantly within a period of five years and achieve the same results for children and young persons with a background of migration as for the general average for all pupils. Individual states will conclude target agreements with their schools and other states will test alternative measures. The federal states will remain in regular contact regarding the effectiveness of these measures. Simultaneously, a common aim is the active encouragement of transparency in the current school system. The transfer quota of children and young persons with a background of migration will be systematically registered to target the achievement of comparable figures to the general average for all pupils. School as a location for integration Child day-care institutions, schools and universities are locations in which integration is most successful. Integration does however not occur automatically, but requires a high degree of willingness, time, a readiness to make great efforts and open-mindedness from all sides. The federal states are aware that schools with a higher proportion of children and young persons with a background of migration must make greater efforts to achieve successful integration. For this reason it has been agreed that specific aid will be allocated to target measures such as the reduction of pupil numbers, appointment of additional teaching personnel or support for teachers provided by socialeducational experts from the youth welfare sector. These schools require particularly highly qualified members of staff who can be supported by personnel in possession of specialised intercultural competence (e. g. integration pilots), additional teaching personnel, nursery teachers and social workers with a background of migration and by specially tailored training courses. Modules for the acquisition of intercultural competencies have already been incorporated into the new standards for teacher training; these measures will be implemented by the federal states at the earliest possible stage. with a high proportion of young persons with a background of migration. The federal states are aware that vocational schools with a higher proportion of young persons with a background of migration require support to be able to implement integration measures to a sufficient degree; it has been agreed that these schools should also receive specific help such as the reduction of pupil numbers, the appointment of additional teaching personnel with a background of migration and support for teachers provided by school social workers or personnel in possession of specialised intercultural competence, for example integration pilots. Language promotion programmes will be offered in vocational schools where demand exists. Multilingualism among young persons has a particular significance during vocational training and should where possible be further developed within the occupational field and thereby increase the professional chances of trainees in their future career area. Integration in professional spheres Employment has a central role to play in social integration. Although employment policy lies within the sphere of responsibility of the Federal Government, the federal states wish to make their own contribution through a variety of measures. Employment market programmes A personnel- and business-oriented promotion of employment and the qualification of persons with a background of migration will enable the effective and precisely tailored placement within trainee and employment markets. The federal states welcome the opportunities provided by the European Social Fund for integration in employment. The federal states will support integration within the employment market within the sphere of their responsibilities, in particular through specific employment market measures within specific federal states. Openings for young academics The federal states as employers Germany competes with other nations to attract top academics. For the stability and further development of Germany as the land of ideas and also in view of demographic change, greater efforts must be made to tap and encourage the potential of persons with a background of migration growing up in Germany and immigrants with high qualifications who have come to our country. The potential of gifted persons must be fully tapped and educational nationals must receive increased motivation to pursue an academic course of study. The federal states are also aware of their own role as employer and will undertake efforts within their own spheres of responsibility to increase the proportion of their personnel with a background of migration in consideration of suitability, ability and professional standards. Linguistic and intercultural competences should be taken into adequate consideration. The federal states also consider it necessary to provide additional support for foreign students in Germany in order to boost their academic success. This includes support in the acquisition and utilisation of the German language and the provision of advisory, support and coaching programmes. Vocational training and vocational schools Cultural education Young persons with a background of migration encounter great difficulties in the transition to the dual vocational training system. Career guidance in general education schools must make great efforts to counteract the rigid, gender-oriented selection of professional careers and provide future-oriented alternatives. Vocational schools have a special responsibility to provide instruction on specialised and professional terminologies. The federal states will particularly focus on this aspect of language promotion and will examine the extent and effectiveness of previously implemented measures and the qualification of staff in view of the extra challenges presented by classes Cultural education reinforces the integration process. The federal states view the experiencing of different cultures within Germany as a special opportunity in a period of ever-growing open-mindedness in global society. The openness for the achievements of other cultures encourages reciprocal understanding and respect. This concept must be present in all fields of cultural education and will receive special consideration by the federal states in their concepts for all state education institutions. Opportunities in vocational training Within the National pact for vocational training and skilled personnel development, the federal states have undertaken to support an improved transitional period between school and professional career, the adequate preparation for vocational training and career guidance in general education schools, whereby particular aid should be available to support young persons with a background of migration in their search for a apprenticeship training position. This includes the increased incorporation of practical experience within the school timetable and the setting up of practical and cooperation classes for early extra support for under-performing pupils. Networks and cooperation projects between administrative bodies, schools, youth institutions, local trade companies, job centres, working groups/community forums and other actors (such as immigrant organisations, immigrant trade associations and the media) must be established and supported to encourage the qualification and placement of young persons in work experience places, training schemes and the employment market. 27

14 Recognition of foreign training and study certificates The federal states consider it essential that school, vocational training and professional certificates gained by immigrants in foreign countries should be able to be utilised to a greater extent; this could possibly be achieved through the partial recognition of these qualifications and opportunities for relevant additional qualifications. Business start-ups and training potential The federal states see great potential in persons with a background of migration regarding self-employment possibilities and business start-ups and intend to increase the focus of information material and advisory services on these target groups in areas in which this has not already taken place. The federal states will campaign for the increase of businesses owned by proprietors with a migrational history as locations for vocational training. Integration courses Within the framework of their responsibilities and possibilities, the federal states will work to achieve the success of integration courses and provide support for these courses through encouraging the increase in cooperation between public authorities for foreign nationals, working groups/community forums, organisations offering integration courses, the regional coordinators of the Federal Office for Migration and Refugees and immigration-specific advisory services. Women and girls Older persons with a history of migration Upholding rights Removal of access barriers The federal states welcome the efforts on the part of numerous immigrant women to achieve integration in family, work, neighbourhood and society and particularly applaud the efforts undertaken by girls with a background of migration in schools, vocational training and professional careers. The federal states perceive the inherent opportunities specifically for girls and also society as a whole, and therefore see it as their task to uphold the rights and opportunities of women and girls for equal participation. The federal states support the right of self-determination on the part of women and girls and will undertake efforts to help these groups achieve their full potential. The total number and population percentage of elderly persons with a background of migration will see a steep increase in the future. Simultaneously, many of these persons do not find access to services for the elderly and care services and institutions although these facilities are readily available. Protection of rights Where women and girls are prevented from exerting their rights and achieving their potential, in particular in the free selection of professional careers and choice of partner, the federal states sees it as their responsibility to provide suitable prevention, crisis intervention and support measures. Health Health is a universal, central and personal issue. The health service is accessible for all population groups irrespective of their origins. Nevertheless, educationally distanced persons and those with a background of migration utilise health prevention and healthcare services less frequently than the general population. Early participation in integration courses Intercultural access The declared objective is to provide early access to integration courses for immigrants in need of integration support. The support network should also include child day-care institutions, youth welfare associations and social welfare associations (social housing companies) to provide additional access for older immigrants to integration courses. Sustainability of integration courses The federal states consider that supplementary measures accompanying integration courses are necessary for the sustainability of language promotion and in particular the involvement in the employment market. Within the framework of their responsibilities, the federal states will contribute to the success of these measures which are designated as joint and accompanying projects. 28 The federal states will continue their efforts to improve the access of older persons with a background of migration to these services, for example through targeted information and the encouragement of culturally sensitive work methods in services and care for the elderly. The federal states will also strive for the increased utilisation of the healthcare system by persons with a background of migration through improved intercultural access. It is particularly important to improve access to health services, health information and health competences. The federal states will support projects and initiatives for the removal of access barriers to these services and further develop and implement target-group-oriented facilities with cooperation partners. This is also valid for services available for immigrant persons with disabilities. Integration through civil commitment and equal participation The social cohesion of modern societies cannot be fully guaranteed by economic efforts on the one hand and political and state administrative action on the other hand. A broad spectrum of civil commitment is necessary to achieve social cohesion. The activities of the numerous groups and organisations operating in civil society play a large role in shaping the social fabric within the federal states and communities and can create the conditions necessary for successful integration. It is above all the common civil commitment of persons with and without a migrational background which encourages reciprocal acceptance and social cohesion. Civil commitment is based on voluntary self-obligation, the public assumption of responsibility and creation of networks; it plays a part in creating identity and strengthens individual responsibility for action. The federal states are united in their view that voluntary commitment by and for immigrants of all age groups in the classical associations, organisations, churches, religious communities and in self-organised immigration organisations contributes substantially to social stability. The joint civil commitment of persons with and without a migrational background simultaneously enables the host society to become accustomed to increased diversity and come to terms with changes. Culture of recognition The federal states are in favour of a culture of recognition; this can be achieved through the recognition of outstanding individual commitments and also through awards for successful integration projects. The federal states will continue to ensure that the expert knowledge of dedicated citizens within the field of integration is utilised through the involvement of these persons in the relevant public bodies such as regional advisory boards and committees. The federal states consider the opening for intercultural dialogue in clubs, associations, churches, religious communities and self-organised immigration organisations to be vital. Integration through sports The federal states are united in their opinion that sports can play a strong and outstanding role in integration and underline the significance of sporting activities in their integration concepts and guidelines. Sports communicate team spirit, fairness and acceptance and can help to reduce prejudices and build bridges between people from different social and cultural backgrounds. Sporting achievements communicate social recognition and diverse feelings of success. Sport promotion is particularly suitable as an effective means of combating violence and right-wing extremism. Sport promotion The federal states are providing funds for the construction, renovation and modernisation of sports facilities, particularly for mass sports and will additionally provide support for sporting activities, for example through their contribution to the programme Integration through sports. The existing integration support structures can benefit significantly from closer links with sports clubs: the federal states aim to further promote these links. Media The media bear great responsibility for the social integration process: they can also have an influence on the formation of opinions concerning perceptions of immigration and integration, provide social groups with a platform and can not only confirm prejudice, but also work towards the clarification of a situation. Programmes and structures The federal states consider that the media, in particular those subject to public law, are currently presented with a central cross-functional task concerning integration as never before. For this reason, the minister presidents commissioned the two major German public broadcasting companies ARD and ZDF in October 2006 to compile suggestions by June 2007 as to how programming and programme structures can be further developed and implemented as an additional 29

15 contribution to integration. The federal states will examine the suggestions when submitted to ascertain the possibilities of implementation. Contribution of the Federation of the German Local Authority Associations Monitoring of integration Data quality Preliminary remark Integration needs indicators to permit the observation and description of immigration and integration processes and the assessment of the effectiveness of supportive measures. The customary differentiation in current statistics between Germans and foreign citizens is only of limited significance for the ascertainment of current information on integration. Since 2005, the micro-census has provided more extensive possibilities of statistical analysis and enables the establishment of both nationality and also migrational background. The federal states plan to incorporate this new quality of data (from which valid statements are anticipated) into their immigration monitoring and will devote increased attention to the topic of immigration monitoring within the framework of the national integration programme. The Federation of the German Local Authority Associations welcome the dialogue which has accompanied the National Integration Summit and are prepared to make a contribution to the further improvement of the integration of persons with a background of migration and the rectifying of existing integration deficits. Towns, districts and boroughs are aware of their great responsibilities regarding integration. They will rise to the challenge and are willing to continue to utilise their creative potential for the integration of persons with a background of migration. In certain areas, these persons make up almost 30 per cent of the population. This development will continue during the next few decades also as a result of demographic developments and is justification for continuing and further optimising our integration efforts. Concluding remark Integration has great significance for the cohesion and sustainability of society. With their contribution to the National Integration Plan, the federal states demonstrate that they will meet this challenge with a united front and extensive efforts. 30 Successful integration entails not only a host society which is willing to integrate, but also persons with a background of migration who are willing to be integrated. The integration summit has succeeded in bringing this topic to the forefront on a national level. The local authorities have already undertaken measures to aid integration for many years and have made a significant contribution to integration and social peace. There are numerous examples of successful local integration measures and this diversity is a symbol of the potential of community self-government which must be maintained for the future. Voluntary commitment on the part of the Federation of the German Local Authority Associations In order to guarantee the continuation and intensification of integration processes in the community, the Federation of the German Local Authority Associations pledge to: provide suggestions and information to their membership e. g. through exchange of experiences and best practice, and thereby accompany integration efforts, support their members with recommendations and communicate necessities for change within the community to regional and national levels to produce a joint contribution to the sustainability of integration efforts. 1. Integration as a communal cross-functional task The Federation of the German Local Authority Associations issue the following recommendations to their members/member associations: the recognition of the significance of integration on a local political level, the anchoring of integration as an inter-departmental task on local government level and establishment of its significance in all departments and the development and updating of general local government strategies which are adjusted to local needs. 31

16 2. Support of local networks The Federation of the German Local Authority Associations issue the following recommendations to their members/member associations: the undertaking of efforts for a closer interlinking of social, political and economic actors and, where necessary, the initiation of these networks; the assumption of the function as central actor for the coordination and harmonisation of all integration efforts within the framework of given opportunities the increasing of the proportion of persons with a background of migration within local authorities; the provision of relevant further training opportunities for employees with the aim of increasing customer satisfaction and for the more effective fulfilment of the need for intercultural competence in public administrations. Social integration through participation and civil commitment The Federation of the German Local Authority Associations issue the following recommendations to their members/member associations: the supporting and encouraging of civil commitment by, for and with immigrants; the closer involvement of persons with a background of migration in decision-making and organisational processes in the widest possible areas of social and political fields; 32 Language and education The Federation of the German Local Authority Associations issue the following recommendations to their members/member associations: support for immigrants through the attraction of their attention to educational opportunities (e. g. through information on relevant activities) and encouragement to participate in these activities; the extension of educational opportunities through local governmental measures and the interconnection of these activities to those offered on regional and national levels. Intercultural access to administration The Federation of the German Local Authority Associations issue the following recommendations to their members/member associations: 5. this also includes special support for the involvement of female members of the immigrant population; the extension of the incorporation of the competence of immigrants as multiplicators and conflict mediators. 8. The Federation of the German Local Authority Associations issue the following recommendations to their members/member associations: direct contribution to integration in the workplace in the role of employer Information and evaluation The Federation of the German Local Authority Associations issue the following recommendations to their members/member associations: the generation of awareness of population and public authorities for the potential of ethnic economy and utilisation of this potential for the local business location. the suitable provision of information on locally accessible integration projects; in the interest of the effectivity of local integration policy and the economic allocation of resources, the documentation, evaluation and if necessary optimisation of integration measures. Strengthening of efforts to counter xenophobia The Federation of the German Local Authority Associations issue the following recommendations to their members/member associations: support for the integration of persons with a background of migration in the workplace as organisers of tasks according to the German Social Code II (SGB II) with accompanying measures; support of local networks working against extremism and for tolerance. the recognition of growing significance of ethnic economy within the framework of local business development concepts; Integration in the workplace The Federation of the German Local Authority Associations issue the following recommendations to their members/member associations: Supporting the local ethnic economy the continuation of the combat against extremist and xenophobic movements and undertaking of measures to counter xenophobia in all its forms; In view of the wide diversity of local conditions in the over 12,000 local authorities in Germany, the recommendations issued by the Federation of the German Local Authority Associations can only provide a framework for action which must be adapted as necessary, above all according to the budgetary situation of individual authorities. Socio-environmental integration The Federation of the German Local Authority Associations issue the following recommendations to their members/member associations: the encouragement of the harmonisation of different groups of the population resident in social environments with integration deficits through neighbourhood management; the improvement of the quality of life in and identification with the neighbourhood through lowthreshold social and cultural activities; the more intensive utilisation of support instruments for the improvement of disadvantaged neighbourhoods such as the national-regional programme Socially integrative city and the European Social Fund (ESF) programmes. 33

17 Results of working groups introduction The Federal Government set up six working groups each coordinated by a federal minister covering ten subject areas for the drafting of the National Integration Plan. All participants were on an equal standing, specifically immigrant representatives, as the intention was to set a process in motion in a concerted effort to improve integration. All working groups held intensive discussion sessions to formulate a review of the current situation, a definition of proposed targets and measures for the encouragement of integration which were incorporated into their final reports. 376 representatives from different levels of state and society participated with their expert knowledge and great commitment in the working groups, which all included immigrants alongside representatives from the federal states, local authorities and major social groups. Right from the start, the Federal Government placed great emphasis on the binding agreement of all participants to attend which was partially achieved in the working groups and partially in deferred processes. The reports document a wealth of recommendations for action and project concepts formulated by the working groups and additionally around 400 concrete self-commitments which were authentically delivered within the framework of the working groups. The self-commitments presented in the working group reports have by their nature varying degrees of scope and significance. Each and every one is relevant and very welcome as a contribution to integration. For this reason, the texts will be reproduced below in full. The Federal Government has formulated its own contributions within the working groups reports and summarises the focal points of the measures in the Declaration of the Federal Government on the National Integration Plan which was passed by the German Cabinet on 11 July 2007 (Chapter 1). The 16 federal states have evaluated the results of the working groups and taken the contents as a basis for their joint contribution to the National Integration Plan which was passed by the Conference of Minister Presidents on 14 June In addition to the activity of the working groups, self-commitments by the federal states are included which are related to the federal states cooperation in and the general structures of integration policy (Chapter 2). The Local Authority Associations have taken into consideration the suggestions and recommendations put forward in the working groups reports in their declaration on the National Integration Plan (Chapter 3). This representation of state measures in separate chapters corresponds to the distribution of competence between the Federal Government and the federal states anchored in the German Constitution. In adherence to this assignment of responsibility, the National Integration Plan aims for an even better functioning network between the government, federal states and local authorities in the interests of the successful integration of persons from immigrant families who are permanent residents in Germany. Recommendations for action and binding self-commitments are distinguished from one another in the working groups reports

18 Topical area 1: 4.1. Improvement of integration courses 1. Review of current situation 1.1. Coordination of integration courses in German integration policy With the adoption of the Immigration Act which came into force on 1 January 2005, integration measures for immigrants (foreign citizens, resettled ethnic Germans and members of the European Union) became consistently regulated by law for the first time. Since then, integration courses have formed the core of measures to encourage integration. These courses are a fundamental element in the invitation of foreign citizens who are lawful permanent residents in Germany to participate in integration. The aim of these courses is to acquaint immigrants with everyday life in Germany to a sufficient degree to enable them to act independently in all matters of everyday life without help or assistance from third persons. For this purpose, the integration course includes a 600-hour language course made up of a basic course and advanced course of equal length providing sufficient knowledge of the German language equivalent to the level B1 of the Common European Framework of Reference for Languages (CEFR) and a 30-hour orientation course providing instruction on fundamental knowledge of the legal system, culture and history of Germany. 36 The introduction of these integration courses brought together target groups and language promotion programmes and, for the first time, standards were established for the administrative structure of the courses offered. This included an approval procedure for institutions offering course according to clearly designated quality criteria, but above all the introduction of linguistic didactic guidelines for the uniform content of the courses. For the first time, intermediate and final learning targets were established and standardised entry-level, intermediate and final tests introduced in adherence to European standards in order to optimise and test the achievement of learning targets. The integration course concepts also take account of the differentiation of participants according to learning abilities and requirements, demand a qualification profile from teaching personnel involved and offer training possibilities for the qualification of these staff. This process established a completely new quality of language promotion and was accompanied by the simultaneous development of a support, advisory and control system which involved the nationwide deployment of regional coordinators from the Federal Ministry for Migration and Refugees (termed below as Ministry) and from the very beginning met with a high degree of acceptance on the part of the course providers. 37

19 The current achieved results in figures Area coverage through high concentration of course providers ca. 1,800 approved institutes High degree of access to participants 360,000 attendance entitlements issued, around 250,000 participants in 16,850 courses High percentage of women 65 per cent of participants are female Achievement of course target ca. 45 per cent of participants passed the final German certificate (B1) Approved teaching personnel according to 15 Par. 1 IntV ca. 4,240 teachers without necessity for further qualifications Approved teaching personnel according to 15 Sentence 3 IntV ca. 7,700 teaching personnel with special interim approval Previously qualified teaching personnel ca. 1,000 (500 about to gain qualifications) Approval of institutes for teacher training 8 approved institutes, 8 undergoing approval procedure 1.3. Evaluation of results According to the laactws concerning the residence, employment and integration of foreign citizens [Aufenthaltsgesetz], the Federal Government is obligated to submit a progress report to the German Parliament concerning the implementation and financing of integration courses by 1 July The Federal Ministry of the Interior (BMI) commissioned an evaluation of the integration courses according to the new Immigration Act [Zuwanderungsgesetz] and an expert report on potential improvements as a basis for this report. The evaluation was submitted in December 2006 and can be viewed by the public at the address (evaluation and report by Rambøll Management). The final evaluation report demonstrates that the integration course system has become established and has proved to be a success in large areas of Germany. It provides systematic, high-quality support for all foreign citizens and does not merely offer linguistic tuition, but also appears to make a major contribution to general social integration. It can be established that the practical introduction of the integration courses since 2005 has led to a substantial qualitative improvement in German integration policy (Rambøll Management, Evaluation report 2007, p. i) and these courses have become the central instrument of this policy. In comparison with the integration efforts of other European countries, Germany takes up a leading position thanks to its integration courses, both from the aspect of course hours per participant and the linguistic learning target level B1 of the CEFR Results of the evaluation of integration courses At the same time, the evaluation report highlights currently sub-optimal procedures and a considerable room for improvement. The Rambøll Management report summarises the opportunities for the optimisation of the system in seven fields of action: Field of action 1 Performance review and controlling of integration courses : Rambøll Management advises the introduction of compulsory final tests and a target-aimed controlling system. Field of action 2 Improvement of course success : Among other measures, Rambøll Management recommends improvement in the achievement of the target standard B1 through flexibility in the quota of lesson hours and the improvement of the competitive quality of the course providers. Field of action 3 Upgrading of orientation course : The development of a curriculum, a standardised test and the relevant training of teaching personnel is recommended in order to upgrade the orientation course. Field of action 4 Running of courses : The guarantee of the nationwide area coverage of courses tailored to demand has been fulfilled from the aspect of area coverage. According to the report, the optimisation of access of particular target groups and the facilitation of attendance would better meet the requirements of interested participants. Field of action 5 Sustainability : Rambøll Management recommends that the sustainability of the courses could be further increased by improved integration with measures for employment support, the anchoring in local authority integration strategies and an improved cooperation with immigrant advisory services. administrative procedures appear to be superfluous. The development of online solutions is additionally recommended. Field of action 6 Reduction of administrative efforts : The implementation of the integration courses is accompanied by considerable administrative efforts both from the course providers and the Federal Ministry. In the opinion of Rambøll Management, certain Field of action 7 Financial modalities : Here, Rambøll Management recommends the introduction of a voucher system which would reduce the volume of administration and create further positive success-oriented incentives for course quality. 2. Definition of targets 2.1. Increase of success of courses Numerous recommendations for action for the improvement of the integration course structure are connected with the Residence Act, the Regulation concerning the holding of integration courses for foreign citizens and resettled ethnic Germans [Integrationskursverordnung IntV] or the Federal Government budget. The draft law for the implementation of residence and asylum guidelines of the European Union is strongly orientated towards the definition of the course target, the possibility that a direct obligation to participate could be imposed by the authorities paying the basic financial security payments for job seekers according to SGB II [German Social Code], the possibility of the participation of German nationals with special integration needs and the definition of penalty impositions. The central aim of integration courses of providing immigrants with a sufficient command of the German language is currently only achieved by around half of those who have completed the courses. The targeted level B1 of the CEFR is designated as the first stage of the command of a language. In order to fulfil the purpose of integration which is based on equal opportunities and participation, the level B1 represents the minimum requirement for further integration. The budgetary aspect of integration courses is dependent on the outcome of the budgetary procedure. This report aims to optimise the integration courses through the suggestions detailed below. This list is however not exhaustive, but concentrates on several specific focal points. A criterion for all improvements must be the sustainability and/or if possible extension of the duration and increased area coverage of the integration courses. These courses must represent a nationwide benchmark for integration and reach the largest possible number of immigrants. For the scientific consolidation and practical implementation of the subsequent conclusion, the Federal Government will resort to an evaluation committee as a tried-and-tested and reliable advisory and work instrument. The evaluation committee was established according to 21 IntV for the purpose of evaluating syllabuses, teaching and learning materials and the content of tests, the development of quality control processes and the further development of the integration course concept. The achievement of a higher quota of course participants attaining level B1 must be a prime task for the immediate future. Nevertheless, for immigrants, even linguistic competence in the national language of their country of residence is not the only requisite for being able to act in all matters of everyday life independently. The orientation course which provides information on basic German history, legal system and culture is also vital for integration, but does not yet have the recognition which it deserves. Introduction of compulsory tests The entry-level test for the division of course participants in the correct module of the integration course should achieve greater differentiation and be utilised for the evaluation of all participants. This necessitates a high degree of accuracy in the determination of language levels and should also enable a forecast of success in achieving the course target level to be made. The test result should if necessary also be accompanied by a recommendation for participation in a youth or women s course as applicable. The final test should be compulsory for all participants in order to retain and increase the learning motivation of participants and to display a detailed picture as to whether the course targets have been achieved. This test should involve a graded language test between the levels A2 to B1 according to the CEFR. For the period prior to the introduction of the graded tests and its universal utilisation in 2009, a regulation should be developed by the evaluation 39

20 4.1. committee for the year 2008 which also permits the confirmation of the achievement of the level A2. As the certification of the level A2 is not possible within the marking system of the certificate test in German, a temporary regulation should be found which foresees a test at the level A2. Flexibility of tuition hour quotas and limitation of class sizes To achieve an improvement in the success of the courses, in this case primarily the achievement of the language target level B1, specially tailored, flexible course hour quotas should be available up to a maximum of 900 tuition hours. The restriction of classes to below 25 participants is recommended. General integration course (basic level) For participants who have completed the integration course but not achieved the learning target of B1 within 600 tuition hours should have access to a further contingent of up to 300 hours. Specialised qualification for language tutors The maintenance of the quality of tuition necessitates support for teaching personnel, including both the guarantee of a high quality of expert tuition and the provision of appropriate salaries. Teaching personnel who are currently working on the basis of an interim approval ( 15 Par. 3 IntV) should undertake further qualifications as swiftly as possible to shorten the period of the interim agreement and guarantee the provision of suitably qualified teaching personnel for all courses by the year A future aim for improved cooperation is the increased transfer of social-pedagogical monitoring duties to advisory services. A stronger presence of advisors in courses and consultation hours for participants should be achieved at the course locations through the conclusion of cooperation agreements. This would mean a substantial reduction in the workload of teaching staff, and the assumption of socialpedagogical monitoring duties by qualified advisory personnel from MEB and JMD would improve the quality of advisory services. It is essential that teaching personnel in integration courses should themselves have excellent linguistic abilities corresponding to the perfect spoken and written command of the German language. This must be guaranteed by the institutions providing courses in their recruitment of staff. In cases of reasonable doubt, the relevant regional coordinator should be permitted to demand proof of linguistic standards (minimum language level C1). As the course organisers have direct contact with participants, these institutions should also be in a position to offer social-pedagogical competences. The target of improving the content and structure of courses should be accompanied by the guarantee that the services offered by the course organisers should not be allowed to deteriorate Optimisation of course management Integration courses for special target groups and special courses Integration courses for special target groups ( 13 IntV) and special courses should take into account the special needs of participants. The duration of these measures will not be directly specified. 40 The youth integration course should contain an additional module of 300 tuition hours to target preparation for the commencement of vocational training, a study course or employment. Institutes offering these courses should also provide or procure work placements and, following termination of the course, vocational training places or further qualification possibilities. This should be performed in consultation and/or cooperation with job centres and the authorities providing basic financial support for job seekers. Integration courses for parents and women should include an additional module of 300 tuition hours devoting special time to family- and women-related topics and educational issues. Institutes wishing to offer integration courses for parents and women must be in a position to provide accompanying qualified childcare. Participants who are unable to read and write or have reading and writing problems should receive a 300-hour literacy course (special course) prior to the attendance of integration courses. A special concept should be available for participants achieving the target level B1 in less than 600 hours (special course intensive language course). Incentives for participation in the intensive course should be created. Increase in significance of orientation course The orientation course provides information on basic German history, the legal system and culture and is therefore a significant factor for the integration process as a whole, but specifically for the decision regarding the issue of a permanent residence permit. A balanced division between the transfer of knowledge and its relation to everyday life and the social responsibilities of immigrants must be achieved. This necessitates the speedy introduction of a uniform curriculum, standardised final test and the compilation and implementation of relevant qualification opportunities for teaching personnel. The extension of tuition hours for the orientation course is recommended. Monitoring of integration courses Social-pedagogical monitoring undertaken by the institutes providing courses, as was the case with the courses offered by the organisation Language Association German and courses based on the former Guarantee Fund for Scholastic and Vocational Training Fields, is no longer applicable following the introduction of the integrations courses. The regulation 45 Clause 1 Residence Act foresees that integration courses should primarily be accompanied by immigration- specific advisory services (or should be accompanied in the future by these services). The majority of course organisers work in cooperation with the initial advisory services (MEB) or youth immigration services (JMD). As shown by the final report and expert report by Rambøll Management, socialpedagogical monitoring on the part of the MEB and JMD is not yet universally available nationwide and is in frequent cases still carried out by integration course teaching personnel. Increased controlling and quality guarantee The controlling of integration courses should be improved through increased opportunities of access on the part of the Federal Ministry. In addition to the consistent controlling of processes and their qualitative evaluation possibilities, a more stringent authorisation process of institutions offering integration courses should be introduced which adheres to a greater degree to clearly defined quality criteria. One possibility would be to assign the course authorisation process to the appropriate federal state or make the authorisation dependent on the existence of a recognised quality assurance system. A new regulation would have to guarantee that small-sized institutions offering courses would also continue to find it worth applying for authorisation so that the wide spectrum of institutions offering courses is retained. A final recommendation will be produced by the evaluation commission. Further criteria to be considered in the authorisation process would be the stipulation of a reasonable fixed fee for teaching personnel, the interlinking of integration courses with educational opportunities within vocational and social fields, cooperation with Federal Employment Offices, authorities responsible for basic security payments to job seekers and the immigration services MEB und JMD, the interlinking with other local institutions, the creation of a network with other institutions offering courses for the reduction of unnecessary waiting periods and the adherence to the stipulation of maximum number of participants per integration course The possibility for authorisation to be withdrawn should regulations be violated should be an additional instrument for quality assurance. As a concrete quality offensive on the part of the Federal Government, Federal Ministry regional coordinators should receive better specialised training to increase their ability to fulfil these tasks. This qualification measure should be undertaken as soon as possible. Quality competition between the institutions offering courses The quality of the institutions offering courses should be ascertained and be externally recognisable. Here quality competition should be utilised entailing more stringent local course control procedures on the part of the regional coordinators, the possibility of penalisation and the limitation of the authorisation period to three years. Institutions which have not held integration courses for a period of more than one year should forfeit their authorisation. Other qualitybased aspects such as the maximum number of course participants, the achievement of the language level B1, networks and cooperation with other local institutions and a closer connection with the employment market should also be implemented within the quality competition process. Reduction of administrative procedures Within the framework of data protection, the possibility of an exchange of data between all actors should be examined which would provide swifter information to identify immigrants with integration needs. Administrative procedures should be simplified and generally reduced through the utilisation of electronic data transfer; this particularly applies to statistics concerning absenteeism and breaking off of courses. There should be a strict limitation of processes entailing unnecessary administrative efforts. One possibility would be the abandonment of the reimbursement of individual course fees in the case of absenteeism. The registration of absences and breaking off of courses should also be reorganised. In the implementation of statutory new regulations, alternative procedures should be examined would produce a reduced workload for participating actors (Federal Ministry and institutions offering courses). The business game method can be recommended as a relevant suitable procedure. Access to integration courses The entitlement on the part of immigrants to participate in integration courses is subject to divergent regulations according to the Residence Act, the law on displaced persons and refugees and the IntV (regulation concerning the provision of integration courses). This discrepancy should be eliminated through the 41

21 4.1. stipulation of a standardised time limit for the completion of the courses. Increased provision of childcare The guaranteed provision of childcare to accompany courses is an essential requirement to permit mothers to participate in courses and prevent participants breaking off course attendance. The provision of childcare undertaken by qualified staff within the framework of integration courses, particularly those aimed at the integration of parents and women, would also aid the social integration of these children. For part-time courses, flexible solutions should remain possible, if necessary without the involvement of relevant qualified staff. Child day-care centres, youth welfare organisations, course providers, the MEB and JMD services and the regional coordinators of the Federal Ministry should cooperate more intensely to increase awareness of the existence of integration measures and thereby make better use of the local infrastructure Targeted financing system Adequate funding The level of funding per course participant per hour (hourly rate) is the central issue of a targeted financing system on which the quality of tuition also greatly depends. Here the relationship between the qualification profile of teaching personnel and the minimum remuneration and achievement motivation of teaching personnel should be taken into account. The existing hourly rate of 2.05 Euro is, in the opinion of Rambøll Management, insufficient, particularly as teaching personnel remuneration levels have considerably decreased since the introduction of integration courses. For this reason, the new determination of hourly rates should take quality standards into consideration. Special requirements for specific courses (e. g. literacy courses, youth and intensive courses and women s courses with provision of childcare) should be taken into consideration in the financing of these courses: for example particular organisational needs, the maximum number of participants per course and the qualification of teaching personnel. Financing processes In addition to adequate funding levels, an efficient and transparent financing process should be established which requires a minimum of administration effort and simultaneously provides a favourable planning basis for the institutions offering courses. A number of different processes are possible: credit financing, the regional invitation to tender for courses through the Federal Ministry, a voucher system with flexible hourly contingents and a system involving 42 personalised entitlement cards which can be utilised for course registration of participants and also for payroll accounting and a personal control for the language tests. The top priority should be the optimisation of the existing payroll accounting system. Although Rambøll Management has expressed a preference for the voucher system in its expert report, our evaluation of all possible options within the report must be reviewed to establish which system would bring the greatest benefits. This analysis should be undertaken as soon as possible Support for the sustainability of integration courses Integration in the employment market through joint projects For the continuation of the integration process which began with integration courses, further measures should follow on from these courses with the particular aim of encouraging integration within the employment market (joint projects). New criteria for the authorisation of institutions offering courses should therefore also take into account the extent to which these institutions undertake the interlinking of integration courses with educational opportunities within employment and social fields and cooperation with the Federal Employment Offices and authorities responsible for basic security payments to job seekers (cf. also point 2.2 Increased control on the part of the Federal Ministry). These measures should help to strengthen links between integration courses, vocational training and employment market support schemes through joint projects and the establishment of networks and closer cooperation with Federal Employment Offices and authorities responsible for basic security payments to job seekers. on a local authority level. Good examples of this coordination in numerous authorities and districts such as in the city of Stuttgart should become universal. Reinforcement of initial advisory services (MEB) and youth immigration services (JMD) as fundamental pillars of integration policy Alongside integration courses, the newly created advisory services MEB and JMD are fundamental pillars of the Federal Government s integration policy; together these form the core components of integration policy which consists of language promotion and individual accompaniment throughout the integration process. Continual harmonisation and cooperation on a local level is essential to tap the full potential of these core components of integration; here the cooperation between the MEB and JMD and the course providers should be intensified and have a systematic and conceptual character. 3. Agreement of measures and selfcommitments ment a targeted funding system and guarantee the sustainability of integration courses Federal Government measures and selfcommitments 43 Par. 3, Clause 3 of the Residence Act foresees that the integration process on the part of the Federal Ministry for Immigration and Refugees will be coordinated and implemented and that both private and public institutions will be utilised for this purpose. 43 Par. 4 of the Residence Act states that the Federal Government will be empowered to regulate further details of the integration courses through statutory legislation. This aim is particularly relevant for youth integration courses in order to integrate young persons with a background of migration into the employment market at the earliest possible stage. For this reason, youth integration courses should be primarily linked to practical work experience which will lead to integration in the workplace. This places the financial responsibility for integration courses and the responsibility and/or empowerment to determine further details in the hands of the Federal Government. It is therefore the task of the Federal Government to examine the recommendations presented under Point 2 according to their practicability and implement suitable measures. Local network activities The integration course as the core element of integration should be firmly anchored within the integration programme and general integration activities on a local level. This requires a closer network of all actors involved in the integration process. The federal states, local authorities and expert knowledge of course providers and experts will be involved via the evaluation commission. Within the increased efforts for greater cooperation and establishment of local network structures, the Federal Ministry regional coordinators should utilise their position to play a central role. The overall coordination of integration support should be undertaken 4.1. Measurement of long-term integration success The aim of integration courses is to lay foundations for the successful integration of all participants in German society. For this purpose, the core elements of language tuition and courses imparting knowledge of German legal structure, history and culture are offered and the success of these courses examined through a final test. For the long-term optimisation of the quality of the integration courses, consistent measurement of the course target through a final test should be compulsory for all participants; this should, however, also be supplemented by the measurement of the long-term success of the course in the everyday lives of participants. The Federal Ministry is planning to undertake research on the effectiveness and longterm success of integration courses on a representational basis (integration panel). The Federal Government commits itself to the swift and nationwide continuance and/or establishment of available integration courses. In particular, the government will examine to what extent the recommendations for action can be integrated into the integration course system to increase the success of courses, provide the better qualification of teaching personnel, optimise course management, imple- The cost-relevant recommendations will be discussed from the aspect of their financial feasibility within the framework of the budget process for The evaluation commission which was established on the basis of 21 IntV should accompany the improvement process and further planning processes for the integration courses with practical aid and expert knowledge. The Federal Government commits itself to create closer cooperation between the MEB and JMD and the integration course providers according to the concept of immigration-specific advisory services. The Federal Government plans to measure the effectiveness and sustainability of integration courses on a representative basis Recommendations for measures and selfcommitments for federal states and local authorities The federal states are unanimously in favour of making a contribution to the success of integration courses within the framework of their responsibilities and possibilities. The working group urges the public authorities for foreign nationals to develop a greater awareness for tasks for the encouragement of integration which 43

22 4.1. have been allotted to them within the framework of the Residence Act. 44 The federal states will support the effectiveness of integrations courses through their aim to create a greater cooperation between the public authorities for foreign nationals, working groups and/or authorised authorities providing basic support for job seekers, the regional coordinators of the Federal Ministry and the MEB and JMD (formation of a network). It is their declared aim to attract immigrants with integration needs at an earlier stage to participate in integrations courses and/or accompany these persons during the integration process. The working group is in favour of the increased and more intense participation of child day-care centres, schools, youth welfare associations and social environmental bodies (housing associations) in networks in order to increase the awareness of the appropriate authorities to the increased integration needs of long-term immigrants. Simultaneously, possibilities can be created to provide participants with sufficient language practice. The federal states share the view that supplementary measures alongside integration courses are necessary for long-term language promotion, particularly for integration within the employment market. The federal states will support all measures of this type in the form of joint and accompanying projects and will wherever possible utilise their own financial resources or those of the European Social Fund for this purpose. The public authorities also express their willingness to continue their support for the sustainability of integration courses with accompanying courses specially tailored to immigrants needs. The implementation of integration courses is particularly successful when local authorities undertake an active role. For this reason, local authorities should where possible undertake the local control of integration support Recommendations for measures and self-commitments for non-governmental institutions and organisations The non-governmental institutions and organisations urge all course providers to participate in quality competition and recommend the creation of a campaign for the mobilisation and motivation of persons with a background of migration who have been resident in Germany for a longer period but still do not have a sufficient command of the German language. The member associations of the Federal Association of Non-Statutory Welfare Services (BAGFW) offer a long-term range of integration courses. The member associations of the BAGFW will accompany the integration course participants through the provision of advisory and social-pedagogic services. The member associations of the BAGFW guarantee close cooperation between the providers of integration courses and the services of the initials advisory services (MEB) and youth immigration services (JMD) to ensure the access of course participants to the services offered by the MEB and JMD and provision of advisory services for participants. In addition to integration courses and advisory services, the member associations of the BAGFW will support all measures aimed at helping participants attain a sufficient command of the German language to enable them to utilise their acquired linguistic abilities in everyday life. The member associations of the BAGFW as providers of integration courses volunteer to cultivate the courses and all other integration measures on the basis of a comprehensive concept of integration as stipulated in the EU Common Basic Principles for immigrant integration policy from 2004 on a longterm basis Members Under supervision of: Federal Ministry of the Interior Peter Altmaier, MdB Parliamentary State Secretary in the Federal Ministry of the Interior Fateme Attarbashi Representative for immigrants Martha Aykut Regional capital of Stuttgart Prof. Dr. Hans Barkowski Friedrich Schiller University, Jena Dr. Alois Becker Catholic Office Akademie Klausenhof Klaus-Jürgen Budweg Federal Ministry of Finance Veronika Dicke Regional Ministry of the Interior for Schleswig Holstein Dr. Doris Dickel Task Force for the Federal Government Commissioner for Migration, Refugees and Integration Christa Dieckmann Regional Ministry of the Interior for Saxony-Anhalt Prof. Dr. Konrad Ehlich Ludwig Maximilian University, Munich Gerhard Gleichmann National Association of German Private Schools (VDP) Reinhard Grindel, MdB Member of the German Parliament Dr. Christoph Hauschild Federal Ministry of the Interior (Coordination) Angelika von Heinz Federal Ministry for Families, Senior Citizens, Women and Youth Affairs Amadeus Hempel Intercultural Education Hamburg e. V. (IBH) Irina Holzmann Representative of resettled ethnic Germans Helmut Huber Bavarian State Ministry for Employment and the Social System, Families and Women Prof. Barbara John Senator for Education, Berlin Franz Kiefer Federal Office for Political Education Jürgen Kockmann Head of the Local Association for the Promotion of Employment Steinfurt (STARK) Dr. Gerold Lehnguth Federal Ministry of the Interior Beate Mohammad Meeting and Educational Centre for Moslem women Ulrich Mohn German Association of Towns and Municipalities Monika van Ooyen Federal Ministry of Education and Research Dr. Klaus Ritgen German County Association Dr. Katharina von Ruckteschell Goethe Institute e. V. Erwin Schindler German Chancellery Dr. Bernd Schlüter Board member of Diakonisches Werk (protestant church welfare organisation) representative of Federal Association of Non-Statutory Welfare Services (BAGFW) Dr. Matthias Schmidt German Chancellery Jürgen Schröder Federal Ministry for Migration and Refugees Rüdiger Veit, MdB Member of German Federal Assembly Mareike Bartels German Association of Towns and Cities Dr. Erich Zehnder Association of Adult Education Centres in Rhineland-Palatinate 45

23 Topical area 2: 4.2. Promotion of German language right from the start Around one fifth of the resident German population and one in three children under the age of six have a background of migration. In numerous urban centres in the West German federal states, this applies to over 40 per cent of children and young persons. Two-thirds of children and young persons with a background of migration were born in Germany. A large proportion of children and young persons with a background of migration are successfully integrated in schools, vocational training, career and social environment and generally integrated into life in Germany. There are, however, still too many who have problems with integration. A fundamental factor is an insufficient command of the German language: linguistic competence is one of the most important requirements for success in education, employment and also social integration. Linguistic development is an essential aspect of personality development and the promotion of language a core element in the early phases of education. The promotion of language provides a significant foundation for equal opportunities, particularly in view of the transition from nursery school to primary school. The PISA study and OECD report on the politics of the early stages of child-care and education in Germany underline the significance of linguistic ability for children s education and development processes. Children with a background of migration frequently have only a limited opportunity of acquiring a command of the German language in their first few years. 46 For this reason, the expectations and demands of integration policy are focused on the continuous and systematic promotion of the German language. Language education is a universal task for all persons and institutions connected with the educational process which begins in the family and is continued and extended in day-care centres for children (including nursery schools, day nurseries, playgroups etc.) and subsequently in educational institutions. Parents are vital at all stages of linguistic education and parental responsibility is necessary right from the start. The multilingualism of children must be viewed as an opportunity to be exploited within the process of language education. The target of all measures is to achieve improvements in the integration and educational opportunities of children with a background of migration in particular with the support and encouragement of linguistic development right from the start and the provision of adequate opportunities of acquiring a command of German at the earliest possible stage. The Federal Government, federal states, local authorities and non-governmental organisations and institutions are equally called upon to undertake responsibility for the educational opportunities and integration of children with a background of migration with a particular focal point on early language promotion. All parties must be involved in a common responsibility for the development of this process. 47

24 4.2. In the very earliest phase of children s acquirement of their mother tongue, the immediate attachment figures, primarily the parents, play a decisive role in the linguistic development of children. Through a linguistically stimulating and intensive interaction with their child, they support natural linguistic development and help him/her to acquire language as a human form of communication. The good acquirement of the mother tongue the language spoken between parents and attachment figures and the child is a fundamental requirement for the development of linguistic competence: also for the acquisition of the language of the host country, i. e. in this case, the German language. Children have no problem with growing up with more than one language as long as they have access to a sufficient degree of language input. It is vital and valuable to create structures for children who do not speak German at home to enable them to have intense interaction with the German language at a very early stage. Early contact and communication with German children and adults has great significance for the development of a subsequent competent command of the German language. Day-care institutions for children provide an ideal framework for this type of contact and early attendance of these institutions is therefore of prime importance. Through targeted measures in child day-care institutions an early systematic, competent language promotion and support for linguistic development 1. Encouragement of linguistic development and learning of language through parents The acquisition of language begins immediately after birth. Children normally learn the basic structures of the language spoken in their family incidentally, i. e. through implicitly unconscious processes. This provides them with the foundations for the subsequent explicit learning of further languages. As a rule, parents are the most important attachment figures for their children in the earliest phase and play a central role in their linguistic, cognitive, emotional and social development. It is vital in linguistic development for parents to talk frequently to their children with a great variety of expression, i. e. in the language of which they have the best command. The majority of parents with a background of migration are interested in the educational success of their children and actively undertake responsibility for their children. The quality of encouragement of 48 through qualified nursery teachers can considerably augment the positive effect of the natural acquisition of the German language. The final year of nursery school prepares children for the transition to primary school and offers a special opportunity for children with a history/background of migration to acquire an in-depth command of the German language before starting school. For this reason, the transition from nursery school to primary school must be structured to guarantee continual and longterm support for children to provide them with a good start at the beginning of their school career. Child day-care also includes the responsibility of education and the care of children. Child day carers can therefore also undertake a significant role in early language promotion, provided that they themselves have a good command of the German language. Seen against this background, the biography of a child offers three phases of action for early linguistic education and/or language support which are of particular significance: 1. Encouragement of linguistic development and learning of language through parents 2. Promotion of language in child day-care institutions 3. Consistent language education during transition period nursery school primary school children is however dependent on the educational and responsibility competence of parents which is substantially influenced by their social status and education awareness. Parents frequently have insufficient knowledge of language learning; for example, they are not aware that it is completely natural for children growing up within a multilingual situation to mix the languages together at certain stages without this however being detrimental to their development. Parents frequently do not know how to provide targeted support in their child s linguistic development. German parents just as parents with a background of migration are also frequently uncertain of their role in the linguistic development of their children. For immigrant parents, the education and supervision of their children is frequently hampered by their own communication difficulties within their social environment and resulting insecurity and information deficits regarding the education system in Germany, the significance of early attendance of child day-care institutions and a good command of German for educational success. Here, cultural differences can also produce other perceptions of the educational respon- sibilities of parents, of child day-care institutions and schools. Frequently parents of children under three and those of children who do not attend nursery school are not sufficiently aware of existing offers of support and orientation. A secure acquisition of language and the continual development of language right from the start within the framework of the family is therefore a major target. The educational competence of parents must be supported through the intensive addressing of this target group. Parents courses for the greater awareness and support of the development potential of their children must be available right from the start. This necessitates the maintenance and creation of a variety of structures within the fields of family education, nursery school care and health sector. A special qualification for the diagnosis of multilingual children should be created for paediatricians and therapeutic experts to enable them to recommend a specific course of action for the development of multilingualism in children which corresponds to the findings of linguistic development research. The qualitative and quantitative expansion of child day-care is necessary for the optimum support of parents and for the appropriate development of children Self-commitments on the part of the Federal Government ESF programme for socially disadvantaged families with and without a background of migration and the integration of disadvantaged children. Opstapje is an appropriate programme example. This is a programme involving home visits and targets the early encouragement of children from socially disadvantaged families including immigrant families through the strengthening of parent competences. The low-threshold character and direct approach of the programme are the key factors to enable contact with families and the continuity of programme participation. Within the framework of the programme, parental competence in the awareness and encouragement of the development potential of their children should be strengthened, the significance of a good linguistic development in children highlighted and the attendance of child day-care institutions recommended. The programme is planned to be launched in (Status: application submitted) Action programme Early help for parents and children and social early warning systems : The aim of this action programme is the protection of children from various risks through the strengthening of parent educational competence. Through the improved dovetailing of services offered by health and social work and child and youth welfare sectors, risks for child development and deficits in parent support 4.2. should be recognised swiftly and appropriate help provided at an early stage. The programme aims to provide a healthy physical and psychological development of children up to three and the social integration of their families, thereby additionally securing a vital basis for the successful language acquisition of children with a background of migration. Greater implementation of the topical areas integration of and language promotion for children with a background of migration within the initiative Local alliances for families : The national initiative Local Alliances for Families created by the Federal Government begun at the start of 2004 aims to encourage local community actors to seek allies within the fields of politics, administration, business, chambers of commerce, unions, churches, associations and institutions to set up concrete projects on a local basis to improve the living and working conditions of families. The infrastructure of local alliances should be utilised to an even greater degree to target parents with a background of migration, establish early promotion of the German language and urge the early attendance of child daycare institutions. Out of a current figure of around 370 alliances, only a very small proportion has declared integration as an important field for action. There are plans to increase the total of local alliances to a figure of 455 and ensure that the topic of integration receives greater significance within these alliances. It is planned that the regular newsletter and federal initiative website should devote more space and attention to the topic of integration, e. g. the linguistic encouragement of children with a background of migration and their parents. Implementation of the topics integration and language promotion for children with a background of migration and as a focal point of action in the action programme multi-generation houses: Multi-generation houses as active and activating centres of a new kind for persons of all age groups can maintain and strengthen the potential of family networks and support these structures in a modern form. Multi-generation houses are conceived as an information and service platform for all generations offering services for adults and children. Multi-generation houses should be utilised to a greater extent than has been the case up to now to target parents with a background of migration, make a greater contribution to the increase of parent competencies and campaign for the earlier attendance of child day-care institutions. These houses will offer their own local German language courses for parents and children with a background of migration. Up to the end of 2007, the support of at least one multi-generation house in each regional district and independent city is planned. Up to the end of 2008, 25 % of houses should have defined integration as one of their programmatic focal points. 49

25 4.2. Qualification of childcare staff within the framework of integration courses organised by the Federal Government: Qualified childcare should be made available within the framework of integration courses, particularly for courses for the integration of parents and women, through the employment of specially qualified staff as a contribution towards the social integration of the course participants children. This permits the childcare hours to be utilised in a stimulating and profitable manner and the children s acquisition of language encouraged and facilitated. Child day-care institutions, youth welfare organisations and public authorities for foreign nationals should cooperate more intensely to increase the awareness of integration courses and accompanying childcare offered. The Federal Government will in future continue to allocate funds to finance childcare offered within the framework of integration courses. Implementation of the topic integration and language promotion for children with a background of migration in the nationwide project Start reading right from the beginning! The model project Start reading right from the beginning! which is co-financed by the Federal Government and is currently being implemented and scientifically accompanied in the Free State of Saxony should following its successful implementation be extended nationwide in close cooperation with the federal states and also have a particular focus on families and children with a background of migration. The socialisation of reading in the family is decisive for the subsequent reading biography of children. Parents only read aloud to their children in a third of all households containing children within the typical reading-aloud age group. Conversely, this means that two thirds of all families are neglecting an elementary form of early encouragement of their children. Going on the assumption that an intensive encouragement of reading aloud in the language spoken by families at home can compensate for low educational standards, the above-mentioned project could also make a contribution to the successful acquisition of the German language by children with a background of migration. the implementation of the core target of language promotion for children with a background of migration in the federal states and local authorities; the support of the employment and qualification of voluntary multilingual parent supervisors as a linguistic and cultural bridge between immigrant families, child day-care institutions and other institutions. The aim is to create fixed contact points for voluntary multilingual parent supervisors within existing structures; support and/or introduction of systematic and more targeted information and contact for parents also in mother tongues from the birth of children onwards, including the topics of early encouragement and language development; support of low-threshold services for children and their families which enable a targeted and intensive contact with the German language. Support should be provided for institutional cooperation for the development of action concepts, i. e. cooperation between child day-care institutions, primary schools, local youth welfare planning, family education and aid associations, immigrant organisations and other responsible local actors: these concepts should take the individual local situation into account; support for measures encouraging the early attendance of child day-care institutions and the involvement of immigrant organisations in the working groups according to 78 SGB VIII (German Social Code) Recommendations of self-commitment on the part of non-state institutions and organisations The non-statutory welfare organisations: 1.2. Recommendations of self-commitment on the part of the federal states and local authorities During the last few years, numerous measures have been undertaken to improve and extend support services for families in the federal states and local authorities. From the aspect of language promotion, the federal states and local authorities commit themselves to the following measures: 50 will orientate their work and concepts in their institutions consistently and more intensely towards the topics language development and language promotion, also taking multilingualism, German as a second language and cultural pedagogy into consideration; agree to focus on the role and responsibility of parents for their children s acquisition of language within their low-threshold group services for women and young families and ensure that, within the framework of intercultural opening of social services, the services for family education and support organised by the non-statutory organisations will be further developed to target the core group of immigrant parents; for this purpose, the non-statutory organisations will utilise family-support measures such as HIPPY, Opstapje, Griffbereit and Rucksack and Mum is learning German. The immigrant organisations will utilise their local networks more frequently and in a targeted fashion concerning information for parents on the language development needs of their children and for the increase of parental competence. This is carried out in cooperation with state and non-governmental partners. Local networks, associations and institutions will involve immigrant families and support the daily language contacts of children with and without a background of migration, e. g. in neighbourhood associations, sports clubs, musical activities and cultural events. Paediatricians, social-pedagogic centres and speech therapists will offer advisory services for immigrant families on the subject of children s linguistic development, multilingualism and German as a second language regularly and on a continuous basis. Their umbrella organisations campaign for parent advisory services and parent participation in superordinated committees. The Turkish-German parent letters distributed by the working group New Education (ANE) are oriented towards child development phases and also address the issues of language development and language promotion. The parent letters are distributed nationwide and this distribution will be extended and systematised. Additional multilingual parent letters covering the topic of language development are to be produced for other immigrant groups The Turkish Community in Germany (TGD) is also implementing an education campaign for parents of Turkish origin in cooperation with other organisations such as the Federation of Turkish Parent Associations in Germany. The target of the campaign which will also involve a media initiative and voluntary education ambassadors is the motivation, qualification and activation of parents to increase their interest in their children s education and become actively involved in educational institutions. The topic of language promotion will play a prominent role. The educational campaign is oriented towards both parents and school children and is intended to be extended to target parents of children under the age of six. Italian immigrant organisations support children and young persons with supplementary tuition in the mother tongue and general support activities. A part of this support targets children in child day-care institutions in which early language promotion is provided. Cooperation with parents focuses on providing information for parents on the importance of early attendance of child day-care institutions and information on other educational institutions. The RAA (Regional Office for the Support of Children and Young Persons fromimmigrant Families) in North Rhine-Westphalia has with the support of and in cooperation with the Freudenberg Foundation in Weinheim, produced national methodical instructions, multilingual material and details on training opportunities for the implementation of the concept Griffbereit [ready to hand] (bilingual parent-child groups for parents and their children between the ages of one and three) which are for example linked with a child day-care institution or family education centres. Following the completion of this report, the Federation of Spanish Parent Associations in the Federal Republic of Germany submitted the following self-commitment: The Federation of Spanish Parent Associations in the Federal Republic of Germany commits itself to continue their provision of further educational programmes for immigrant parents during the next few years targeting the area of language promotion. commit themselves to a greater concentration on the topics of language development, language acquisition and the role and responsibility of parents within their immigration advisory services (initial advisory services, immigration services, integration agency and youth immigration services); 51

26 Language promotion in child daycare institutions and private child day care Children are at all times in the position to learn a second or even third language right from birth or on the basis of their first language. Children under the age of three with varying first languages are able to learn the basics of a second language. This is as a rule successful in the case of children who have begun their primary acquisition of language with a language other than German if the implicit language acquisition in the early phase of the child s development was actively supported by explicit learning at the earliest possible phase during attendance of a child day-care institution. Early language promotion is successful in the case that the interrelation of language acquisition with the cognitive, emotional and social development processes of the child is taken into account and the varying elements of support fused into an integrated language promotion concept. Naturally occurring situations for language encouragement complement structured, systematic and continuous language promotion concepts. Pedagogic language diagnosis based on the findings of research into language acquisition which enables the valid evaluation of the linguistic standard and is utilised, interpreted and documented within the context of the development process and multilingualism of the child can provide the establishment of individual concrete language support needs. Multilingualism, already existing linguistic and communicative abilities and the variety of cultural experiences within the family shape the linguistic development of children with a background of migration and simultaneously provide the basis for further learning. A nationwide average figure of 50 per cent of threeand four-year-olds from families with a background of migration attends nursery school: the figure for fourand five-year-olds is over 80 per cent. As is the case in corresponding German families, a lower proportion of immigrant children of parents of educationally distanced environments attend day-care institutions. In numerous child day-care institutions in urban city centres, children with a background of migration form the largest group, whereby the individual situations of these children display great variety according to nationality, cultural background and the language situation. Children who have insufficient opportunities to hear German spoken and express themselves in German cannot acquire the language. Under these circumstances, a good command of the German language is not acquired automatically, but requires active support to produce the envisaged progress. 52 In view of the growing number of children with a background of migration, this is a great challenge for child day-care institutions as institutions of education and learning, but also for private child day care. Child day-care institutions provide a central location for early language promotion. The general conditions in these institutions, particularly with regard to the size of groups, staff-child ratio, high noise levels and unfavourable language combinations within individual groups, can however be an obstacle, hindering the appropriate encouragement of children with special requirements. The training of staff does not in all cases focus sufficiently on this topical area. The successful targeting of and cooperation with parents with a background of migration is not always a matter of course in all child day-care institutions; frequently measures are lacking which would increase parental competence, involve parents in the language promotion process and there is often also a lack of reliable cross-institutional cooperation structures to connect all actors involved within the field of child education. The current situation puts great demands on nursery school staff in child-care institutions who are not universally aware of the necessity of comprehensive language education and educational and learning partnerships with parents characterised by the appreciation of competence on the part of parents and children and the concept of cultural diversity as a positive resource. The pedagogic members of staff are linguistic role models for children and chief actors in the cooperation with parents. Their knowledge of language development, the target language German, linguistic rule systems and the interrelationship of language, cognition and social competence is a central requirement for professional language promotion. In many federal states, concepts have been drawn up and also already implemented which provide more targeted support for children with a background of migration learning the German language. As these measures have mostly only been implemented during the last few years, there are not yet sufficient findings on the effectiveness of these measures. A good working knowledge of the German language in all children starting school is one of the major targets of early language promotion in child day-care institutions. To achieve this goal, the sufficient provision of care places and guarantee of sufficient language support is essential. Good and reliable instruments for pedagogic language diagnosis are necessary as a basis for language promotion; observation and documentation processes to record children s linguistic behaviour and measures for the support of language and development in child day-care institutions and general child day care are also of vital importance. This simultaneously demands a relevant focus in the training and advanced and further training of pedagogic personnel to ensure extensive competence in diagnosis and language promotion on the part of all members of staff. The competence and initiative of parents regarding the awareness of potential and the encouragement of their children must be strengthened. Early attendance of child day-care institutions as a special opportunity for children with a background of migration must be encouraged. The intercultural opening of institutions must also be guaranteed. In order to utilise child day-care institutions as centres of integration and language promotion at the earliest possible stage, these institutions must be available throughout Germany and be suitably orientated towards this purpose. There is a shortfall of free places in the Western federal states, in particular for children under the age of three. This deficit can also be observed in urban city centres with a high proportion of families with a background of migration. The plans on the part of the Federal Government and federal states to increase the proportion of available day care places for children under three to a percentage of 35% by 2013, also with regard to demand and quality criteria, form a concerted action by the Federal Government, federal states and local districts which is a fundamental pillar of child and youth politics oriented towards the needs of the child and can also achieve a wide range of positive effects within the area of early language promotion for children with a background of migration. General child day-care facilities should also make a suitable contribution Self-commitments on the part of the Federal Government Quantitative and qualitative extension of day-care for children under three: The Federal Government aims to create facilities for all children under three which are tailored to demand and quality criteria; currently this is only available in the new federal states. The target is the provision of facilities for ca. 35% of this age-group by the year This also opens up new opportunities of support for children with a background of migration, including language promotion. This extension of places can only be achieved in a concerted action between the Federal Government, federal states and local districts Development of specialised pedagogic concepts for day-care institutions for children under the age of three: The provision of care for children under the age of three is currently being radically extended. The Federal Government will in close cooperation with the federal states implement a project for the development of a specialised pedagogic concept for under three-year-olds in order to support the quali fied and professional work of child day-care institution staff which can also be utilised by private carers. Language development and the development of intercultural competence are interdisciplinary focal points within this concept. The project is at a preparatory stage. Further development of project Language promotion in child day-care institutions : The project Language promotion in child day-care institutions is aimed at all children of nursery school age. The aim is the development of didactic material with a systematic interconnection between language and educational activities. This concept will be specifically extended to include appropriate material for the encouragement of multilingual children. The Federal Government will specifically allocate financial aid to the already ongoing project for this purpose: the results of this project are expected to be publicised in July Further development of the curriculum Qualification in child day care : The curriculum Qualification in child day-care should be extended to cover the aspect of language promotion for young children, particularly those with a background of migration. The curriculum will contain the basic orientation framework for an ESF programme for the qualification of day-care staff which will commence at the end of 2007 and receive support from the Federal Government. Media initiative for the language promotion for children in nursery school age: In cooperation between the Federal Government and a television broadcasting company, innovative television programmes will be created for children with a background of migration. Accompanying material will be developed for parents and opportunities for training for nursery school staff. Support of programmes for the evaluation of language promotion for children with a background of migration: Together with the federal states, the Federal Government will support research projects such as the programme FörMig which will investigate the effectiveness of existing federal state measures for the linguistic encouragement of immigrants Recommendations for self-commitments for the federal states and local authorities In the joint common framework for the federal states adopted in 2004 by the Conference of Youth Ministers (JMK) and the Conference of Ministers for Education (KMK) on early education in child day-care institutions, the federal states have reached an agreement on the structure and implementation of the educational 53

27 4.2. mandate of child day-care institutions at an elementary stage. This framework will be substantiated, filled out and extended. Within a common framework, the individual federal states will undertake independent efforts to tailor differentiation and implementation according to the relevant situation. The implementation at elementary level will concentrate on the imparting of fundamental competences and the development and strengthening of personal resources. Language promotion is a core element of the fulfilment of the educational mandate of child day-care institutions. The promotion of language therefore requires an integrated approach and must be tailored to individual needs of children. In order to achieve success, language promotion must be incorporated into the child s exploration of its environment. Language promotion aims at sustainability and must therefore begin at an early stage, be continued regularly and have a systematic structure. It is, however, also true that language promotion can never come too late. the swift and universal improvement of and access to the training and advanced and specialised training of nursery school teachers within the areas of knowledge of the acquisition of a second language and pedagogic diagnosis of the language situation and competence in pedagogic language promotion ; the improvement of nursery teacher training in a practice-oriented modular system; in view of the European harmonisation of qualifications, a training course at bachelor standard must be targeted initially for head teachers; the extension of federal state-specific framework plans for nursery school education to children under three and the concretisation of the aspects linguistic development and language promotion; the introduction of additional support measures for institutions with a majority or large proportion of children with a background of migration to enable effective and compensatory language promotion. With regard to language promotion, the federal states and local authorities make the following commitments: 54 the specially tailored and quality-oriented extension of day-care facilities for children under three; the implementation of education as a crossfunctional task in the concepts of child day-care facilities within the framework of their educational activities; the universal introduction of compulsory pedagogic and scientifically accompanied processes for the establishment of existing language standards and documentation which permits the continuous observation of children and concrete recommendations for support for each individual child; here the situation of multilingual children must be taken into account; the universal implementation of support activities which start at the point of established current language standards and levels and build up on this basis; the support of the development and utilisation of instruments enabling all actors to utilise comparable standards and therefore contribute to quality improvement, for example external evaluation processes or the recording of standardised language levels and observation processes; this should particularly focus on language competency tests which should become compulsory for all children at least one year prior to starting school or alternatively at the age of four; the provision of general conditions in child daycare institutions which are necessary to permit the individual and age-based language promotion for children (such as smaller groups, linguistically blended groups, intercultural opening, additional personnel for high percentages of children with a background of migration); 2.3. Self-commitment on the part of institutions and organisations will ensure that the special needs of children with a background of migration in their child day-care institutions are met; will ensure that the cultural opening process is also implemented in their own child day-care institutions. The child day-care institutions run by non-statutory organisations will become actively involved and promote cooperation between all actors involved in the education and learning processes of children. In many cases, the involvement of persons with a mother tongue other than German in the work of these institutions is expedient and would for example permit the improved communication of requests by nursery school teachers within the cultural context of families with a background of migration. The immigration organisations can support the integration process by encouraging a positive attitude among the appropriate population groups towards the necessity of acquiring a command of the German language at the earliest possible stage, the propagation of early attendance of child daycare institutions and support and recommendation of concepts for parent education. Immigration organisations can function actively as bridges between families and institutions. German foundations play an important role in the support of children and families with a background 4.2. of migration and can with their innovative and model projects and the financing of exemplary programmes provide vital suggestions for reforms in political and professional fields. The RAA (Regional Office for the Support of Children and Young Persons from Immigrant Families) in North Rhine-Westphalia has, with the support of and in cooperation with the Freudenberg Foundation in Weinheim, produced national methodical instructions, multilingual material and details on training opportunities for the implementation of the concept Rucksack Kita, a parent education and language promotion programme for four- to six-year old children which is based in a child daycare institution and links the work with families with the language promotion carried out in the educational institution. The Turkish-German Health Foundation has set itself the target of providing particular support for children and families with a background of migration within the area of early education and primary school. The foundation has involved itself with various projects supporting children and families with a background of migration and is planning the continuation and extension of the language promotion project frühstart together with other partners. New projects are also planned within the area of the prevention of violence and addiction, particularly aimed at children of nursery and primary school age and their parents in which immigrationspecific aspects and the topic of language promotion will be covered. The non-statutory welfare care organisations agree to the further development of language education for all children in the concepts of child day-care institutions and a more detailed elaboration with regard to the language acquisition processes of immigrant children; will ensure that language promotion will be integrated as an educational mandate within the quality concepts of the relevant institutions; attach great importance to the relevant qualification of nursery school teachers and will as far as possible appoint personnel with a background of migration; will increase their efforts to attract skilled persons with a background of migration to commence training in as far as the organisations have their own training colleges; 3. Continuous language tuition during transition period nursery school school The individual learning and development processes of a child, including the learning of languages, are encouraged and supported according to relevant educational and learning targets. Nursery school, school and parents all share the responsibility of guaranteeing the best possible continuity of learning and development processes. For this reason, concrete cooperation on an equal level is essential. In practice, there is substantial friction loss and still room for optimisation which can particularly generate risks for children from families with a background of migration. The transition from nursery school to primary school is a key situation for all children in which they must learn to cope with intensified development demands within a very short period. As language development and language promotion play a great role in provid- ing equal opportunities in school, nursery schools must tap their full potential in language support and approach the linguistic requirements necessary for starting school appropriately according to the development stages of individual children. Trained personnel in child day-care institutions and primary schools are often insufficiently qualified to establish the individual linguistic standards of children and harmonise their cooperation respectively within the area of language promotion. For effective cooperation, reliable forms of communication and documentation are essential. Language promotion is a crossfunctional task in both child day-care institutions and primary schools. The qualification of personnel must be tailored to enable both sides to work together appropriately and inform each other of the linguistic knowledge and deficits of children. Child day-care institutions have an important role to play in the preparation for starting school alongside the family home and augmentations to parental education. All possibilities must be utilised to provide 55

28 4.2. comprehensive educational activities during this transition period which should be free of charge for the over-five age group. The guarantee of the quality of education, learning and supervision is of great significance during this period. The joint organisation of this transition period by nursery school, school and parents permits consultation to produce a common pedagogic concept, methods and language promotion concepts and encourage parent participation. The joint organisation guarantees the individual language promotion for the child in the sense of a continuous educational biography. Nursery school and primary school must together secure the motivation and open-mindedness of children for their further linguistic development. The aim is to ensure that progress is continued at primary school according to the individual standard of each child. The bridge function between the final year at nursery school and school entrance must be strengthened and this transition optimised. It is particularly important to attend to the linguistic needs of children with a background of migration. The permanent and continuous cooperation between nursery school, primary school and parents as educational and learning partners is essential and should become a permanent element of regulations and programmes. The cooperation and network structures of local school and non-school institutions and actors must be placed on a firm basis to provide a continuous promotion of language during the transition period between nursery school and primary school Self-commitments on the part of the Federal Government Cooperation/lifelong learning The successful learning process of a child requires a successful acquisition of language and it is self-evident that all actors who undertake responsibility for the organisation of educational processes parents, nursery school staff and teachers must cooperate on an even more intensive basis. The challenge here is the provision of suitable framework conditions. For this reason, the Federal Government aims to introduce a research focus Education in early childhood. Within this framework is the concept and instrumental development for the establishment of educational centres known as Bildungshäuser which target the age group between three and ten for the content-based overlapping of nursery school and primary school in close consultation with the federal states. Research project for the establishment of language standards On the foundations of a referential framework regarding the age-specific acquisition of language, 56 the Federal Government calls for the creation of research projects on the further development of existing processes to determine language standards and also the new development of processes to determine language standards, including individual support plans for school pupils and further training concepts for teaching personnel; this will provide a basis for the continuous promotion of language from child day-care institutions right through to vocational training. Education consultation learning With the creation of the internet portal BIBER, the Federal Government will support media-based qualification opportunities for pedagogic personnel in child day-care institutions and primary school up to the year 2010; one of the aims of this support is to teach specialised and advisory competences in the operation of new media to support language and reading support processes. BIBER will provide support child day-care institutions and schools nationwide via a virtual work platform permitting networks to be set up and joint cooperation. The aim is to encouraging the sharing of experiences in educational practice, particularly between nursery school teachers and school teachers, but also with parent participation in order to make a contribution to the development and establishment of a new educational concept for elementary and primary levels. Programme Learning regions network promotion /Learning world Essen in consensus of Essen/ChildrenLearningWorld kindergarten and primary school make children strong the development and sustainability of common educational responsibility for children between the ages of three and ten: The programme accompanies the early commenced and individually tailored language promotion for children with a background of migration and German children to create the best possible standards prior to starting school. The support from an early stage should be continued to avoid any gaps for the children. Parents will be informed about and involved in the progress of their children in regular development consultation. The programme is oriented towards German children and immigrant children who have been resident in German for a long period and provides support within the framework of the promotion programme Learning regions. Ministers of Education (KMK) in 2004 Strengthening and further development within the overall context of education, learning and support, the federal states have reached a consensus on the cooperation between schools and youth welfare. Within the context of language promotion, the federal states and local authorities commit themselves to the following aims: to strengthen motivation on the part of parents with a background of migration to permit their children to attend child day-care institutions, improve the transitional period between the educational institutions nursery school and primary school and thereby ensure that early education takes place on an equal level with primary schools; in order to achieve this comprehensive educational process, it could be of advantage to introduce an exemption from fees for children from age five upwards; the further development of methods for the evaluation of language status as utilised prior to commencement of school attendance on the basis of processes in child day-care institutions; the utilisation of tested material for the documentation of linguistic development which will accompany children biographically in adherence to data protection regulations from one educational institution to the next; to campaign for structured and guaranteed cooperation between child day-care institutions, primary schools and after-school childcare. This structured and guaranteed cooperation between nursery schools and primary schools should be incorporated into the concepts of youth welfare institutions and school projects, e. g. school programmes; the provision of necessary funds for pedagogic personnel for the adequate provision of special tasks connected with the transition period between 4.2. nursery school and primary school; local authorities must ensure that guidelines are adhered to; the implementation of measures for the joint advanced training of nursery school and primary school teachers which focus on the linguistic encouragement of children in child day-care institutions and a continuous structure within the transition period nursery school primary school; the joint advanced training of nursery school and primary school teachers from the aspect of their common tasks within the area of language promotion, taking into account the areas German as a second language and multilingualism Self-commitments on the part of institutions and organisations As is the case for primary schools, non-statutory welfare service associations will also implement the planned and coordinated structure of the transition period nursery school primary school through language promotion concepts and pedagogic-methodical approaches. As in primary schools, non-statutory welfare service associations will also ensure a long-term cooperation between nursery school, primary school, afterschool childcare centres, parents, extra-curricular activities and other actors involved. Immigrant organisations will inform parents on issues concerning the transition period nursery school primary school and pre-school preparation programmes during the final year of nursery school. They will motivate parents with a background of migration to participate in parent partnership activities and will actively support parents during this transition period Recommendations for self-commitments on the part of federal states and local authorities With the resolution passed by the Youth Minister Conference (JMK) and the Standing Conference of 57

29 Members Under supervision of: Federal Ministry for Families, Senior Citizens, Women and Youth Affairs 58 Dr. Ursula von der Leyen Federal Ministry for Families, Senior Citizens, Women and Youth Affairs Eva Maria Welskop-Deffaa Head of Department in Federal Ministry for Families, Senior Citizens, Women and Youth Affairs Berin Alpbek Federation Turkish Parents Association Germany Monika Baumgarten Pestalozzi Froebel Haus, College for Social Education, Berlin Dr. Doris Bollinger Senator for Employment, Women, Health, Youth and Social Affairs, Bremen Bernt-Michael Breuksch Regional Ministry for Generations, Families, Women and Integration North RhineWestphalia Rainer Brückers Federal Workers Welfare Association Silvia Burrini Caritaswerk (Welfare Association) Ludwigshafen Wolfgang Dichans Federal Ministry for Families, Senior Citizens, Women and Youth Affairs Kirsten Dick Federal Ministry for Migration and Refugees Dr. Christof Eichert Non-profit Hertie Foundation Dr. Hans Eirich Bavarian State Ministry for Employment and the Social System, Families and Women Dr. Havva Engin Teacher Training College Karlsruhe Prof. Dr. Lilian Fried Institute for Social Education, Adult Education and Early Child Pedagogy Dr. Edgardis Garlin Centre for Child Multilingualism Friedlinde Hasenkrug Standing Conference of German Ministers for Education Gundel Hessemer Working group Neue Erziehung e. V. Dr. Hans Rudolf Leu German Youth Institute Prof. Dr. Gudula List Faculty of Remedial Education, University of Cologne Uwe Lübking German Association of Towns and Municipalities Dr. Michael Maier-Borst Task Force for the Federal Government Commissioner for Migration, Refugees and Integration Gabriele Meier-Darimont Federal Ministry for Families, Senior Citizens, Women and Youth Affairs Heike Pape German Association of Towns and Cities Maria Ringler Association of Bi-national Families and Partnerships Mehtap Sanli Project Frühstart German and Intercultural Education in Kindergarten Katharina Schäfer-Olejnik Federal Ministry of the Interior Antje Scharsich Federal Ministry for Education and Research Thomas Schmidt Federal Chancellery Dr. Guiseppe Scigliano Comitato degli Italiani all Estero, Hanover Dr. Monika Springer-Geldmacher Central Office Regional Association for the Encouragement of Children and Young Persons from Immigrant Families in North Rhine-Westphalia Marie-Luise Tigges Caritas Association for the Archbishopric Paderborn Prof. Dr. Rosemarie Tracy University of Mannheim Ilse Wehrmann Regional Association Protestant Child Day-Care Institutions Manfred Willhöft German County Association 59

30 Topical area 3: 4.3. Securing of good education and vocational training to improve employment market opportunities Objective The integration of immigrants is one of the greatest political and social challenges in Germany. With the Integration Summit held on 14 July 2006 involving the participation of immigrants and also representatives from all political levels and social groups, the Federal Government set the ball rolling for continuous dialogue which will culminate in the creation of a National Integration Plan with clear objectives, concrete measures and self-commitments to provide the basis for a sustainable policy for integration. Under the leadership of the Federal Minister for Employment and Social Affairs, the working group Securing of good education and vocational training to improve employment market opportunities (Topical area 3) was set up in September 2006 which was assigned the task of formulating concrete recommendations for the improvement of integration conditions within the areas of education, vocational training and employment market. The working group was hereby focusing on one of the key areas to ensure the success of the social integration of persons with a background of immigration and their families. Six working group sessions were held between September 2006 and March The group consisted of 45 members representing a wide range of social, economic, cultural and academic fields. The sociopolitical objective of improving the integration of immigrants and their families which forms the basis for work on the National Integration Plan can only be 60 effectively pursued with the effective involvement of all relevant actors. This includes: persons with a background of integration and their families, educational, academic and vocational training organisations, organisers of dual vocation training and businesses; political and state representatives who are able to improve the conditions for successful integration on a variety of levels through legal channels, the provision of funding and the creation of programmes and civil society immigrant organisations, non-governmental organisations, trade unions and trade associations etc. which are able to provide support to encourage the process of integration and overcome barriers both within immigrant communities and in schools, vocational training and the employment sector. The composition of the working group and its agenda were appropriate to the relevant initial considerations. The working group s consultations were held within an extremely constructive and cooperative atmosphere and were characterised by the common objective of all participants: persons with a background of immigration should become fully integrated into 61

31 4.3. education, vocational training and the employment market; no child or young person should be denied educational opportunities due to issues relating to the individual s right of residence status. A comprehensive integration policy also requires a corresponding legal and organisational framework: obstacles relating to social security legislation and regulations for foreign citizens which impede or prevent the implementation of the National Integration Plan must be examined. The economic and cultural potential of immigration and the differentiated competence and skills of immigrants must be recognised. The areas of education, vocational training and employment have been systematically analysed. Following a review of the current status of integration, problematic areas were identified, objectives determined and the necessary changes and measures Results 1. Integration and education 1.1. Review of current situation The areas of education, vocational training, employment and families play a significant role in the social integration of immigrants. The success or failure of integration within these areas has an influence on general integration opportunities of persons with a background of immigration and therefore also their future opportunities. The National Education Report 2006 established that more than a quarter of children and young persons within the educationally relevant age group aged up to 25 have a history of migration (27.2 %). The relevant proportion for children under six is almost one third. The great heterogeneity of this group of persons according to status, date of immigration, ethnic affiliation and spatial concentration presents a great challenge for the integration of this group of approximately six million children and young persons in the educational system. The Federal Government, federal states and local authorities have undertaken extensive efforts to encourage integration, ranging from early language promotion in child day-care institutions, extension of linguistic diagnosis and the provision of special German courses and extra-curricular integration measures including the increase in the number of allday schools offering extra support activities. Within the framework of the investment programme Future education and care, the Federal Government has 62 compiled. It was only possible to achieve the working group s ambitious workload within the brief timeframe allotted thanks to the great discipline of all participants. This final report submitted by the working group contains a wide range of recommended courses of action and self-commitments on the part of relevant actors for the improvement of conditions for the success of integration within the key areas of education, vocational training and employment. The report was submitted on 23 March 2007 with the approval of all participants. Parallel to the final report, the working groups provide documentation of participants individual written contributions to discussion in a separate booklet. provided the federal states with a financial volume of four million euros for the period for the establishment and extension of all-day schools. In connection with the laws codifying the extension of child day care which became valid in 2005, the Federal Government provided an additional annual margin of 1.5 billion euros for local authorities to create 230,000 qualified places for the care of children under three. Despite these efforts, the dependency of educational success on social origins and a background of migration in Germany is particularly pronounced in an international comparison. It also appears that efforts to support schoolchildren with a background of migration in the systematic and consistent acquisition of the lingua franca are less successful than in other countries. Research shows that the command of the German language is of vital importance for school success and for all other social and professional participation which is dependent on this success. On an elementary level, the utilisation of child day care institutions by children with a background of migration within the age group of over-four-year-olds has almost reached the levels achieved by German children. In younger age groups, substantial differences remain and only one fifth of two-year-old children with a background of migration attend a child day care institution. It is however particularly children with a background of migration who can improve their subsequent educational opportunities substantially through early involvement in activities offered by child day care institutions. As early as the end of the primary level, clear deficits can be observed in schoolchildren with a background of migration in comparison with their German peers and these deficits are particularly evident in 4.3. an international comparison. The early segmentation between different school forms is an obstacle for further integration and opportunities for success for children from socially disadvantaged and immigrant families. Children with a background of migration receive significantly fewer recommendations for a transfer to secondary modern and grammar schools. In primary school, they receive slightly poorer marks for the same efforts as their German peers. At secondary level I, no disadvantages can be ascertained in the awarding of grades. measures into the school environment and the question of how to integrate the intercultural competence of young persons with a background of migration as a positive element within teaching structures. This also goes hand in hand with the further development of school curricula. There is also a vital need for qualification opportunities for the training and further training of all teaching personnel to guarantee a high standard in the teaching of languages in written and oral form and language promotion throughout all stages of school education and in specialised subjects. The educational participation of schoolchildren from immigrant families at secondary level I is unfavourable compared with pupils without a biography of immigration. In 2000 for example, slightly below 17 per cent of 15-year-olds without a background of migration attended Hauptschule and around 33 per cent grammar school; the figures for the same age group with a background of migration were 32 attending Hauptschule and 25 per cent attending grammar school. For children with a background of migration, the greatest obstacle in the transition to the secondary level I is the command of the German language: the disadvantages for this group can be substantially reduced if reading levels are on a parallel with their German peers, but an inequality of opportunities nevertheless remains. The frequent above-average motivation to learn and a relatively positive attitude towards schools in the relevant pupils and their parents are essential contact points to enable improvement in the educational situation of children and young persons and the overcoming of social and inter-family educational barriers. There is also great potential in the multilingualism of these persons. Schools with a high proportion of immigrant pupils frequently operate within a social environment characterised by relative isolation and the exclusion of social and ethnic groups. Permanent segregation influences learning behaviour and standards. There is evidence for an extensive degree of segregation: for example, PISA 2000 revealed that approximately one Hauptschule in five is operating under extremely problematic conditions. One in four young persons with a background of migration attends a school in which pupils with a background of migration are in the majority. Segregation also has an effect on school leaving certificate results. Learning deficits in young persons with a background of migration towards the end of the mandatory school attendance period are less pronounced in almost all other countries participating in the PISA study than in Germany. Double the numbers of foreign pupils leave school without a leaving certificate than is the case among German children. The figure of 20 per cent of foreign male pupils leaving school each year without a final qualification is particularly high. Within the area of tuition and the targeted encouragement of children and young persons with a background of migration, there is a distinct lack of reliable scientific findings on the most effective measures for improvement. Further research is necessary to ascertain the effectiveness of various language promotion concepts, the transfer of successful integration 1.2. Definition of targets Appropriate measures targeting the current situation will be agreed upon in the National Integration Plan and will focus on the following target areas: Germany requires an educational system which opens up opportunities, develops potential and does not permit social origin to be influential on educational success. Education in general education schools must provide the necessary tools for the ensuing path of qualification (vocational, scholastic or academic). Alongside basic cultural techniques (reading, writing and calculation) this also includes social competence and a well-grounded career orientation. The core of the state mandate for education and learning processes must include the universal right for all adolescents in Germany to have guaranteed access to general and vocational education, the encouragement of the free development of individual personality of pupils and the preparation of children and young persons in the orientation towards the goal of equal opportunities in the preparation for their social future and professional life. The adherence to this mandate which originates in the German constitution must particularly be guaranteed for school pupils originating from disadvantaged circumstances. The communication of education as the decisive key for successful integration requires sustainable resources in order to meet increased educational standards. Financial resources which will become free due to democratic developments and a corresponding decrease in pupil numbers must be utilised for improvements in school education and vocational training. 63

32 4.3. Education is Germany s primary resource; the existing potential and abilities of all individuals must therefore be utilised and encouraged. The existing correlation between educational opportunities and careers with the characteristics of social, linguistic and ethnic origins must be overcome through an educational system which foresees the encouragement of individuals. Education must be begun as early as possible in order to improve the chances of integration effectively. In order to provide a systematic encouragement at an early stage, child day care institutions must be further developed as places of learning and the harmonisation with the general education system intensified without however losing sight of essential social-pedagogic criteria. The quantitative and qualitative expansion of relevant pre-school educational and support activities is essential in order to increase the percentage of children with a background of migration who attend day nurseries and nursery schools, particularly within the age-group of under fours. Compulsory attendance of pre-school institutions from the age of three should be an underlying aim. A secure command of the German language is an essential requirement for educational success and frequently also for professional success. For this reason, the continuous, systematic and explicit tuition of both written and oral German must be guaranteed throughout the entire scholastic career and vocational training. This necessitates the linguistic qualification and further training of teaching personnel throughout all school levels and subject areas as a priority task. Multilingualism embedded in the language of origin also represents a great general potential for both the individual and society in general which must also be encouraged. Suitable measures for the relevant incorporation of multilingualism within the normal school day must be tested, for example through the creation of bilingual schools. Top priorities are the utilisation of the high learning motivation of pupils with a background of migration, the substantial reduction of failure quotas and the increase in the proportion of children and young persons with a background of migration continuing in further education courses. Measures to overcome the dependency of educational success on social origins will particularly improve the educational situation of young immigrants. The prime issue is the avoidance of early selection where possible, the provision of a longer period during which all pupils learn together and the active improvement of transparency within the educational system. 64 Improvement of schools active counteraction of discrimination and segregation The development of school situations in which segregation and various aspects of discrimination accumulate must be resolutely counteracted; Hauptschulen with extremely low transfer quotas in which pupils frequently experience multiple discrimination are particularly problematic. Should it not be possible to change these problematic general conditions in the short term, the schools affected should receive comprehensive additional resources and support. Both local authority educational management and longterm supervision and support systems can contribute to quality improvement. Numerous parents with a background of migration are willing to invest to a great extent in the education of their children. Where present, this willingness must be utilised to a greater degree and, where non-existent, be encouraged in order to gain and qualify these parents as partners for education and learning. Appropriate information, advisory and educational measures must receive additional support, for example the creation of language courses in schools for the parents of pupils. In addition, it is vital to involve immigrant organisations to a greater degree as dialogue partners, bridge-builders and providers of educational outreach support to overcome educational barriers within the family. Early individual encouragement and the substantial increase in the number of all-day schools offering a high quality of education can create new opportunities for targeted support and school activities to improve educational and integration success. It is particularly those children from socially disadvantaged or educationally distant households who are able to overcome deficits and develop linguistic, cultural and social skills through attendance of all-day schools. Improvement of school tuition intensification of educational research The continuous promotion of language for children and young persons with a background of migration should begin in child day-care institutions and be offered throughout the complete school career. The promotion of the German language must also take place in specialised subjects; this requires adequately qualified teaching personnel who have undergone relevant specialised training. Current language promotion measures should be examined to establish their effectiveness and successful approaches scientifically further developed, extended and implemented. An improved preparation for the world of employment at school through the incorporation of relevant elements in the content of lessons from year eight onwards is essential. Cooperation with firms and companies and also with trade unions can help to implement these measures. The greater involvement of civil society organisations and institutions in the school routine for the improvement of career orientation and advisory services can play a significant role. Schools must be principal actors in community networks for education, integration and professional perspectives. Encouragement of youth potential improvement of parental involvement and strengthening of selfresponsibility The encouragement of children and young persons with a background of migration builds on their cultural and linguistic experiences. It will in the future become increasingly important to utilise their strengths and abilities, e. g. their high levels of motivation and linguistic abilities. The encouragement of children on the part of educational institutions must be secured on a long-term basis. Parental participation has great significance in the support of integrative activities in schools. Great efforts must be undertaken to increase the participation of parents with a background of migration through improved educational opportunities and active participation in the school routine. This helps to reinforce the necessary self-responsibility and counteract the tendency to withdrawal from participation. Additional accompanying research is necessary to address issues concerning the educational success of persons with a background of migration to a greater extent on the basis of already established findings on successful integration, for example in the area of (written) language learning and intercultural education Agreement of measures and selfcommitments For the achievement of these agreed objectives, the following actors of the working group Securing of good education and vocational training to improve employment market opportunities agree to address and support the following measures within their scope of responsibility: Measures and self-commitments on the part of the Federal Government (and/or within the regulatory responsibility of the Federal Government) In order to provide the opportunity for all children, young persons and adults to develop their potential, guarantee equal educational opportunities and comprehensive social and cultural participation, meet future demands for specialised trained staff and remain internationally competitive, the Federal Government pledges to utilise budget resources which become free due to demographic developments and resulting reduction in persons participating in education for improvements within the area of education. The Federal Government supports the establishment of all-day schools which can also effectively target integration and will continue the investment programme Future education and care as financial support for the further establishment of all-day schools up to the year 2009 in the agreed extent. The Federal Government will introduce the model programme School truancy a second chance together with ESF support and local project partners to reduce the number of school drop-outs. This project particularly targets pupils attending the secondary school form Hauptschule and aims to reintegrate long-term school drop-outs in the school and improve their chances of attaining a school leaving qualification. The Federal Government will support the portal LIFT learning, integration, encouragement and training within the extra-curricular area of Schools on the Internet ; this portal offers young persons the possibility of developing media and self-learning skills, language promotion and intercultural education. The aim is the support of basis skills which are significant for the employability and integration of young persons, whereby the chief target group is young persons with a background of migration. Within the framework of the new Joint Agreement for the Improvement of Regional Economic Structures between the Federal Government and federal states according to the Article 91 b Par. 2 GG [Basic Law], the Federal Government will provide support Appropriate advertisement and appointment measures for the recruitment of personnel should help to attract, qualify and recruit a substantially larger number of persons with a background of migration for pedagogic professions. The qualification of pedagogic staff in child day-care institutions and schools for the provision of linguistic tuition for children and young persons in linguistic and culturally heterogenic groups must be carried out systematically and become an integral part of training courses. The training and advanced training in the areas of educational diagnostics, the promotion of language skills, individual support and the evaluation of abilities and standards should be intensified and intercultural competence established as part of the fundamental competences of teaching personnel. The educational success of children with a background of migration does not depend exclusively on their linguistic knowledge, but also on the recognition of their particular educational requirements and the confidence of teaching personnel in the abilities of these pupils. The reduction of stigmatising prejudices and discrimination is also decisive for educational success. 65

33 4.3. for the federal states for the development of concepts and instruments and educational research, including issues concerning the improvement of integration and intercultural education. ing personnel to implement their linguistic educational mandate in their lessons in the future. Within the framework of educational reports, regular reports will be issued concerning progress made in the integration of young persons with a background of migration within the educational system. Measures and self-commitments on the part of federal states and local authorities (and/or within the regulatory responsibilities of the federal states and local authorities) Federal states: Education as a significant social property and decisive key for successful integration must, however, have access to adequate funding in order to meet increased educational standards. The ministers of education will make great efforts during the budget debates in their federal states to ensure that funds no longer required due to demographic developments can be primarily utilised for the purposes of improvements in education. 66 The Standing Conference of Ministers of Education supports all efforts in support of a quantitative and qualitative improvement of care facilities in child day-care institutions. Closely coordinated educational and learning plans for all-day nursery schools and primary schools have either already been compiled or are in the process of being formulated. Language tests prior to starting school coupled with supplementary tuition where necessary have now been introduced in all federal states. The Conference of Ministers of Education commits itself to the regular evaluation of the success of these measures and the introduction of a regular exchange of information on findings and best practice. The federal states are currently examining the possibilities of the qualification of nursery school teachers for the implementation of appropriate language promotion measures. The federal states commit themselves to the incorporation of decisions in the regular exchange of information within this topical area. It is universally accepted that all children displaying deficits in their command of German must receive all necessary support to facilitate equal participation in tuition and education. This task involves teaching personnel in all subjects. The ministers of education commit themselves to the implementation of linguistic support measures in all school forms and at all school levels where there is a corresponding need. The ministers also commit themselves to provide the necessary training and advanced training possibilities to enable all teach- Alongside the acquisition of the German language, the Conference of Ministers of Education recognises the significance of multilingualism for all children and young persons. This includes the languages of origin and family languages of children and young persons with a background of migration. Suitable measures must be found to anchor the principle of multilingualism within everyday school life. Following the current evaluation of the model programme Support for children and young persons with a background of migration (FörMig), the federal states will examine the possibilities of incorporating successful action approaches and instruments in the regular education system. The Conference of Ministers of Education commits itself to support the continuous exchange of information in the encouragement of multilingualism on the basis of national education reports. The Conference of Ministers of Education has an interest in the increase in cooperation with parents with a background of migration. In order to provide support for this form of cooperation, the ministers will within their sphere of responsibility undertake efforts to establish the sustainability of courses for parents and in cooperation with immigration organisations make efforts to guarantee financial and personnel support for corresponding parent initiatives. The Conference of Ministers of Education is planning a joint declaration on parent cooperation together with immigration organisations. The Ministers of Education will continue the all-day school programme financed by the Federal Government in the agreed dimensions up to the year 2009 and continually increase the number of all-day schools. The Conference of Ministers of Education will produce a statistical report at regular intervals on the development of general education schools in all-day form. This report has already shown an increase in the proportion of schools offering an all-day structure throughout all school types, in particular elementary schools. The ministers also commit themselves to provide regular reports on the anticipated educational success of all-day school programmes. Irrespective of differences between individual federal states, the number of pupils repeating a year, school drop-outs and school leavers without school certificates is generally too high. Among those particularly affected are a disproportionately high percentage of children and young persons with a background of migration, in particular boys and young adult males. The Conference of Ministers of Education has been all too aware of this situation since the first results of the PISA study and has cooperated on the development of priority fields of action in order to remedy this situation. Short-term results cannot, however, be expected within this area, as it will also take substantial time before a mental rethinking of a new school culture which does not exclusively focus on performance aspects, but also includes individual encouragement and support aspects can take effect. The Ministers of Education have agreed to review the already implemented measures for the reduction of the high quota of failures in their schools on a continuous basis and to produce regular reports on this topic. The ministers are pursuing the common aim of substantially reducing the school drop-out and repeater quotas and achieve a level of quotas for children and young persons with a background of migration which is equivalent to the overall national average for all schoolchildren. Individual federal states will conclude target agreements with their schools, and other federal states will be testing other possible measures. The federal states will confer regularly to establish the effectivity of these measures. At the same time, it is the common aim of all ministers of education to actively encourage the transparency of existing school systems. This will in future also involve the systematic compilation of the transfer quotas for children and young persons with a background of migration with the target of achieving figures which correspond to the average statistics for all other young persons. The Ministers of Education are aware that schools with a high percentage of children and young persons with a background of migration must undertake greater efforts to be able to guarantee comprehensive integration measures. The ministers agree that specific provisions are necessary for these schools, such as the reduction of pupil numbers, increase in number of teaching personnel or the provision of social workers to support teaching personnel. These schools also require particularly highly qualified teaching personnel. This should be achieved on the one hand through the appointment of additional teaching personnel, nursery staff and social workers with a background of migration and, on the other hand, consistent specialised training. Modules targeting the acquirement of intercultural competences have already been specified in new standards for teacher training; the Conference of Ministers of Education will plead for the swiftest possible implementation of relevant measures. Local authorities: Local Authority Associations are currently involved in intensive discussion with their member organisations and will present their contribution within the framework of a separate process Corresponding to the discussion in the working group, the aspects under consideration included the following areas: quantative and qualitative extension of child daycare early encouragement of children local management of schools/avoidance of segregation increase in all-day schools increase in youth social work local networks for education, integration and employment perspectives Measures and self-commitment on the part of nongovernmental institutions and organisations Organisations for persons with a background of migration: Immigrant organisations and parent associations are intensively involved in highlighting the greater significance of education and qualifications and strengthening the educational orientation of immigrant families. The aim is the conscious and well-informed accompaniment of young persons by their parents in order to permit the full professional integration of children and young persons in Germany. Immigrant organisations are prepared to provide suitable local representatives who can undertake an active responsibility as dialogue partners and educational godparents and act as intermediaries. The Turkish Community in Germany is running a comprehensive educational campaign which aims to achieve a substantial increase in the participation of persons of Turkish origin as parent and pupil representatives in schools, a reduction by half of the proportion of school leavers without a school leaving certificate and a significant increase in the number of pupils of Turkish origin with upper level secondary leaving certificates (Mittlere Reife and Abitur). Within the framework of this campaign for greater participation and educational success within the Turkish-speaking population, the awareness of education should be increased through cooperation with Turkish-language media, the establishment of parent academies in all federal states and the appointment and qualification of 100 educational ambassadors from the Turkish Community in Germany as multiplicators and intermediaries in the federal states. 67

34 4.3. The Federation of Spanish Parent Associations will also make available its experiences and working methods in the encouragement of multilingualism and educational success of immigrant children to immigrants of other countries and their organisations. The German-Hellenic Economic Association will also provide support for the nurture and encouragement of bilingual and multilingual education in Germany. The educational institute CGIL-Bildungswerk e.v. will provide access for ministries of education and local authorities to the experiences concerning its successful integration activities in schools with its project JUMINA young immigrants in training for further implementation. An element of the project involves the establishment of a coordination office to form a network between schools, education ministries, local authority institutions, businesses, chambers of commerce and industry, employment centres, immigrant organisations and pupils with a background of migration with their parents. Italy supports children and young persons through its consulates with the provision of supplementary Italian language tuition and general support courses according to learning standards and needs. In the future, there are plans to offer these support and language courses in cooperation with all-day schools with a large proportion of Italian speaking children (a minimum of 12) and open these courses to German-speaking pupils and children with other native languages as extra-curricular activities. An Italian proposal has suggested the new instrument tandem tuition in schools in which a proportion of regular lessons given by class teachers are accompanied by native Italian-speaking teachers. Business: The business sector has agreed on the provision of immediate support for an obligatory pre-school year which is free of charge with language promotion in child day-care institutions and in the medium- and long-term supports the obligatory attendance of child day-care institutions from the age of three. Individual businesses and organisations are already supporting corresponding good practice examples. 68 The national network SCHULEWIRTSCHAFT, a project bringing schools and businesses together within a framework of 450 working groups, will provide a partner business for all interested schools. The primary aim is to achieve a higher standard of maturity in vocational training, particularly with regard to career orientation, in school pupils, including those with a background of migration. Practical training courses for pupils and teaching personnel, visits to firms and joint projects are also organised. The business sector is in favour of a wide range of practical classes in which underperforming pupils can receive individual support and be introduced to vocational training courses via industrial placements. Businesses also provide targeted information for pupils with a background of migration and their parents on industrial vocational course opportunities and requirements for participation in these courses. Businesses provide mentors particularly those who also have a background of migration as direct role models to provide information for pupils and participate in school lessons. Trade unions: The Federation of German Trade Unions and individual trade unions are in support of intercultural education and also increased tolerance and awareness of human rights in all vocational institutions. This permits prejudice to be reduced, creates sensitivity towards minority groups and improves the opportunities for integration. Together with youth organisations, school project days and training courses for teaching personnel are offered via already existing networks in several federal states. The Federation of German Trade Unions and individual trade unions support the introduction of employment-oriented issues into school tuition and call for cooperation between schools and the employment world. They will employ their competences in the local authority networks for education, integration and career perspectives as recommended by the working group. The Federation of German Trade Unions and individual trade unions share the opinion of the working group that all children and young persons regardless of their residence status should be guaranteed unlimited access to educational institutions. They support the view that employees in educational institutions should not be asked to provide evidence of their residence status, this evidence should not be passed on to public authorities for foreign nationals and the appointment in these educational institutions not be refused. The Federation of German Trade Unions and individual trade unions are in favour of a comprehensive educational concept spanning the early encouragement of young children and further training opportunities for older employees. They will develop concepts and operate relevant campaigns to this purpose (e. g. action for education on the part of the Trade Union for Mining, Chemistry and Energy IG BCE). The Trade Union for Education and Science (GEW) also supports integration-political topics and tar- gets in its publications and will urge for the swift and comprehensive provision of further training opportunities for teaching personnel, social workers and nursery school staff targeting intercultural and linguistic competence. They will undertake efforts to ensure that the teaching personnel providing this tuition are not less well remunerated than other members of staff and cannot be discriminated against due to their own nationality or those of their pupils. The Trade Union for Education and Science will train multiplicators for national further training programmes addressing intercultural topics, continue to support immigration research projects through its own foundation, distribute relevant findings via its publications and ensure that these findings are incorporated into training and further and specialised training for the educational professions. Foundations: The Mercator Foundation is currently implementing the nationwide project Special tuition for children and young persons with a background of migration at 35 locations in cooperation with a series of partners; this project is oriented towards secondary level pupils, trainee teachers and remedial teachers. The aims of the project are the provision of linguistic and specialised support for young immigrants and the linguistic-didactic training of future teaching personnel. The individual specialised tuition for young immigrants is free of charge, has a duration of two to four hours per week and combines linguistic and specialised elements. The Mercator Foundation has allocated 10 million euros for this project. Economic foundations also provide targeted support for pupils with a background of migration which are particularly aimed at increasing linguistic competence. The German Employers Association prize is awarded annually to schools, higher education institutions, vocational schools and businesses which have achieved extraordinary educational efforts and the association publicises these successes as an example of good practice. In 2006, the overriding topic was the encouragement of international competencies Youth welfare organisations: Youth welfare organisations also plan to increase the proportion of employees with a background of migration occupied as school social workers in order to improve the individual and social development of young persons with a background of migration in all measures in cooperation with teaching staff. The Youth Migration Service has set up model projects in twelve locations to examine which access paths and methods are most effective for involving parents in the school career of their children. Non-statutory welfare services: The member organisations of the Federal Association for Non-Statutory Welfare BAGFW support the earliest possible support of all children with a background of migration. This support should not be exclusively limited to the encouragement of linguistic competence. The member organisations of the BAGFW support the quantitative and qualitative extension of educational, learning and care facilities for all children from the age of two. The member organisations of the BAGFW will undertake great efforts within their youth social work activities youth migration services, school social services and measures supporting assisted living and also in their outreach programme accompanying young immigrants during the transition period between school and training/ employment. The member organisations of the BAGFW guarantee that vocational youth assistance and youth social work carried out by their associations will continue to provide supervision and support for the educational endeavours of young immigrants. In order to provide support for the informal educational processes and social participation of young persons with a background of migration, the member organisations of the BAGFW will undertake increased efforts to involve these young persons in the youth association activities and youth initiatives. 69

35 Integration and vocational training 2.1. Review of current situation Vocational training takes up an essential social and economic key position between the general education system and the employment market and also provides a fundamental basis for the successful integration in the employment world and economic utilisation of the potential of persons with a background of migration. For school leavers with a background of migration, two problem fields arise at this point which can prevent their full integration. Firstly, the disadvantages described in the section Integration and education can have the effect that the starting point for the transition to vocational training is significantly less favourable than is the case with young persons without a background of migration. Secondly, the lack of available training places within the employment market during the past few years has increased competition between those seeking a training opportunity. As a result, a greater disadvantage is attached to the lack of formal school leaving qualifications. Conversely, any possible reservations concerning the selection of trainees have a greater effect than in a normal balanced employment market. A variety of studies show that young persons with a background of migration have fewer chances of obtaining a vocational training position despite equally good school leaving qualifications or mathematical ability. The gap in opportunities widens with the level of leaving certificate. One in two young persons with a background of migration with a leaving certificate from the Hauptschule and one in four with a leaving certificate from the Realschule either continues to attend school or begins a vocational preparation course. The number of participants attending courses offered within this transition period which do not lead directly to a recognised vocational training qualification has increased during the last decade by 44 per cent to a figure of just under half a million. Young persons of foreign origin are highly over-represented in this transition system. In view of the increase in the number of school leavers in the old West German federal states up to the year 2011 plus the number of young persons whose search for a training place was unsuccessful during the past few years an improvement in the short-term situation within the vocational training market cannot be expected. The situation for young persons of foreign origin within the vocational training market has noticeably deteriorated during the past few years: in 2005, 67,600 trainees were of non-german nationality, 70 whereas the figure for 1994 was 126,000. Although the total number of young persons of foreign origin also decreased during the same period, the decrease of 16.3 per cent within the trainee age group was significantly lower. The participation of this group in trainee courses decreased within eleven years from 9.8 per cent in 1994 to 5.3 per cent in 2005 (old federal states). In 1994, 34 per cent of young persons of foreign origin were able to find a trainee position in the dual system, whereas the figure for 2005 was only 23.7 per cent. The percentage of young Germans participating in vocational training was 57.5 per cent in the same year. The fact that 41 per cent of persons with a background of migration in the age group ranging from 25 to 35 do not possess a professional qualification (for persons without a background of migration, the figure is 15 per cent) gives cause for concern. This disadvantage for professional integration necessitates the creation of a package of strategic political measures. During the past few decades, a highly complex system in the promotion of vocational training measures involving a wide range of public funding support for the transition period leading to vocational training has evolved which can frequently only be comprehended by experts. The vocational preparation educational segment has recently been more clearly restructured and freed of overlapping measures, but the problematic situation on the vocational training market in the transition between school and training has led to the creation of additional support measures. The comprehensive restructuring of the overall concept of this system is necessary to avoid disharmony in the implementation of the measures, to increase transparency and to achieve the long-term incorporation of support for professional integration within the general education and vocational training system. Company-internal measures are especially suitable due to their practical nature and orientation to market needs within the transition period between training courses and employment. In particular, it is companyinternal entry-level vocational qualifications which reflect this suitability with over-average transfer figures into training positions (also on the case of young persons with a background of migration) and the increase in vocational training efforts on the part of the participating firms. The encouragement of these opportunities is therefore of vital importance. Measures which begin at an early stage before trainees leave school have also proved to be advantageous for the transition from school to vocational training. This includes practical models and cooperation classes which provide individual support for low-performing pupils and practical training courses in firms to guarantee that pupils achieve their school leaving certificates and thereby significantly improve their chances of obtaining a vocational training place Definition of targets In response to the current situation, measures will be agreed in the National Integration Plan which target the following levels: Increase in vocational training opportunities for applicants with a background of migration The lack of training places has already prompted great efforts to widen the range of vocational training places and has in part already achieved success. All measures resulting in the increase in places offered improve the chances of young persons with a background of migration as a decrease in competitive pressure generally reduces the impact of the disadvantages described above. All measures resulting in the increase of available training places must also be continued over the coming years. Experience gained from the vocational training pact will be taken into account. Two courses of action present themselves as possibilities with which the range of available vocational training places can be extended for applicants with a background of migration: Firstly, apprenticing companies which currently offer few or even no opportunities of vocational training for young persons with a background of migration must be persuaded to extend their training possibilities. Entrepreneurs who also have a background of migration but have not previously offered training opportunities in their businesses must be approached, but also those companies particularly large-scale enterprises who have previously only taken on a low percentage of trainees with a background of migration. Secondly, the public services sector has a long way to go to catch up. The increasing diversity of the population and the further internationalisation of markets brings changes in demand for all private and public employers offering apprenticeships and, for this reason, the recruitment of a greater number of personnel with intercultural competence and command of several languages brings greater opportunities and can only be of advantage. It is therefore necessary to incorporate qualifications targeting intercultural competence in the corresponding vocational training and advanced training regulations. A second course of action concerns potential apprenticing companies who refrain from recruiting apprentices with a background of migration for reasons of insecurity. Company recruitment strategies and selection procedures currently do not take the resources of young persons with a background of migration sufficiently into account. It is therefore necessary to increase the relevant competence of training personnel; here public support for the stabilisation of company apprenticeship schemes and for the guarantee of success in vocational training should be utilised to a greater degree The extension of horizons in career selection and participation in vocational training of young persons with a background of migration Certificates obtained at school can only be minimally improved during the transition to vocational training, especially in the case that applicants do not possess any form of formal school leaving certificate. Other limitations can however also be observed in vocational training applicants over and beyond school leaving certificates. It is important that perspectives regarding the choice of career are broadened to enable early orientation towards an independent career and earning biography, in particular in the case of young women with a background of migration. To this end, a concerted effort on the part of schools, career counselling, immigration counselling and parental support is necessary. Career orientation which has been intensive and addressed specifically to the target group at an early stage prepares the way for positive career counselling which can broaden horizons. The active participation of parents in the establishment of a wide career choice spectrum can have a positive effect, particularly in families with a background of migration. Here, ethnic media and communication channels must be utilised to discover appropriate forms of communication and information concerning the complex vocational training system in Germany and communicate self-confidence to counteract the frequently existing scepticism regarding individual opportunities for professional integration. Here it is also necessary to strengthen the competence of the organisers of measures in their contact with young persons with a background of migration and optimise the cooperation with immigrant organisations. The competencies of persons with a background of migration must be utilised in the development of new occupational images and the further development of existing job descriptions. The further development of the implementation of public transition support according to needs and oriented to target groups The public financed measures for the promotion of vocational training must be transparent for young persons and their families and also for trainees and businesses interested in offering vocational training. These measures must support mediation on both sides, particularly to compensate for shortcomings on the part of applicants and reduce uncertainties on the part of apprenticing firms regarding success prospects. This necessitates the consistent strengthening of competence in the contact between institutions offering qualification measures and young immigrants and also the intensification of cooperation with immigrant organisations. Germany must utilise the potential of all young persons and employ all available instruments effectively and efficiently for this purpose. Additional accompanying support measures are necessary for vocational preparation and training 71

36 4.3. in order to generate more vocational training opportunities for low-performing young persons. Appropriate instruments must be utilised at an early stage to prevent pupils dropping out of school and to improve chances in the transition period between school and vocational training. The possibility of the nationwide introduction of practice classes and cooperation classes must be examined. an independent programmatic area. A renewed increase in the funds for this programme will be granted Agreement of measures and selfcommitments For the achievement of the agreed targets, the actors participating in the working group Securing of good educational and vocational training to improve employment market opportunities mentioned below commit themselves within their relevant sphere of responsibility to address and support the following measures as initial steps: Measures and self-commitments on the part of the Federal Government (and/or in the responsibility for regulation on the part of the Federal Govern ment) and the Federal Employment Agency (BA) Federal Government: The Federal Government will undertake concerted efforts with the economic sector in the National pact for training and young skilled staff with a particular emphasis on the improvement of the situation regarding apprenticeship training places for young persons. Young persons with a background of migration should particularly benefit from the 60,000 new apprenticeship training places promised by the economic sector and the 40,000 places within the framework of the special programme for entry-level qualifications. 72 Together with the German Association of the Chambers of Industry and Commerce (DIHK) and German-foreign trade associations, the Federal Government is implementing an initiative Active for apprenticeship places with the aim of creating up to 10,000 new apprenticeship places up to 2010 in companies with proprietors of foreign origin. Regional conferences are to be held in eight large cities up to the spring of 2007 to set the ball rolling. In the new programme Jobstarter supported by the ESF, the Federal Government is supporting the creation of supplementary apprenticeship places in businesses and the improvement of regional vocational training structures with a particular focus on small and medium-sized businesses. The gaining of businesses with proprietors of foreign origin who have offered few or even no training places up until now will be integrated as KAUSA (Coordination Office for Vocational Training in Foreign-Owned Companies) into the new support programme as The Federal Government will organise publicityeffective public events involving persons with a background of migration (proprietors, young persons, parents and representatives from immigration groups) in order to increase the range of apprenticeships in immigrant businesses and available places for young persons with a background of migration. A multiplicatory effect should be achieved through the accompanying publication in media particularly utilised by immigrants. Within its area of regulatory responsibility (federal ministries and subordinate government agencies), the Federal Government will work towards a systematic increase in the number of apprentices with a background of migration and will stipulate an overall figure of seven per cent of apprenticeship places for federal government employees subject to social insurance contributions. The Federal Government is planning two further measures to follow its support policy for the vocational qualification of target groups with special needs (BQF programme). Here there will be two focal points targeting migration-specific aspects: firstly, the improvement of the transition period between school and vocational training through the cooperation of all actors within a regional context and the coordination of corresponding measures and, secondly, supplementary qualifications for young skilled and unskilled adults. Within the ESF-funded programme Learning regions encouragement of networks, the Federal Government will support the establishment and extension of educational and cross-institutional networks, particularly targeting the improvement of the transition from school to training and employment and also targeted support for immigrants. The Federal Government will aim to define the qualifications for intercultural competence within the regulations for initial and further vocational training. The Federal Government, the economic sector and the BA will examine the possibility of incorporating bi-national programmes in the employment promotion legislation. The Federal Government will recommend the adoption of organisational support for vocational preparation and vocational training to benefit disadvantaged young persons in the employment promotion legislation. The Federal Government will launch a three-year programme subsidised by ESF funding entitled Tailored placement of apprentices in small and medium-sized enterprises. It is envisaged that this programme will increase the willingness on the part of proprietors to recruit apprentices and also improve the chances of young persons with a background of migration. The Federal Government will extend existing support for apprentices of foreign origin through vocational training grants and the Federal Education and Training Assistance Act [BAföG], in particular for young persons with right of residence and longterm residential perspectives in Germany. Alongside the extension of career orientation measures, it is foreseen that mentors will accompany young persons and their needs as from early as year eight up to the conclusion of admission to an apprenticeship. The project network.21 will provide a mentoring programme providing individual guidance within the areas of the employment market and career orientation for young women with a background of migration who often lack role models in their career orientation. This should include the utilisation of intercultural competencies as a specific resource for integration within the employment market. The ESF-funded regional model approach Professional qualification network for immigrants (BQN) should be transferred to other regions with the focus on a targeted and early transfer management between school and professional career. The Federal Government will extend the successful special programme for entry-level qualifications, with an over-average utilisation by young persons with a background of migration, to a total of 40,000 places and will guarantee funding for these places for the next three years. The ESF model programme Competence agencies targets those young persons who have serious problems in finding a vocational training place after having completed school education who have not benefited from any of the existing support programmes. Case managers will compile a precisely tailored range of support offers from a variety of sources which are appropriate to the individual situation of these young persons. The competence agencies selected in 2006 will be increased to a total of 200 in within youth immigration services. The target of the model project is to establish how vocationallyorientated parent participation can support the educational competence of parents over and above previous parent cooperation programmes in order to encourage the integration of children and young persons in schools and the working environment. In 2007 und 2008, a vocational orientation programme cooperation involving parents will be launched in twelve locations as a new element Within the framework of the annual vocational training report, regular reports will be compiled on the progress achieved in the integration of young apprentices with a background of migration. Measures implemented by the partners of the National pact for training and skilled staff in Germany will be observed within the framework of assessments carried out by the employment agencies and chambers of commerce and industry. Federal Employment Agency With the aid of performance descriptions of selected apprenticeship market policy instruments, the Federal Employment Agency [BA] will discuss specific quality standards for measures aimed at persons with a background of migration with the network Integration through qualification and will also specifically cover the question of quality control. In parallel, the experience background of the community initiative EQUAL will also be utilised. To round off this development work, experts from agencies with high regional proportions of immigrants will make their own contribution. The BA will intensify its network cooperation with immigrant organisations, youth immigration services (JMD), initial advisory services (MEB), the network IQ, the regional coordinators (ReKos) for the Federal Office for Immigration and Refugees (BAMF) and youth welfare offices and local authority services. The BA will undertake efforts to ensure that the management of the ARGEN/Federal Employment Agencies supervise the allocation process for the integration courses on a long-term basis as a separate governing body and combine the supplementary language tuition with other components such as practically based tuition or practical work experience as further integral elements. The BA will continue the external training of disadvantaged persons on at least the levels of 2006 and also continue to provide preparatory vocational training courses on a high level. For the further relief of the vocational training market and the improvement of the situation of young persons with a background of migration, the BA will in the autumn of 2007 supplement its original plans with financial support for a one-off creation 73

37 4.3. part of the ministers for education to provide appropriate further training. The experiences gathered in the model programme FÖRMIG for language promotion during the transition period between school and vocational training will be taken into consideration. of 7,500 external training places for this target group up to the end of their vocational training. The BA will extend supplementary support accompanying apprenticeships, in particular for young persons with a background of migration. The BA will where necessary provide social-educational supervision for vocational entry-level qualification undertaken by young persons with learning difficulties and social disadvantages. The BA will extend its range of information material in foreign languages and will publicise this material through multiplicators in immigration organisations. The BA will extend early and intensified career orientation to achieve an improved career orientation and vocational maturity on the part of school leavers. Measures and self-commitments on the part of the federal states and local authorities (and/or in the responsibility for regulation on the part of the federal states and local authorities) Federal states: In vocational schools, special provision should be made for language teaching in specialised and vocational areas. The Standing Conference of the Ministers of Education (KMK) has agreed to address itself specifically to this aspect of vocational language promotion. To this end, it will examine the effectiveness of previously implemented measures and personnel qualifications to meet the increased demands of classes with a high proportion of young persons with a background of migration. 74 The ministers of education are aware that schools providing vocational education with a high proportion of children and young persons with a background of migration require support in order to work towards integration to a sufficient degree. There is mutual consent that these schools also require specific provisions such as the reduction of pupil numbers, increase in number of teaching staff or the provision of school social workers to support teaching staff. These schools require particularly highly qualified teaching staff. To achieve this goal, the appointment of an increased number of teaching staff and social workers with a background of migration is planned and also the provision of relevant further training. Language promotion measures will also be offered in vocational schools according to demand. Simultaneously, the language educational mandate for general education schools also applies to all teaching staff in all subjects and the commitment on the Multilingualism in young persons becomes particularly important during the vocational training phase and should where possible be further developed with a relevance to the vocational direction and provide better opportunities for apprentices in their future occupation. Local authorities: The Local Authority Associations are currently involved in intensive discussion with their member organisations and will present their contribution in a separate procedure. Local authorities as employer: increase in the number of trainees with a background of migration. to gain 30,000 new apprenticing companies annually, to provide 40,000 places for the gaining of entrylevel qualifications within companies and to continue to pursue the aim of a correspondingly high transfer rate of apprentices in vocational training. It is envisaged that young persons with a background of migration should particularly profit from these measures. The Chambers of Craft train their vocational training advisors in the targeted provision of advice according to requirements for both businesses and young persons with a background of migration. The Chambers of Commerce and Industry and the chambers of skilled crafts are advertising the new opportunities provided by the Vocational Training Act (BBiG) for parts of vocational training courses to be completed abroad and provide information to address relevant queries from businesses. The Chambers of Commerce and Industry are utilising the new EU vocational training programme for cooperative vocational training. The employers associations are campaigning for the increased utilisation of in-company measures for prevocational training and entry-level qualifications for young persons (EQJ) in which an above-average proportion of young persons with a background of migration already participate. The Confederation of German Employers (BDA) advertises in companies for the increased consideration of the abilities of immigrants, e. g. their Measures and self-commitments on the part of non-governmental institutions and organisations Immigrant organisations: The German-Hellenic Economic Association (DHW) utilises a targeted press and public relations action to encourage Greek businessmen and women to participate in the provision of vocational training. Through the activities and experiences of the job starter project NEOXEKINIMA, the participation of Greek businessmen and women in the provision The Chambers of Commerce and Industry provide a special vocational advisory service for foreign companies and hold information events on vocational training for young persons of foreign origin. According to the discussion in the working groups, the following aspect should also be considered: The BDA advertises in companies for the increased utilisation of accompanying support measures (linguistic support, social-educational supervision and remedial teaching) and for mentors in prevocational and vocational training of young persons with a background of migration. The BDA advertises in companies for the increased utilisation of tandems consisting of apprentices with a background of migration requiring support and other high-performing apprentices. This also encourages the development of intercultural competencies. The BDA supports the concept of companies offering targeted additional qualifications, including language tuition geared to the relevant professional area, practical training phases abroad or cross-border vocational training in order to encourage the intercultural competencies of apprentices. The additional qualifications will be documented. The possibility of acquiring qualifications and certificates abroad will also be examined. The representatives of employers and employees in the BA board of administration support all advisory, mediation and support schemes which target the greater integration in the apprenticeship market of persons with a background of migration. This also includes the recommendations jointly submitted to the BA board of administration concerning the reorientation of the practical support of the BA and the adoption of bi-national vocational training for immigrants in the employment promotion legislation. to create an annual average of 60,000 new vocational training places, Federal states as employer: increase in the number of trainees with a background of migration intercultural competencies and frequent multilingualism in their selection of future apprentices. The common aim of all actors is the improvement of school performance and a subsequent greater participation of young persons with a background of migration in vocational training. Economic sector: The economic sector sets itself the target agreed in the National pact for training and young skilled staff during the duration of this pact: The Conference of the Ministers of Education has committed itself in the National pact for training and young skilled staff to support for the improved management of the transition period between school and employment and a greater preparation of vocational maturity and career orientation in general education schools, including the provision of specialised support for young persons with a background of migration in their search for a vocational training place. This also necessitates an increase in practical experience within the normal school routine and the creation of practical and cooperation classes for the early encouragement of low-performing pupils. According to the discussion in the working groups, the following aspect should also be considered: of vocational training is being extended. Following the success of this project, the DHW will work towards the sustainability and nationwide implementation of this project. Trade unions: The Federation of German Trade Unions (DGB) and trade unions will make efforts to provide a sufficient range of qualified apprenticeship places oriented towards school leavers and will also consider previous unsuccessful applicants. For this purpose, they have introduced pay-as-you-go financing at a collective wage agreement rate together with the employers associations in the construction industry. Further collective wage agreements for the capacity increase of vocational training places already exist in the retail trade sector and in iron and steel industries. With the collective wage agreement for the chemical industry, the collective agreement Future through training concluded in 2003 can be continued up to 2010 and the number of apprenticeship places further increased. The trade unions are undertaking efforts via cooperation measures and agreements to enable young persons with poor initial opportunities to 75

38 4.3. complete a qualified training course. In contrast to the measures incorporated in the training pact, the programmes supported by the trade unions target young persons without school leaving qualifications. Exemplary for these programmes is the joint project PIA [project for integration in the first employment market] supported by the metalworkers unions IG Metall and Südwestmetall which enables low-performing young persons and those originating from socially problematic circumstances to complete an apprenticeship in a commercial-technical profession which also involves intensive social-educational supervision. Initiatives on the part of individual large-scale companies (e. g. automobile industry, FRAPORT Frankfurt airport services) are being continued with the aid of work councils to enable young persons without school leaving qualifications to enter the employment world. The DGB and trade unions will make efforts to support the improvement of the quality of prevocational measures. The DGB supports the successful activities of the network for professional qualifications for immigrants (BQN) and plans the transfer of this model approach to other regions. The DGB and trade unions wish to support the exclusion of discrimination and structural disadvantages in the selection of young persons. They provide support for works councils and staff councils to counteract discrimination in the selection of young persons and the concluding of agreements on equal opportunities. The DGB Educational Institute and the trade unions IG Metall (metalworkers), Verdi (public service union) and IG BCE (mining, chemicals and energy) hold relevant seminars and provide advisory services for the sensitisation of personnel staff and works and staff councils. 76 In the chemical industry, the social partners have agreed on a collective wage agreement support and integration programme Starting a profession which guides young persons towards in-company vocational training. Up until the present, 80 per cent of these young persons could be taken on in vocational training. The programme will be continued during the next few years. The DGB and trade unions are in favour of equal access of young persons to the vocational training system irrespective of residential status and provide relevant information for personnel staff and works and staff councils on the legal framework for placement in the dual vocational training system. Within the self-administrative framework of the Federal Employment Agency, the DGB and trade unions support the creation of vocational training places particularly for young persons with a background of migration, the improvement of the legal framework concerning participation in training and the increased utilisation of support accompanying the training courses. The DGB and trade unions are in favour of young adults who have not previously been able to complete vocational training being provided with a second chance to complete a full vocational training course. The member organisations of BAGFW are campaigning to permit persons with a background of migration who have taken up employment in their 3. Integration and employment market 3.1. Review of current situation The teachers union GEW is campaigning for the improvement of training courses which offer fully qualifying training modules in vocational schools and for the recognition of vocational school attendance within the vocational dual training system. Youth welfare organisations: Youth welfare organisations are intensifying their cooperation with immigrant organisations. The youth immigration services are initiating and accompanying the intercultural opening of organisations. Youth welfare organisations aim to increase the proportion of their employees with a background of migration and the consideration of young persons with a background of migration in all measures. Non-statutory welfare organisations: The member organisations of the Federal Association for Non-Statutory Welfare [BAGFW] are campaigning for equal opportunities and the reduction of exclusion mechanisms and prejudices which in turn will contribute to the reduction of misconceptions on the part of young persons with a background of migration. The member organisations of BAGFW aim to motivate young persons with a background of migration to apply for apprenticeship places in the organisations social services, institutions and training colleges and are reviewing their appointment policy to permit the consideration of a greater proportion of employees with a background of migration. The member organisations of BAGFW have increased their participation in networks for the encouragement of the professional integration of young persons with a background of migration. Great priority is given to the participation of immigrant organisations in the activities of these networks. The member organisations of BAGFW are undertaking efforts to provide appropriate courses for the qualification of immigrants, in particular in the acquisition of employment-relevant language (Equal, ESF-BA programme). A large part of integration takes place within the employment market. Experience shows that integration is most successful when persons with a background of migration are active in employment. Professional employment and status and the level of remuneration are highly interdependent and also decisive for the opportunities of independent plans for the future. The perspective of a stable professional and income biography, esteem in family and social environment and the involvement in operational processes and teams of colleagues are further essential factors of integration which are closely linked with employment. Within the historical process of employment-oriented immigration, this integration in employment and social environments has proved to be successful in millions of cases. Nevertheless, persons with a background of migration are frequently forced to overcome higher access barriers, for example those employed in professions with lower qualification requirements, or others who as children of families with a history of migration attained a disadvantageous starting position within the employment market following attendance of school and vocational training in Germany as was displayed in the two previous chapters on education and vocational training. There is currently still insufficient existing data for the analysis of the situation of persons with a background of migration within the labour market. This is true both of the collection of data on employment behaviour and unemployment and also of data concerning participation in employment-political measures and their degree of success. It is frequently the case in the collection of data that the characteristic of non-german nationality is registered, but this neither allows the overall group of persons with a background of migration to be seen as a whole nor permits internal differentiation of this group. During the past fifteen years, the employment situation of persons with a background of migration has greatly deteriorated. The percentage of persons in employment with non-german nationality has decreased and the level of unemployment is double that of unemployed Germans. Foreign jobholders are more greatly affected by structural changes than their German counterparts: they are strongly represented 4.3. services and institutions as specified in the German social code SGB II to be able to receive support to gain language qualifications. in sectors and professions in which jobs are being cut and are under-represented in the public service sector. In growth sectors, they are frequently to be found in lower-level employment. The greatest problems within the employment market concern older persons, women and young persons with a background of migration. A major criterion for this situation is the average lower level of educational and vocational qualifications, in particular the greatly increased figure of persons with no professional qualifications. In contrast, the qualifications standards for the employment of new staff are steadily increasing. The professional integration of persons with a background of migration is becoming a particularly urgent problem. For this reason, the low proportion of persons with a background of migration in further professional qualification measures up until now is all the more an alarm signal for the necessity of further action. In view of the findings concerning the employment market which also include qualified persons with a background of migration, there can be little doubt that educational deficits are not the only decisive factor. Against the background of continuing underemployment, it is not merely personal qualification which plays a role in selection processes, but possibly also social perceptions and it is these which must also be taken into consideration in the creation of integration political measures. The substantial improvement of the integration of persons with a background of migration on the employment market is greatly imperative for both social and economic reasons. The economic and administrative sectors will be forced in future to have a greater dependency on persons with a background of migration. In the demand for manpower resources, a lack of suitable specialised employees can already be discerned and an ever greater number of companies require specialised personnel with country-specific linguistic and intercultural knowledge. The same applies to public services. Demographic developments and the internationalisation of markets will bring a further increase in demand which cannot be met by targeted immigration politics alone. For this reason, the increased and better utilisation of employable persons already resident in Germany is necessary, including persons with a background of migration. 77

39 Definition of targets In response to the current situation, measures will be formulated in the National Integration Plan which target the following areas: Improvement of employment opportunities of persons with a background of migration The qualification profile of persons with a background of migration can have a negative effect on their employment opportunities for a variety of reasons. In certain cases, formal and also informal qualifications are lacking, which affect both their general educational background and also professional training. It is necessary to address these deficits specifically within the area of education and vocational training prior to entry into the labour market. Within the labour market, further training opportunities must be made available. In company- and publicly financed further training measures, the focus must be placed on previously insufficient support for persons with a background of migration, in particular in those measures targeting low-qualified persons. Further training should be tailored to adapt the qualification profile of employable persons to meet new requirements and therefore acquires a greater significance in view of longer working life durations and the increasing tempo of innovation in numerous economic sectors. Improvement in the command of the German language is imperative for employable persons and job seekers with a background of migration. It must however also be examined whether current tuition methods are tailored to the particular requirements and needs of this target group. Young persons with a background of migration who are in employment but lack professional qualifications must be provided with a second opportunity to acquire qualifications in modular courses on a dayrelease basis. The starting point for targeted integration support is the compilation of an individual application profile incorporating the particular cultural and linguistic capital of the job seekers with a background of migration. Both formal and informal skills and abilities should be taken into account independently of their formal recognition as official professional qualifications in order to highlight the available potential of immigrants within the application procedure. On the basis of this competence analysis, measures such as advisory services, opportunities to gain further qualifications and preparation for examinations should accompany the process of formal recognition. 78 Adaptation of advisory services, information and communication to meet the requirements of persons with a background of migration Services offering intensive counselling and information must be adapted to the needs of persons who are in the process of familiarising themselves with Germany s highly developed educational, vocational training and employment market system, whether these persons have only recently arrived in the country or have been born in this country in immigrant families who cannot have acquired the same degree of familiarity with professions, vocational training and further training opportunities as families who have been resident in Germany for generations and have experienced a variety of employment models either personally or within their social network. Model approaches which are already in operation must be examined according to their effectivity and sustainability. Any media forms utilised must be adapted to reach persons with a background of migration and provide them with access to information. Publications and advertisements in several languages can also help to provide direct information for persons with a background of migration. Targeted support for the integration of persons with a background of migration in the workplace The economic and administrative sectors have a great interest in the utilisation of the potential of persons with a background of migration. For this reason, personnel recruitment and development instruments should be utilised and further developed to improve integration in the workplace and in the administration sector and permit the utilisation of opportunities which are given through a workforce composed of differing experiences and cultural profiles. A great diversity of employees with a wide range of abilities and talents opens up opportunities for innovative and creative solutions such as those defined in the Charta of diversity. One of the relevant aspects of diversity management is to acquire a greater number of employees with a background of migration and provide them with targeted support for their further professional development. This necessitated above all the development of specially tailored opportunities for further training on all qualification levels. Companyinternal education personnel must also be sensitised and prepared for this purpose. Company agreements and media and internal communication processes must also provide targeted support for this task. Adaptation of employment market policy measures to the requirements of persons with a background of migration In view of the above-mentioned findings concerning the particular integration problems experienced by persons with a background of migration in the workplace, publicly financed measures within the employment market acquire a particular significance. The most recent efforts on the part of the Federal Employment Agency and the providers of the basic financial security for job seekers for the provision of individual supervision offer a favourable basis for concrete support for job seekers with a background of migration. The instrument of individual case management must be examined from the aspect of effectivity in the case of persons with a background of migration seeking advice and should if necessary be adapted accordingly. Findings which display the insufficient involvement of persons with a background of migration, particularly in qualification measures, must be countered with more effective supervision of business processes and implementation of instruments. The public promotion of employment must provide effective support for the efforts on the part of employees with a background of migration and for employers in economic and administrative sectors to what extent successful action approaches and instruments can be transferred to the regulatory system of active employment market political measures and/or permanently secured in their structure as supplements to the measures implemented by the providers of basic financial security and by the Federal Employment Agencies. The Federal Government supports the business initiative Diversity as a chance charter of diversity in businesses in Germany. The signatories of the charter pledge to reflect the diversity of society in the structure of their workforce. With this charter, private businesses and public institutions are undertaking a specific social responsibility which is also in their own interests. The Federal Government will actively accompany the extension of the charter of diversity in largescale companies, small and medium-sized businesses and public institutions and will in 2007 and 2008 implement a campaign with a series of competitions financed by the ESF entitled Diversity in the workplace/diversity as employment resources. This campaign will target the improvement of the integration of immigrants within the employment market and in vocational training and encourage their consideration in recruitment and personnel politics in businesses and public services. The Federal Ministry for Employment and Social Affairs, the Federal Employment Agency and the Federal Office for Migration and Refugees have already signed the charter and committed themselves to the recognition and appreciation of diversity and the creation of a working environment which is free of prejudices. With the implementation of the ESF federal programme for the subsidy period 2007 to 2013, the Federal Government will support the National Integration Plan with a variety of supplementary measures. The job-related promotion of the German language within the framework of the ESF programme will be extended during the middle of This programme is intended as a supplement to the integration courses implemented by the Federal Office for Migration and Refugees (BAMF) and is open for all persons with a background of migration. The Federal Employment Agency will undertake efforts to ensure that the management boards of the consortia/agencies for employment as separate entities continue the allocation process for integration courses on a long-term basis and implement supplementary language promotion containing elements which are relevant for vocational orientation and further training. Improvement of data records for situation analysis and political consultation The statistical characteristic non-german nationality does not encompass the entire group of persons with a background of migration, in particular repatriates with German ancestry. Data records on the employment behaviour and unemployment of all persons with a background of migration must be improved, as must data records of their participation in employment market policy measures and the degree of success of these measures; here it is essential to record the background of migration in as much detail as possible Agreement of measures and selfcommitments For the achievement of the agreed targets, the belowmentioned actors of the working group Securing of good education and vocational training to improve employment market opportunities commit themselves to implement and/or support the following measures as initial steps within their relevant areas of responsibility: Measures and self-commitments on the part of the Federal Government (and/or within the regulatory responsibility of the Federal Government) and the Federal Employment Agency (BA): Federal Government: The advisory and information network Integration through qualification (IQ) has been commissioned by the Federal Government and in cooperation with the Federal Employment Agency and non-statutory organisations to develop new strategies to improve the employment market situation of immigrants, repatriates with German ancestry and recognised refugees. Following the conclusion of the current evaluation, the Federal Government will establish 79

40 4.3. A focal point of the planned XENOS follow-up programme will target persons with a background of migration (from 2008). The Federal Government will evaluate the impact of the Social Code II (SGB II) for employable persons with a background of migration. The consequences and effects of the SGB II regulations will be examined in a research project which focuses on the aspects of employment, employability, ability to undertake vocational training and the social stabilisation of persons with a background of migration. The significance of the ethnic economy for employment market policy should not be underestimated. In future, the Federal Government will concentrate its ESF-funded coaching services within this area in the KfW (Reconstruction Loan Corporation) which works in cooperation with regional contact offices for business start-ups. Advisory services offered specifically for persons with a background of migration have proved to be successful and will be incorporated into these services in extended form. Persons with a background of migration are frequently resident in a higher concentration in problematic urban areas. The ESF is supporting employment-oriented programmes within its federal programme Socially integrative city to provide stimulation for the local economy. 80 Federal Employment Agency: The Federal Employment Agency will set up a federal information platform (BA-MediaNet) in which the most successful practical examples will be placed at the disposal of all BA offices. This allows local services to become transparent and makes it easier for employment agencies and consortia to decide whether to utilise existing local services. The Federal Government is aware of its role as employer and will increase the proportion of personnel with a background of migration according to suitability, standards and ability. The government will work towards the appropriate recognition of linguistic and intercultural competencies. Federal Office for Migration and Refugees: The Federal Office for Migration and Refugees (BAMF) will compile a concept for the professional integration of immigrant academics concentrating on the topics of the recognition of educational and professional qualifications (also in cooperation with the Conference of Ministers for Education) and further subject-related and linguistic qualifications. network. The initials advisory services will also make an active contribution within this framework to achieve a continuous and systematic cooperation with the employment agencies/consortia/community forums. Additionally, the BAMF will produce a concept for the professional integration of immigrant doctors originating from the successor states of the former soviet Union and will where applicable test the recommendations for action and transfer these to the regulations for the promotion of integration. Through its regional coordinators and the structures of the federally supported advisory services for new immigrants, the BAMF is actively working towards the long-term coordination of and cooperation with all institutions/organisations involved in the encouragement of integration to form a The BA will particularly target persons with a background of migration in its support of the programme Further training for low-qualified and older employees in companies (WeGebAU). The BA will supplement its range of information material in foreign languages and will publicise this via multiplicators in immigration advisory services. This material will also be offered to the authorities responsible for the provision of basic security payments for job seekers. The BA will implement the principle of equal opportunity within the framework of its personnel politics in the recruitment and qualification of staff. The wide range of individual competences and potential possessed by BA employees (such as a command of foreign languages, specialised professional experience and intercultural abilities) will be identified, encouraged and utilised specifically within the framework of personnel development. Relevant concepts will be developed by the personnel department and the BA University of Applied Sciences. In 2007, the BA will present the topical area Integration of persons with a background of migration in cooperation with a variety of media channels. The BA will submit integration statistics to enable the more precise analysis of the situation of persons with a background of migration within the employment market and in employment market policy. Measures and self-commitments on the part of federal states and local authorities (and/or within the regulatory responsibility of federal states and local authorities) Federal states: At present, no self-commitments have yet been made. According to discussion in the working groups, the following aspects should be considered: Federal states as employers: examination of recruitment procedure in public services sector targeted personnel recruitment within the group of persons with a background of migration to meet changing demands on the provision of public services in view of demographic developments Business: The Chambers of Commerce and Industry are continuing their efforts to achieve recognition for qualifications gained abroad, including the expert evaluation of foreign certificates. The Chambers of Commerce and Industry and Chambers of Skilled Crafts are campaigning in businesses in favour of opportunities which result from the recruitment of personnel with a background of migration, in particular a specialised knowledge of foreign markets and cultures and relevant linguistic abilities, and provide support and information in the recruitment and employment of foreign members of staff. The Confederation of German Employers Associations (BDA) is campaigning among its members for the practical introduction of the initiative Charter of diversity for the encouragement of diversity in businesses in order to increase the establishment of diversity management and thereby further strengthen the specialised competences of immigrants and their potential within operational processes. In the Agreement between the Federal Government and leading German economic associations for the encouragement of equal opportunities for men and women in private industry, the leading German economic associations have agreed to recommend operational measures for the improvement of equal opportunities for men and women and family-friendly policies. This also includes support for women with a background of migration. The Chambers of Commerce and Industry and chambers of skilled crafts provide advisory services for adults with a background of migration who wish to gain a vocational qualification and will provide information material in foreign languages where necessary. The Chambers of Commerce and Industry will make greater efforts to publicise their training courses and examinations which immigrant groups are able to utilise to improve their chances in the labour market, for example the CCI foreign language correspondence clerk course or courses within the catering sector. The Chambers of Skilled Crafts also offer integrative advanced training examinations to increase employability within the employment market for persons with a background of migration. The Chambers of Commerce and Industry will make greater efforts to publicise the CCI advisory service for business start-ups by persons with a background of migration and also offer specially Local authorities: The Local Authorities Associations are currently involved in intensive discussion with their member organisations and will submit their recommendations in a separate procedure. According to discussion in the working groups, the following aspects are a selection of the topics to be considered: Local authorities as employers: examination of recruitment procedure in public services sector targeted personnel recruitment within the group of persons with a background of migration to meet changing demands on the provision of public services and the requirement of specialised staff in view of demographic developments. The harmonisation of local authority economic support and advisory services for business start-ups for immigrants. Measures and self-commitments on the part of non-governmental institutions and organisations Organisations of persons with a background of migration: The German-Hellenic Economic Association (DHW) is planning a Community of interest for vocational training and qualification (IG) for the year 2007 in the regions of Cologne and Düsseldorf. This community will have the aim of supporting all Greek entrepreneurs in all aspects of company management. The IG is a lobby association for Greek businesses and will cooperate with regional economic partners, German and Greek public authorities and the German and Greek press. The educational institute CGIL-Bildungswerk e. V. will extend its bi-national and bilingual qualification measures for unemployed persons with a background of migration to other federal states in cooperation with German educational institutes (e. g. import/export assistant Germany/Italy and Germany/Turkey). Qualified personnel with individual experience of immigration cooperate with qualified German personnel to achieve the positive development of existing human resources of persons with a background of migration in order to overcome unemployment. 81

41 4.3. in their investigation of recruitment procedures and human resources decisions. tailored services such as events held in the Turkish language. They will provide interested businesspersons with support in foreign trade issues. The Chambers of Skilled Crafts also offer advisory services for persons with a background of migration who wish to establish a new business and provide information material in foreign languages in cooperation with KAUSA. Within the administrative board of the Federal Employment Agency, the BDA supports targeted advisory, mediation and support projects oriented towards impact and economic efficiency which target the better integration of persons with a background of migration within the labour market. Trade unions: The DGB and individual trade unions support the participation of immigrants in businesses and administrative institutions and provide support for employees irrespective of nationality and country of origin in the representation of their interests. Successful measures (e. g. support programme for foreign citizens organised by the metalworkers union IG Metall, production of voting documents in major foreign languages) supporting the representation of foreign employees in works councils will be continued. The trade unions offer seminars for the training and further training of works council and personnel council members in which the integration of employees of foreign origin and their equal opportunities form an integral part; seminars are also offered which specifically focus on incompany action concerning immigrants. Persons with a background of migration are also integrated in independent structures within the work of the trade unions; committees have been formed on various levels and a comprehensive range of training and advisory services are offered by trade union associations. 82 The DGB and individual trade unions support the creation of equal opportunities and equal treatment as essential requirements for the integration of employees with a background of migration. For this purpose, trade union associations support the conclusion of company agreements governing equal treatment and preventing discrimination. Within the framework of the implementation of the general laws on equal treatment, they will provide support for works councils and personnel councils The high qualification of employees is a fundamental basis for job security and lowers the risk of becoming unemployed. For this reason, trade unions have concluded labour contracts and agreements which focus on further training. As there has been little participation of low-qualified employees and immigrants in these agreements, the unions urge for the extension of these measures for these target groups. Within the framework of the self-administration of the Federal Employment Agency, the DGB and individual trade unions are campaigning for the greater participation of low-qualified immigrants in Federal Employment Agency qualification measures. The immigrants individual competencies and experiences which have up until now been largely not been taken into consideration should be more heavily weighted in the integration process. The EQUAL projects supported by the DGB have clearly demonstrated that a long-term integration of refugees and tolerated third country nationals within the employment market is possible provided that the obstacles for the right of residence are removed. The DGB and trade unions are campaigning for a comprehensive regulation pertaining to the right of residence which guarantees security of residence and equal access to the employment market independent of the securing of livelihood. Non-statutory welfare organisations: The member organisations of the Federal Association for Non-Statutory Welfare [BAGFW] support the professional orientation, qualification, training and job searching on the part of persons with a background of migration with their specially tailored advisory services and qualification measures. This enables young persons to undertake qualified vocational training within the framework of vocational training institutes. The member organisations of the BAGFW are campaigning for the further intercultural opening of their services and institutions; they take this aspect into consideration in their personnel policy and provide support through training courses. Immigrants can depend on receiving appropriate and vital social services in our institutions Members Under supervision of: Federal Ministry for Employment and Social Affairs Franz Müntefering, MdB Federal Minister for Employment and Social Affairs Heinrich Tiemann State Secretary in the Federal Ministry of Employment and Social affairs Organisations/Institutions Heinrich Alt Board Member of Federal Employment Agency Irina Bernstein Federal Association of German-Russian Entrepreneurs in Germany Ludwig Georg Braun Dr. Günter Lambertz (substitute) President of German Chambers of Industry and Commerce Annelie Buntenbach Member of the Federal Managerial Board of the Confederation of German Trade Unions Phedon Codjambopoulo Christina Alexoglou-Patelkos (substitute) Vice-president of the German-Hellenic Economic Association Marianne Demmer Deputy Chairperson of the Executive Board of the German Union of Teachers and Academic Staff Ilse Falk, MdB Deputy Chairperson of the CDU/CSU group in the Federal Assembly Wolfgang Fehl Central Office for Further Training in Skilled Handcrafts, Network Integration through qualification Dr. Reinhard Göhner Peter Clever (substitute) General Director of the Confederation of German Employers Associations Barbara Graf Federal Association of Youth social welfare, department for migration Dr. Hans-Carsten Hansen Dr. Linda von dem Bussche (substitute) BASF AG. Head of Competence Centre Human Resources Hildburg Kagerer Headmistress of the Ferdinand-Freiligrath-Oberschule Berlin-Kreuzberg Cüneyt Kandemir Turkish Confederation of Employer Associations ATIAD/Prof. Recep Keskin Otto Kentzler Prof. Dr. Friedrich Esser (substitute) President of Central Confederation of German Skilled Crafts Annabel von Klenck General Director of the Mercator foundation Burhan Kocaslan Winner of federal prize for IHK professions in Berlin Kenan Kolat German Chairman of the Turkish Community in Germany Phuong Kollath Association Dièn Hóng (together under one roof), Rostock Franco Marincola Director of CGIL-Bildungswerkes e. V. Dr. Peter Neher Roberto Alborino (substitute) President of German Caritas Organisation, President of Federal Association of Nonstatutory Welfare Services Wolfgang Rhode Managerial Board member of metalworkers union IG Metall Vicente Riesgo Alonso Federation of Spanish Parents Association Kemal Şahin President of Turkish-German Chamber of Industry and Commerce Michael Vassiliadis Member of Managerial Executive Board of IG Bergbau, Chemie, Energie (mining, chemicals and energy) 83

42 Academic representatives Prof. Dr. Michael Bommes University of Osnabrück, Director of Institute for Migration Research and Intercultural Studies IMIS Prof. Dr. Ingrid Gogolin University of Hamburg, Institute for International and Intercultural Comparative Educational Science Prof. Dr. Klaus Klemm University of Duisburg-Essen, Head of working group Educational Research and Planning Prof. Petra Stanat University of Erlangen-Nuremberg, Head of Empirical Research into Classroom Teaching at the Central Institute for Teaching-Learning Research Federal states Prof. Dr. Ulrich Goll Christian Storr (substitute) Minister of Justice and Integration Commissioner of Federal State Government Baden-Württemberg Günter Piening Commissioner for Integration and Migration of the Berlin Senate Maria Weber Commissioner of Federal State Government Rhineland-Palatinate in the Federal Ministry of Employment, Social Affairs, Health, Family and Women Gabriele Weber State Ministry for Education and Cultural Affairs, Saxony Ute Erdsiek-Rave Dr. Angelika Hüfner (substitute) President of Conference of Education Ministers (up to 31 December 2006) Prof. Dr. E. Jürgen Zöllner President of Conference of Education Ministers (from 1 January 2007) Public authorities Klaus Hebborn Bettina Heinrich (substitute) German Association of Towns and Cities Uwe Lübking German Association of Towns and Municipalities Dr. Irene Vorholz German County Association Consultant participants Heinz Ackermann Federal Ministry of Economics and Technology Dr. Dagmar Beer-Kern Task Force of the Federal Government Commissioner for Migration, Refugees and Integration Dr. Christoph Hauschild Federal Ministry of the Interior Elmar Hönekopp Institute for Employment and Occupational Research Prof. Dr. Eckhard Klieme Director of the German Institute for International Educational Research DIPF Manfred Kremer Bent Paulsen (substitute) President of the Federal Institute for Vocational Training BiBB Peter Munk Federal Ministry for Education und Research Dr. Karsten Roesler Federal Office for Migration and Refugees Sabine Schulte-Beckhausen Federal Ministry for Family, Senior Citizens, Women and Youth Affairs The working group was assisted by Dieter Hanz, Karl-Heinz Kohn and Cornelia Petrowsky from the project group Social Security and Migration of the BMAS with the participation of the departments I, II, V and VI from the Federal Minister for Employment and Social Affairs. Jörg Trautner 84 BMAS, Editor 85

43 4.4. Word-Datei: Seite 100 Topical area 4: Improvement of circumstances for girls and women and the achievement of gender equality 86 Almost half of the 15.3 million persons with a background of migration currently resident in German are girls and women. Many of these persons are well integrated particularly girls and women of the second and third generation of immigrants and are more closely oriented towards modern partnership role models than towards traditional patriarchal structures. Many of these young women also have parental responsibilities and therefore represent the main formative influence for the integration of the next generation. associations, professional legal associations, statutory medical insurance companies and welfare associations, immigrant umbrella associations and other immigrant associations, immigrant advisory services and other experts with and without a background of migration. Federal state administrative departments of justice representing the Conference of Federal and State Ministers for Justice and the appropriate federal state chairing the Conference of Federal State Ministers and Senators for Equal Opportunity and Women s Affairs were also involved. It is vital to utilise the potentials of these immigrant women. Without the adequate consideration of the role of girls and women in the integration process with their specific problems and needs, integration cannot succeed. All working groups involved in the preparation of this National Integration Plan were urged to illustrate the concerns of immigrant women within their specific topical areas. The working group 4 was additionally assigned the task of investigating more detailed aspects of the topical area Improvement of circumstances for girls and women and the achievement of gender equality. Only a few of the numerous possible topics to be covered within this area could be selected for discussion within the time allotted as being exemplary for this topical area. On the basis of a tableau of problems which are currently of particular significance for immigrant women, the following focal topical areas took shape in the progress of discussion. The working group deliberately also focused on topical aspects which had not previously been approached in detail and it was only after these topics had been taken up that the discussion led to the creation of a wide range of measures. The working group 4 was coordinated by the Federal Ministry for Justice and undertook its work in cooperation with the Federal Ministry for Families, Senior Citizens, Women and Youth Affairs. Representatives from other federal governmental departments and the Federal Office for Migration and Refugees took part alongside members of the German Parliament, representatives from federal states and local government Not only immigrant women represented in the working group 4 but also advisory services and associations involved in discussion agreed that there was substantial need for further action over and above the topical areas discussed in the working group. Immigrant women see themselves confronted by prejudice in all areas of everyday life which make difficult an equal participation in social life in Germany and present 87

44 4.4. obstacles which block equal access to education, professional career and normal health and social services due to the combination of disadvantages resulting from gender, country of origin and in certain cases also religion. Universal equal opportunity has yet to be achieved and anti-discrimination regulations must be enforced. The provision of special information for immigrant women must be improved in all areas of everyday life, but it is equally necessary to collect information on their particular role in the integration process and their particular needs and problems. The creation and consistent implementation of cultural sensitivity has great significance in all areas. The virtual factoring out of problems relating to the rights of foreign nationals in the preparation for the National Integration Plan was regretted by many participants of the working group 4 and repeatedly criticised by representatives of non-governmental organisations. From their point of view, more detailed discussion and evaluation within the framework of discussion relating to the guideline implementation law within the context of laws for foreign nationals would have been desirable. Several participants remarked that a national integration concept should also specifically contain a focus on those immigrants who are merely tolerated or are even illegally resident in Germany. 1. Topical focus: Integration through legislation Protection from violence within the personal sphere, forced marriages, information and advisory services A focal point of the group s discussion which emerged from the presentation of topics in a tableau was the topic of violence within the general personal sphere with a specific focus on forced marriages; unfortunately, it was not possible to deal with additional topics in depth in the time allotted. Nevertheless, participants hope to have provided an impulse for comparable open and constructive discussion on the possibilities of reinforcing the process of integration within currently valid laws which can take place beyond the confines of the National Integration Plan Review of current situation In the past few years, there has been frequent discussion to establish whether currently valid legislation sufficiently meets the concerns of immigrant women and their specific situation and problems in our society. A general starting point has often been media reports on tragic cases of violence; these have made the general public aware of the fact that immigrant women are subject to specific and particularly massive 88 Many participants expressed the wish for the continuation of the initiated construction discussion process following the conclusion of the working group s task. Sub-group 1 Integration through legislation; participation The basis of discussion in the sub-group 1 was the approach towards the integrative opportunities provided by the German legal system and the participation of immigrant women in the structuring of society through legislation. Under the heading of the overall theme of Integration through legislation, selected topics were put up for discussion; in particular, the question of obstacles preventing integration within certain parts of German civil and criminal law addressed and possible actions to counteract these hindrances were addressed. Within the area of participation, opportunities for the improvement of participation of immigrant women in social and political processes which in turn play an essential part in the structuring of standards and values were discussed. forms of violence and coercion over and above the general social problem of violence against women within the family which affects society as a whole. This form of violence stands in conflict with our legal system. Relevant laws must be universally recognised and enforceable in order to be effective and the primary requisite is the provision of information for immigrant women specifying their legal possibilities and existing advisory and support services. Domestic violence including specific forms of violence (such as genital mutilation) and forced marriages often targets immigrant women in multiple form. Frequent victims are girls and women at the beginning of the integration process and it is precisely this group whose outlook on life and general attitudes no longer corresponds to the expectations within their families and social environment which are still characterised by the culture and customs of the parents country of origin. There are, however, also men among the victims whose families institute forced marriages as a corrective measure. Also affected are lesbians and gays whose families utilise forced marriage in order to enforce a heterosexual way of life. Residence laws can provide immigrant women with protection from domestic violence and forced marriages. Within this context, the concept of an independent residence law governing wives joining their families in Germany, the general expiry of residence permits six months after leaving the Federal Republic of Germany and demands for a right of return were discussed. Certain participants drew attention to the particular dangers for women with an uncertain residence status and their wish for concrete and preferably long-term prospects of being permitted to remain in the country. In statements issued by non-governmental organisations, measures discussed within the framework of the guideline implementation law were raised and critically scrutinised such as the exclusion of the rights of spouses form forced marriages to join their families and additional requirements to permit spouses to join their families, such as a minimum age and confirmation of knowledge of the German language. An in-depth discussion of aspects concerning rights of residence which could have been of particular relevance was not pursued due to the absence of a relevant mandate for the group. Forced marriage is already a criminal offence according to currently valid legislation. Since 2005, forced marriages have been specifically categorised as being a particularly serious offence of coercion (imprisonment for a period of between six months and five years). There was controversial discussion regarding the rationality of making forced marriage a new separate statutory offence, particularly among immigrant women. The supporters of this move highlight the signal and sensitisation effects, in particular with regard to public authorities and the judiciary. The sceptics and opponents of the law cite the potential of stigmatisation in a discussion which is one-sided and fixated on criminal law, the danger that the aspect of laws for foreigners will be lost sight of in the problem complex and that possibilities could exist of circumventing the law. First of all, the effect of the most recent amendment to the criminal law must be evaluated (filing of charges by victims; number and result of criminal proceedings). There was consensus on the opinion that the definition of forced marriage as a separate statutory offence would not solve the problems of the victims and cannot be a substitute for prevention and crisis intervention measures. Fears were expressed that the public debate on forced marriages was working against the integration of immigrants, in particular those with an Islamic background: against the backdrop of considerable information deficits on the part of the majority society, general suspicion has developed regarding marriages between Muslims (suspicion of criminality). It was agreed that precision was vital within this field: traditionally patriarch family structures are commonly and frequently associated with religion and therefore also specifically with Islam, but forced marriages certainly do not occur exclusively within Muslim families. At a federal level, only one study with quantitative approaches has been carried out under the aspect of 4.4. violence against immigrant women. The Federal Government s Second Periodical Report on Security in November 2006 also warned of the necessity for further research in connection with the problem complex of a possible increased risk within the foreign national population of becoming a victim. There are substantial indications that Turkish women are subject to a relatively high danger of victimisation within the area of physical and sexual violence through their partners. The general rate is even higher in the case of female refugees. Women with an uncertain residential status appear to have a higher risk of becoming the victim of physical and structural violence. Previous findings highlight the necessity of specialised forms of support and aid. There is also a lack of verified information available throughout Germany providing statistics on the extent of forced marriages. The improvement of the empirical basis would be constructive for the efficient combating of forced marriages, including the establishment of the need for advisory services and institutions offering shelter on local authority and federal state levels; this could also counter the distorted public perception of this problem which assumes that forced marriages are exclusively a problem associated with Islam and that a large proportion of Muslim women are living in forced marriages. Information and education are essential. Alongside information campaigns initiated or supported by the state, it is the immigrant organisations themselves which must provide relevant information and education which can target men with a background of migration with greater success than campaigns on the part of the state or local authorities. The situation of immigrant women can only be improved and the occurrence of violence reduced on a long-term basis when the specific situation and problems of immigrant men and boys are also taken into consideration. Problematic in certain federal states is also the lack of suitable institutions offering shelter for immigrant women as victims of violence who are in great need of protection and for whom the care and security standards of normal women s refuges are insufficient and the lack of supra-regional refuges and finance for already existing institutions. There is a complete lack of corresponding support for young male victims. The prevalent per head financing (on the basis of daily rates for individual cases) frequently creates problems due to the often time-consuming application procedures, frequently unclear regional and departmental responsibility of public authorities and in the case of young adults who cannot be admitted because the relevant youth welfare office has refused to bear the costs. The taking into care of children and young persons is also problematic as almost all forms of aid are dependent on application by the parents. Individually calculated financial aid and, if applicable, the 89

45 4.4. obligation of residence create particular problems for immigrant women with uncertain or lacking residential status Definition of targets It is imperative to inform immigrant women of their fundamental rights, particularly within their living environment, and enable them through the provision of suitable advisory and support services to make concrete utilisation of their right of self-determination. The recognition that certain regulations and standards to which they are subjected within their family environment are not compatible with the fundamental legal system of the country in which they are resident is an essential prerequisite for freeing these persons from coercion and violent relationships and can also achieve an acceptance for the free choice of a partner. Violence within the personal sphere and forced marriages must be countered by suitable preventative measures. Improved empirical findings are necessary which not only shed light on the dimensions of these problems, but also determine which groups of the population are affected and for what reasons. The usual factors cited are social conditions, religious views, patriarchal family structures, the recourse to archaic family concepts as a result of insecurity in the immigrant situation and adherence to small-scale religious or ethnic minorities. Additionally, information must be provided for the (potential) victim and the perpetrator (including the development of a consciousness of injustice) and intensified publicity such as information campaigns. In a comprehensively based information campaign, the one-sided concentration on the topic of forced marriages and stigmatising attributions should be avoided and the focus be turned on women s rights of self-determination and the selection of a partner. Furthermore, the quantitative and qualitative improvement of advisory services particularly within the area of low-threshold services and advisory outreach visits with translators is necessary. Special culturally sensitive advisory services are required alongside the intercultural opening of regular advisory services and the cooperation of women s refuge institutions with counselling centres and regular services. Services aimed at new immigrant women on their arrival can ensure the targeted information is provided directly, such as information of women s rights. Preventative institutions such as girls centres must be kept open and/or created and consistent social work in the form of low-threshold preventative and accessible youth welfare. The recommendation was made within the working group for the greater awareness of 90 integration tasks on the part of public authorities for foreign nationals. Immigrant women who are already victims of violence must have access to general facilities which offer comprehensive protection. Effective protection can only be guaranteed if all relevant professionally associated authorities, in particular public offices, police force and judiciary, are aware of the specific security situation and problem complex and can take these into account in their action. Particular priority should be given to the further training and sensitisation of professionals such as federal prosecutors and judges offered regionally by the federal states. Victims of domestic violence and forced marriages who have been admitted to a protective institution and have to be concealed ( made legally invisible ) are particularly dependent on the strict adherence to data protection (for example in medical insurance firms, employment and registration offices) for their own protection, particularly in connection with members of their family. In the enforcement of existing laws, sufficient knowledge and appropriate handling of the special problems of immigrant women is necessary on the part of the professional groups directly involved. During police operations in cases of domestic violence for example, the utilisation of neutral interpreters is appropriate. In these cases, it is not always recommended that the man should be instructed to leave the home; instead, it can be more sensible in individual cases to admit the victim to a women s refuge. Victims of violence and forced marriages also require secure places of refuge. A supra-regional organisation of crisis institutions is recommended particularly in view of the fact that is frequently necessary for women to be concealed in a different location from the site of the crime. In place of financing calculated per daily rate, it is essential to guarantee the provision of a specific number of women s refuges and other sheltered accommodation for victims of domestic violence and forced marriages through general institutional support. Cooperation and financing between all federal states is desirable. Decisions concerning the admittance and period of residence in sheltered accommodation should be dependent on the concrete necessity for protection and support and not on the financial situation of the financing bodies. Provisions governed by volume VIII of the Social Code should be implemented appropriately. The intercultural access to existing structures, better coordination, and networking of all actors and provision of supplementary funding would all be of great benefit Measures and self-commitments these staff to refer persons in need of help within the problem complex of forced marriages and violence within the family environment to the relevant advisory services. Start: 3rd quarter The following measures and self-commitments were proposed for this topical area: Measures and self-commitments on the part of the Federal Government (and/or within the regulatory responsibility of the Federal Government) Under the auspices of the Federal Ministry for Family Affairs, Senior Citizens, Women and Youth, the 2nd Federal Government Action Plan to combat violence against women will be formulated which will focus on counteracting violence against women and girls with a background of migration. Within this framework, measures will be incorporated to prevent forced marriages. Within the general topic of violence against immigrants, great significance will be placed on the security of data collected. A Study on the nationwide evaluation of practical work within the area of forced marriages will be commissioned by the Federal Ministry for Family Affairs, Senior Citizens, Women and Youth to be completed by May 2007 which will compensate for the lack of collected data and scientific treatment of this topical area. Additionally, a Reader on the topic of forced marriages will be compiled by the end of May 2007 in cooperation with the German Institute for Human Rights. This reader will present intermediate practical evaluation results and will also include contributions from authors who have already worked within the field of forced marriages. These contributions will address the phenomena and causes of forced marriages, aspects concerning gender dimensions, the legal framework and possibilities of prevention and intervention. On the basis of these contributions, definitions and issues will be developed for a larger-scale qualitative and quantitative study. In 2007, an Emergency help flyer will be developed with the support of the Federal Ministry for Family Affairs, Senior Citizens, Women and Youth which will provide information on the rights of and available help for immigrant women who are threatened with or have already participated in a forced marriage. This is a low-threshold instrument providing practical tips and information on action to be taken in the case of an impending forced marriage. Developing awareness of immigration advisors and instructors of courses for women for the topical field of forced marriages and violence within the family environment: the Federal Office for Migration and Refugees will examine the possibilities for the provision of specialised training for advisors of initial immigration advisory services and instructors of low-threshold courses for women and a network between the relevant official departments to enable The Federal Government Commissioner for Migration, Refugees and Integration will examine the possibilities of a public relations Image campaign to contribute to the reduction of stereotype conceptions of and prejudices towards immigrant women on the part of the majority society. An appropriate image campaign should be developed with the involvement of immigrant organisations. Start: 3rd quarter The Federal Government Commissioner for Migration, Refugees and Integration will support all actors on all state and non-statutory levels involved in the integration of immigrant persons through the initiation and support of an Integration website which will provide information on existing measures and examples of best practice from all areas of integration politics. Time scale: from 3rd quarter Measures and self-commitments on the part of federal states and local authorities (and/or within the regulatory responsibility of federal states and local authorities) The federal state contribution to the National Integration Plan is currently being formulated. The Local Authority Associations are currently involved in intensive discussion with their member organisations and will submit their recommendations in a separate procedure. The recommendation was formulated to examine the possibilities of inter-federal state cooperation and joint funding for suitable refuge institutions/ sheltered housing for persons threatened by violence in the home/forced marriages and for immigrant women under threat or otherwise in danger who require a higher level of security than is provided by conventional women s refuges. Within the framework of a measure concerning potential problems in the utilisation of SGB VIII in the support of victims of forced marriages and persons under the threat of undergoing a forced marriage, a research group should be employed to establish the existence and extent of deficits and find solutions to rectify these deficits. The research group should formulate appropriate necessary recommendations for action on local authority level. This working group will include representatives from the German Association of Towns and Cities, the Federal Ministry for Family Affairs, Senior Citizens, Women and Youth and Papatya a crisis 91

46 4.4. intervention service for young immigrant women in Berlin. Further participants can become involved in the group. The participation of a federal state representative would be an advantage. Measures and self-commitments on the part of non-governmental institutions and organisations On request, the German Institute for Human Rights offers target-group-specific workshops on the subject of forced marriages as seen from the aspect of human rights in cooperation with experts in this field. These workshops will be based on experiences gathered from two previous similar actions. The workshops will target professional groups which come into contact with persons affected and threatened by forced marriages and other forms of inner-family violence such as: the Federal Office for Migration and Refugees, public authorities for foreign nationals schools, youth and social welfare offices judicial authorities and police. The Central Council of Muslims in Germany will produce bilingual information leaflets/information s for its associated Muslim communities on the topics of forced marriages and domestic violence; this will cover two relevant areas respectively: a) the legal framework within the Federal Republic of Germany and existing advisory and support services; information on events (lectures and discussion groups) on these topics, and b) statements concerning the religious background of these topical areas (prohibition of forced marriages, the encouragement of partnership behaviour within marriages, endurance of injustices without taking recourse to wrongful action, how to deal with the support of one s elders and responsibility before God regarding personal health). It is recommended that these topics should be covered within the framework of Friday sermons. 92 The organisation TERRES DES FEMMES plans to offer further training courses from August 2008 on female-specific aspects of integration and human/ women s rights in cooperation with a variety of organisations and the German Institute for Human Rights. The organisation German Association of Immigrant women is planning the development and implementation of a broadly based information campaign Women have rights which informs immigrant women of their rights. Events providing information in the Turkish and/or German language should take place in the association s regional groups. The aim is the provision of targeted events providing information for those with insufficient knowledge of legal possibilities and rights. Time scale: 2008 to 2009 Her freedom his honour is an action alliance on the part of self-organised immigrant associations in North Rhine-Westphalia and the Ministry for Generations, Families, Women and Integration in the federal state of North Rhine-Westphalia which is campaigning Against violence in the name of honour. The focal point of this campaign is a postcard action jointly developed by the self-organised immigrant associations and the Ministry of Integration. The German Association of Immigrant Women is participating in this action alliance and will continue its participation in actions throughout this campaign. The Association Frauenhauskoordinierung e. V. (coordination of women s refuges) in Frankfurt/ Main will continue to devote particular attention to the situation of immigrant women in its ongoing activities and measures. Aspects relating specifically to immigrant women will be taken account of in information material and within the framework of expert conferences and events. In the series of Legal information for women in women s refuges with entitlement to ALG II (unemployment benefit) according to SGB II published by the Frauenhauskoordinierung e. V., the next edition will concentrate on the particular problems and benefit entitlements of immigrant women and will be published in the autumn of Papatya Crisis Intervention for Young Immigrant Women in Berlin will continue its role as the voice and lobby for its target group of girls and young women who are victims of inner-family violence. First and foremost, the organisation will publicise findings gained through practical experience regarding access obstacles to the support system and problems concerning the development of selfdetermined life perspectives which can be solved by institutions within its expert field. For this purpose, Papatya will participate in a working group dedicated to the development of action guidelines for public authorities (see below). The Frauenhauskoordinierung e. V. will reissue the current Legal information: immigrant women right of residence in cases of hardship according to 19 AuslG (Foreign Residents Act) which dates from 1999, a working tool for women s refuge staff, in a thoroughly revised edition. The Frauenhauskoordinierung e. V. is also planning a media package for women s refuges for 2008/09. In view of insufficient knowledge concerning protection and support possibilities in the case of domestic violence, women s refuge houses should be provided with a variety of information material which can be utilised according to the circumstances. This material will for example target victims, the social environment and cooperation partners. The external appearance and language of the material should be designed to reach women who have previously not had appropriate access to information on protective and supportive measures offered by women s refuges. Basic information should be translated into several languages to ensure the special targeting of immigrant women. Papatya Crisis Intervention for Young Immigrant Women in Berlin will undertake all possible measures to guarantee the continued existence of its intercultural online advisory service for young immigrant female victims of violence; this service has been tested during the last three years and for this reason commits itself to undertake efforts to secure the necessary further financial support for the relevant personnel. Annual costs: ca Euro Papatya Crisis Intervention for Young Immigrant Women in Berlin will also uphold and extend existing European-wide contacts for the protection of young immigrants and will continue to contribute 1 The opportunities of such a dialogue will also be a subject in the discussions held within the framework of the German Islam Conference, which has been taken place upon invitation by the Federal Minister Dr Wolfgang Schäuble since September The prevention of domestic violence is a transversal task. The Meeting and Educational Centre for Muslim Women in Cologne BFmF e. V. will make the problem complex of violence a focal point of its courses, advisory service and other events and publicise the existence of the centre with its culturally sensitive advisory services as a contact point for immigrant women in distress The Meeting and Educational Centre for Muslim Women (BFmF e. V.) will additionally offer support as a mediator in cases of domestic violence within the framework of its possibilities for police stations and social institutions. Financial support for this service would permit the BFmF e. V. to improve the provision of these services which are frequently requested from state authorities. The Meeting and Educational Centre for Muslim Women (BFmF e. V.) will attempt to sensitise a wider circle of Turkish immigrant families in Germany to the problem of domestic violence via Turkish media, including private broadcasting channels (Türkshow, Samanyslu TV, TGRT, Kanal Avrupa, ATV), radio, print media and the internet. Sufficient financial aid would permit these media channels to offer a continuous awareness campaign via Turkish media and guarantee the more extensive provision of information for Turkish immigrants in Germany. The establishment of a helpline service and the displaying of the telephone number during broadcasts could supplement this continuous awareness campaign. The Meeting and Educational Centre for Muslim Women (BFmF e. V.) will extend its awareness campaign in Muslim communities and will thereby intensify its contacts in order to hold events in the communities relating to the topic of violence and introduce the centre as a contact point for enquiries relating to family-internal conflicts and violence. The education of potential victims and perpetrators in Muslim circles should be made possible within the framework of this type of cooperation. On the one hand, the sense of wrongdoing in the case of men should be developed and increased and, on the other hand, women should be informed of their rights, opportunities and available contact points. The Muslim Academy in Germany is currently preparing modules for the further training of imams. Within the framework of Further training courses for spiritual advisors and other multiplicators in Islamic communities, the academy commits itself to develop measures for sensitisation and training on the topics of family conflicts and violence in the home. Time scale: from autumn The member organisations of the Federal Association for Non-Statutory Welfare [BAGFW] Papatya Crisis Intervention for Young Immigrant Women in Berlin also commits itself to nationwide cooperation and networks with other organisations within the area of anti-violence. The Central Council of Muslims in Germany will seek communication with public authorities and judicial authorities and will examine the possibilities of supplying these sectors with information on religious statements concerning legally relevant topics and/or topics which could be of particular interest for public authorities and judicial authorities.1 Time scale: continuous to the German experts debate with experiences and findings from other European countries in which immigration takes place. will increase their efforts to provide information for immigrant women on issues relating to family, social and residence laws, including available legal options in the case of conflicts, and will ensure the relevant qualification of their members of staff. will campaign to ensure that the basic rights to marriage and family can be exerted by immigrant 93

47 4.4. women resident in Germany. They will support immigrant women to enable them to live together with their families in Germany and will also review the legal regulations to establish to what extent these contradict the right to family life. The German Women Lawyers Association (djb) submitted the following self-commitments subsequently to conclusion of the work on this report: will endeavour to extend their support and advisory service for immigrant women who are victims of actual or threatened violence. They consider an improvement in the residential and social legislative status of women victims of violence or victims of actual or threatened forced marriages to be imperative. The organisations will provide further qualification opportunities for their immigration and other advisory services to enable these staff to provide adequate support for women victims of actual or threatened violence. can offer numerous refuge institutions for women victims of violence (women s shelters etc.) which can also be utilised by immigrant women. The BAGFW associations will support the networking and increased cooperation between these institutions offering immigration services in order to help women victims escape from their violent environment with the aid of suitable measures (e. g. family counselling, mediation, conflict prevention and language courses). The members of the experts committees of the German Women Lawyers Association (djb), in particular the members of the committee for Violence Directed at Women and Children, will following reimbursement of expenses undertake further training courses within the framework of regional and supra-regional information events particularly for immigrant women and their children as victims of violence and/or professionals involved within this field in immigration organisations within the framework of their further training. Duration: initially three years Annual costs: ca. 20,000 euro annually according to frequency of demand Members of the German Women Lawyers Association will undertake one-year mentoring and tutoring periods for professional colleagues who are women with a background of immigration from the legal, advocacy or economic science fields or are still in training in one of these areas. For the mentoring period, these colleagues will be exempt from the djb membership fees. Duration: three years Annual costs: ca. 10,000 euro 2. Topical focus: Participation of support measures appears to be necessary, particularly from women s organisations. 2.1 Review of current situation Immigrant women come to Germany from a wide variety of countries with differing organised structures as young girls travelling to join their families here, as young women intending to study or work in Germany or to marry a spouse resident in Germany. Some women have come to the country against their own will or under false premises. Others can immediately be recognised as immigrants e. g. due to their skin colour whereas for others the background of immigration remains invisible. Some women come to Germany to take up permanent residence and others with only limited perspectives of a long-term stay. The development of awareness for this wide variety with all its potential is a particular challenge and task for all measures and actions focusing on successful integration. The double challenge of improving the living conditions of women and girls with a background of immigration and achieving equal opportunities within the context of immigration and integration can only be accomplished if the equal participation of immigrant women in economic, political and social circles is addressed comprehensively within the framework of the Integration Plan. The implementation of this topic is represented in a mosaic of individual topical areas and projects which must be accompanied by the creation of awareness on the part of the general population. This necessitates the improvement of access for immigrant women to vocational training and careers and the organisation and networking of immigrant women and their representative organisations. Immigrant women must search for a path between the frequently contradictory expectations of their own families and communities and the expectations of the German host society regarding the structure and extent of social participation; here a wide range 94 In addition to the necessity for emotional open-mindedness both on the part of the host society and the immigrants themselves for increased mutual understanding and to achieve acceptance and tolerance in a multi-ethnic society, there are areas in which a tar geted support of projects or institutions can improve the participation of immigrant women. This can succeed in balancing out social and structural disadvantages. Immigrant women who have received active support through advisory services and education are in a position to assert themselves self-confidently to resist both inner-family and social discrimination. The intercultural opening of regular services is a particular concern of the working group participants as it appears that these services do not reach immigrants to a sufficient degree and that there is insufficient comprehension of their life situation. Cooperation is necessary to rectify this substantial deficit. The precarious situation of immigrants who are single mothers has up until now received scant attention. Many of these persons have freed themselves from lives which were characterised by violence and repression and must now often raise their children without the support of their families or supporting networks Measures and self-commitments The integration of immigrant women is also frequently influenced by the expectations and views of their fathers, husbands and brothers. For this reason, the alteration of role models and behaviour of men is often a prerequisite for the success of the integration and participation of immigrant women in measures aimed at increasing the participation of immigrant women. The following measures and self-commitments within this field were recommended: Measures and self-commitments on the part of the Federal Government (and/or within the regulatory responsibility of the Federal Government) 2.2. Definition of targets The aim of all measures to be initiated must be the improvement of the social and political participation of immigrant women; this necessitates a variety of political and social measures. It is a fact that participation and education exert a reciprocal influence on each other. A well-founded command of the language, civic education and selfconfidence originating from independent gainful employment are all indispensable for the equal participation of immigrant women and the representation of their personal interests. The catching up of missed educational opportunities i. e. both school certificates and vocational training is therefore of great significance in the integration process. This process must be structured and made accessible according to the individual needs. Simultaneously, in vocational training, the special competencies and resources of immigrant women must be communicated in a positive manner to employers. Immigrant women themselves are in the best position to communicate their needs and deficits regarding social and political integration and it is therefore imperative to involve them and their selforganisations to a greater degree than before in the integration process. Mentors from established German women s organisations could possibly provide suitable encouragement. Activities and measures to aid immigrant women must be designed with them and not for them and measures which target their particular individual potential and resources require special support. The Federal Government will continue the Dialogue forum with Muslim women begun in Within these information and contact discussions carried out under the auspices of the Federal Ministry for Family Affairs, Senior Citizens, Women and Youth, the Commissioner of the Federal Government for Migration, Refugees and Integration and the Muslim Academy in Germany, the focal points are: the representation and presentation of political activities of all participants aimed at equal opportunity, the greater social participation of Muslim women within society, the discussion of educational and family-political issues, the analysis of research concerning Muslim women in Germany and, against this background, the improved understanding of political topics associated with the equal opportunities of women from a variety of religious and ethnic backgrounds. The transition from school/study courses to professional career is frequently particularly difficult for young women with a background of migration for a variety of reasons. These persons are often under particular pressure for justification, as role models are frequently lacking within the family and their social environment. Against this background, young women (sixth-formers/students) are offered a mentoring programme within the framework of the project Network.21 living and working in a trans-cultural society to provide a supporting network for individual labour market and career orientation. This permits the examination of topics such as gender roles within both the original and 95

48 4.4. dations on the part of the European Parliament and the council on Key Competences for Lifelong Learning. Participants should utilise their qualification and knowledge gained as multiplicators in the civil process and also for themselves as a stepping stone leading to further professional opportunities. Time scale: October 2006 to March 2008 the new culture and targets the encouragement of political awareness and the readiness for civic commitment. The involvement of a male control group creates new opportunities to address and involve young male immigrants who are often confined by behaviour patterns and attitudes in other ways than their female counterparts. Time scale: September 2006 to October The previously virtually unutilised potential of men and women with a background of migration has been brought into the focus of public interest due to the intensification of regional competition for investments, jobs and manpower as a result of the globalisation process. The aim of the model project Cultural diversity as an impulse for development and growth is to increase awareness for the exemplary learning and work processes of participating persons and institutions and the inter-cultural fundamental competencies of young men and women with a background of migration such as multilingualism, occupation with two cultures, flexibility, empathy, etc. in their multidimensionality and complexity as potentials and resources, to value these attributes as impulses for growth and change in one s own practice and to develop new options of action in recognition of this cultural diversity. Self-driven learning and working groups with actors from economic, advisory and self-organisational sectors should utilise models for local cooperation and the joint establishment of projects on a regional basis to develop and make accessible qualified employment and vocational training places for young women with a background of migration. The project will commence in the locations Cologne and Dresden. Time scale: October 2006 to March 2008 The model project Trans-cultural and inter-religious learning house for women will encourage the networking and exchange between women of diverse cultural and religious origins and will offer a two-year qualification programme. Women with and without a background of migration can work to achieve qualifications at the locations Frankfurt, Cologne und Berlin. The learning house for women takes the central role of women in integration processes as its premise. Here, religious diversity, life philosophies and life conceptions form the starting point for the learning process. The Trans-cultural and interreligious learning house for women is aimed at women who are either already active in voluntary work or would like undertake this type of activity, or those seeking a professional perspective, and is based on the specific abilities of women of diverse cultural and religious origins and differing orientation to values. The final certificate gained on completion of the course is oriented to the European Qualifications Framework system and recommen- Within the framework of the German-French conference: Changes in role behaviour in the integration process in Schloss Genshagen the immigration process will be examined from a gender perspective. Whereas women of the second and third generation of immigrants frequently orientate themselves towards the role models of German women, i. e. the possibility of a qualified vocational training and the compatibility of family and career, men with a background of migration tend to be more oriented towards traditional role models of their original culture. This non-synchronism in the integration process, i. e. the tempo of the genders will be investigated during the conference. Time scale: 9 to 10 November 2007 of female immigrant organisations in the German Women s Council. The Federal Office for Migration and Refugees will examine possibilities to increase the Participation of female immigrant organisations in the support of projects within the area of integration. If necessary, more opportunities should be created to support female immigrant organisations in the development of competences within the areas of project planning, application and implementation. Time scale: begin of 3rd quarter 2007 The Federal Office for Migration and refugees will involve female immigrant organisations in the Development of the national integration programme and also take into account the particular circumstances of female immigrants in all action fields of the integration programme. Time scale: commencement 3rd quarter 2007 Measures and self-commitments on the part of the federal states and local authorities (and/or within the regulatory responsibility of the federal states and local authorities) The integration-political contribution of the federal states to the National Integration Plan is in the process of being compiled. The Local Authority Associations are currently involved in intensive discussion with their member organisations and will submit their recommendations in a separate procedure. The German Women s Council intends to extend its consideration of aspects of women with a background of migration in its statements, e. g. Federal Government projects. Equal opportunity of access on the part of immigrants to all levels of everyday life education, work and training is one of the major challenges of socio-political efforts. The integration summit convened by the Federal Government and subsequent actions (National Integration Plan, integration concept and integration forum) underline the significance of an objective and concerted approach to improve the living situation of immigrants resident in Germany. As a contribution to this development, the Federal Association of Immigrant Women in Germany aims to involve immigrant women of Turkish origin in this process and specifically include them in debates on the topics of integration and gender inequality. The conference Equal opportunities and immigrant women perspectives and action concepts for the integration of women in Germany and Europe will therefore serve the purpose of intensifying and highlighting the gender-perspective focus within the integration debate through the prominent participation of immigrant women. The results of the conference will be recorded in a documentation brochure. Time scale: 01 June 2007 to 03 June 2007 Costs: 48,000 euro The Federal Association of Immigrant Women in Germany is planning the implementation of a measure Integration through culture to support the integration of immigrant women through cultural channels. The measure aims to provide support for the cultural and social integration of immigrant women through appropriate actions and events. The measure will include excursions in towns and cities, information events on the culture of the host society, workshops, theatre and museum visits, discussion groups and other forms of intercultural encounter. The measures will focus on the following aspects: the reduction of cultural prejudices the increase in mutual acceptance between native citizens and immigrant women the encouragement and intensification of social and cultural commitments on the part of immigrant women encounter and comprehension of the host society s culture Measures and self-commitments on the part of non-governmental institutions and organisations The German Women s Council intends to examine the possibility of the affiliation and/or cooperation 4.4. the encouragement and intensification of the sense of community on the part of immigrant women. Time scale: end of 2007 to 2010 Costs: not calculable The Federal Association of Immigrant Women in Germany will continue and extend its activities Supporting integration and thereby also the Improvement of the life situation of women of diverse origins. The association s activities include information, advisory and further training measures and activities which increase the political, social and cultural participation of immigrant women. The Meeting and Educational Centre for Muslim Women in Cologne BFmF e. V. will undertake efforts in discussion groups, forums and events in which it participates to act as mediators in the communication and involvement of the interests of immigrant women and therefore also contribute to a cultural sensitisation in a variety of areas. Internally, the BFmF e. V. will also utilise its pool of qualified experts with a background of migration and appoint members of staff as mentors who will support immigrant women in their personal and professional development. The Central Council of Muslims in Germany will in its statements concerning legislative projects undertaken by the Federal Government particularly address the issue of women and girls who wear headscarves and the effects of planned legislation on their opportunities of participation in society. The Muslim Academy in Germany has initiated a Dialogue forum with representatives of Muslim women s initiatives and women s representatives in Islamic umbrella associations and supra-regional alliances of Muslims in Germany in cooperation with the Commissioner for Integration and the Federal Ministry for Family Affairs, Senior Citizens, Women and Youth. The aim of this dialogue forum is to professionalize and highlight work on issues specifically associated with women and to create a forum in which the networking of Muslim women active within the field of women s topics and also the participation of associated civil initiatives and institutions is supported. Currently existing Muslim advisory services for women complain of lack of contact with other existing emergency and advisory services, e. g. public welfare services. To remedy these deficits, the Muslim Academy in Germany has committed itself to support the networking of Muslim women s initiatives with existing emergency and advisory services for women. Time scale: from autumn

49 4.4. Sub-working group 2 Support for immigrant women in family and social environments, sex education, health and care of the elderly There is little public awareness of the great diversity of women and girls with a background of migration, their differing circumstances and the plurality of their life plans. The category of gender has also received as little public consideration as the topic of diversity among immigrant women. As a consequence, the topical area immigrant women is seriously neglected and resources and potentials which these persons could offer to society remain undiscovered and are not activated. This unawareness and the accompanying lack of communication with these persons mean that measures targeting immigrant women miss their target: measures are insufficiently precise and therefore do not reach their target group. For this reason, political and social actors must repeatedly highlight the diversity of men, women, girls and boys with a background of Topical focus: Health, sex education and care of the elderly 1. Review of current situation Health and sex education are areas which affect the life of immigrant women to a particular degree: these women play a key role and undertake substantial responsibility in both the state of their own health and that of their families. Reports by the persons concerned and also by organisations implementing integration measures show that these integration measures specifically targeting women meet with a high degree of acceptance. In addition, it can be observed that the majority of women with a background of migration strive to make independent decisions in situations such as visits to the doctor or when members of their family are in hospital. Practical experience also shows however that these topics are difficult to communicate to a mixed-sex group: this particularly applies to topics related to sex education and family planning. Cultural barriers generally make it difficult to discuss topics such as sexuality, love and contraception. Sexuality is a topic not discussed openly in families within most immigrant groups and is particularly taboo in discussion between mother and daughter or with older relations. The integration of immigrants in current regular services covered by statutory health insurance is as 98 migration. The form of approach towards immigrant women must also be altered, as a lack of empathy is often present. Participants of this sub-group have emphasised the importance of communicating the fact that immigrant women of the second and third immigrant generation are not merely Germans because they were perhaps born in the country and possess a German passport, but also because they consider themselves to be German. A natural and self-confident contact with one another which is free of any form of discrimination is therefore vital for cohabitation on an equal footing in our society. A realistic and contemporary picture of women and girls with a background of migration is borne out by the results of scientific research. It is apparent that not only does the host society seem to be oblivious to these findings, but also the immigrant communities themselves often anticipate more traditional viewpoints and therefore also foster a false image of immigrant women. For this reason, integration policy must be oriented towards the diversity of the actual living situations of immigrant women to counteract the existing stereotype image of this group in society. is the case with other groups of the population in a similar social position still frequently insufficient, particularly regarding preventative measures. Despite the virtually universal accessibility to preventative screening services covered by statutory health insurance (this does not, for example, apply to persons seeking asylum), immigrants are significantly underrepresented, for example in the utilisation of dental preventative measures, despite the fact that health risks increase conversely to the level of social status. Preventative medical check-ups during pregnancy are also utilised less frequently and at a later stage despite the fact that the rate of infant deaths is higher than is the case with German mothers. These examples act as indicators for the obstacles preventing the effectiveness of preventive measures and show that identical utilisation rights and opportunities do not guarantee identical rates of utilisation effectiveness. According to persons affected, insufficient attention is given to the form and complexity of the language in which information is communicated; this means that information and cultural and communicative barriers are preventing the utilisation of preventative services and opportunities which would be beneficial for health. The utilisation of appropriate language is therefore of vital importance. The same is applicable to the relevant degree of cultural sensitivity. This is extremely important as a quality criterion for the generally comprehensive range of 4.4. services currently offered in Germany and also as an element in training and further training courses for doctors and nursing staff. There are only a few areas in which the appropriate requirements have been created to guarantee that women with a background of migration, in this case particularly African women with a background of migration, are addressed in a cultural- and gender-sensitive manner. The memorandum for the culturally sensitive care of the elderly which was jointly compiled by the Commissioner for Migration, Refugees and Integration and all non-statutory welfare associations and signed as an act of self-commitment by over 160 associations is a step in the right direction. It is vital to give special consideration to the particular needs of older immigrant women. The approbation (licence to practise medicine) in the health care professions is fundamentally dependent on the possession of German nationality. This approbation can also be conferred on persons of equal status (members of EU or EEU states) whereas members of other countries can, for example, only receive approbation following a period of professional integration. In view of the intercultural opening of the health service and care for the elderly, particularly with regard to those immigrants who have grown up and trained in Germany, it should be investigated whether demand exists for a relaxation of restrictions concerning approbation. The topic dementia and immigration has proved to be particularly problematic. Immigrant women frequently possess inaccurate knowledge of the medical condition of forms of dementia as it tends to be a taboo subject. Here a lack of culturally sensitive information and advisory services can be observed, in particular for family members providing care. The assessment of immigrants suffering from dementia who are in need of care is also problematic due to the lack of linguistic competence which subsequently further deteriorates during the course of the medical condition. Certain parts of current assessment processes cannot be utilised for the assessment of immigrant patients. An accurate knowledge of the target group is necessary in order to provide appropriate advisory services. Practical experience shows that services operated by immigrant self-organisations or planned and implemented in cooperation with these organisations achieve success. The living situation of immigrant women is characterised by low income and relative poverty in old age. It must be stated that older immigrants in no way correspond to the cliché of elderly in need of care ; these persons generally provide more assistance than they receive from their children. The integration of older immigrant women was the subject of intense discussion, particularly from the aspect of intercultural access to existing services for the care of senior citizens and the establishment of institutions for particular immigrant target groups. As first-generation immigrants are only now attaining retirement age, their life situation and requirements are only gradually becoming known. For this reason, existing services are often not gender-differentiated. There is also a distinct lack of research into the personal situation of this group and also few opportunities of target-group-oriented sports and leisure activities. The requirements of these persons should receive particular attention within the system of care for senior citizens. The situation of older immigrant women is precarious not only in Germany, but also worldwide as a combination of three discrimination characteristics comes together, namely gender, age and ethnic origin. For this reason, the circumstances of this group must be closely observed. 2. Unlike the assumptions in political circles and society in the last few decades, a return to the country of origin is for the majority of older immigrant women no longer a viable alternative; the majority of those questioned plan to remain in Germany for the rest of their lives, including older persons who spend certain periods in their home countries. The fundamental reasons for remaining in Germany are children and grandchildren who are resident here, a superior healthcare system than in the country of origin and the safeguard against life risks which is covered by the social security system. Additional factors such as a subjective feeling of wellbeing and greater opportunities for self-determination also play a role. Definition of objectives The targeted improvement of services for women immigrants must be guaranteed within the areas of health services, psychosocial counselling, sex education and family planning. A culturally sensitive approach which is precisely tailored for the target group must be anchored as a specific quality standard and made transparent. To achieve intercultural access to the healthcare service and senior citizen care sector, it should be examined whether a relaxation of the issuing of approbations to qualified foreign citizens permanently resident in Germany would be possible, or at least for those persons in possession of an unlimited residence permit. The support of existing potentials and the reduction of problem structures must be the overriding targets 99

50 4.4. of the project is to represent the socio-demographic and socio-economic situation of men and women in Germany with a background of migration. Following an alteration to the laws governing the microcensus, data on the migrational background of men and women could be included in the census of 2005 for the first time. As very little gender-specific data material exists for this group of the population, a special evaluation will be undertaken to assemble data on the life situation of immigrant women. The presentation of this evaluation is planned for December of immigration- and integration-sensitive prevention measures, as the frequently well-intentioned allegation of equal opportunities of access to and utilisation of prevention and other healthcare services prevents both an analysis and subsequent alterations to the system and therefore only encourages an inequality of opportunities. In addition to superordinated approaches on the part of politics and the structuring of the living environment, health promotion for persons with a background of migration can and should include the objectives integration and/or cultural opening, comprehensive support for all resources for self-determination regarding individual health and the prevention of specific risk factors in certain risk groups. A key to the sustainable success of healthcare support for men and women with a background of migration is their involvement. The improvement of healthcare provision for immigrant women requires services which are orientated to requirements, intercultural regular services, interdisciplinary networks, the development of adequate access to these services and data basis security. Integration policy action must seriously consider the needs of older immigrants particularly women not only because the grandparent generation can provide positive support for the grandchild generation within a family context, but also because their life-time achievements should also receive adequate recognition in a phase of life which is characterised by an urgent need of help. The follow-up stage to the integration summit provides a great opportunity to create new impulses. 3. Measures and self-commitments The following measures and self-commitments were proposed for this topical area: Measures and self-commitments on the part of the Federal Government (and/or within the regulatory responsibility of the Federal Government) 100 The Federal Ministry for Family Affairs, Senior Citizens, Women and Youth has initiated and implemented the project Gender and Migration: special evaluation of the micro-census The aim The project Life-worlds of immigrants set up by the Federal Ministry for Family Affairs, Senior Citizens, Women and Youth aims to collect more detailed information on the life plans and wishes of immigrants. The aim of the project is the identification and typification of milieus for reference in research and surveys. Additionally, the diverse life-worlds and sub-cultures of immigrants will be recorded and investigated. From the aspect of equal opportunity policy, the particular focus is on the range of predominating role models for immigrants. The presentation of this specialised evaluation is planned for July health will examine the topical area of migration and health from a variety of aspects. Within the framework of the Federal Government s reports on health issues, the Robert Koch Institute (RKI) has been commissioned by the Federal Ministry for Health to produce a special brochure on the topic of Migration and Health. The focal point of the report will be particular health problems suffered by immigrants. The report will, however, also include information on topics such as the demographic development and social situation of immigrants in Germany and will examine genderand age-relevant problem complexes. Time scale: publication in II/2007 The Federal Centre of Health Education will provide a greater focus on the needs of immigrant women in its activities concerning the topics of sex education and family planning. The cooperation with immigrants interest groups for the improvement of the cultural sensitivity of sex education material will be continued. The information service Migration and public health carried out by the Federal Centre of Health Education will be continued. Detailed reports will be posted regularly on the internet and distributed in a printed version on a currently quarterly basis. These reports will also cover the interests of immigrant women. The association Nationwide cooperation union health promotion for the socially disadvantaged, initiated in 2001 by the Federal Centre of Health Education, in which the central associations of medical insurance companies, federal and regional health associations, welfare organisations, medical associations, federal states and other bodies are represented, will be continued. The chief aim is the encouragement and further distribution of good practice in preventive and health promotion measures for the socially disadvantaged: special measures aimed at immigrant women form one element of this project. The Platform for the elimination of social inequality will permit the publicising of dates, material and research findings on all aspects of health promotion for the socially disadvantaged on the basis of a comprehensive project data bank with exemplary projects and information on the annual congress Poverty and Health. The online data base Women s health and the promotion of health set up by the Federal Centre of Health Education which acts as a directory of information sources related to the subject of women s The Federal Office of Migration and Refugees will undertake efforts to make a contribution to Genderspecific and culturally sensitive health education within the framework of the standardised nationwide integration courses within the integration programme and the initial advisory service for immigrants offered by the Federal Office of Migration and Refugees. Among other measures, an increased number of excursions will be undertaken within courses for the integration of women and parents which will be carried out within the framework of 11 Par. 4 of the Integration Course Regulations. Additionally, experts from various fields will be invited to address course participants. The topical area of healthcare will be given more significance within youth integration courses. Time scale: commencement in 3rd quarter 2007 Measures and self-commitments on the part of the federal states and local authorities (and/or within the regulatory responsibility of the federal states and local authorities) The integration-political contribution of the federal states to the National Integration Plan is in the process of being compiled. The Local Authority Associations are currently involved in intensive discussion with their member organisations and will submit their recommendations in a separate procedure. Measures and self-commitments on the part of non-governmental institutions and organisations The Federal Office of Migration and Refugees will also devote itself extensively to activities focusing on women s issues within the framework of its Support for health and sex education projects. The Federal Office of Migration and Refugees will continue to hold low-threshold women s courses begun in 2006 which will also be accessible for immigrant women s organisations. Time scale: commencement in 3rd quarter 2007 Within the framework of its project support, the Federal Office of Migration and Refugees will continue to support projects within the area of cooperation and networking in care services for the elderly and hereby also place greater emphasis on activities focusing on women s issues. Time scale: commencement in 3rd quarter The Federal Office of Migration and Refugees will implement the project Success biographies of immigrant women. The aim of this project is the establishment of criteria for successful integration. Data from a representative survey of immigrant groups selected by the Federal Office of Migration and Refugees will be analysed to establish success biographies of immigrant women. This is intended as a preparatory investigation to identify typical characteristics contributing to a successful integration progress. In a second project element, a qualitative survey will be carried out involving selected successful immigrant women to establish their typical biographical progress and the conditions which permitted this success. This information will subsequently serve to establish best practice examples for the encouragement of integration. Time scale: 2008 The Working Group for Migration and Public Health which is coordinated by the Federal Government Commissioner for Migration, Refugees and Integration will continue its work and commits itself to a particular focus on the special needs of immigrant women: to the development of and support for health prevention measures (information, sex education and paediatric and women s health), the provision of support for intercultural competence within the area of diversity management in outpatient and inpatient healthcare, the continuation of training and further training within the area of culturally sensitive care services and care for the elderly and the support of culturally specific services and the continuation of qualified reporting on healthcare which includes all population groups in Germany. In a joint action involving the organisations Federal Association AWO (social welfare organisation)/par- 101

51 4.4. itätische Wohlfahrtsverband (association of social movements)/vij (association for international youth work) and the IB (international youth federation), training courses for course instructors and tutors involved in seminar measures for the integration of women of foreign origin women s courses will be developed and tested. This includes regional day events which can be utilised by all employees of all participating organisations. Time scale: 2007 The Turkish-German Health Foundation will employ expert knowledge and all possibilities at their disposal to undertake extensive efforts to support all institutions and organisations in their immigrantsensitive activities, including discussion, planning and implementation of projects. The Turkish-German Health Foundation also commits itself to employ all possibilities at their disposal to support all efforts to publicise the Preachers Project nationwide and implement this project throughout Germany. In this project, persons of authority in local communities, in this case the preachers, will be trained in healthcare topics; they will subsequently pass on their acquired knowledge to the general population. The Central Council of Muslims in Germany will compile bilingual information leaflets/information s for their affiliated Muslim communities on the topics: the situation of Muslim women who wear headscarves, the situation of elderly immigrants and sexuality and healthcare. Two areas will be considered within each topical area: The Central Council of Muslims in Germany will compile bilingual information leaflets/information s for their affiliated Muslim communities on socio-political relevant topics (on the results of scientific research on immigrants and how to counter existing stereotypes within society e. g. through personal contacts, projects in mosques, political commitment, etc.). The Central Council of Muslims in Germany will cooperate actively in projects initiated by the Federal Government aimed at the reduction of stereotype images and prejudices (e. g. an image campaign). The results will be communicated within member communities. The member organisations of the Federal Association for Non-Statutory Welfare [BAGFW] will ensure that the process of inter-cultural opening is implemented in its institutions and services. This will be taken into consideration in organisational development and personnel policy and will be supported by opportunities for further training. The aim is the elimination of access barriers for immigrant women in the utilisation of healthcare services in particular also in preventative services and the greater consideration of the specific needs of immigrant women in the structuring of services. will support a more intensive cooperation with immigrant organisations. The aims of this cooperation are to improve the provision of information for immigrant women on existing advisory services, to eliminate access barriers and also to help to ensure that these services are more strongly oriented towards the interests and needs of immigrant women. will support the extension of low-threshold services for immigrant women. This includes women s courses supported by the Federal Government and also numerous individual local measures which are specifically tailored for the individual needs of immigrant women. have compiled the memorandum for the culturally-sensitive care of the elderly in cooperation with the Commissioner of the Federal Government for Migration, Refugees and Integration and other organisations offering care for the elderly (KDA Board of Trustees for Support for the Elderly) and immigration activities as a joint base for activity and signed this memorandum as a self-commitment. The associations of the BAGFW will undertake efforts to publicise this memorandum within services and institutions a) the legal framework in the Federal Republic of Germany, existing advisory and support services and information of events covering these topical areas (lectures and discussion groups), and b) instructions concerning religious aspects of these topics (prohibition of forced marriages, encouragement of partnership within marriage, endurance of injustice without committing injustice oneself, conduct towards older persons, support, responsibility before God concerning one s individual health). It is recommended that these topics be covered within the framework of the Friday sermons. 102 offering care for the elderly and within relevant expert circles and this memorandum will form the foundation for all work within the areas of care for the elderly, social care of the elderly and the care of elderly immigrants. offer services and institutions for the care and independent care of the elderly and also provide immigration services. The associations of the BAGFW will ensure the continuation of the intercultural opening of their outpatient and inpatient services and institutions, advisory services, institutions offering assisted accommodation, meeting places and activities in the independent care of the elderly; the needs of immigrants should be given particular consideration. This should also involve the participation of immigration services and immigration self-organisations. organise training, specialist and further training for the caring professions and provide training schools for the care of the elderly. In order to meet the requirements of qualified employees with intercultural professional competences and a background of migration within the process of intercultural opening, the member associations of the BAGFW will particularly target the recruitment of young immigrants for caring professions and ensure that training, specialist and further training courses are structured accordingly for this target group will undertake greater efforts to increase the contribution of immigrant women in the integration process. Within the context of their public relations activities, the member organisations will undertake efforts to ensure that the efforts and potential of immigrant women receive greater recognition, particularly in public awareness. The self-help organisation Maisha African Women in Germany provides nationwide education and prevention targeting the topic of genital mutilation. A health-mobile for nationwide counselling and health promotion, legislation and prevention for immigrant women who are victims or potential victims of genital mutilation is planned. This mobile counselling and education service will provide a health-oriented advisory and information service which also covers the rights and responsibilities of victims in black African communities in Germany in cooperation with health authorities, the Federal Association of Africans in Germany, other African non-governmental organisations and advisory services and youth welfare authorities, schools, sport clubs, local authorities, federal states and the Federal Government. Time scale: 2007 to 2009 Costs: 200,000 euro 103

52 Overall supervision: Federal Ministry of Justice Brigitte Zypries, MdB Federal Minister of Justice Members of the sub-group Members of the sub-group 2 Overall supervision: Federal Ministry of Justice Supervised by: Federal Ministry of Family Affairs, Senior Citizens, Women and Youth Christiane Abel Senate Department of Justice Berlin JuMiKo [Conference of Ministers of Justice] Celal Altun General Secretary of the Turkish Community in Berlin Nele Allenberg Commissioner of the Council for Evangelical churches in Germany for the Federal Republic of Germany and the EU Maristella Angioni International Caritas Centre Stolzestrasse (welfare organisation) in Cologne Hayrettin Aydin Muslim Academy in Germany Veronika Arendt-Rojahn German Lawyers Association Dragica Baric-Büdel Federal Association of Workers Welfare Seyran Ates lawyer and author Stéphanie Berrut pro familia advisory service in Bonn Anja Bell Ministry of Justice for Hesse JuMiKo Stephan Blümel Federal Centre for Health Education Dr. Heiner Bielefeldt German Institute for Human Rights Tatjana Böhm Ministry for Employment, Social Affairs, Health and Family in Brandenburg Eva-Maria Bordt Coordination for Women s Shelters Gabriele Boos-Niazy Central Council of Muslims in Germany Katharina Breitkreutz Federal Minister of the Interior Gisela Chudziak Conference of Regional Ministers and Senators for Equality and Women s Affairs Sidar Demirdögen German Federation of Immigrant Women in Germany e. V. Angelika Diggins-Rösner Federal Ministry of Family Affairs, Senior Citizens, Women and Youth Sabine Drees German Association of Towns and Cities Sabine Drees German Association of Towns and Cities Dagmar Freudenberg German Women Lawyers Association Rosa Emich Territorial Association of Russian Germans Sonka Gerdes Federal Ministry of Family Affairs, Senior Citizens, Women and Youth Dr. Justina Engelbrecht Federal Medical Association, working group of German Medical Associations Karin Goldmann German Judges Association Anke Erath Federal Centre for Health Education Angelika Graf, MdB German Federal Assembly Christel Griepenburg International Association Ute Granold, MdB German Federal Assembly Dr. Sonja Haug Federal Office for Migration and Refugees Andreas Hauk Ministry for Employment, Social Affairs, Health and Families in Brandenburg Dr. Angela Icken Federal Ministry of Family Affairs, Senior Citizens, Women and Youth Birgit Hufeld Federal Ministry of Justice Vera Jungewelter Federal Ministry of Justice Dr. Angela Icken Federal Minister of Family, Senior Citizens, Women and Youth Affairs Prof. Dr. Yasemin Karakaşoğlu University of Bremen, Professorship for Intercultural Education, Faculty 12 Vera Jungewelter Federal Ministry of Justice Dr. Haydar Karatepe Turkish German Health Foundation Regina Kalthegener Terre des Femmes/solicitor Heinz Knoche German Red Cross General Secretary s office; Head of team Migration and Integration Ursula Krickl German Association of Towns and Municipalities Ursula Krickl German Association of Towns and Municipalities Hamideh Mohagheghi Muslim Women s Network HUDA Harald Löhlein Paritätischer Wohlfahrtsverband general association (welfare organization) Behshid Najafi Agisra e.v. Cologne, advisory service for women immigrants and refugees Aras Marouf Ministry for Internal Affairs, Families, Women and Sports in Saarland Rafet Öztürk DITIB: Turkish-Islamic Union of Religious Institutions Elke Metz Federal Ministry of Health Cornelia Pust Federal Office for Migration and Refugees Sigrid Pettrup Federal Association BKK (company health insurance funds) Renate Heike Rampf Lesbian and Gay Association (LSVD) in Germany Dr. Susanne Plück Federal Ministry of Family Affairs, Senior Citizens, Women and Youth Dr. Klaus Ritgen German County Association Brunhilde Raiser German Women s Council Sybille Röseler Task Force of Federal Government Commissioner for Migration, Refugees and Integration Dr. Klaus Ritgen German County Association Regine Rosner IN VIA German Association Sybille Röseler Task Force of Federal Government Commissioner for Migration, Refugees and Integration Bosiljka Schedlich South-Eastern European Cultural Association Ulrike Szegeda Federal Ministry of Internal Affairs Prof. Dr. Angelika Schmidt-Koddenberg Catholic University of Applied Sciences North Rhine-Westphalia Dr. Irene Vorholz German County Association Riem Spielhaus Muslim Academy in Germany Virginia Wangare-Greiner Maisha African Women in Germany (self-help group) Cornelia Spohn Association of Bi-National Families and Partnerships, iaf Corinna Ter-Nedden Papatya Erika Theißen Meeting and Training Centre for Muslim Women Eren Ünsal Turkish Association in Berlin-Brandenburg (TBB) and Turkish Community in Germany (TGD) Dr. Irene Vorholz German County Association Julia von Seltmann German Federal Bar 105

53 Topical area 5: 4.5. Community support for integration Preliminary remarks The topical area Community support for integration focuses on the socio-environmental dimensions of the co-existence of immigrants and local inhabitants and issues concerning the organisation of integration policy within the community. The effects of immigration can be observed most clearly in local authorities and residential areas. In addition to the factors of employment and education, the immediate residential and social environment has a central significance for the progress and success of integration. There is however a variable distribution of immigrants in Germany among the federal states, regions and also in towns and cities. Foreign immigrants are distributed unequally between East and West German federal states: the proportion of foreign citizens in the new federal states (including Berlin) is five per cent, whereas the figure for the West German states is ten per cent. This disproportion repeats itself on a smaller dimensional level: in West Germany, foreign citizens are concentrated within the large-scale urban agglomerations, the Ruhr area and along the Rhine, the Rhine-Main area and the metropolitan areas of Stuttgart and Munich. In West Germany, the proportion of foreign citizens in these areas is 12.3 per cent compared with 7.4 per cent in East Germany. In large West German cities, the majority of foreign citizens have been resident within inner city areas since the 1980s; in the East, foreign citizens are also concentrated around central city areas. 106 The statistics on the relative proportion of resident foreign citizens are not however a true reflection of the proportion of the population with a background of migration: official statistics have not yet been established for this group. If the total figures for naturalised citizens are factored in with persons possessing multiple nationality and repatriates of German ancestry from other sources, the proportion increases to a figure of almost 20 per cent or 15 million persons with a background of migration (micro census 2005). In the old West German states, the proportion exceeds 30 per cent and is even substantially higher in certain city areas, e. g. in the area Soldiner Straße in Berlin with 41.5 per cent and a figure exceeding 50 per cent for Duisburg-Marxloh. The proportion of foreign citizens is even larger among children and young persons: in seven school districts in Stuttgart, the relevant proportion of children between the ages of three and six ranges from 66.7 to 84.1 per cent; this means that over two thirds of all children in the first school year will be children of immigrants. In certain schools, e. g. in Berlin-Neukölln, over 80 per cent of pupils are of nongerman origin. Towns and districts including villages with a high proportion of immigrants can however also be found in rural areas. It is particularly repatriates of German ancestry (a particularly large immigration group totalling three million) who have taken up residence in rural regions. An example is provided by the district of Belm on the periphery of the town Osnabrück where the population increased substantially from 107

54 to between 1990 and 1995 due to immigration. The proportion of immigrants exceeds 20 per cent and even 70 per cent in larger housing estates in Belm. Repatriates of German ancestry are not listed separately in statistics as they possess German nationality despite the fact that many of these citizens as is the case with other immigrants are unfamiliar with the language and culture of their new homeland. Whether integration is successful or whether problems result from the cohabitation of immigrants and the resident population is dependent on a number of factors. The subjective mental attitude also plays a 1. T opical focus 1: General community concepts 1.1. Review of current situation Immigration and its effects are most felt in local communities and residential areas. Success but also problems can be observed here most clearly. The integration of immigrants has a great significance for local social cohesion. Decisions made on a national and regional level provide the framework for local politics and have an influence on immigrants lives and their opportunities for integration. Numerous towns, cities, districts and local communities have already undertaken great efforts to meet the challenges posed by the integration of immigrants. Integration efforts are most successful in local communities in which immigrants with their variety of potential are viewed as a gain and a new opportunity for the whole community. Particularly in view of demographic change and the foreseeable lack of well-qualified skilled workers in the future, the potential of young persons with a background of migration must be successfully encouraged, developed and utilised. The success of integration is therefore also an essential economic factor. Whereas the integration of immigrants was formerly viewed primarily as a focal point of individual political areas, for example labour market, social and regulatory policies, it has now been accepted that multidisciplinary overall concepts are necessary. The interdependency of demographic, economic and social developments also require an integrated strategy on a local community level with a concentration of multidisciplinary measures over and above individual governmental departments. Within this process, social harmony and civil cooperation depend to a high degree on a broad local political consensus and the opportunity of participation of all groups of 108 role: a defensive attitude to foreigners is frequently found in areas with a low proportion of foreign citizens who logically also display a low proportion of contact with these persons. Vice versa, the willingness for integration increases in areas in which various population groups have gathered experiences of living together. Against this background, the working group has discussed the following topical areas and submitted recommendations/objectives for measures/selfcommitments/investigations. Top priority for integration : the task of integration must be anchored as a transversal task in administrative management and be coordinated on a cross-functional basis. Integration measures must be sustainable on a long-term basis and flash-in-the-pan projects avoided. A wide range of measures must be created and successful projects integrated into regular structures ( qualitative regular services ). the population in decision-making processes and the implementation of agreed action strategies. Through intercultural access to administration and institutions through the employment of immigrants and universal intercultural education and the reduction of access barriers, all groups of the population should be represented and receive competent support in the implementation of their interests Recommendations for measures (planned and agreed)/self-commitments/ investigations on the part of 1.2. Definition of targets the Federal Government (and/or within the reg ulatory responsibility of the Federal Government) Integration for and with everyone : integration must be an issue for the entire community and be developed as a common concept involving and networking all actors and all community fields of action. This requires a fundamental local political consensus among public authorities and political decision-making bodies. Integration concepts and integration strategies should permit equal opportunities for the participation of immigrant citizens in social and economic fields which will thereby strengthen social cohesion through efforts to achieve these equal opportunities through the recognition and encouragement of cultural diversity ( all citizens have equal rights and responsibilities ). This necessitates open-mindedness and cooperation from both factions immigrants and the host society. Integration as a transversal task : the task of integration is transversal and cannot be delegated to individual departments or commissioners. This task must be undertaken within all relevant fields of action, in particular within the areas of education and language, social infrastructure, employment, participation and counselling. All measures, projects, support and involvement must respect the equal opportunities of men and women. model projects for local community integration concepts are planned within the framework of experimental housing construction and urban development policy on the part of the Federal Ministry of Transport, Building and Urban Affairs. Integration is positioned as a general local and cross-departmental task within local politics which will involve the participation of political and administrative bodies (positioning of local authority and local administration with the involvement of immigrant representation); a central office will ensure coordination. Local community politically legitimated overall concepts will contain short-, medium- and longterm targets depending on local conditions and socio-environmental requirements and a strategic implementation concept including the appropriate provision of resources. Integration-oriented measures will be introduced in all relevant fields of action. Integration concepts should incorporate a situation analysis/inventory, the stipulation and definition of integration targets and guidelines, the necessary instruments and performance review measures. The compilation of community integration concepts should serve as a coordinated inventory for a review of the local situation and permit a complete picture of the status of individual integration policy. Concepts, strategies and measures will take local conditions into account. Civil commitment has a great significance for the integration of immigrants. This will be encouraged with the aim of increasing the participation of representatives from immigrant groups and the general population in the development and implementation of measures and integration concepts. All relevant actors (administrators, politicians, immigrants, etc.) will become involved in the communal activity network; a network will be formed through the establishment of contact offices in organisations, advisory services and integration conferences. The increase in the proportion of immigrants employed in the administration sector will strengthen its intercultural competence. At the same time, local government and administration will provide direct support for the integration of immigrants on the labour market and act as an example for the local economic sector and as a positive signal for the willingness on the part of immigrants to become integrated. long-term support for innovation, model and impulse projects (oriented towards target groups and problems) federal states and local authorities (and/or within the regulatory responsibility of federal states and local authorities) A performance review is necessary to investigate whether these targets have been achieved (see topical focus 5). The great variety of requirements for the integration of immigrants, for example in both rural areas and urban centres, demands different forms of reaction on a local level. Local community overall concepts are effective and not only necessary for large cities, but are also effective for smaller districts with high levels of immigration and administration will develop a policy guideline and a comprehensive target catalogue for integration policy involving all relevant actors and submit these to be passed by resolution before the local government. This will guarantee a clear political obligation and political responsibility. The federal states will determine policy guidelines within their areas of responsibility for the integration of immigrants and lend support for innovation, model and impulse projects with the objective of providing accompanying support for development processes in organisations to improve the opportunities, structures and processes associated with the reception of new immigrants and the integration of immigrants already resident in Germany in local authorities and by local authorities, and the sustainable efficiency and effectiveness of theses measures through innovation. In a participative process involving immigrants and the resident population, local community policy 109

55 4.5. Through the intercultural training of personnel, access barriers for immigrants will be reduced within the administration sector and in the utilisation of services and activities offered. non-statutory institutions and organisations and the private enterprise sector Willingness on the part of the local population to become aware of the specific problems of immigrants and the acceptance of cultural diversity. Participation of the public enterprise sector, immigrant organisations, religious communities, associations, welfare organisations, immigrants and the native population in the development and implementation of integration concepts and measures. Businesses, clubs, associations and other institutions will recruit an increased number of immigrants and will offer qualified services and activities following the intercultural training of their personnel. The member organisations of the Federal Association for Non-statutory Welfare [BAGFW] submitted the following recommendations for self-commitments after completion of the work on this report: The member organisations of the BAGFW will actively participate in closer cooperation and networking of all local actors through the coordination of and participation in networks, round tables and communal bodies. 2. Topical focus 2: Living and social environment in local neighbourhoods 2.1. Review of current situation The social environment has a central function in the integration process as a meeting place and point of contact for immigrants and the resident population. Particularly children, young persons and unemployed adults spend a large proportion of their life within the area of their local neighbourhood. For this reason, neighbourhood structure, public spaces and both public and private infrastructure facilities form a vital framework for social cohesion and provide local opportunities for integration. A model for the development of urban districts and neighbourhoods is the creation and sustainability of socially and ethnically mixed neighbourhoods. In the reality of towns and districts however, socio- 110 The member organisations of the BAGFW will ensure intercultural access to their institutions and services and tailor their facilities to meet the needs of immigrants. The member organisations of the BAGFW will support local integration through their community-oriented approaches and measures. The member organisations of the BAGFW will actively participate in increasing general public awareness of specific problems encountered by immigrants and communicate cultural diversity as an enrichment for the community. The member organisations of the BAGFW will provide advice for communal administration departments and other institutions through their experiences in the structuring of intercultural opening processes. The member organisations of the BAGFW commit themselves to active cooperation in communal integration concepts and will actively participate in the development of communal integration policy guidelines. The sustainability of integration measures will be particularly guaranteed through the institutionalisation and continuation of supported integration projects; project measures which have proved to be successful will be transformed into regular structures. The vertical networking and dovetailing between participants on all different levels is recommended. environmental segregation exists which can only be influenced and altered up to a certain extent; here integration despite segregation must be the recipe. Socio-environmental segregation is determined by ethnic and social factors: immigrants with a low income are limited to housing within the lowest price segment which is concentrated within particular areas such as inner-city districts with older housing and council accommodation in concentrated largescale housing estates of the 1960s and 1970s. Simultaneously, a certain proportion of immigrants wish to live within a familiar ethnic environment in order to be able to utilise already existing networks and support of long-term resident immigrants. This voluntary segregation can simplify the initial integration phase and prevent conflicts between different lifestyles and cultures. All tendencies towards separation from the host society which lead to the development of parallel structures which in turn reinforce behaviour patterns from the countries of origin for example certain aspects regarding the role of women and girls and therefore form an obstacle for integration must be rejected. There is acute need for action in urban areas in which socio-economic disadvantages such as unemployment, low incomes, low educational achievements e. g. young persons lacking school leaving certificates and training qualifications result in the limitation of the opportunities within the labour market for many neighbourhood residents and are superimposed on problems associated with the cohabitation of a variety of population groups. Social and economic structural changes result in unoccupied housing and office space, neglected buildings and damage through vandalism. Negative development tendencies are further exacerbated by an exodus of better situated and more integrated residents. The poor appearance of the living environment leads to a negative internal and external image. This hinders a personal localisation and identification on the part of residents with their social and living environment and therefore also presents an obstacle to integration on a local level the security of neighbourhoods must be increased to reinforce the feeling of security on the part of their inhabitants. Integration requires the equal participation of all citizens. A significant prerequisite for effective measures for neighbourhood development and long-term sustainability is the cooperation of all participants in order to activate and target the financial and personnel potential of the neighbourhood towards common goals. These measures must be planned and implemented in cooperation with all residents according to their needs. Neighbourly contact and joint activities and initiatives can help to create and stabilise social networks as a basis for positive urban district development and a community spirit amongst residents. Immigrants and the resident population are called upon to undertake neighbourly cooperation and civil commitment to an equal degree Definition of targets The integration of immigrants must have great priority in the conception, development and implementation of urban and urban district planning concepts. Integrated multidisciplinary action concepts require the cooperation of all actors. The participation of immigrants in urban design and renewal processes must be intensified to create identification with the district and living environment and encourage the assumption of responsibility. An observation must be made regarding the context of policy guidelines for the social and ethnic blending of residents in the neighbourhood: a compartmentalisation of different groups of the population and the socio-environmental concentration of groups affected by poverty and immigrant residents must be countered. Disadvantaged neighbourhoods with structural and infrastructural deficits must be stabilised and made more attractive through targeted measures for the improvement of living conditions and the immediate environment which will additionally prevent better situated residents from leaving the area and attract citizens from other urban districts who will move to the neighbourhood. The refurbishment of neighbourhoods must, however, not lead to social displacement. The sense of security within the neighbourhood is a significant factor in the cohabitation of different groups. When this security is threatened, this can awaken anxiety in the neighbourhood residents which is projected onto foreigners and can have an inhibiting effect on integration. For this reason, 2.3. Recommendations for measures (planned and agreed)/self-commitments/ investigations on the part of the Federal Government (and/or within the regulatory responsibility of the Federal Government) A major instrument for action is the programme Districts with Special Development Needs Socially Integrative City in which 450 areas in almost 300 districts nationwide are already receiving support. In an integrated course of action, measures within a variety of political fields, primarily within the areas of housing, economic, infrastructure, employment market, education and social affairs, are consolidated and intensified on a local level. This process is coordinated and accompanied by an active neighbourhood management. The Federal Government funding for the programme will be continued and sustained at current levels. The consolidation with other political special areas and programmes run by other departments is also planned to be intensified on a national level. federal states and local authorities (and/or within the regulatory responsibility of federal states and local authorities) Multidisciplinary concepts for action are being developed and implemented with the cooperation of all actors and the equal participation of immigrants for the integrated development of urban districts as mixed residential, business and living areas. 111

56 4.5. In disadvantaged neighbourhoods, the possible courses of action offered by the programme Socially Integrative City are being utilised for the integration of immigrants. These integration processes are accompanied by an active and activating neighbourhood management. Financial aid from the EU, federal states and local authorities are being utilised to complement federal funding. Communal concepts for the provision of adequate housing space for all citizens are being developed. On this basis and with the cooperation of local authorities and housing associations, it is possible to control the allocation of occupation; this requires the availability of local housing and council accommodation with rights of occupation. Occupation strategies for social and ethnic blending must not be allowed to develop into the discrimination of individual ethnic groups. tional courses and leisure activities within the neighbourhood. Immigrants should be more integrated into political bodies (such as local advisory councils). The motivation for civil commitment and voluntary work can be strengthened, for example through particular public recognition. The revaluation of neighbourhoods to increase the quality of life will be achieved through: the creation and securing of reasonably priced and good quality housing space appropriate to requirements, improvement of architectural and social infrastructure, A targeted public relations scheme should be instigated to improve the internal and external image of the neighbourhood. non-governmental institutions and organisations and private enterprise Security and the feeling of security can be increased by structural measures such as the improvement of street lighting and the removal of visual barriers and the structural demarcation of private, semi-public and public spaces; this can be reinforced by increased police presence, streetworkers or social workers within the neighbourhood and the establishment of prevention councils as local contact partners ( neighbourhood watchers ). Here the stigmatisation of individual ethnic groups must be avoided. the provision of green areas and open spaces within residential areas to extend the possibilities of leisure activities for all generations and to provide a meeting and communication point within the neighbourhood, Local organisations (e. g. sport clubs, allotment societies and auxiliary fire brigade) support social cohabitation within the neighbourhood through joint activities involving native residents and immigrants. Their contributions chiefly consist of: the provision of space for allotments by local authorities, sports facilities and playgrounds close to residential areas and age-group- and gender-sensitive leisure facilities for children and young persons which additionally offer space for individual activities, 112 the provision of rooms for common activities and events to create further local meeting places; intercultural centres with care and advisory facilities should be universally accessible in local community centres or schools to be utilised as multifunctional assembly and meeting places and offering educational courses and leisure activities for local residents of all generations and ethnic origins; here special events targeting individual groups should also be offered, e. g. special courses for women and girls, the provision of sufficient personnel on a longterm basis to be able to offer qualified educa- the provision of sports facilities, playgrounds, allotments and other open spaces close to residential areas for leisure purposes, the provision of assembly rooms, meeting places and other rooms e. g. for educational courses and leisure activities and also for other events held by local residents, the organisation of joint activities in clubs, organisations and within the neighbourhood. Immigrant organisations and associations can additionally undertake an important function as contact partners and mediators in neighbourhood management. This also applies to churches and other religious communities. Church parishes and German and foreign cultural associations which are able to offer an infrastructure (e. g. rooms) for immigrant activities should receive support in the planning and implementation of their integration activities jointly with local bodies. Measures to improve the residential environment and increase the identification of residents with their neighbourhoods but also e. g. the supervision of children and young persons in leisure activities requires the support of committed citizens who will undertake voluntary work, partnerships and outreach support to supplement the work of professional personnel. Integration scouts will act as mediators and multiplicators, also within the areas of conflict solutions and conflict prevention; numerous conflicts between neighbours can be solved with the aid of mediators. Immigrants can also play a significant role here. The potential of women who frequently act as stabilisers for family cohesion and have a substantial influence on their children s education (e. g. project Urban district mothers ) must also be utilised to a greater extent of neighbourhood potential e. g. in restaurant or cultural guides). All organisations should be open to intercultural access, increase the proportion of their members with a varied ethnic background and appoint these persons in higher functional levels. The member organisations of the Federal Association for Non-Statutory Welfare (BAGFW) made the following recommendations for self-commitments after completion of the work on this report: The member organisations of the BAGFW have undertaken the function of contact partners and mediators in neighbourhood management through their socio-environmental (project) activities and outreach projects. The member organisations of the BAGFW will support equal opportunities and the dismantling of local discriminating structures within their services and institutions. The member organisations of the BAGFW will ensure that their immigration services are available as a contact point for immigrants and institutions. The BAGFW organisations will set up necessary negotiation processes (mediation) which will be carried out on an eye-level basis. The member organisations of the BAGFW will aim to achieve the socio-environmental networking of their services and measures and will provide activities targeting immigrants within the framework of their intercultural access. This applies to the entire spectrum of social services which are organised and performed by local associations. The member organisations of the BAGFW guarantee their participation in the development of local social civil structures and will hereby specifically provide support for the civic commitment by and for immigrants. Housing associations can support the integration of immigrants through: renovation and modernisation measures in their properties, the design of free spaces including green areas and open spaces and the provision of gardens for residents, the provision of community centres, improvement of security and increase in the residents sense of security e. g. through the appointment of concierges/caretakers, extension of opportunities for the purchase of cooperative shares and residential property through residents in order to reinforce their interest in the quality of housing properties and the residential environment. The media, associations, clubs and private enterprise can also contribute to the improvement of the internal and external neighbourhood image through targeted public relation activities (representation 3. Topical focus 3: Schools and education within the neighbourhood 3.1. Review of current situation Education is a significant criterion for the integration of immigrants. In urban districts with a high proportion of households of low social status which fre- quently also contain a large proportion of immigrants, the educational and vocational success of children and young persons is frequently below the average level for the city or town. Alongside social problem complexes, it is factors such as lack of linguistic competence, the inadequate provision of household supply structures and lack of parental support in school issues which play a role here. A low standard of education leads, however, to disadvantages in social and cultural integration and also subsequent professional and employment opportunities. Poor educational 113

57 4.5. performance and a lack of school activities lead to the exodus of socio-economically better situated families from the neighbourhood who move to other areas in which better educational and career opportunities are available for their children. The result is the increased proportion of children from socially disadvantaged families and immigrant children in nursery schools and schools within disadvantaged urban districts. The immediate social environment has great significance for the development of children and young persons. The attractiveness of particular urban districts for a socially mixed population is therefore closely connected with favourable local educational opportunities. Alongside nursery schools, it is schools which are forced to take on the essential task of integration. The quality of educational establishments within the neighbourhood has a great influence on the future opportunities for the social advancement and participation of local children and young persons resident in the urban district. In addition to other local public and private permanent institutions and regular structures, it is schools which chiefly provide potential paths of communication for intercultural dialogue. Schools also have better access to children, young persons and their parents irrespective of ethnic or social origins and religious or confessional orientation than any other institutions. 114 The individual encouragement of pupils and also increased parental involvement and education are both necessary. Through the opening of schools and nursery schools to their local neighbourhoods ( neighbourhood schools and neighbourhood child day-care centres ), new educational locations will be created which can simultaneously encourage integration in their utilisation as locations for leisure activities and intercultural meeting points. All school types should be available within each neighbourhood and school closures should be avoided where possible. The vertical networking between federal states and local authorities should be optimised to increase the educational chances of success on the part of immigrants. Adequate language promotion for all children with or without a background of migration is already guaranteed from the nursery school stage onwards. If there is sufficient demand, tuition of native languages will be offered as second foreign languages. Multilingual school activities and intercultural schools will receive support. Integrated concepts for all-day education (all-day schools/ afternoon activities) will be developed which provide both support for school-related activities (e. g. remedial tuition and help with homework) and also leisure activities. The individual encouragement of children will also be undertaken by voluntary helpers (e. g. learning mentors in primary schools, learning support in individual subjects e. g. through secondary school children, mentors accompanying the transition period between school and career). The programme Districts with special development needs the socially integrative city also includes measures within the area of schools and education in local neighbourhoods. In addition to structural and investment measures, supplementary measures can receive support such as intercultural mediation processes in schools with a high proportion of immigrants where there is intercultural conflict. Here neighbourhood management can undertake a significant function. The Federal Government financing of the programme should be continued and sustained at current levels on a long-term basis. The possibility since 2006 of utilising funds within the framework of model projects including youth and educational policy measures (for example for the improvement of school and training final certificates or the supervision of young persons in leisure activities) should be extended to achieve the increased consolidation with other departmental policies. The Federal Government is planning an investment pact with federal states and local authorities which would also enable schools and child day-care centres in problematic urban areas to be converted to district schools and neighbourhood nursery schools. the federal states and local authorities (and/or within the regulatory responsibility of the federal states and local authorities) Material equipment and the staffing of educational institutions with an above-average proportion of children and young persons from immigrant families will be substantially improved. the Federal Government (and/or within the regulatory responsibility of the Federal Government) Educational facilities in disadvantaged urban districts must be given priority for targeted improvement measures, beginning with the early encouragement of young children in nursery school and pre-school institutions. This ranges from the provision of material facilities and members of staff to the quality of tuition. Schools and nursery schools must be transformed from teaching locations to living locations and develop contact to the immediate environment, i. e. to the urban district and its institutions and facilities. additional funding possibilities for model projects, can be utilised within disadvantaged urban neighbourhoods for the integration of immigrants. EU, federal state and local authority funding will also be utilised to complement Federal Government funds. Further training institutions such as adult education centres can also make a significant contribution to the range of educational courses offered within the local district Recommendations for measures (planned and agreed)/self-commitments/ investigations on the part of 3.2. Definition of objectives The intercultural orientation of schools and other educational institutions must be improved and a respect for all other countries and cultures be communicated. This requires the increased recruitment of immigrants and the intercultural training of all members of staff. The possible courses of action provided by the programme Socially integrative city, in particular More intensive parent education is provided, including language promotion concepts (e. g. language courses such as Mum is learning German ) and the extension of low-threshold parent activities (e. g. parent cafés). Information on courses of action and professional perspectives will be provided by advisory services. Educationally distanced parents can be reached through educational family and parent courses in the neighbourhood and through the targeted utilisation of mediators, particularly those of immigrant origin. Advisory services which are locally based and target specific groups (e. g. help with school problems, mobile social work) will receive support. Schools and child day-care centres will increase their accessibility to their local district: they will make their infrastructure generally available and become the spatial focal point as general meeting points for a comprehensive range of activities with the additional cooperation of other institutions within the neighbourhood such as youth centres or sports clubs. These institutions should be more intensely involved in local integration concepts in their role as educational institutions and be developed into neighbourhood schools and neighbourhood child day-care centres in order to 4.5. undertake the role as social institutions within the community (e. g. as family centres). This access to schools also means an extension of the responsibility and competence profile of the school, the headmaster/headmistress and members of staff for whom relevant resources such as extra time, strategic planning and financial aid must be provided. The partnership between schools and neighbourhood management will be intensified: schools have an important function as a multiplicator as the cooperation partner of the neighbourhood management (e. g. the gaining of support from parents, residents and pupils for neighbourhood projects and actions and in the participation in the neighbourhood culture and its development. The neighbourhood management can support schools in their cooperation within the urban district and thereby encourage their efforts to become accessible to the local area, for example in the involvement of school-external learning locations, the utilisation of school-eternal experts and competences and the development of projects with cooperation partners within the local area (public offices, social, child and youth welfare institutions, businesses and other institutions). Intercultural competence and therefore also the quality of tuition in schools with a high proportion of immigrants will be improved through the provision of a greater number of teaching staff with a background of migration and more intensive further training possibilities and intercultural training for nursery school staff and school teachers. The intercultural quality development will be integrated into the school profile and curriculum. Existing financial and personnel resources must be consolidated and utilised in a targeted manner. This necessitates the creation of a more intensive network between various political fields which are relevant to families and children, in particular social, family, education and integration politics. The socio-environmental situation and the development of educational success in individual urban districts will be incorporated into local authority educational reports and evaluations. non-governmental institutions and organisations and private enterprise Immigrants and their organisations, churches and religious communities will undertake multiplicator functions and will support the cooperation of educational establishments and children, young 115

58 4.5. persons and parents within the neighbourhood. They will act as integration scouts and mediators and will communicate the significance of education for children s future prospects. Immigrant organisations and religious communities will offer language courses in the appropriate native languages. Immigrants will participate more frequently in parents associations. All neighbourhood residents will be urged to undertake voluntary commitments (e. g. as reading mentors). The member organisations of the Federal Association for Non-Statutory Welfare (BAGFW) made the following recommendations for self-commitments after completion of the work on this report: 4. Topical focus 4: Local economy 4.1. Review of current situation The term local economy is used to describe the economic activities within the development of a community or urban district. The significance of this development is steadily increasing. Employment and qualification deficits, the decline of local economic and service structures and a diminishing range of local training places and jobs are some of the major problems in disadvantaged neighbourhoods. The consequence of a high unemployment rate within these areas is a loss in income and spending power on the part of its residents which in turn jeopardise the economic development of local businesses and enterprises. This also has a negative effect on the attractiveness of the district and intensifies a social downwards tendency. Local economic structures therefore represent a great potential for the stabilisation and upward revaluation of a neighbourhood. In particular, ethnic companies frequently not only contribute to local services as auxiliary and niche economies, but also make a substantial contribution to local employment and social integration. In 2003, there were 280,000 self-employed foreigners in Germany, and over one million persons were employed in foreign businesses. Shops and small-scale craftsmen s establishments act as information exchanges; contact with customers which also include Germans provides an intercultural meeting point. The chief potential of immigrant businesses lies in the strengthening of local trade and 116 The member organisations of the BAGFW will commit themselves to education and educational opportunities for children with a background of migration through encouragement projects in child day-care centres and other support programmes for families. The member organisations of the BAGFW will make efforts to guarantee a good quality of language promotion and the support of multilingualism for all children at the pre-school stage. The member organisations of the BAGFW will support the intercultural competence of their members of staff and the intercultural opening of their services and institutions. The member organisations of the BAGFW will ensure that their immigration services actively participate in the accompaniment of the educational progress of new immigrants. local service structures, the creation of jobs and training places, the extension of the range of local services offered and the utilisation of otherwise unoccupied business spaces. There are however also problems involved: the great readiness of immigrants to take up self-employment results to a certain extent from unemployment. Numerous small-scale businesses can only be maintained through extensive personal and family commitment and low income levels. There is frequently a lack of own capital, independent advisory services and perspectives for further economic development, further training and the provision of training places. These problems frequently lead to a high fluctuation in small-scale immigrant businesses and also insolvency. Employment policy measures and support for education, vocational training and professional qualifications must be implemented according to local demand. Special advisory services (including those targeting specific groups) and support measures are necessary to encourage small local businesses to be willing and authorised to provide vocational training places. Joint training networks and external training management have proved to be successful, as has the model of vocational training mentors in which experienced vocational instructors provide support and advice for business proprietors with a background of migration who wish to offer vocational training places in their businesses for the first time. All economic actors must be involved in neighbourhood development, for example through cooperation between local businesses, the Federal Employment Agency and Chambers of Industry and Commerce with local schools and youth institutions. Social economy businesses should receive targeted support; these are firms primarily offering services according to local demand which cannot be supplied by the market or within the public sector (e. g. home economic service agencies, school canteen services and local and culture cafés). These businesses can help to build up the social and cultural infrastructure, extend the local range of goods and personal, household and community services offered and can be a vital factor in the provision of new local jobs and training opportunities. For the successful implementation of local economic measures, local neighbourhood-oriented development concepts must be embedded in general community and regional economic strategies training, provide qualifications for job seekers and improve their chances on the labour market and also provide the relevant accompanying advisory and placement services, including those relevant to vocational training. This is intended as a qualitatively new form of business development which can provide services and opportunities on a differentiated spatial basis tailored to local requirements. For this reason, it is recommended that the programme is continued and sustained at current levels. The combination of this programme with other employment and qualification programmes should be intensified, also through the provision of supplementary funding by the European Social Fund in the new EU structural funding period 2007 to 2013 (in the currently expiring period, this form of consolidation has already been implemented, for example through the Federal Ministry for Family Affairs, Senior Citizens, Women and Youth programme Local Capital for Social Purposes LOS and the special Federal Ministry for Transport, Building and Urban Affairs programme Local employment, training and participation within the programmatic structure of the Socially integrated city scheme). The KfW (Reconstruction Loan Corporation) will increase the provision of small credits to provide support for local businesses and business start-ups and also risk cover for small businesses (including those run by proprietors with a background of migration). the federal states and local authorities (and/or within the regulatory responsibility of the federal states and local authorities) In disadvantaged urban neighbourhoods, the opportunities for action provided by the programme Socially integrated city, above all the increased availability of support within the framework of model projects, will be utilised for the integration of immigrants. EU, regional and local funding will complement the financing provided by the Federal Government. Increased support for the local economy will be provided by the allocation of funding and personnel resources (including interculturally trained personnel) to support local businesses, encouragement of local business start-ups, provision of advisory services tailored to existing needs (also for business start-ups and applications for funding), provision of information (also in other languages), support for the setting up of networks between local employers involving economically relevant institutions (business development, Chambers of Industry and Chambers of Crafts and job centres) and the provision of credit guarantees Definition of targets Business development is increasingly becoming oriented towards social-environmental aspects, for example the provision of support for the stabilisation of local business and trade structures including the ethnic economic sector in disadvantaged urban districts. The local and ethnic economy is also a relevant factor for the local business sector and therefore an important aspect of business development. For the creation of additional employment and business opportunities, new business start-ups must receive support and existing firms be stabilised. This includes better risk cover, advice in the compilation of a viable business plan and the availability of small-scale credit for small local businesses Recommendations for measures (planned and agreed)/self-commitments/ investigations on the part of the Federal Government (and/or within the regulatory responsibility of the Federal Government) The local economy is one of the fields of action in the federal-regional programme Districts with Special Development Needs the Socially Integrative City. The major targets of this programme which are embedded in the framework of integrated concepts for local action are to bring security and stability to local businesses, encourage new business start-ups, extend the range of opportunities of local employment and vocational 117

59 4.5. Supplementary measures include the target-groupspecific qualification of immigrants, in particular ethnic persons involved in business start-ups and targeted information regarding advisory services and training opportunities. Individual- and business-oriented support for employment and qualification of immigrants aims to provide effective and targeted placement within the labour market. Public relation activities will help to improve the image of local neighbourhoods as economic locations. The establishment of a data bank for the local and ethnic economy in urban districts will improve the status of information. Support for the ethnic economy will be integrated in communal integration policy. This will be followed by the harmonisation of courses of action and an exchange of information between relevant local administration departments, chambers of commerce and associations. Support for the employment and qualification of immigrants oriented towards both individuals and businesses will pursue the objective of an effective and accurate placement of these persons within the employment market. The intercultural competence and also quality of advisory services will be improved in local business development, employment agencies and working groups to increase awareness for the tasks as specified by the German Social Code II [SGB II) (ARGEN). Support for the local economy will be provided to target the creation of training places, additionally through the provision of advice and qualifications for business persons to increase their willingness to offer vocational training places, the initiation and encouragement of local training federations among smaller-scale businesses and the establishment of external management of vocational training. Local networks and cooperation projects in which local businesses are affiliated (e. g. business round tables, advertising alliances etc.) will receive support. Networks and cooperation measures will be set up and supported which link up public authorities, schools, youth institutions, local businesses, employment agencies, ARGEN and other actors (e. g. immigrant self-organisations, foreign business associations and immigrant media) to encourage the qualification and placement of young persons in practical work experience, training courses and the labour market. non-governmental institutions and organisations and private enterprise Credit institutes and foundations: provision of credits for local businesses; sensitisation of employees for the potential of the ethnic economy. Training opportunities provided by local businesses (both German- and foreign-owned). Locak business: participation in networks and cooperation projects. Housing associations: provision of business premises at favourable rates, e. g. specifically aimed at business start-ups. Chambers of commerce: advisory services which are tailored to needs and culturally sensitive (e. g. seminars for new business start-ups, advisory service for financing applications and opportunities of further training). undesirable developments within the evaluation process and permit relevant alterations to be undertaken. In contrast to the cause- and measure-related methods of previous years, the current transversal approach to integration has achieved greater success through regular evaluation and the updating of concepts and measures which is vital due to the wide range of actors involved and because of the increased focus on the effectivity of measures. For this reason, monitoring and evaluation should be established as integral and active elements of integration concepts. The control of integration activities requires qualified data which go beyond mere indicators and key figures. Communal and administrative statistics prior to 2005 only distinguished between Germans and foreign citizens. This differentiation which was made purely on the basis of nationality does however not convey the increased heterogeneity of persons with or without German nationality. Numerous Germans were for example born abroad and arrived in Germany as ethnic German resettlers. An increasing number of persons were born abroad and exercised their right to naturalisation. On the other hand, numerous persons are resident as foreign citizens in Germany who were born in the country and have no personal background of migration. The micro census of 2005 made it possible for the first time for the Federal Statistical Office to collect the data of persons with a background of migration; this included foreign citizens, immigrants, naturalised citizens and their offspring. Integration is a reciprocal process, i. e. both the willingness of immigrants to become integrated and integration support on the part of the host society must be counterbalanced. Immigrants must therefore be prepared to utilise training and qualification opportunities and participate in integration measures. 5 Topical focus 5: Indicators, monitoring and evaluation 5.1. Review of current situation Integration is an individual and subjective process which frequently takes place over a period of several generations. The success of integration policy on a local basis can however be established and evaluated. 118 Successful integration management requires criteria which go beyond subjective levels in order to measure the degree of immigrant integration within society. Evaluation and monitoring are vital instruments of quality management and political control procedures. These instruments permit for example the transparency and publicity of complex cause and effect relationships and the cost-benefit analysis of integration measures. This helps to indicate the suitability of strategies, concepts and projects, as it is possible to identify A strategic orientation of the integration process begins with an analysis of the current situation and/or historical development which should also be undertaken utilising the identical indicators and key data which are significant for the formulation of targets. The evaluation of collected data must avoid all forms of stigmatisation; for example, social problem complexes cannot necessarily be considered to be specific to immigrants. A background of migration is also not per se a characteristic which automatically signalises a need for support. Immigration quotas should therefore only provide a basis of information in connection with other indicators (e. g. educational success) Recommendations for measures (planned and agreed)/self-commitments/ investigations on the part of the Federal Government (and/or within the regulatory responsibility of the Federal Government) The collection of relevant data for groups of persons with a background of migration (census 2010). Within the framework of the programme Socially integrative city, monitoring and evaluation should be anchored as permanent elements of urban district development concepts which will be eligible for support, also from the aspect of integration measures. Intercommunication on monitoring and evaluation will be intensified for example via a central coordination point Definition of targets Within the framework of integration concepts, a system of continuous observation (monitoring) should be introduced on a long-term basis in local authorities. The purpose of this monitoring system is the measurement of the progress of integration through a comparison of opportunities and living conditions between the host society and immigrants in specifically defined sectors (e. g. education, work and habitation). The monitoring process will be carried out with the aid of uniformly defined statistical key data which can provide information on the status of integration in the appropriate host and/or urban society. Monitoring can additionally be utilised for the measurement of the achievement of integration policy targets, for the quality improvement of existing and future integration measures and the efficient utilisation of resources. Relevant data for groups of the population with a background of migration must be collected and made accessible on an area-wide basis. The indicators must be selected to ensure that data can be collected within a justifiable limit of additional effort the federal states and local authorities (and/or within the regulatory responsibility of the federal states and local authorities) A permanent reporting system will be built up on the basis of a nationwide statistical information system which enables statements to be produced on developments in specific areas, comparisons of developments in different areas and comparisons between individual districts and the entire local authority area. Within the framework of monitoring which covers all towns and cities, the degree of success or failure of the effects of implemented integration strategies and relevant measures (e. g. programmes to increase the language competence of resettlers) will be investigated on a long-term basis through local political and administration channels. Integration management will be supported by a control mechanism achieved through the con- 119

60 4.5. of migration of interviewees will be recorded. Additional quantitative data can also be collected which would communicate essential findings for the orientation of integration policy (e. g. satisfaction with one s personal situation, living conditions, employment market situation, evaluation of local social climate, social contacts between the host society and immigrant groups, the acceptance of local integration policy and its implementation). tinuous compilation of up-to-date information on requirements, services, effects and the utilisation of resources. Indicators will be established as an additional tool for the description of social reality on an objective level for the measurement of socio-political aims (such as social security, equal opportunities, welfare, sustainability and integration) as (qualitative) additional tools for the description of (social) reality (e. g. school leaving certificate quotas among different population groups); for the compilation of the cultural, economic and social potential of immigrants. The establishment of qualified data and key data will be performed through the collection of data on the group of persons with a background of migration, in particular through registration of address offices; the additional compilation of statistics from socio-environmental surveys (also in small local authorities integrated within districts) concerning persons with a background of migration according to the micro census 2005 and Further training opportunities will be created on a local basis within the areas of evaluation/ monitoring. non-governmental institutions and organisations and private enterprise Further training opportunities within the areas of evaluation/monitoring provided by scientific institutes and associations and The provision of data by various institutes, e. g. chambers of commerce. The member organisations of the Federal Association for Non-statutory Welfare (BAGFW) made the following recommendations for self-commitments after completion of the work on this report: 120 the extension of databases through local authority surveys of citizens in which the background The member organisations of the BAGFW will participate in monitoring in order to examine the achievement of integration targets Members Under supervision of: Federal Ministry for Transport, Building and Urban Affairs Dr. Engelbert Lütke Daldrup State Secretary in the Federal Ministry for Transport, Building and Urban Affairs Angelika Baestlein Federal Ministry for Transport, Building and Urban Affairs Benjamin Bloch Central Welfare Association for Jews in Germany Detlef Bröker Federal Office for Migration and Refugees Ergun Can Network of Municipal Officers of Turkish Origin Hubert Deittert, MdB German Federal Assembly Jean Claude Diallo Evangelical Regional Federation Frankfurt/Main Izabela Ebertowska Polish Social Council Archbishop Feofan Galinskij Russian Orthodox Church in Germany Thomas Hartmann Federal Ministry for Transport, Building and Urban Affairs Dr. Christoph Hauschild Federal Ministry of Internal Affairs Erhard Heintze Senator for Employment, Women, Health and Youth and Social Affairs of Bremen Angelika von Heinz Federal Ministry for Family Affairs, Senior Citizens, Women and Youth Manfred Hugo Chief administrative officer for the district of Osnabrück Dr. Andreas Kapphan Task Force of the Federal Government Commissioner for Migration, Refugees and Integration Tayfun Keltek Regional Working Group of Communal Immigrant Representatives in North RhineWestphalia Kristin Keßler Ministry of Economic Affairs for Baden-Württemberg Dr. Walter Kindermann Ministry of Social Affairs in Hesse Roxana Kolenda Federal Ministry for Transport, Building and Urban Affairs Gesine Kort-Weiher German Association of Towns and Cities Christine Krieg Federal Ministry for Transport, Building and Urban Affairs Christoph Kulenkampff Schader Foundation 121

61 Dr. Christian Lieberknecht German Federation of German Housing and Property Companies Michael Löher German Association for Public and Private Welfare Archpriest Apostolos Malamoussis Greek Orthodox Metropolis of Germany Ulrich Mohn German Association of Towns and Municipalities Nurten Özcelik Integration Council in Herne Rafet Öztürk Turkish-Islamic Union of the Institute of Religion Gari Pavkovic Integration Commissioner for the City of Stuttgart Dr. Franz-Georg Rips German Tenants Association Dr. Klaus Ritgen German County Association Dr. Peter Runkel Federal Ministry for Transport, Building and Urban Affairs Anton Rütten Ministry for Generations, Family, Women and Integration in North Rhine-Westphalia Giacomo Santalucia Comitato degli Italiani all Estero, Saarbrücken, and German-Italian Institute of Education and Culture Ulla-Kristina Schuleri-Hartje German Institute for Urban Science Wolf Schulgen Senate Department for Urban Development Berlin Frank Schulze Ministry of the Interior of Thuringia Prof. Dr. Wendelin Strubelt Federal Office for Building and Regional Planning Susanne Tatje City of Bielefeld, Demographic Development Planning Claudia Walther Bertelsmann Foundation Petra Weis, MdB German Federal Assembly Bernhard Wellmann Mayor of the Belm municipality Theresia Wunderlich German Caritas Association Kemal Yildirim Democratic Employers Association, Baden-Württemberg Oliver Zander Federation of German Building Industry 123

62 Topical area 6: 4.6. Culture and integration The working group Culture and Integration was constituted on 23 October 2006 and concluded its consultations after five sessions on 14 March This group chiefly focused on the topical areas of cultural education, cultural institutions, cultural and educational politics and administration and submits the following report for the National Integration Plan. Topical area: Living in cultural diversity strengthening of intercultural competence Culture is an essential fundament of communal life which connects people of different origins. Germany is a cultural nation which has developed within Europe and has also over the centuries been influenced by immigration. The Europe of today with its diversity and common values would be inconceivable without the centuries of cultural interaction across its borders and the continuous adoption of originally foreign cultural influences. German society is facing a task of integration which also involves cultural aspects. The reality of the immigrant society is also a cultural challenge dialogue permits understanding. For this reason, a commensurate attitude towards cultural diversity is an essential competence for the whole of our society. Integration includes the affirmation of cultural diversity. Successful integration requires a culture of tolerance and togetherness as a basis for Germans and immigrants 124 to encounter one another on the foundations of our constitutional values. Integration signifies involvement in the social, economic, intellectual-cultural and legal structure of the host country without, however, losing one s individual cultural identity. The cultural integration of immigrants is a reciprocal process. All sections of society are called upon to develop a greater willingness to cultural openmindedness. This in turn requires a clear social policy guideline which defines willingness for integration, self-assurance of one s own cultural identity and also respect for cultural diversity. Integration in a liberaldemocratic constitutional state requires the identification with the system of values of its constitution. The focus is on three topical areas: 1. Cultural education both within and outside state education institutions contributes significantly to the cultural integration of immigrants. 2. Cultural institutions are increasingly recognising the necessity of meeting the new social challenge and thereby making a contribution to cultural integration. 3. Politics on all levels must view cultural integration as a cross-departmental and transversal task. 125

63 Topical focus: Cultural education 1.1. Review of current situation The provision of cultural education whether in education, youth or cultural institutions will become the linchpin of cultural integration and therefore also a new major task. Cultural education is a key factor of integration, providing access to art and culture and social life per se. A good command of the German language is thereby a basic requisite for all forms of participation. Studies show that cultural education has a comprehensively favourable effect on learning behaviour. It also forms personality, trains social and moral awareness and thereby improves opportunities for the future. Access to art and culture should be extended: currently discussed reports on poverty indicate that poverty in this country is not primarily a material problem, but all too frequently the result of social and cultural exclusion and a lack of educational opportunities. As a consequence, social disintegration and decreasing social cohesion become more widespread. This development can be observed within the host society and also in the case of immigrants and is neither an ethnic nor a cultural problem, but a social problem. Today, family origins continue to be decisive for the access to cultural education. The focal point of efforts to achieve cultural integration lies in the improvement of the cultural education of children and young persons. Demographic developments draw attention to the fact that this is a decisive challenge for the future: around a fifth of all persons resident in Germany and one child in three under the age of six have a background of migration. In central urban areas, the figure for children and young persons is over 40 per cent. Privileged locations for cultural education are in this case educational establishments; this is where the greatest opportunities are given. Education in early childhood in child day-care institutions sets the course for the future and is from an economic point of view the most expedient investment, but social and financial barriers and the lack of universal attendance in these institutions mean that not all children attend these institutions. The free attendance of child daycare institutions and nursery schools would help to dismantle these barriers and would additionally offer access to cultural education for children from educationally distanced social levels. Nursery school teachers should be made more aware of the opportunities of cultural education and receive relevant training. Schools can address young persons from all sections of the population. All-day schools can offer even greater opportunities. Through the pupils, access to 126 parents is also possible. Cultural education is part of the school curriculum and is a standard element of the compulsory school programme. The reality is however disillusioning: for example, according to current estimations, 70 to 80 per cent of music lessons in primary schools are either given by teachers specialising in other subjects or are not provided at all (Source: Prof. Dr. Ortwin Nimczik, Music in General Education Schools, German Music Information Centre, Bonn). Additionally, Music is the subject in which the greatest deficits can be found in teacher training courses although music would be the ideal medium to overcome cultural, political and linguistic barriers. Within and beyond state education institutions, there is an abundance of excellent projects for cultural education and integration; for example, the valuable opportunities provided by youth institutions and organisations. The Child and Youth Services Act (KJHG) (SGB VIII [German Social Code]) stipulates that cultural education is one of the key elements of youth welfare. Numerous initiatives have a model character and provide motivation for innovative developments. These should form the basis for action concepts which can develop nationwide effectiveness. Cultural institutions are faced with a great challenge; their strategic self-interest and social responsibility necessitate the setting of a course to win over the public of tomorrow for today. Although these institutions are increasingly turning to cultural education and increasing cultural educational activities intended as communication and leisure activities, there is as yet no well-established nationwide action. Unsatisfied demand must be identified and accessibility barriers dismantled to enable greater participation. The culturally educational activities of cultural institutions should particularly focus on children, young persons and adults with a background of migration as specific target groups Definition of targets Cultural education is a task for all existing structures within the educational and cultural system. Common experiences and common actions encourage the formation of a community between immigrants and native residents and strengthen social and emotional cohesion. If practical and feasible, cultural education projects should also be implemented specifically in heterogeneous groups to achieve an integrative effect. Here all generations are addressed, but the focal point should be on children and young persons education for the very young both before and during the nursery school stage is of vital importance. The involvement of parents is a favourable approach. The effects of project activity in child day-care centres and schools are frequently also communicated to the parents; this posi- tive effect should be better utilised. Schools are the privileged locations of cultural education and shape the educational biography of children and young persons: for this reason, cultural education should be firmly anchored by the federal states in their curricula and also implemented. Compulsory school attendance ensures that those most in need are targeted as it is precisely those persons who frequently do not utilise voluntary opportunities. All-day schools can provide more time, space and new potential for cultural education and integration. Individual active artistic activity must form the focal point of cultural education. This strengthens individual identity, personality, social cohesion and intelligence and communicates enjoyment. The socio-educational aspect of individual artistic activity has a particular significance for children and young persons; it creates a sense of achievement, brings recognition and supplants experiences of failure and inadequacy. Paradigms and a sense of achievement are produced through good team work. The active reception of art also provides vital opportunities for exposure to art and culture. Children and young persons who have contact with works of art and/or perform artistic activities learn to understand visual art, train their aural skills and acquire reading ability. The further professionalisation of cultural education which is at present frequently carried out on a voluntary basis will provide the basis for successful activity. The federal states should undertake a greater effort to provide training and further training in cultural subject areas for nursery school and school teachers. In all child day-care centres and other educational establishments, professional staff should be employed who not only possess advanced specialised qualifications, but have also received specialised training to enable them to respond to the cultural background of immigrants and attend to their linguistic needs. Language promotion is an implicit aim of cultural education: all institutions and members of teaching staff involved in cultural education should view this area as an essential task in the encouragement of integration. Local authorities should create opportunities for intercommunication and contact among teaching staff, artists and cultural and cultural education institutions with the aim of transferring knowledge, creating networks and providing reciprocal stimulation and cooperation. Cultural education touches on the areas of cultural, educational and youth politics. The responsible actors within the relevant political fields must aim to strengthen cross-departmental networking and cooperation on all federal levels A review of the current situation is necessary on Federal Government, federal state and local authority levels with the aid of analyses, data collection and the definition of quality standards through evaluation. Federal Government, federal states and local authorities should utilise individual measures and model projects to develop superordinate general strategies for culture and cultural education policies. The target is the systematisation of cultural education in order to be able to guarantee widespread effects, sustainability and a sustainable structural anchoring within the educational system and the cultural sector. The transfer of innovative individual projects must lead to quantitatively und qualitatively significant results. Cultural education and integration require continuity. Project activities frequently produce good results, but break off when success becomes visible and trust has been built up. In the interests of sustainability and quality, the Federal Government, federal states and local authorities should secure the financial basis of cultural education Measures Against the background of the definition of targets, the relevant actors commit themselves to the following measures, self-commitments and inspection procedures: Federal Government Within its area of responsibility, the Federal Government will continue to incorporate future issues concerning the integration of children and young persons with a background of migration in its own support for cultural education, including the following targets: incorporation of integration aspects in the support of all appropriate cultural education projects; reviews of the current situation and empirical investigations on the integration of children and young persons with a background of migration in specific areas of cultural education (e. g. performing arts, dance and visual arts); development and evaluation of specific cultural and artistic work forms for the integration of children, young persons and adults (e. g. art schools for young persons, music schools, development of computer clubs); reinforcement of cultural education in conjunction with the development of all-day school activity programmes; 127

64 4.6. awards for model cultural education projects, prizes and financial support for the continuation of these measures. Berlin, the House of World Cultures in Berlin and the German Emigration Centre in Bremerhaven. Other projects are in preparation, for example at the Rhenish Industrial Museum in Oberhausen. The international cultural and artistic projects run by the House of World Cultures enables a trialogue between the original cultures of immigrants resident in Germany, their own communities and the German majority culture. The State Museums of the Foundation for Prussian Heritage (SPK) are devoting themselves to the principal regions of origin of immigrants. For this reason, the Federal Government Commissioner for Culture and Media (BKM) will take the initiative and recommend the establishment of a working group Museum Migration Culture Integration before the International Council of Museums (ICOM). This working group will aim to exchange information, plan or arrange joint exhibitions and produce educational museum programmes which are directly aimed at resident immigrants in Germany. The Federal Government is examining the possibility of the creation of a large-scale Network for cultural education and integration in cooperation with the federal states and local authorities to improve collaboration between federal, regional and local educational, youth and cultural institutions. The aim is the creation of a network between the political fields of cultural, educational and youth affairs in order to improve the transfer of know-how and the intercommunication of information on strategies, concepts and working approaches between the relevant institutions. With immediate effect, the Federal Government will provide support up to the year 2009 for cultural education in conjunction with the development of all-day school programmes within the framework of the investment programme Education and child care future and the accompanying programme implemented by the German Children and Youth Foundation. Within its sphere of responsibility for art and culture, the Federal Government will work towards the intensification of its cultural educational activities with a particular emphasis on the cultural integration of immigrants and/or the creation of new projects targeting this area. This will have a particular focus on projects within the framework of the European Year of Intercultural Dialogue The German Cultural Foundation of the Federation supported by the Federal Government has established a new focal point in cultural education which will in future accommodate integration concepts in numerous projects (e. g. the project JEKI Jedem Kind ein Instrument [an instrument for every child] which will be jointly financed by the federal state of North Rhine-Westphalia and private sponsors). This exemplary project is recommended as a model for imitation. The Federal Government has recommended that the Institute for Museum Research which is part of the Foundation Prussian Heritage and receives federal funding should undertake a survey in the over 6,000 museums throughout Germany on the topic of cultural education, including aspects of integration: the results of this survey should be submitted in November A substantial number of museums and exhibitions have presented immigration processes within and to Europe, for example the Haus der Geschichte (historical museum of the Federal Republic of Germany) in Bonn, the Historical Museum in The Federal Government will provide support for the project Art-code which has been set up to develop, test and evaluate model intercultural projects in young persons art schools and cultural educational institutions. The Federal Government will support the project Come-in intercultural learning via computerbased projects in schools with particular consideration of children and adults with a background of migration up to the year The Federal Government will initiate a national review of the current situation in theatre activities involving children and young persons with the focus on children and young persons with a background of migration. Federal states and local authorities The ministers for cultural affairs will undertake extensive efforts in the budget discussions within their federal states to urge for non-allocated funding to be utilised for improvements in education and thereby also for cultural education. The working group recommends that the federal states create and support concepts which strengthen artistic and cultural education on the topical areas of humanitarianism, democracy and intercultural respect in both formal and informal education. The Standing Conference of Ministers for Education should support the federal states in the further development of cultural education, the further creation of quality standards and recommendations for further action within the area of cultural education competence and test new models to reach local actors, in particular nursery school and school teachers, parents and grandparents (e. g. communication networks such as a nationwide teachers club). The foundation will also increase its utilisation of media used by children and young persons to promote reading support. New projects include: The working group recommends that the federal states employ all possible measures to counteract the cancellation of classes in artistic subjects and thereby permit the agreed standards of cultural education anchored in school curricula to become reality. The working group recommends that federal states and local authorities request schools to incorporate artistic-cultural institutions and activities such as visits to museums, exhibitions, theatre and artistic facilities more intensely into their school programme. Schools should be motivated to present schoolexternal places of learning from the aspect of cultural diversity and implement projects which encourage the cultural and artistic abilities of children and young persons in the spirit of humanitarianism and democracy. The working group recommends that federal states and local authorities encourage school-external youth institutions and artists (also those with a background of migration) to approach schools with artistic-cultural projects and cooperate in joint projects. Germany a house of cultures : foreign citizens tell their stories in Germany. The German Association of Young Russians will initiate a network of practical immigration youth activities in cooperation with museums. The German Association of Young Russians is planning a nationwide action for the involvement of individual initiatives within the field of the cultural activities of immigrants from Russia, the Ukraine, Kazakhstan, Uzbekistan, etc. in existing cultural and youth networks. The project has the following aims: The reading foundation Stiftung Lesen will extend its measures for reading support as a key supervision of children with a focal point on language promotion through voluntary helpers with intercultural competence for reading aloud and reading and media clubs for children and young persons; The working group welcomes the cultural educational activities of the Cultural Foundation of the Federal States (e. g. Children to Olympus ) and urges the federal states to provide support for further activities. The Cultural Foundation of the Federal States possesses a relevant database including practical examples of cooperation projects between schools and the cultural sector. This database is planned to be continued up to September 2007 to form a data bank for projects Integration through cultural education. The Herbert Quandt Foundation will increase its provision of support for schools in Berlin and Hesse within the competition Schools in trialogue. This support initiative should encourage and accompany schools and teacher trainees in the acquiring of long-term competence in issues concerning European identity and cultural pluralism. Chief targets are exemplary local school developments and a well-grounded examination of questions of faith. The federal states are urged to incorporate the history of immigration in Germany and Europe to a greater extent in their curricula in order to communicate to both immigrants and the host society knowledge of successful integration processes as an element of our own cultural heritage. Non-governmental institutions and organisations Reading start for young families: reader (aloud) book for foreign parents and children for learning German together; The working group requests the federal states to take greater consideration in the training and further training of teaching staff within the areas of youth welfare, cultural subjects and sports from the aspect of competence in the communication of artistic-cultural education as a foundation for the social integration of children and young persons with a background of migration. The federal states are requested to allocate more lesson time to the cultural achievement of immigrants both on the basis of textbooks and their presence in schools, also as mediators and role models. participation of people with a background of migration involved in culture and the arts in the cultural world of the Federal Republic of Germany: exhibitions by young artists, concerts by young talented musicians, readings by young authors, etc.; seminars given by immigrant creative artists, e. g. dance directors, choir masters or seminars with the directors of artists groups. The Pop Academy Mannheim is extending its successful projects Pop Circus and School of Rock and further world music and pop music projects in schools including those in socially disadvantaged areas. The aim is to encourage talents among 129

65 4.6. children and young persons from families with a background of migration. The Pop Academy Mannheim will cooperate with the Federal Office for Political Education to provide training and further training opportunities for education multiplicators within the areas of cultural education, in particular pop music and world music through the communication of competences, new ideas and creativity. 2. Topical focus: Cultural institutions 2.1. Review of current situation The cultural barometer study published in 2005 by the Centre for Cultural Research in Bonn confirms that it is virtually impossible to reach young persons with the range of activities currently offered by established cultural institutions (94 per cent of under 25-year-olds have not visited performances of opera, ballet or classical concerts during the past year). (BKM) The Institute for Museum Research affiliated to the State Museums in Berlin showed in its general survey on museums in the Federal Republic of Germany carried out in 2004 that it was necessary to address immigrants more than any other target group (3154 museums held special exhibitions and 308 of these institutions quoted foreign citizens as a specific target group). (SPK) Young persons with a background of migration represent the potential public of the future and must be won over as the generation of new and renewable demand is a task for the future for classical cultural institutions. Within this context, these institutions must become increasingly accessible on a targeted intercultural level. What has in the meantime long proved to be a success factor in internationally operating businesses still has to become reality in numerous institutions and organisations: intercultural opening in self-conception, in the content of programmes, in the organisational bodies and also in members of staff. Immigrants are rare in the well-established areas of culture. They are under-represented both in audiences and on stage in their own artistic activities. Immigrant cultural organisations must also participate more intensely in cultural life and become more accessible to German society. Intercultural cultural activity is largely confined within the sectors of music, socio-culture and cultural education, whereas literature, the fine arts and film/ video are rarely considered as appealing fields of 130 In 2008, the German-Turkish Forum Stuttgart will extend its successful outreach model project in which students supervise immigrant children in order to achieve personal contact and provide orientation. The Forum Stuttgart will extend the successful cooperation with established classical cultural institutions and foreign cultural associations. activity for immigrants. The predominating cultural institutions which, according to local cultural administrations, possess a particular intercultural affinity are adult education centres, libraries, sociocultural centres and immigrant associations. Theatres, opera houses und museums and frequently also music schools and art schools for young persons tend, however, to be considered as institutions distanced to foreigners. To break down financial, language and social barriers, the access of new target groups to cultural institutions should be made easier, for example through free entrance for children and young persons, which can subsequently also motivate parents to visit the same institutions. As an example, the Foundation of Prussian Heritage has not experienced financial losses despite its policy of free entrance for children and young persons under the age of Measures Measures on the part of the Federal Government, federal states and local authorities 2.2. Definition of targets Cultural institutions should recognise intercultural dialogue as a topical focus. Since the majority of these institutions receive public financing, this focus would fulfil their inherent joint social responsibility. The inclusion of immigrant cultures in the programmes of classical, well-established cultural institutions can play a significant role here and can encourage intercommunication and integration and also break down barriers. There will be an increased recognition of immigrant cultures which will in turn provide the cultural institutions with new creative impulses. The programmes, public relation activities and personnel policies of cultural institutions are frequently a representation of local intercultural diversity. Integration should become an interdisciplinary topic for cultural institutions. In order to meet these new challenges, cultural institutions require intercultural competence on all levels, above all through the qualifications of their members of staff. Intercultural opening should be an element in the organisational development processes of cultural institutions. The activation of demand is a significant issue for cultural institutions. Children and young persons should be a special target group and also be personally addressed. This necessitates new forms of cooperation for example the cooperation with educational institutions and the utilisation of new media. The cooperation with schools should be a matter of course for all cultural institutions and visits to cultural institutions an integral part of school timetables. Addition particular forms of public relations targeting different ethnic user and production groups and further important topics such as cultural sponsoring, cultural marketing and project management. The programme, which begins in May 2007, is focused on integrative-oriented artistic projects taking place within the region of the cultural capital city and is focused on actors involved in local authority and independent cultural management and also artists. ally, programmes such as Youth in museums are also advisable. Outreach models (e. g. students supervise immigrant children) have also been successful. The Federal Government, federal states and local authorities will encourage the recipients of their financial aid to develop policy guidelines, organisational targets and concepts for integration and intercultural opening and establish corresponding measures for the institutions personnel policy. The working group welcomes the qualification programme Art and cultural management in intercultural dialogue in the federal state of North RhineWestphalia. The conceptual development for a new structural focal project undertaken by the special department of the State Chancellery of North Rhine-Westphalia for a qualification programme Art and cultural management in intercultural dialogue was recently concluded and will focus on 3. Topical focus: Integration as an interdisciplinary topic within cultural policy and cultural administration Measures on the part of non-governmental institutions and organisations The working group recommends that cultural institutions develop self-commitments and quality standards within the areas of cultural education and integration and also intercultural competences in which sustainability should be a central issue. Particularly exemplary institutions aim to set up a joint competence association for integration and publicise their recommendations of best practice examples for imitation. The German Association of Young Russians will develop a range of seminars to achieve professionalisation and an increase in competence on the part of immigrants in the area of cultural management and fund-raising through qualification and further training measures. Following the initiative on the part of the Robert Bosch Foundation, the Association of German Foundations has established a working group Integration of immigrants in order to provide a focal point for this topic which also includes cultural fields. grant females, the responsibility is frequently divided between the regulatory authorities, social welfare, housing, culture and youth welfare services. The last few years have seen an increase in the awareness of intercultural developments, but this has not been accompanied by a growth in activity within the fields of politics and relevant spheres of action Review of current situation Intercultural cultural and educational policy and activities are primarily a concern of larger towns and cities. The foundations of intercultural cultural and educational politics and activities, however, frequently leave a lot to be desired. Less than a fifth of the local authorities questioned within the framework of the study Cultural locations as places of learning for intercultural competence have access to relevant conceptual fundamentals. There is a lack of consolidation and a clear definition of responsibility. In the case of cultural activities offered for young immi- Targeted support for interculturally oriented cultural institutions takes place to a large extent within large cities (> 80 per cent), but over a third of smaller towns have displayed their financial commitment. Within the process of budget consolidation, these funds are frequently in danger of being axed without any possibility of substitution: counteraction is necessary. Local authority intercultural cultural activities are primarily of a socially-integrative nature (development of tolerance and language competence). Only then this is followed by more artistically/culturally 131

66 4.6. oriented objectives such as making acquaintance with other cultures or the development of individual artistic forms of expression. An institutionalised local authority quality guarantee and further training in issues concerned with intercultural cultural and educational policy and activities are still at an early stage. Here, larger cities can also act as role models. Intercultural practice more developed than the political discussion on the subject and the relevant orientation on the part of local cultural administration, whereby intercultural cultural activities are principally viewed as being interdisciplinary tasks. The flow of information, transfer of competence and cooperation and synergy effects between the supply and demand areas e. g. between museums and schools must be improved. Network and coordination points are necessary for the efficient utilisation of the limited funds available. tural policy as these organisations are vital cooperation partners in cultural administration Measures Measures on the part of the Federal Government 3.2. Definition of targets Integration in cultural administration must become a cross-departmental transversal task. The process can only function if financing and administration are conceived and implemented on a cross-departmental basis. An effective network, the consolidation of resources and a clear administrative structure are necessary for example under the auspices of cultural offices in the case of the overlapping of departmental responsibility. It is also necessary to provide a better network for all activities in order to utilise the synergy effects between support programmes. The greatest success is achieved where there is a clear political commitment to integration, and this task is classified as having top priority in the upper regions of administration. The securing of public and private support structures and budgets for cultural integration measures is vital as sustainability and quality cannot otherwise be guaranteed. Policy guidelines, organisation targets and concepts for integration and intercultural opening should be developed in cultural administration and relevant personnel development measures envisaged. The qualification for intercultural dialogue is also a fundamental competence of cultural administration as this is the sole channel for the active implementation of integration. Cooperation between cultural institutions and cultural and education policy must be intensified and political recommendations for the improvement of integration within cultural fields should be jointly formulated. Immigrant self-organisations and immigrant cultural associations should have a higher profile within cul- 132 The Federal Government will establish an interministerial working group Culture and Integration which will deal with this issue as a crossdepartmental transversal task. The governmental departments responsible for cultural policy (BKM), education policy (BMBF), youth policy (BMFSFJ), integration policy (BK) and cultural policy abroad (AA) will be involved. The Federal Government will incorporate the issues surrounding integration in its fundamental development programme and take these aims into consideration in its supporting function for cultural projects (for example Initiative music ). Within the framework of the biannual GermanFrench Ministerial Councils and the European Year of Intercultural Dialogue 2008, the Federal Government will particularly cultivate the exchange of experiences and governmental cooperation with France and Great Britain to compile information on cultural policy measures and the contribution of artistic and cultural fields to the integration of immigrants. On 14 March 2006, the German-French Ministerial Council agreed on a permanent Integration offensive in which the Federal Government will also participate in cultural projects. Wherever possible, the Federal Government will ensure the appropriate consideration of persons with a background of migration in the appointment of senior posts, in the personnel sector and in the compilation of advisory bodies, committees and juries within its sphere of responsibility. In the implementation of the UNESCO convention of cultural diversity, the Federal Government will examine necessary alterations in the legal framework and hereby take into consideration the aim of more intense intercultural opening. Measures on the part of the federal states and local authorities Recommendations will be made to the federal states and local authorities on the development of comprehensive integration concepts and the encouragement of cultural integration projects, whereby as is already the case in several federal states and local authorities an advisory committee consisting of immigrants should be established to provide advice on integration issues. Persons with a background of migration involved in administration can play a vital mediatory role. The federal states will be encouraged to undertake an initiating, supervisory and mediatory function within the field of integration according to the example of North Rhine-Westphalia which demonstrates the significance of integration in politics and administration. This is visible in structures (Ministry for Integration, special cultural integration department in the State Chancellery and the inter-ministerial Working Group for Integration), the provision of support and in model projects: for example the Internet portal a network forum for intercultural dialogue aimed at persons engaged in the cultural sector and institutions. Intercultural communal concept for action : six local authorities in North Rhine-Westphalia (Arnsberg, Castrop-Rauxel, Dortmund, Essen, Hagen und Hamm) are participating as pilot towns for the conceptual development of the sustainable artistic and cultural integration of persons with a background of migration with the aim of achieving cultural participation. An accompanying publication will be produced in the early summer of 2007, which will provide instructions for the transfer of this project and European equivalents. Intercultural communal data research concept : data processing and statistics on persons with a background of migration. Route of Migration NRW. Regional programme School and culture to be considered include: the planning of activities, participation structures, public awareness, support measures, personnel policy, public relations and integration. Sustainable political security and commitment must be guaranteed through relevant decisions on a local political level. The regular examination of these measures should ensure that deficits established in the review of the current situation are measurably reduced. Measures on the part of non-governmental institutions and organisations The working group calls upon larger cultural associations to intensify their cooperation on the topical area of integration and therefore increase the flow of information and the extension of expertise and advisory services. The German Cultural Council will submit a statement on the topic of intercultural education with concrete demands on political levels (Federal Government, federal states and local authorities) in 2007, it will additionally anchor the topic in debates between the relevant associations and as a transversal topic in statements and positions. The Cultural Political Society is planning an Intercultural support programme for the year 2007, which will provide systematic support and further development of innovative, integrative intercultural cultural projects. The Cultural Political Society is planning the implementation of the project Intercultural qualification and concept development, which will target the academic qualification of the corresponding area of practice and the systematic further training of responsible actors in political and social fields. Elements for an intercultural curriculum will be developed with the aid of a special range of workshops, advisory services, seminars and conferences; this is aimed at the provision of an improved range of activities offered by independent and local authority cultural institutions and additionally as orientation for the responsible cultural policies in towns, federal states and the Federal Government. The Cultural Political Society is planning the establishment of an Intercultural network. The intercultural scene possesses great diversity, but lacks a clear structure and is in need of a central organisational and developmental body which can oversee, communicate, coordinate and further develop the diverse range of activities. The aim of the Intercultural network is to undertake research on the major civil society actors within the area of intercultural activity and organise their integration. The federal states are responsible for the incorporation of intercultural cultural policy as a natural element of regional and local politics. Local authorities should collect relevant data which is lacking on the cultural participation of immigrants (example: the Communal intercultural concept for action which will be published in the spring of 2007 will contain a comparative data basis from six towns in North RhineWestphalia). The Local Authority Associations are currently involved in discussion and will submit their recommendations at a later date. The working group recommends the review of the current situation and the development of concepts for integration and for implementation strategies for a long-term provision for immigrants on the part of local authority cultural administrations. The topics 133

67 Members Under supervision of: Federal Government Commissioner for Culture and Media 134 Prof. Dr. Hermann Schäfer Department Head of the Federal Government Commissioner for Culture and Media, German Chancellery Office Hortensia Völckers Cultural Foundation of the Federal States, artistic director Prof. Dr. Günther Schauerte Foundation Prussian Heritage/State Museums, Berlin Dr. Bernd M. Scherer House of World Cultures, Artistic Director Thomas Krüger State Office for Political Education, President Prof. Dr. Max Fuchs German Culture Council, Chairman Isabel Pfeiffer-Poensgen Cultural Foundation of the Federal States, General Secretary Dr. Albert Graf von Kalnein Herbert Quandt Foundation Thomas Kufen Integration Commissioner for North Rhine-Westphalia Klaus Hebborn Deputy of German Association of Towns and Cities, Department of Education, Culture and Sports Manfred Willhöft German County Association Dr. Albert Schmid Federal Office for Migration and Refugees, President Katrin Hirseland Federal Office for Migration and Refugees, Dept. 310 Integration programme, Fundamental Issues Concerning Integration Support, Head of Division Ernst Strohmaier German Association for Russian Youths Dr. Gisela Steffens Federal Ministry for Education and Research, Dept. 326, Cultural Education Katharina Schöllgen Federal Ministry for Family Affairs, Senior Citizens, Frauen and Youth Affairs, Dept. 406 Professor Udo Dahmen Pop Academy Baden-Württemberg, Artistic Director and General Manager, Vicepresident of German Music Heidi Schumacher Standing Conference of Ministers of Education in the Federal Republic of Germany, Ministry for Education, Sciences, Youth Affairs and Culture Rhineland-Palatinate, head of general cultural heritage Dieter Berg Robert Bosch Foundation, Chairman of General Management Rolf Pitsch M.A. Reading Foundation, Chairman of the Board Karin Babbe Erika Mann primary school, Berlin, headmistress Jale Yoldas German-Turkish Forum Stuttgart, executive director Ayşegül Arslanoğlu Learning Workshop, nursery schools in City of Berlin Dorothea Fohrbeck Task force of Federal Government for Migration, Refugees and Integration, Head of Department 135

68 Topical area 7: 4.7. Integration through sports utilise potential, increase activities, extend networks 1. Structural and personnel requirements for the utilisation of sports as a motor for integration 1.1. Review of current situation Approximately 27 million members are organised within the umbrella organisation of the German Olympic Sports Federation (DOSB) with over 90,000 clubs and associations, making this organisation one of the largest communities in Germany which also reflects the great diversity of our society. In addition to sports organised in clubs and associations, selforganised sports have also gained significance during the last few years. Parks, streets and public spaces are utilised for sporting activities. Local sports activities have also been extended and commercial sports activities (e. g. work-out gyms) have experienced a steady increase in their membership. Sport offers a wide range of activities which are universally accessible regardless of individual personal, cultural or financial situations. Fair play and equal opportunities are encouraged in all types of sports through internationally recognised rules and regulations. Sporting activities fulfil the human need for comparison and also encourage the active and physically-oriented development of personality. Participation in team sports can encourage the development of 136 team spirit which is not necessarily generated within the spheres of everyday life. These positive effects of sporting activity are universally recognised. Accordingly, sports have received substantial support from the Federal government, federal states and local authorities for many years. This support has been chiefly allocated for organised sporting activities in clubs and associations. These organisations provide opportunities for participation and personal development and thereby undertake an essential function for the stabilisation of our society. Federal states and local authorities support sports clubs and associations through the provision of sport facilities and a range of community-oriented projects. The Federal Government s support for the programme Integration through sports since 1989 underlines the ideal platform provided by sports for bringing together persons of different origins. Nowadays, it is rare for sports clubs or associations not to have any members either with a personal background of migration or parents and/or grandparents who were not born in Germany. Sports clubs and federations have as a matter of course made a substantial contribution to the integration of persons with a background of migration. Not all sports associations are affected to the same degree by immigration: according to the report on developments in sport 137

69 /2006 undertaken by the Federal Institute for Sports Sciences (summary in enclosure 1), a figure of below 30 per cent of all large associations observes the consequences of immigration, but for small associations offering a limited number of sporting activities and medium-sized associations the corresponding figure is between ten and 15 per cent. The growing proportion of immigrants in the population is, however, underestimated by ca. 28 per cent of sports clubs (in particular small associations offering a limited number of activities). These associations must become increasingly prepared for the increase in immigration as a central change taking place within society. Awareness of sporting activities offers opportunities for integration for persons with a background of migration on the following levels: Social integration can take place through sporting activities in which persons of different ethnic origin come into contact with each other, establish social relationships and thereby create social links. Cultural integration takes place in the communication of cultural techniques such as the acquiring of language and the acquisition of culturally hued social normality patterns such as behaviour patterns in everyday situations. Sports clubs and associations do not only provide locations for sporting activities, but also for everyday communication, which offers opportunities for reciprocal intercultural learning. Everyday political integration is also evident in sports associations through democratic participation and voluntary, community-oriented civic commitment. These associations can therefore also function as schools of democracy in that the participation in the life and politics of these associations can develop general democratic processes and values which find use over and beyond the confines of sports clubs. Some of these integration opportunities are taken up as a matter of course during everyday sports association activities, whereas others require additional funding and support for their implementation. Sports clubs and associations are greatly heterogeneous, making it difficult to consolidate general advice on the achievement of successful integration. Nevertheless, certain framework requirements can be mentioned which have evolved from the experiences of sports associations and have been proved to be beneficial for the integration of immigrants: Development of target-group-oriented activitiesi Integration concepts in sports federations and clubs must be target-group-oriented. On the basis of experiences in previous and current projects and with the involvement of immigrants themselves, it can be established that sporting activities must be offered which are particularly attractive to this target group and correspond to their sporting socialisation. These 138 activities must be oriented towards the current social, cultural, linguistic and local needs of the target group. Open sporting activities have a particular significance: low-threshold activities without the immediate affiliation to a club provide a good starting point for immigrants who are unfamiliar with the German club system. The development of suitable activities for specific target-groups plays an especially significant role for young women and girls with a background of migration. Although relevant data are not available, current investigations indicate that girls with a background of migration are significantly less involved in (organised) sport than is the case with their male counterparts. It can, however, not be inferred that they have less interest in sporting activities: an interest in participation does exist. Experience shows, however, that these persons can only be targeted through personal channels and only take up opportunities provided if whole families are addressed. This is supplemented by the necessity of particular requirements to permit the participation of women and girls from Muslim cultural groups such as single-sex sport groups, separate shower and changing facilities, female instructors and sports clothing which conforms to religious specifications. Creation of sustainable activities The integration processes taking place in and with (organised) sport must be conceived on a long-term and sustainable basis. Support for intercultural mediators Integration in sports associations should always be carried out in cooperation with immigrants themselves. Committed individuals are necessary who can mediate between the German club/association structure and the cultural background of immigrants and be accepted by both parties. Close cooperation with immigrant associations (e. g. cultural or religious associations) offers the possibility of reaching immigrants to increase awareness for the significance of sports. Integration is a reciprocal process It is vital that prejudices and xenophobia among the general (German) population are overcome, but immigrants must also be willing to exhibit openness towards society. Integration can only be additionally successful over and beyond sports clubs and their training and competition fields if both native and immigrant populations perceive each other as a reciprocal enrichment Definition of targets Organised sporting activities are striving to increase efforts towards the intercultural opening of sports associations. On an individual association level, a greater reciprocal interest and understanding for each other should be developed. This is also particularly applicable for associations with an already high concentration of a particular immigrant group (specific ethnic sports clubs). Efforts must be undertaken to make these associations accessible to all population groups according to German regulations for clubs and associations. Additionally, the integration of immigrants in the constitutive structures of sports associations and clubs must be improved which will in turn have a corresponding effect in society in general. All efforts must take the aspect of gender into particular consideration. Supplementary target group-specific activities must be developed which aim towards the (non-)existent sport socialisation of women and girls with a background of migration and directly approach the social and cultural environment of these target groups. To achieve this aim, measures should be anchored in the National Integration Plan which are oriented to the following targets: Documentation and evaluation of project experiences Comprehensive knowledge of the effects of integration measures in sports already exists. The multitude of experiences from successful projects and initiatives must in future be compiled, documented, evaluated and interlinked. Local and regional best practice examples must be examined according to their transferability on a nationwide basis and if necessary be revised and adjusted accordingly. Extension of competence and qualification The results of project evaluation must be transferred on a widespread basis. Successful integration factors which have been identified should be communicated to the basis. Sportsmen and women and all those active in voluntary activities on all levels of sports clubs and associations must be sensitised to the topic of integration. New competences must be developed on the back of existing knowledge and be processed in the form of training elements. Intercultural competence on the part of instructors, trainers and supervisors should be extended accordingly. Cooperation in local networks For the full utilisation of the integration potential of sports, integration in local networks is necessary. Networks organised by local authorities provide pos sibilities for the exchange of information between sport associations, schools, nursery schools and social welfare institutions. A more intensive and systematic incorporation of immigrant organisations in network structures should also be achieved. Networks can encourage communication and mutual understanding and additionally provide a good platform for the creation of cooperation projects. According to the sport development report 2005/2006, 70 per cent of sports associations have some form of cooperation, 62 per cent of these with schools, 24 per cent with child day-care institutions, 21 per cent with business companies and 15 per cent with youth welfare offices. Creation of effective framework conditions for the task of integration The framework of sports offers an ideal starting point for social integration, but should be additionally accompanied by supplementary measures in order to develop its full potential. As an individual sports club frequently does not possess sufficient resources and knowledge to develop comprehensive integration concepts, the adequate provision of professional advisory services is necessary. It is vital to create the general support framework for integration projects to encourage the work of voluntary personnel on a club basis. This also demands the adequate provision of the necessary infrastructure, including sporting facilities. The creation of conditions which correspond to the cultural, social and religious requirements of girls and women with a background of migration need special consideration. Internal and external support for integration Integration is a major transversal task and should for this reason be incorporated into the activities of the relevant public authorities and institutions. Sports federations and also the Federal Government, federal states and local authorities must additionally accompany integration measures with a well-structured and broadly based publicity campaign which will reach both the native and immigrant population and particularly underline the achievements of sports. The appointment of integration ambassadors with a personal background of migration would be expedient. It is imperative to involve immigrant organisations in communication structures on a more comprehensive basis (specifically ethnic sports associations, cultural associations, religious organisations, etc.) and leading figures from local communities and the media, in particular television channels and newspapers from the relevant countries of origin which are based in Germany. 139

70 Measures/self-commitments/investigations The members of the working groups have compiled a summary of the measures which will achieve the envisaged targets: sports programmes to be cross-linked with social, cultural and educational institutions and ethnic organisations and communities. The Federal Government will support the further development of the programme Integration through sports with the aim of guaranteeing long-term support for these activities and planning reliability for all participants. The Federal Government will provide support for the project Fankurve ( fan stand ) between 2007 and This project is part of the concept Sports! Youth! Act! developed by the German Sports Youth Organisation (dsj) within the DOSB which was presented at the Integration Summit organised by the Federal Chancellor Angela Merkel in July Measures/self-commitments on the part of the Federal Government Documentation and evaluation of project experiences: The Federal Government commits itself to the creation of an information platform at the Federal Office for Migration and Refugees (BAMF) which will form the basis for a nationwide review of national and regional integration activities. The possibility of recording (integrative) sports measures on the part of cultural associations will also be examined. The Federal Government will undertake an evaluation of the DOSB programme Integration through Sports for which it provides support. Extension of competence and qualifications: The Federal Government will investigate the possibility and feasibility of collecting secure statistical data on the proportion of members with a background of migration in German and specific ethnic sports clubs. The Federal Government will anchor the topic of Integration in and through sports as a focal research area for the Federal Institute of sports Sciences (BISP). The BISP will publicise the results of its internally supported research projects Integration of young persons in sports clubs and Immigrant sports clubs in Germany through sports policy and sports organisation transfer activities. Cooperation in local networks: The Federal Government will continue its cooperation with sports and political partners following the presentation of the National Integration Plan. Creation of effective framework conditions for integration activities: To avoid overlapping double and triple support, the Federal Government will record all federally funded measures within the area of integration through sports. This can for example be undertaken by a research group in which the Federal Departments for Interior Affairs (BMI), Family Affairs, Senior Citizens, Women and Youth (BMFSFJ), Transport, Building and Urban Affairs (BMVBS) and governmental offices participate. This form of coordination and consolidation of activities permits greater opportunities of cooperation than before, enabling 140 Internal and external support for the topical area integration: Within the framework of the National Integration Plan, the Federal Government presented the campaign Forum integration. Let us all join in. to the general public. During the coming months, a poster campaign in cooperation with sports associations will be carried out in sports clubs to increase awareness towards the topic of integration. Measures/self-commitments on the part of the federal states and local authorities (and/or within the regulatory responsibility of federal states and local authorities) Documentation and evaluation of project experiences: The federal state of Hesse will commence an initial review on a regional level of integration measures within the area of sports in which a situation analysis is also foreseen. Initially, empirical investigations will be instigated. The implementation of corresponding tasks will be carried out in an incentive scheme. This review is also a preparatory measure for an Integration Congress which will be held jointly by the federal states North Rhine-Westphalia and Hesse in August Creation of effective framework conditions for integration measures: Provision of funding for sports facilities: regional governments have committed themselves to the provision of substantial long-term funding for the promotion of sports. It has still to be decided whether future investment will be specially focused on sports clubs or districts which offer a wide range of sports for immigrants, an area which is regarded by regional governments as requiring particular action. Several states are considering the possibility of adopting explicit requirements within the area of integration policy in the allocation of financial support. The already mentioned improvements in general conditions on the part of regional governments have either already commenced or will begin in 2007 and will run for periods of between two and five years. Together with the Federal Government, the federal states are pursuing the objective of involving more persons with a background of migration through sports in already existing structures in order to promote the reciprocal understanding of persons from different cultures. Alongside local authorities, it is the federal states who undertake the greatest responsibility in particular for recreational sports for example in the areas of construction, renovation and modernisation of sports facilities. The federal states also frequently provide support for individual pilot or model projects to intensify the local focus on integration issues and provide substantial forms of support for the programme Integration through Sports. In the working group for the topical area Integration through sports utilise potential, increase activities, extend networks, the federal states (in part coordinated by the state of Hesse in agreement with the state of Mecklenburg-Western Pomerania as the presiding state in the Conference of Sports Ministers) have already submitted recommendations for self-commitments (Enclosure 2): a summary of the contents is recorded below. The federal state Schleswig-Holstein has revised its guidelines for its former state support for sports dated 16 November 2005 and has publicised these revisions (Sports promotion guidelines dated 1 March 2007, worksheet Schleswig-Holstein as of 10 April 2007, p. 260 et seqq.). The objects for support as explicitly defined in the guidelines under fig. 2 includes the new focal area g) Measures for integration through sports which has been incorporated in the catalogue. Applications can be made by local authorities, sports associations and clubs in Schleswig-Holstein. Measures will be made available within regional funding for sport promotion. Projects will receive support through the process of deficit funding; the amount available for individual measures should not exceed 5,000 euros. In the region Berlin, the social integration of diverse population groups and the consideration of the special requirements of foreign citizens according to 1 of the act governing the promotion of sports within the region of Berlin has been defined as one of the sports promotion targets of the Berlin Senate. The Senate of the Free and Hanseatic City of Hamburg passed a resolution with a strategic concept for the integration of immigrants on 19 December Under the topical area of living together in the city, sport is presented as an independent field of action with the focus on children and young persons. Internal and external support for the topical area integration: Regional governments will obligate themselves during the course of the current year to examine whether greater significance should be attached to the integration of immigrants within sports policies and whether organisational steps are necessary for this to be achieved. The time scale for this measure was stipulated as 2007 to The implementation of this measure will be viewed as a long-term transversal task. Cooperation in local networks: Representatives of local authority regional organisations point out that they do not possess the mandate to undertake commitments on the part of their members. Individual self-commitments on the part of central federations can also only be considered following the adoption of a resolution on the part of relevant committees. For this reason, it was only possible for the working group to produce recommendations for measures to be implemented. The working group recommends the convening of city and town conferences including the establishment of a research group for Sports und Integration. The working group supports the position that integration is a transversal topic and should therefore not be located in a single administrative department, but be assigned to a higher management level. The working group supports efforts to incorporate civil commitment, particularly in local sporting activities. Measures/self-commitments on the part of nongovernmental institutions and organisations Sport is utilised by many associations as a means of integration in numerous individual projects which are too wide-ranging to be listed here in total. The measures and self-commitments on the part of the DOSB as the umbrella organisation for sports and the German Football Association (DFB) and the German Gymnastic Association (DTB) as the largest DOSB member federations will be presented as a representative selection. Documentation and evaluation of project experiences: The DOSB commits itself to cooperate in the evaluation of the programme Integration through Sports. The federation will collaborate in practical research work and in the evaluation phase and provide all necessary information and material for evaluation. The analysis of results will be directly incorporated in the conceptual revision of the programme. 141

71 4.7. Within the framework of its Innovation prize for gymnastic and sports associations, the DTB will identify best practice projects in the category of the Integration of women and girls and will distribute awards. The prize will be offered within the framework of the Stuttgart Sport Congress for November There are plans to extend the award as an annual DTB association prize from Extension of competence and qualifications: The qualification of multiplicators (e. g. women with a background of migration, training instructors, referees, etc.) will be a top priority (topics: intercultural learning and conflict management). The qualification project Intercultural sports which receives support within the framework of the programme Integration through Sports is currently being evaluated by the University of KoblenzLandau. The DOSB undertakes the commitment to implement all current qualification measures of Intercultural sports in all federal states and will also specify these measures as appropriate to the criteria of different types of sports. The DOSB and DFB will develop a joint instruction module on the basis of the DOSB instruction measure Intercultural sports. The DFB will extend the module to include football-specific elements. This instruction module should be implemented at all association and club levels with support from coordinators of the programme Integration through Sports. The DTB will address the topic of the Integration of women and girls in gymnastic associations in its annual sports congresses for association and club management staff and other personnel through general presentations, workshops and discussion forums. The next congresses will take place in Stuttgart in November 2007 and in Hamburg in November Cooperation in local networks: The DOSB will highlight the working principle of networking and will undertake efforts to achieve the incorporation of regional and local activities into the network process of all participants in the Integration through Sports programme. The DOSB will additionally offer to increase the utilisation of experiences and competences and its national and international network for the purpose of integration activities. The federation will undertake further development in the formation and extension of networks on a national level and with the project coordinators on a regional and local level and thereby provide support for the professional employees in regional sport federations. 142 The DFB is planning the creation of a DFB network Integration. This general network will link and if necessary also coordinate local/regional integration projects within the area of football. Creation of effective framework conditions for integration measures: The programme Integration through Sports will undergo a quality management process in which targets will be defined in cooperation with the Federal Government and regional sports federations as controlling methods. The DOSB will undertake the harmonisation of these target agreements in cooperation with the Federal Government during the first half of 2007 and, following a trial phase, will ensure their implementation on a national level in Regional sports associations are closely integrated in the programme Integration through Sports. In the opinion of the DOSB, it would be feasible and desirable to undertake a sustainable and qualitatively effective extension of the programme through the incorporation of further sports federations (e. g. DFB). To achieve the greater utilisation of the social-integrative potential of sports, the DOSB will undertake efforts to improve cooperation between the programmes Socially integrative city and Integration through Sports with the aim of support for and the establishment of local sporting and physical activities, above all in socially disadvantaged urban areas. The DOSB will undertake the creation of a cooperation platform and the intensification of interaction between the programmes Integration through Sports and Socially integrative city. Support for the model project Stay on the ball football against racism and discrimination (dsj, also see 1.3.1; Measure: project Fankurve ). The project costs will be carried in equal part by the DFB and the Federal Government. Within the framework of the German-French international match for school teams in May 2007, the DFB will run a project week in Berlin schools on the topic of Prevention of violence and integration with tuition material produced by the DFB. Following the project week, a decision will be made on the further utilisation of this material for follow-up projects. Internal and external support for the topical area integration: The DOSB commits itself to the extension of its public relations activities within the programme Integration through Sports. The DOSB and DFB commit themselves to the provision of support for the poster campaign Forum integration. Let us all join in. and to make their member organisations aware of this campaign. Further sports federations should become involved in this campaign. The management board of the DOSB appointed three integration ambassadors in the summer of 2006 who have already been involved in numerous actions and also support the campaign Forum integration. Let us all join in.. The DOSB commits itself to the appointment of further integration ambassadors and has compiled a task profile for this purpose. The management board of the DFB appointed its first voluntary integration ambassador on 1 December According to requirements, additional integration ambassadors with a background of migration will be appointed in the near future. The DFB will establish a think-tank integration specifically for project development and the implementation of measures which will also be closely linked with the task force prevention of violence. At the DFB federal assembly in October 2007, a comprehensive football development plan will be adopted in which the definition of integration targets for the DFB and related measures will play a prominent role. Within the framework of the cooperation between DFB and Daimler-Chrysler, an annual award of an integration prize for projects/measures within DFB structures, schools and external project initiators is planned. The DTB regularly addresses the topical focus of the Integration of women and girls in gymnastic associations for management personnel and employees of the federation and its associations in the DTB association magazine Deutsches Turnen [German Gymnastics] with a circulation of 22,000 which is distributed free of charge to its member associations. The DTB plans to involve the Olympic trampoline gold medallist, Anna Dogonadze, who was appointed by the DOSB as one of three integration ambassadors in Emphasis on the gender aspect of integration measures The project Sports integrate spin, carried out by the North Rhine-Westphalian Sports Federation (LSB), is planned to commence in May 2007 and will receive financial support from a variety of state and non-governmental institutions. The project aims to interest immigrant women in participating in sporting activities, to qualify these persons, e. g. as 4.7. instructors, and appoint a greater number of these persons in responsible posts in sports associations. The project will not only be limited to sporting activities, but will also include language and culturally related activities for young immigrants, in particular those of Muslim origin. The LSB will try out a variety of project models in the towns of Duisburg, Essen and Gelsenkirchen. The results will benefit the programme Integration through Sports. The focus of action on the part of the North RhineWestphalian regional government was and is not only the continuation of already proved and tested projects but also the conceptual development of new schemes. The project Sports with immigrants (1995 to 1998) is a good example of already implemented measures; this was a model project which was intended for nationwide implementation and was the first scheme to establish a further training course for instructors specifically for women with a history of migration. Women and young persons will be the major target groups among the immigrant population in all future projects within the intercultural opening process in the sports sector. Programmes should be developed which display sensitivity to cultural differences and also increase cooperation between organised sports and other institutions. The DOSB is currently developing a project within the special fields of Gender Mainstreaming and Integration through Sports together with member organisations and clubs to be able to offer new activities which are more precisely tailored to the needs of female immigrants. The project is affiliated to the programme Integration through Sports and will utilise the resulting synergy effects. Following the aims of the executive board s current work programme, the DOSB commits itself to the implementation of a network project for women and girls with a background of migration. The project will be designed by the special groups responsible for Gender Mainstreaming and Integration and will run for a period of three years. The aim of the project is the creation of new activities within favoured sporting activities practised by female immigrants (e. g. martial arts, football, dance and swimming). These network projects will run in ten cities. The network character of the project will be created through the participation of organisations outside the area of sports and it is envisaged that sporting activities will be accompanied by further qualification opportunities (such as language courses). The projects will be run by sports clubs and associations which are also integrated in the programme Integration through Sports. 143

72 4.7. The DFB is currently supporting a model project for the social integration of girls through football; this project encourages girls from selected socially disadvantaged areas to seek contact with sports clubs through self-initiatives, for example the organisation of tournaments, establishment of school clubs, etc., and thereby supports social integration. The DTB executive board appointed a presiding commission for the coordination and implementation of the topical focus Integration of women and girls with a background of migration in September The results of the commission will be presented at the International German Gymnastics Festival in 2009 in Frankfurt/Main. On the basis of previous experiences in gymnastic clubs, the DTB is developing a concept for the integration of women and girls in sports clubs with a focus on gymnastics and dance which will be tested in selected gymnastic clubs. The evaluation of the resulting findings will be undertaken during the International German Gymnastics Festival in 2009 in Frankfurt/Main and the concept will subsequently be implemented in further gymnastic clubs. Enclosure 1 Results from the research assignment Sports development report 2005/2006 undertaken by Prof. Dr. Christoph Breuer, Prof. Dr. Heinz-Dieter Horch and Prof. Dr. Volker Rittner (German Sport University of Cologne) which was jointly financed by the Federal Institute for Sports Sciences, the German Olympic Sports Association and regional sports federations. Sports clubs and demographic change According to their own estimation, 45 per cent of German sports clubs (approximately 40,000 associations) state that their activities are affected by demographic change. Among the aspects of demographic development having an effect on sports club activities are the decrease in the number of children and young persons, the ageing and decrease in the population and immigration. The proportion of immigrants within the general population continues to increase. This development is a result of the positive birth rate within the group of the population with a background of migration and the arrival of new immigrants. Seven per cent of all sports clubs and 15 per cent of clubs affected by demographic change consider their organisations to be influenced in their actions by immigration. Substantial differences can be observed in the various federal states which highlight a two-tier development 144 among those affected; whereas 15 per cent of sports clubs in the old West German federal states report effects from immigration, the corresponding figure for the new federal states is below eight per cent. provide favourable conditions for the successful integration of immigrants as these associations are highly dependent on the creation of networks. A closer examination of various types of sports associations also reveals significant differences. Almost 30 per cent of large-scale clubs observe effects of immigration. The figure for other types of clubs (e. g. small clubs with a narrow range of activities and mediumsized clubs with a wider range of activities) ranges between ten and 15 per cent. Enclosure 2 The general question can be raised as to whether sports clubs over- or underestimate the effects of demographic change. An underestimation would for example result in sports being insufficiently prepared for a major aspect of social change. The increasing proportion of immigrants in the general population is underestimated by ca. 28 per cent of sports clubs (in particular small clubs with a narrow range of activities) and overestimated by four per cent of clubs. Regional differences were not observed. In reaction to the effects of demographic change, it is above all medium-sized and large-scale clubs which are offering new club activities. The increase in cooperation with other clubs is also a frequently practised measure. Cooperation between sports clubs and local integration If the issue of the contribution of sports clubs to local integration is seen within a historical context, it becomes clear that the relationship between local authorities and sports clubs has been characterised by lively intercommunication right from the beginning of the sports movement. A particular focus on the aspect of local cooperation within the orientation of sports clubs towards the common welfare is currently necessary and will gain further significance in the future as numerous new problems resulting from social developments require both the increased organisation of transversal local issues and also new forms of cooperation. It is particularly intersectorally structured networks involving the cooperation of different organisations and political areas which can guarantee the greatest prospects for success within the area of social integration. Numerous sports clubs already epitomise the sociopolitical necessity of locally created networks through their activities and simultaneously demonstrate the effectiveness of civil commitment. For example, 70 per cent of sports clubs cooperate with other clubs, 62 per cent with schools, 24 per cent with child day-care institutions, 21 per cent with businesses and 15 per cent with youth welfare offices. Sports clubs therefore 4.7. the retention of cultural identity, dialogical integration, the active acquisition of multiplicators with a background of migration, the acceptability of integration as a political issue, the provision of resources and 1. Fundamental situation the surmounting of local difficulties. The regional governments, positioned between the Federal Government and local authorities, prioritise the task of implementing integration through sports within the framework of their sports-political approach: 4. Topical area: the creation of framework conditions Contribution of the federal states to the National Integration Plan to pursue a policy for sports on the basis of the principle of subsidiarity which communicates values for members of the population actively involved in sports. The regional governments pursue a widely-based integration policy in which the integration of immigrants has assumed an increasingly significant role during the last few years. For this reason, a paradigm shift is not currently foreseen, but a clear definition must be formulated to outline the major task which the federal states aim to undertake within this area in cooperation with the Federal Government, local authorities and regional sports federations. Although an evaluation of previously implemented measures can only be selective (as is generally known, the activation of research within this area is intended), the aim is to build on the foundations of already existing integration policy through sports. 2. Definition of targets Together with the Federal Government, regional governments are pursuing the common objective of involving more persons with a background of migration in existing structures through sporting activities in order to improve the mutual understanding of persons of different cultures. This objective is intended to strengthen the general foundations of civil society as a whole. The attitude towards integration must be characterised by mutual acceptance on both theoretical and practical levels. 3. Success factors For this reason, the factors for success in a reciprocally oriented active integration policy must include: 4.1. Topical focus: the provision of funding for sports facilities, social tasks, youth development programmes and normative regulations Review of current situation Alongside local authorities, the regional governments undertake the greatest responsibility for the construction, renovation and modernisation of sports facilities, in particular for mass sports. A large proportion of funds are directly and indirectly allocated for these clearly defined functions. The corresponding increased investment efforts as could be observed recently in Rhineland-Palatinate, Hesse and Lower Saxony benefit sporting activities for the population as a whole. The possibility of explicitly incorporating integration policy requirements for immigrants in the allocation of funds is being considered in certain areas. Self-commitment Regional governments have committed themselves to long-term investment amounting to tens of millions in the promotion of sports, particularly for the provision of funding for sports facilities. It has not yet been established whether future investment should specifically target individual sports clubs or local districts in which a wide range of sports for immigrants is offered. The regional governments consider that there is a particular need for action within this field. Example Schleswig-Holstein Brief summary The federal state of Schleswig-Holstein has revised and newly publicised the guideline regulating sports funding (Sports funding guideline dated 1 March 2007, gazette Schleswig-Holstein as of 10 April 2007, p. 260 et seqq.). Under Fig. 2 of the guidelines, the major funding focal area g) measures for integration through sports is a new addition to the catalogue of specific areas which will receive support. Applications can be made by local authorities, sports clubs and associations in Schleswig-Holstein. 145

73 4.7. Time scale The publication in the gazette Schleswig-Holstein is planned for May 2007: the guideline will initially be valid for the period up to 31 December Financial framework The measures will be financed within the framework of regional sport funding. Projects will be supported through the channels of deficit funding whereby the level of funding for individual measures should generally not exceed 5,000 euros. Further details are currently not available and/or are dependent on the application situation within both this area of funding and other funding criteria. Example Berlin In the federal state of Berlin, the Berlin Senate (regional government) has designated the social integration of various groups of the population and the consideration of the particular needs of foreign citizens according to 1 of the laws concerning sports funding within the federal state as the primary elements of its sports funding objectives. Time scale The above-mentioned improvements in the framework conditions on the part of federal state governments have in part already been set in motion or will begin in 2007 and are planned to be implemented over a period of between two and five years. 5. Topical area: the enhancement of integration as a task field 5.1. Topical focus: the establishment of integration as a transversal task Review of current situation Individual federal states have begun to give greater priority to Integration through Sports as a transversal task and in certain cases have also provided extra funding for this purpose. Measures/self-commitments The federal state governments undertake the commitment to examine during the course of the current year whether the integration of immigrants through sports policy should be given greater priority and to establish whether organisational steps will be necessary for its prioritisation. The period from 2007 to 2008 has been defined as the time scale. In the case of the corresponding prioritisation, integration policy will be conceived as a long-term transversal task. 6. Topical area: individual projects 6.1. Topical focus: individual federal state government projects Review of current situation The federal state governments will provide support for individual projects which will permit the better implementation of local integration issues. Accordingly, projects will be initiated, frequently in the form of pilot projects, projects already in progress will receive support as best-practice models and the creation of new projects will be encouraged. Example Hesse The regional government of Hesse has provided support for the project START with the objective of employing trained female instructors with a background of migration as multiplicators in sports clubs. The financial framework for the medium-term continuation of this project in 2007 is secure (as far as possible from a budgetary aspect). An annual total of 130,000 euro has been allocated. The regional government of Hesse supports sports initiatives which encourage the training, specialised and further training of persons with a background of migration (club managers and instructors), in particular for youth activities. Similar activities will receive support in A sum of 5,000 to 10,000 euros per individual measure will be made available. The regional government of Hesse is planning the provision of targeted support for education through sports within youth activities. The initial emphasis will be on football. Training and further training courses should be utilised to strengthen young persons interdisciplinary competences to improve their opportunities on the employment market. These persons should also be able to gain sports qualifications. This measure will be initially funded with an annual sum of between 15,000 and 20,000 euros. The regional government aims to provide support for voluntary activities through the provision of resources for full-time employees and thereby particularly target persons with a background of migration. This is applicable for the programme Experience has a future with which unemployed persons over 50 are initially employed as assistant sport managers (in clubs, district sports organisations and federations). The employment of young persons with a background of migration will be targeted within the support framework for the voluntary social service year. Both programmes will begin in 2007 and initially be continued up to In the programme Experience 146 has a future, an initial group of 30 persons will be placed in the sports sector and in the FSJ programme initially four persons with a background of migration. Other projects which also provide opportunities for young persons with a background of migration to undertake responsible posts (youth trainer, referee, etc.) will also receive support. These projects should increase intercultural understanding on a local club basis. The regional government of Hesse plans to utilise the experiences gained through the fan projects on national and regional league levels to be employed within the area of amateur football, thereby practically implementing both the coordination between the fan projects and the transfer of knowledge gained from these projects. A medium-term time frame is envisaged for these projects also in an international comparison and annual funding amounting to around 25,000 euro will be provided. Finally, the regional government is also planning to commence research within the area of integration with an initial review of integration measures in sports including a situation analysis. This process will begin with an empirical study. The research will be implemented through an incentive scheme. The review of the situation on a regional level will be complemented by an integration congress in August which will be jointly organised by North Rhine-Westphalia and Hesse. Further individual measures are at a concrete planning stage. For the planning and implementation of measures, the regional government of Hesse is, like all regional governments, dependent on its partners in organised sports. The regional sports federations are major partners which also actively accompany a large number of regional measures alongside the measures also being implemented within organised sports. Other partners from sports federations such as football or institutions with a background of migration can be counted among the government s partners. The contours of governance structures are already visible within this process of sports-oriented integration policy. Example Berlin The Berlin Senate has for years supported the programme Sports measures integrating foreign citizens in which the Youth Sports Organisation Berlin provides advisory services and organisational aid for the reception and integration of young persons with a background of migration. This year, the Youth Sports Organisation will receive funding amount ing to 50,158 euro. The focal point is the support of integrative youth sporting activities, in particular social behaviour and the strengthening of personality development through funding for sports clubs in order to improve the integration of children and young persons of non-german origin in the social structure of these clubs. Support is additionally provided for leisure, mass sports and introductory activities and non-sporting educational adventure activities. Example North Rhine-Westphalia The focus of action on the part of the regional government was and is not only the continuation of already proved and tested projects but also the conceptual development of new schemes. Among the already concluded measures, the project Sports with female immigrants (1995 to 1998) should be mentioned as an example; this was a project with a model character for nationwide implementation and was the first scheme to establish a further training course for instructors specifically for women with a history of migration. Women and young persons will be major target groups within the immigrant population in all future projects within the intercultural opening process in the sports sector. Programmes should be developed which display sensitivity to cultural differences and also increase cooperation between organised sports and other institutions. On 9 December 2006, the Ministry for the Interior in North Rhine-Westphalia held a special conference together with the Catholic Academy Die Wolfsburg and in cooperation with the Regional Sports Federation of North Rhine-Westphalia and the Centre for Turkish Studies with the objective of defining the current position. Example Hamburg On 19 December 2006, the Senate of the Free and Hanseatic City of Hamburg passed a resolution defining a strategic concept for the integration of immigrants. Under the topical area of Living together in the city, sport is presented as an independent field of action with the focus on children and young persons. The strategic concept foresees the following subsequent steps for the city and its sports partners: further support for sports associations and federations in Hamburg for their integration efforts, support for joint sporting activities in clubs, recruitment of immigrants as officials and sports mediators in associations, improvement of information on sporting activities, 147

74 4.7. recruitment of trainers with a background of migration and greater practical experience, appointment of sporting stars with a background of migration as role models and a wider range of activities for women and girls with a background of migration. Example Mecklenburg-Western Pomerania Measure/self-commitment on the part of the federal state Mecklenburg-Western Pomerania Brief summary On the basis of the guidelines for support of sports projects, the federal state Mecklenburg-Western Pomerania supports pilot projects, innovative projects and sporting activities for immigrants with the aim of improving opportunities of participation and advancement in their social environment. The Federation of Disability and Convalescent Sports of Mecklenburg-Western Pomerania is currently implementing a multicultural integration project with young persons from different cultures on the theme WE ARE DIFFERENT, BUT ALL EQUAL in cooperation with the sports association TuS Maccabi Rostock, the Jewish Community Rostock, three schools in Rostock, the Jewish theatre Mechaje, the Academy of Music and Theatre and the Institute for New Media with support from the regional sports federation, the Hanseatic City of Rostock and the regional government. The project brings together young Germans, young persons with a background of migration and young persons with disabilities from the forms 7 and 8 and their families to participate in regular leisure activities in the sub-projects sports, arts (theatre) and media with the involvement of existing networks in the Hanseatic City of Rostock. Time scale 1 January 2007 to 31 December 2009 (duration: three years) Financial framework In addition to funds from the sport federation, the project is financed by contributions from the federal state (youth welfare and sports), the local authority and the German Foundation for Children and Young Persons school plus. Measures/self-commitments on the part of the federal state Brandenburg: The federal state Brandenburg is supporting two projects set up by the Youth Sports Federation Brandenburg which aim to encourage both sporting and social talents through street football. The low proportion of persons with a background of migration in Brandenburg (ca. one per cent) offers the opportunity of reaching particularly young persons more intensely through the medium of sports. 148 Sports-orientated Social youth work Street football for tolerance Brief summary: Street football for integration and tolerance provides a meeting platform, encourages communication between young persons in different social contexts and supports the creation of networks between various social institutions. The participating young players formulate the football rules themselves and also practise conflict management. One of the project s objectives is the involvement of socially disadvantaged young persons, the participation of girls through mixed teams and young persons with a background of migration. The project is structurally linked to the international network Streetfootballworld and to other street football projects in Germany. This project began on 1 January 2007 and has a planned duration of three years. The federal state is providing funding for the project amounting to 60,000 euros. Schools Hoist the Flag The aim of the project is the stabilisation and/or development of school profiles particularly in all-day schools and years 7 9 with the project Street football for tolerance. This project builds on the experiences from the project World Cup-Schools: Fair Play for Fair Life which accompanied the football World Cup 2006 in Germany and the various continental cups in which schoolchildren represented countries of the world; the current project aims to provide opportunities for the development of profiles. The concept plans to support foreign cultures as an everyday occurrence in schools, families and community life. This project is also being supported by the Youth Sports Federation Brandenburg. Measures/self-commitments on the part of the federal state Bremen Brief summary: On the basis of the guidelines for the encouragement of extra-curricular youth education, youth information and youth association activities and resolutions on the part of the Deputation for Sports (responsible parliamentary committee in Bremen), the federal state Bremen is supporting the overall project Integration through Sports which is masterminded by the Regional Sports Federation Bremen. The chief aim of the project is the long-term integration of immigrants and the disadvantaged native population through the wide-ranging individual opportunities and social possibilities provided by sports. Project activities are focused around a socio-environmental approach, i. e. the focus is on so-called socially disadvantaged neighbourhoods in which an above-average propor- tion of immigrant families with integration problems are resident. Local sports and physical activities offered within the neighbourhood with a low-threshold character such as open training groups or open tournaments have proved to have been successful for establishing contacts and particularly interesting children and young persons in sports participation. The backbone of integrative activities is the cooperation with sports clubs and federations and the creation of training groups associated with the project and affiliated to sport clubs. Through the construction of a network of cooperation partners (particularly sports clubs, schools, child and youth welfare associations and welfare organisations) which receive financial or personnel support through the project, it is possible to involve the target group within their local neighbourhoods in regular activities provided by existing community structures and thereby also encourage peaceful co-existence on a local basis. Time scale The project commenced in 2001 Financial framework In addition to funds provided by the Regional Sports Federation of Bremen, the project is financed by contributions from the federal state (social and youth departments) and the local authority (sports department). Measures on the part of the federal state Rhineland-Palatinate: 1. Project: ballance 2006 Street football for integration, fair play and tolerance Brief summary: Following an initiative on the part of the RhinelandPalatinate Ministry for the Interior and Sports, this street football project was set up with the participation of the DFB, both Rhineland-Palatinate football federations and other well-known institutions and football league clubs to encourage children and young persons to develop fair and tolerant behaviour towards one another This project is aimed at institutions, individual persons and clubs which are involved in youth care and youth work who will be provided with play courts and organisational help in the running of a tournament. Time scale Since 2004: expected to be continued up to 2009 Financial framework Ca. 30,000 euro per annum. The majority of this sum is provided by the Rhineland-Palatinate Ministry for the Interior and Sports and the remainder on a proportionate basis by the remaining cooperation partners. In individual cases, funding is also supported by sponsors. 2. Project: Sports and language within the framework of the DOSB-Initiative Europe( s) champions on the occasion of the EU presidency combined swimming and language course for Muslim and German women and girls Brief summary: General experience shows that organised sports do not sufficiently attract foreign Muslim women and girls. As these persons are not permitted to participate in sporting activities together with men, it is difficult or sometimes impossible for them to find a path which leads to our sports clubs. However, contact, encounters and dialogue are necessary to enable sports to be a medium for integration. The Regional Sports Federation Rhineland-Palatinate aims to utilise this project primarily as the first step towards the creation of suitable conditions for participation. In cooperation with the Mainz Swimming Club 01, swimming tuition will be accompanied by language courses according to the well-tested and successful tandem method developed by the German-French Youth Office. The combination of language and sports tuition should provide a significant impetus for the integration of female Muslims. Participants will be made aware of the problems of their fellow female citizens and their reciprocal cultures. Time scale January to June 2007 The focal point of this project: young persons of all ages and from different origins should develop a better interaction through play at an early age and accept diversity. Financial framework Ca. 6,000 euro, provided by the Regional Sports Federation of Rhineland-Palatinate. Through the preparation and planning of street football tournaments in which young persons formulate their own rules and collectively control the adherence to these rules, self-discipline, competence and also a positive team spirit can be experienced. Social responsibility and tolerance are conveyed through play and discrimination and violence are countered, particularly through the involvement of girls. Measures on the part of the federal state SchleswigHolstein: Project: Sports against violence, intolerance and xenophobia Brief summary: The project supported by the Regional Sports Federation Schleswig-Holstein in cooperation with the Sports Youth Federation and the Ministry of the Interior aims 149

75 4.7. to involve children, young persons and adults in constructive leisure activities which communicate both fun and moral concepts within a sporting context. With the involvement of a great number of committed representatives of institutions and federations, in particular district sports federations, professional sports federations, youth organisations, schools, welfare associations, youth welfare departments, churches, trade unions, the police force and street workers, local task forces have been set up in numerous towns and districts as round tables against violence. In addition, integrative holiday camps and special events such as sports tournaments, project weeks, sport day events involving a diversity of cultural groups etc. will receive support. Among the aims and measures is the training of social behaviour through sports; the context of fairness in sports, fairness in everyday life and the possibility of transfer; the estab- lishment of permanent relationships through sports; the development of physical well-being and self-confidence with the aim of developing identity and the ingraining of Yes to sports and no to violence! and Yes to sports no to criminal behaviour!. Over 300 project assistants providing concrete local help were involved throughout the whole of Schleswig-Holstein. Over 1,600 boys and girls in 70 groups took advantage of the activities on offer. In addition, over 100 special events were held which provided opportunities for multicultural contacts. Time scale The project has been running since Financial framework Support through regional funds amounting to 230,000 euro Members Under supervision of: Federal Ministry of the Interior Dr. Georg Anders Federal Institute for Sport Sciences Bülent Arslan Institute for Intercultural Management and Political Consultancy Angelika Baestlein Federal Ministry for Transport, Construction and Urban Development Prof. Dr. Jürgen Baur University of Potsdam Hans-Peter Bergner Federal Ministry for Family Affairs, Senior Citizens, Women and Youth Gerhard Böhm Federal Chancellery Ernst Denneborg Federal Ministry of the Interior Dieter Donnermeyer German Gymnastics Federation Dr. Karin Fehres German Olympic Sports Federation Karin Grübler Ministry for Social Affairs of Mecklenburg-Western Pomerania Willi Hink German Football Federation Wolfgang Isbarn Ministry of the Interior of Mecklenburg-Western Pomerania Viktor Jukkert Regional Sports Federation of Saxony-Anhalt Dr. Andreas Kapphan Task Force of the Federal Government Commissioner for Migration, Refugees and Integration Gül Keskinler 150 Start Sports overcome cultural hurdles: Regional Sports Federation of Hesse Pia Kremer Federal Ministry of the Interior Jan Pommer German Basketball Federal League Dr. Klaus Ritgen German County Association Melanie Rothermel Federal Ministry of the Interior Stefanie Schulte Task Force of the Federal Government Commissioner for Migration, Refugees and Integration Ralph Sonnenschein German Association of Towns and Municipalities Gunda Spennemann-Gräbert Ministry of the Interior of Schleswig-Holstein Dr. Hartwig Stock Federal Ministry of the Interior Niclas Stucke German Association of Towns and Cities Joachim Waldenmeier Federal Office for Migration and Refugees Michael Weiß German Gymnastics Federation Prof. Dr. Heinz Joachim Zielinski Ministry of the Interior and for Sports of Hesse 151

76 Topical area 8: 4.8. Media utilise diversity 1. Topical area: Media and integration 1.1. Review of current situation When the term media is utilised below, this primarily refers to so-called mass media such as newspapers, magazines and also broadcasting media; in Art. 5 of the German Basic Law, the significance of these media is specifically referred to concerning the formation of individual and collective opinion. This term also includes new information media, as the borders between individual and mass media are becoming increasingly fluid within the process of media convergence for both providers and users. Independently thereof, individual chapters are exclusively devoted to the classical forms of mass media. Media play a significant, albeit indirect, role within the integration process: on the one hand, they play an essential part in the portrayal of different ethnic and cultural groups within the framework of independent and critical reporting and entertainment and, on the other hand, they provide a public communication platform for a variety of social groups. Increasing social diversification has brought complex challenges for the media. In the interests of social integration and presence, they must thematise and communicate social and cultural diversity; at the same time, the immigrant population is a heterogeneous group which cannot therefore be addressed through a standardised approach. Immigrant population groups are 152 also gaining in significance for the media from an economic perspective as they form a relevant and evergrowing proportion of media users, licence payers, newspaper and magazine readers and advertisement target groups. Against this background, the working group has concentrated on the following topics: possibilities and requirements of programme planning and reporting which represent cultural diversity as normality in programmes, depict the opportunities of an immigrant society and highlight the background and solution approaches with regard to conflicts; aspects of personnel recruitment and development, in particular measures to improve and increase training opportunities to enable immigrants to become journalists and the intercultural orientation of general training and further training courses for the media professions; deficits in media research and possibilities of increasing media competence among immigrants; specific media possibilities for immigrant target groups, in particular multilingual programmes and integration potential for foreign language ethno-media. Content analysis shows that up until now the German mass media has depicted an incomplete image of immigrants and their significance in economic, social 153

77 4.8. and cultural areas of life in the Federal Republic. Everyday life and the perspectives of immigrants are only mentioned in individual reports, articles or fictional formats and immigrants are over-proportionally mentioned within the context of problems. It cannot, however, be asserted that the German media have completely neglected this topical area. Newspapers and magazines have been reporting about topics concerning immigration and integration since the 1960s. The broadcasting companies regulated by public law can look back on their tradition of foreign language television and radio programmes, currently often have relevant editorial offices and series and are continuing to address relevant topics in their programmes. Private broadcasting companies have also been addressing these issues for many years both on screen and behind the microphone as a rule with the incorporation of relevant content and actors in their programmes and in constant dialogue with their public. Online pages and portals targeting immigrants and supporting integration also exist. Finally, the wide range of foreign language media produced for immigrants in Germany has made regular contributions to social and cultural integration with measures ranging from language courses to sociopolitical advisory services. Where the deficits described can be established, they primarily result out of the following contexts: As experiences in other countries show, it is essential to employ a greater number of journalists and media professionals with a background of migration for both journalistic access to everyday normality and the addressing of topics relevant to immigration and integration. Up until now, there have been too few of these types of journalists in Germany and young prospective journalists with a background of migration have been conspicuously under-represented in relevant training courses. The professional integration of immigrants in the journalistic sector is inadequate and the situation is similar for authors and professionals in the area of fiction. However, not least for reasons of securing market shares, the interest in and willingness to employ journalists and media professional with a background of migration in front of and behind the camera, in front of and behind the microphone and also at editorial desks has increased. Nevertheless, media companies have experienced that there are too few qualified journalists with a background of migration available, particularly for editorial work. The position is similar regarding the status of knowledge and training among German editorial and production staff who require extensive background knowledge for topics covered, including immigrant cultures. There is a lack of standardised and detailed coverage of immigration, integration and associated subjects within the range of subjects addressed by 154 training curricula, and areas relating to intercultural competence are completely absent. Media utilisation by the German population has been extensively researched by the media forms which include advertising such as newspapers, magazines, radio, television and the internet. The methodical standards and financial support by commercial media for media research jointly undertaken by the media and the advertising sector are high, as these deliver the currency for advertising revenues and expenditure. In contrast, the media utilisation of persons in Germany with a background of migration has not been sufficiently recorded by this research. Although individual studies exist on media equipment, utilisation and relevant motives, there are no studies to display the motives and media utilisation habits of persons with a background of migration and also no studies on the media competence of this addressee group. Research on the role of media in the integration process is not merely in itself underdeveloped, but has up until now been primarily undertaken in isolation from theoretically and empirically superior established research traditions which for example concentrate on the role of language or the significance of social living conditions within the context of social integration. The practically plausible assumption that language, media habits and living conditions determined by social structures are interdependent should be addressed within the framework of relevant joint research projects. the greater part of the general public. Ethno-media are primarily utilised as a supplement to German media and can therefore be regarded not so much as economic competition, but more as editorial supplements. Foreign language ethno-media can above all address the population group with an insufficient command of the German language and therefore target the integration political problem group. These media provide a particularly reliable communication platform throughout all fields of integration policy. Bilingual publications can also offer practical integration aid and thereby accompany and augment existing integration measures. In addition to numerous foreign language media, there are radio programmes in Germany with a pioneer function (e. g. Funkhaus Europa and Radiomultikulti), which are specifically multilingual in structure. Multilingual programmes can reflect the heterogeneity of a society: they accompany the entire immigration process and can offer immigrants lacking knowledge of the German language initial assistance through the provision of information on the customs of the immigration country. These programmes with German as the lingua franca are, however, not exclusively directed at target sub-groups with different languages, but also act as a connecting bridge between ethnic groups including the German population. Multilingual media do not therefore merely provide services for immigrants, but are simultaneously an element of diversity management in Germany Definition of targets The multifunctional media PC, Internet and mobile phones possess a substantial positive potential for the integration of persons with a background of migration as the utilisation threshold of these forms of media has been significantly lowered. These opportunities can, however, only be specifically targeted once reliable scientific knowledge on access and utilisation behaviour of persons with a background of migration has been established and media educational measures have been developed and implemented on the basis of this research. There is, on the one hand, a necessity for research into the utilisation of multifunctional media on the part of immigrants. On the other hand, the relevant target groups must develop specific competencies not having been successfully communicated up until now, to enable the users to exploit the potential offered by these media and also provide equal opportunities for all users. Foreign language media (ethno-media) provide an indispensable contribution to integration. Certain problems and issues concerning integration cannot always be addressed to a sufficient degree in Germanlanguage media as these issues are not applicable for Both German and foreign language media are independent in their reporting and programming. This also applies to the addressing of issues and problems concerned with immigration and integration. The media are aware of their responsibility within the social integration process of immigrants. For a contribution towards the long-term rectification of the above-mentioned deficits in the integration of immigrants in the media world, the consideration of relevant content in media coverage and for research into media utilisation, the working group considers the following measures to be necessary: The long-term concept of immigration and integration as a transversal topic Media integration aspires to address and communicate with immigration groups and the native population alike. Media products must therefore be both majority-oriented and simultaneously able to address relatively specialised topics and experiences. The media will best succeed in doing justice to the complex demands of target groups and subject matter if immigration and integration are seen as transversal topics throughout the entire media spectrum. Immigration and integration cannot be exclusively and pri marily treated within a special niche. On the contrary, in recognition of fundamental existing diversity, the intercommunication of cultural differences in the media sector must become a natural element across the board. For example, the media can encourage the understanding between various political, social and ethnic groups and contribute to the overcoming of prejudice. The members of the working group assume that a subdivision of integration tasks specifically in media presentations will not sufficiently address the target group or the problem complex. The media should highlight topics related to immigration and integration on a long-term basis in newspapers, magazines, programmes and portals and focus on these areas. Regular specific statements should describe the status and perspectives of these special areas and continuously develop new recommendations for media reporting. Involve immigrants in editing teams and programmes A long-term aim of personnel politics within the media sector should be to work towards a representative composition of staff, in particular among editorial teams. The electronic media should intensify their efforts to involve immigrants on screen and at the microphone in their productions and employ them as presenters and actors in films and series. Train journalists and media professionals with a background of migration A competent, detailed and swift processing of integration topics requires editorial personnel who are familiar with immigration and integration topics from personal experience and not merely third hand. For this reason, the working group considers measures and new methods to be necessary for the improvement and intensification of training opportunities for journalists and media professionals with a background of migration. Media companies should underpin these measures through the provision of work experience and trainee places. In order to succeed in approaching and tapping the existing resources of persons with a background of migration for professions within the media sector, training methods must be provided which go beyond customary educational and training structures. Intercultural training and further training for employees and managerial staff In general internal and external training and advanced training possibilities for media employees and managerial staff, the introduction of detailed knowledge concerning immigration and integration issues, associated topics and intercultural competence must become a standard integral part of training courses. 155

78 4.8. Intensification and extension of media research Research on the media utilisation of immigrants in Germany must be intensified. More intensive fundamental research into media equipment available in households, media preferences and extent of utilisation should be carried out in association with quantitative research into utilisation motives and habits. The Federal Government, federal states and media companies are urged to enable this type of research to be undertaken and to provide the appropriate funding. In addition, media companies should work towards the consideration of immigrants in their continuous research and measurement of the extent of media utilisation and create participating survey groups and research panels accordingly. This necessitates the cooperation of research institutes, if necessary in collaboration with the Federal Statistical Office, to compile the appropriate specifications for a representative sampling of the population with the involvement of foreign citizens. Encourage media competence Additionally, research and projects must be undertaken to encourage media competence among immigrants. The digital integration of immigrants is a requirement for the competent and targeted utilisation of new media by these populations groups and the further development of activities which encourage integration. The Federal Government and federal states are urged to provide the structural basis for corresponding measures and the appropriate funding. Media companies within the Federal Republic of Germany should make a long-term contribution to these measures and provide support for this process Measures self-commitments/ investigations Federal states and Federal Government The freedom of the press and broadcasting which is worthy of protection present clear borders for the possibilities of state measures within this area. The federal states are responsible for media policy. Utilisation of potential The previously unused potential of cooperation between German and foreign language media should be tapped by media companies and institutions through joint projects and regular intercommunication. Encourage intercommunication It is particularly the European broadcasting companies regulated by public law which are in a position to promote the dialogue between cultures and encourage peaceful co-existence due to their programming mandate. International intercommunication and cooperation and the associated learning from neighbours is not only an enrichment but also indispensable during this process. Encourage participation The working group finally recommends that the representation of social groups in radio and television advisory bodies also includes immigrants, thereby guaranteeing their participation in media-based decision processes. 156 of presenting the everyday life of persons from immigrant families as a part of social normality and thereby communicating the opportunities of a culturally diverse society in an authentic manner without negating their problems and risks. Topics related to immigration and integration should be integrated in all relevant programme genres and formats and persons with a background of migration appear as protagonists in a variety of circumstances, particularly outside common cliché situations. This includes for example the integration of clear and verifiable concepts of the topic integration into the ARD guidelines for programme planning and idea workshops in which topics, formats and content relating to immigration and integration are specifically developed for major and regular programmes in the ARD. The twopart film Zeit der Wünsche [ Time for wishing ] (WDR) [West German Broadcasting Association], the prize-winning film Wut [ Anger ] (WDR) and Türkisch für Anfänger [ Turkish for beginners ] (BR/NDR) [Bavarian/ North German Broadcasting Associations] provided recent examples of significant programme accents in the area of fiction on the German channel 1. The NDR will introduce Mehmet Kurtulus as the first German-Turkish chief inspector in its regular crime series Tatort [Scene of the crime]. He will solve his first case in the ARD in The significance of the topic Islam is not only limited to information magazines, but also extends to educational and cultural programmes. In 2007, the WDR is planning a two-day event in the concert hall Philharmonie in Cologne to mark the end of Ramadan and an internet package combining journalistic reports from radio, television and the internet which portray the lives of Muslims in Germany. The SWR [South West German Broadcasting Association] has been posting an Islamic address on the internet since 20 April The federal state minister presidents are of the opinion that the media (particularly those regulated by public law) are today faced with a central (transversal) task in the integration of foreign citizens as never before. For this reason, they approached the German public channels ARD and ZDF in September 2006 and requested these companies to compile recommendations by 2007 for the further development and implementation of programming and programming structure as a contribution to the integration of foreign citizens. Within the framework of the Ernst Reuter initiative on the part of the Ministry for Foreign Affairs, the Federal Government is examining possibilities of support for the cooperation between German and Turkish media such as workshops or a GermanTurkish television conference involving highranking employees responsible for programming (key words: exchange of programmes, development of common and/or new broadcasting formats, exchange of staff). Under the heading of Integration through communication and qualification as a model project run by the Federal Office for Migration and Refugees, the Federal Government is supporting the serial programme of a German-Turkish broadcasting channel which will provide help with everyday problems. The topics covered in reports are oriented towards an initial information brochure for immigrants and address fundamental aspects of life such as work and career, school and study, language promotion and children and the family. This interactive media product should additionally motivate immigrants to learn the German language and pursue further training. Further cooperation is being considered on the basis of these experiences which could take the form of funding and also expert consultation. The ARD broadcasting services view the transversal task of integration and cultural diversity as the representation of the reality of immigrant society in all their programmes, in particular those with mass popularity. The ARD has set itself the target During the next few years, the ZDF will undertake the following relevant measures: The ZDF will continue its programme contributions on the topics of immigration and integration based on its underlying concept and take these topical areas into consideration as transversal topics in all its programmes within its main programme and also in digital and partner channels. This will be implemented throughout all genres from news programmes and magazines, documentations and films, series and shows to reach both the wide public and specialist interest viewers. Non-state level Mainstreaming in programme planning and reporting 4.8. objective of intensifying intercultural communication and the improvement and enhancement of mutual understanding between native and immigrant citizens. On the one hand, conflicts resulting from co-existence can be addressed on a substantial basis and, on the other hand, examples of the successful combination of different elements of the general public can be communicated. ZDF has highlighted the increased attention to and awareness for programme activities concerning immigration and integration as the focal point of its programming activities during the next few years. The opportunities for cooperation between different cultures should become a natural topic, particularly in programmes with mass popularity without however entailing the necessity of concealing associated problems. The ZDF is following its an increase in the number of productions which address the fundamental issues of immigration and integration; individual ZDF magazine programmes will increase their focus on the topics of immigration and integration; programme and topical focal areas will address these topics across all genres with a high publicity profile; ZDF will set up and undertake the responsibility for a dialogue platform on the internet in a journalistic format Forum zum Freitag [Forum on Friday] for intercultural communication, above all with representatives of Muslim religion and culture; a further increase in the number of prominent roles in fictional productions to be undertaken by persons with a background of migration; within the area of pre-school programmes, the ZDF is working towards the incorporation of aspects of language acquisition and support for the linguistic competence of non-german children and will launch a new programme format in 2008; the ZDF will provide more detailed information and service advice in its online accompaniment of its programmes and will support public contributions on the topic of integration on television within its participation in the CIVIS media prize. The CIVIS media prize, inaugurated 20 years ago by the WDR as the representative of the ARD together with the Freudenberg Foundation and the Federal Government Commissioner for Integration, is today one of the major media prizes for integration and cultural diversity in Europe. This prize is awarded annually for outstanding programmes in radio and television which are particularly suitable for the encouragement of cohabitation within the European immigration society. The CIVIS Media Foun- 157

79 4.8. dation for Integration and Cultural Diversity will in addition to existing activities offer a new award in Germany and Europe which focuses on the professional integration of immigrants and foreign citizens in the economic and industrial sectors. 158 The private broadcasting companies regularly cover relevant social and political developments associated with the topics of immigration and integration in their respective radio and television formats such as news and information programmes, magazines or (talk) shows in a comprehendible and varied manner and highlight these topical areas from a wide range of journalistic aspects, including interviews, portraits, bulletins and reports. In fictional programmes, a highly differentiated picture is presented in a sophisticated and humorous manner depicting citizens of other nations or of foreign-origin as a natural part of social normality, for example the popular sitcom Alle lieben Jimmy [Everyone loves Jimmy] or the comedy Meine verrückte türkische Hochzeit [My mad Turkish wedding] which won the Adolf Grimme Award in The picture is rounded off with scientific magazines and also formats such as Spiegel-, Stern- and Focus-TV [produced by the weekly print magazines of the same name] which fulfil the viewers need for information and further education and also devote themselves to topics such as integration. Corresponding formats which meet with particular interest on the part of viewers and listeners will be further developed in the future in a dialogue with the relevant persons and existing initiatives. Private broadcasting companies are thereby within the framework of their possibilities encouraging not only the identification of immigrants with everyday political, economic and social life in Germany, but also mutual understanding between Germans and immigrants and/or the various cultures in Germany. In addition, the Federation of Private Broadcasting and Telemedia (VPRT) will subscribe to the Diversity Charter on the basis of broadcasting and reporting freedom and undertake efforts to urge the largest possible number of further private broadcasting companies to sign this charter. A personal view of the viewing habits, wishes and needs of young immigrants is provided by the permanent RTL initiative in which the chief editor Peter Kloeppel discusses media utilisation behaviour with school pupils, welcomes programme suggestions and posts the results within the framework of RTL news coverage. The working group also recommends idea workshops for television to be held in cooperation with for example the Grimme Institute, the Civis Media Foundation, the broadcasting channel Deutsche Welle and the Federal Initiative Integration and Television, in which producers and programme planners and developers (authors, format developers and editors) can be brought together to exchange information and specific topics, formats and content can be developed which are associated with integration and immigration, particularly in the fictional sector. The Federation of German Magazine Publishers (VDZ) will actively approach magazine publishers to generate increased awareness for the necessity for action and the development of measures encouraging integration. These could include the following measures: a long-term increase in awareness for this topic in the VDZ bodies and the creation of regular intercommunication opportunities among the member publishers personnel staff. The creation of a new annual award for exemplary integration projects is planned as an encouragement for action. The federation will also consider whether public awareness of the topical area could develop a stronger foundation through the creation of an advertising campaign. In order to draw the attention of young journalists to the topic of integration, the Federation of Youth Press will develop the youth media project politikorange for young persons. The internet is a suitable platform for the transportation of the topical areas immigration and integration in accompaniment to the content offered by all other media (television, radio and press). This potential should be taken into appropriate consideration during programme planning and news coverage in order to utilise the reciprocal effects and synergies of all types of media for the integration of persons with a background of migration. Personnel politics and developments: measures for the improvement and intensification of the journalistic training of immigrants The ARD intends to provide particular encouragement for editors, authors, presenters and actors of foreign origin through targeted personnel recruitment and development; these persons should appear as positive figures of identification in prominent positions in the programmes ( creating heroes ). Birand Bingül, an editor at WDR with a Turkish background, has, for example, joined the reporting team for the ARD news programme Tagesthemen. Ingo Zamperoni (NDR) has presented the ARD late-night news programme Nachtmagazin every second week since March Presenters with a background of migration were appointed for television magazines at both WDR and SWR and targeted castings have also taken place in other ARD companies. At WDR, the recruitment and encouragement of employees with a background of migration is given high priority through the various possibilities offered by measures such as voluntary work experience, job shadowing, casting, professionalisation seminars and replacements for vacant positions. Since 2005, all job advertisements have included the following statement: The WDR supports cultural diversity within its company and for this reason we welcome applications from employees of foreign origin. Target group programmes such as Funkhaus Europa (WDR and Radio Bremen) und Radiomultikulti (RBB) and specialised editing departments such as SWR International serve as competence centres for the recruitment of employees who will subsequently be employed in so-called mainstream programmes. The first immediate measure will be undertaken by the broadcasting company at the beginning of 2007 and will provide several young journalists with a biography of migration with the opportunity of participating actively in a trainee programme for editors. Currently, approximately one third of all trainee journalists at SWR have a background of migration. At HR, one voluntary trainee per intake during the last few years was of foreign origin. The seminar programme for HR voluntary journalist trainees includes the course Portraying Politics/Balanced Reporting which aims to counterbalance knowledge and awareness deficits within the topical field of immigration/integration and teaches methods of presenting reports without the utilisation of clichés which will improve acceptance on the part of target groups of foreign origin. The RBB is currently developing a concept to support young reporters and presenters with a background of migration. The RBB programme Radiomultikulti created the journalistic talent workshop world wide voices in 2006 which is specially aimed at young journalists of foreign origin. The programme will be continued in the autumn of Specific formats such as WDR grenzenlos have also proved themselves to be potentially successful supplementary instruments both for entry into freelance activities and access to programme voluntary trainee places. The journalistic talent workshop grenzenlos was created in 2005 by the WDR specifically for young journalists of foreign origin. Around ten young journalists with immigrant family origins receive support annually through training courses and the job shadowing of editors. This measure will be continued and extended to media technical professions. WDR has observed a current increase in the number of its applicants of foreign origin for media professions. Radiomultikulti (RBB) created the journalistic talent workshop world wide voices in 2006 which is specially aimed at young journalists of foreign origin; this programme will be continued in the autumn of In 2007, WDR was the first broadcasting company subject to public law to join the Diversity Charter The ZDF will continue the consideration of employees with a background of migration on a systematic basis within the framework of its training offensive begun in 2004 and for personnel recruitment. ZDF particularly considers the area of qualified editing personnel with a background of migration as being necessary for improvement and will in the next few years implement targeted measures in consideration of current legal guidelines, in particular those covered by the General Equal Treatment Act, including the consideration of applicants with a background of migration in practical work experience phases, job shadowing and voluntary trainee schemes. The long-term objective is to approach levels in the composition of its editing teams which are representative for the general population from the aspect of immigration. The ZDF chief editing department for culture and science, both in which church editing departments are integrated is preparing the creation of an editing position for non-christian religions. As the awareness generated by programming is not solely created by topical programmes but also through individual persons, ZDF also employed persons with a background of immigration in prominent positions in front of the camera at an early stage. The proportion of these persons employed as on-screen personnel does, however, not yet reflect the corresponding proportion within the general population. For this reason, there are plans to employ two further colleagues with a background of immigration as programme presenters during the next few years, one of whom should be employed within the area of news coverage. Broadcasting companies subject to public law and also private TV companies and the film sector should make a concerted effort with producers, casting agencies and production companies in their recruitment policies for films and series to work towards an appropriate representative cross-section of the population through the employment of immigrants. As the need for training of young journalists with a background of immigration are extremely high, the channel Deutsche Welle is considering the broadening and extension of its trainee profile and the provision of specific opportunities for young journalists with a background of immigration. The DW Academy possesses the appropriate necessary 159

80 4.8. experience within international and intercultural spheres. Deutsche Welle intends to intensify its present practice in the training and qualification of journalists; for this purpose, the DW Academy training profile will be examined and adjusted appropriately. in schools throughout Germany will receive further intercultural training; the available qualification modules which cover the topics the establishment of a school magazine, development of media competence and podcasting will be offered particularly in schools with a high proportion of immigrants. In private broadcasting companies, foreign citizens and persons with a background of migration from a wide variety of nations have for many years been represented in all company sectors e. g. as journalists, authors, marketing and event staff, reporters, actors and presenters and these persons reflect the multicultural nature of contemporary German society. This current status of representation will not change in the future. Equal requirements apply in the case of equal standards of qualification for Germans, foreign citizens and immigrants. According to the private broadcasting federation VPRT, all young persons both with and without a background of migration who are equally suited to requirements will all receive highly qualified training to enable these persons to develop their potential and embark on a successful professional career. The mentoring programme for young journalists will also provide support for young journalists from the age of 16 and accompany them at the beginning of their professional career. Young trainee journalists with a background of migration will in future receive particular support through targeted advertising, the recruiting of mentors with a background of migration and the special consideration of applicants with a history of migration. impulses and acting as contact persons across the board. 160 RTL will intensify the integration of young persons with a background of migration in its company and will provide opportunities for teachers in the future to develop additional media competences which can be passed on in a positive manner in their lessons. In all RTL broadcasting locations, pupils will be given the opportunity to address the topic of immigration within the framework of an immigration prize and will thereby be instructed in the fundamentals of journalism in audio-visual media. RTL employees will provide all necessary technical equipment and expert knowledge within the framework of a journalistic outreach project. In addition to non-monetary prizes and visits to editing offices, the prize winners will, in individual cases, also be able to take advantage of practical experience courses and journalistic mentoring programmes. Up to the year 2010, the Dogan publishing group will offer the opportunity to participate in qualification courses lasting several months in its company-owned publishing and broadcasting houses to a total of 1,000 young bilingual Turkishand German-speaking trainees from Germany and Europe. The Youth Press in Germany will utilise two of its established tools for the encouragement of young media makers the mobile academies in schools and the mentoring programme for young journalists to target immigrants in order to awaken their interest in joining the journalist profession. The mobile academy teamer pool which works directly The working group also considers the creation of special training and further training programmes for young trainee journalists with a background of migration to be necessary. The qualification of trainee journalists with a background of migration can be improved by the establishment of regional networks and institutions to provide support for young journalists with a background of migration in cooperation with journalist schools, broadcasting companies and publishers. The provision of practical work experience should enable young immigrant journalists to make contact with editing offices and will also contribute towards the acceptance of a wider based editing self-concept. A particularly effective form of support would be provided by experienced journalists offering their services as outreach partners and mentors within this integration process. Corresponding projects have already begun in Berlin (BQN project) and in North Rhine Westphalia (Centre for Media Integration at the University of Dortmund). Similar projects should be set up, developed and supported in other regions of the country. Networks for journalists with a background of migration would be a positive development; these networks could increase cohesion, offer possibilities of intercommunication, hold events for example to attract attention to existing problems and act as a lobby group. The Intercultural Network within the German Journalists Federation (Regional Branch of the Association of Berlin Journalists ) provides an example of this type of network. The appointment of integration commissioners and/or diversity commissioners in broadcasting companies and publishing firms is recommended; these persons would act as central contact partners for integration issues and also participate in programme creation and personnel development. In the broadcasting channels WDR and SWR, activities undertaken by integration commissioners have proved to have been successful in providing new The ARD is encouraging intercultural competence through practically based advanced training courses. The WDR has for example introduced the topic of intercultural competence in its trainee and managerial courses. Managers are provided with an insight into the best practices in other European broadcasting companies within further training courses with international experts. In training phases at Funkhaus Europa or Cosmo TV young trainees learn about cross-border topics through practical experience under the supervision of journalists with different cultural backgrounds. Young trainees will also receive training at RBB [Radio Berlin-Brandenburg] provided by the EMS (electronic media school) and will become familiar with intercultural topical areas within the framework of practical courses at the radio station Radiomultikulti. The ZDF will extend its internal training and further training courses on the topics of integration and immigration with the aim of providing all journalists with a systematic foundation in the background and interconnection of the topical areas integration and immigration in place of the previously available individual courses. For this purpose, the training department is developing a programme for the further training of current editorial staff. With the establishment of a CIVIS academy for training and advanced training in the media sector, the CIVIS foundation aims to sensitise radio and television journalists and students and graduates of film and media colleges for the topics of integration and cultural diversity. This should guarantee the innovative and professional handling of developments in European immigrant society. The broadcaster Deutsche Welle provides access for interested media companies in Germany within its academy to its decades of experience, know-how and training and further training of international journalists. The Federation of German Magazine Publishers (VDZ) is planning targeted seminars within its training courses and a specific training and further training concept with associated training organisations More detailed research into media utilisation and competence on the part of persons with a background of migration is necessary, as media services encouraging integration must first be made familiar with the available media equipment and utilisation of the target groups to enable the conditions and approaches for sustainable intercultural intercommunication to be created. For this reason, the working group considers the intensification of research into the media utilisation of persons with a background of migration in Germany to be imperative. It is necessary to accompany fundamental research into available media equipment, preferred media types and the extent of their utilisation with qualitative studies on viewing motives and utilisation methods. The research initiative should adhere to the following central criteria: Continuous fundamental data collected on a regular basis on the media utilisation of the population with a background of migration in Germany to provide a fundament for integration-oriented media concepts. From a methodical aspect, these data must be compatible with data which are provided by commercial advertising research to describe the media utilisation of the German majority society. As media utilisation data are highly sensitive from the aspect of media competition, and the danger of the manipulation of media utilisation study results through self-interests is great, the communication media research principle community studies should be adopted. The collaboration of competitors within the media market will guarantee a balance of interests and the development of methodical standards for data collection, data calculation and the presentation of results (in adherence to the establishment of standard currencies of media utilisation such as range of media coverage, market shares, etc.). For the establishment of the status of media and media utilisation within an integration context, it is, however, not sufficient merely to record media utilisation data; media utilisation studies must also collect additional indicators according to the single source principle in order to permit the analysis of the coherence between integration status, social milieus and media utilisation behaviour. An independent commission of experts should be set up involving representatives from media practice with relevant media types and companies and scientific representatives who are working within the field of the integrative function of the media in order to compile recommendations for a broadly based i. e. scientifically connectable and cross-media research concept, which can Training and advanced training opportunities within the fields of immigration and integration Media research 161

81 4.8. be implemented on a long-term and continuous basis. Fundamental criteria for the constitution and activities of this group are independence, a transfer between theory and practice and methodical competence. Practically realistic research concepts must be developed ranging from issues, methods to financing and organisation (for the latter, public-private partnerships are without doubt most appropriate). For its part, the commission requires an institutional affiliation and basic funding which should be provided from public sources. Media companies will develop and implement concepts which take immigrants into consideration in the continuous recording of the quantative utilisation of print and electronic media. These companies will entrust research institutes with the compilation of suitable external specifications for the regulation of surveys and panels in order to involve foreign citizens in these surveys and panels. The ARD and ZDF will cooperate in a nationwide representative survey to be carried out at the beginning of 2007 in order to gain additional information on the media utilisation behaviour of immigrants in the digital media world. The objective is an examination of the significance of German and foreign media in the media budget of the largest immigrant groups and their expectations of individual media forms. Within the framework of the study, representatives from the five largest immigrant groups (Turkish, Italian, Greek, Polish and members of the former Yugoslavian states), Germans with a background of migration and foreign nationals from the stated countries will be questioned. Additionally, the group of repatriates of German ancestry will also be taken into consideration. The WDR has already commissioned three representative studies on media behaviour, media utilisation and the representation of immigrants on television. Further individual studies are planned on individual programme formats and genres which will primarily be implemented as qualitative surveys to aid work on programme concepts. Multifunctional media/encouragement of the media competence of immigrants 162 A milieu-specifically oriented research programme investigating the utilisation of multifunctional media by immigrants should be carried out. Top priority should be given to the investigation of socio-cultural milieus with low educational standards and immigrant groups whose original cultural value concepts differ substantially from those in Germany. In addition to a multi-methodical approach which dovetails statistic and qualitative processes, gender-specific, context-oriented and multilinguistic approach methods are essential. This research programme should be undertaken by an interculturally and interdisciplinarily structured research team. A qualitative study on the bridging function of multifunctional media within immigrant groups is also necessary which in addition to the issue of integration support should primarily establish the relevance of identity in the media connection with the culture of origin and also include a practicallyoriented study of the gender-specific handling of multifunctional media within immigrant groups in which the preservation of original values can lead to unequal conditions for both genders. Media educational structural measures should be developed on the basis of the findings of the research programme and include the following aspects: the consideration of gender-specific approaches and utilisation methods, in particular in the areas in which differences due to original national value concepts are visible, the consideration of age- and socialisationrelated differences and (youth) culture styles in the utilisation of multifunctional media, the cooperation with local educational institutions and the qualification of employees in these institutions for practical media activities involving immigrants. Media-educational structural measures can be realised through the introduction of practically oriented experience and learning processes for appropriate target groups. For the young immigrant target group for example, the establishment of an intercultural radio platform would be possible. Other practical media measures adapted to the horizons of experience and learning socialisation of other target groups such as older citizens with a background of migration should be developed accordingly. Mentoring and trainer programmes are also suitable for the qualification of social workers involved with immigrants within the media educational field. The Initiative D21 e. V., Europe s most extensive partnership between economic and political sectors for an information-based society, has focused part of its activities for 2007 on digital integration and will provide active support for the programme Information Society in Germany 2010 and the EU initiative einclusion. Persons with a background of migration are a major target groups for digital integration. The initiative D21 will develop an IT road map on the basis of the Federal Government 4.8. tive has its origins in the establishment of the fact that the obstacles which prevent access to necessary and requested information are frequently not of a linguistic nature, but are connected with cultural differences: administrative structures are particularly influenced by the appropriate national administration culture. Additionally, initial access to administrative services is required during the preparatory phase prior to emigration and not merely on arrival in the host country. The internet provides the ideal medium for access to information on Germany during the preparatory phases of emigration, including the exchange of documents and acceleration of administrative processes in order to create better framework conditions for possible immigration to the country. integration summit in July 2006 and associated thematic working groups. This road map will contain best practice examples of social integration through IT and recommendations for action. The initiative D21 aims to increase the interest of citizens with a background of migration in information and communication technologies in order to provide broad-based support for their linguistic competence, career opportunities and social integration. These technologies can make an important contribution on all levels, but are currently not utilised consequently to a sufficient degree. The initiative klicksafe is the German contact centre within the framework of the EU programme Safer Internet. klicksafe provides information on security topics via internet and targets groups such as children and young persons, parents, teachers and multiplicators. Between November 2006 and October 2008, klicksafe will focus on the improvement of internet competence among persons with a background of migration. A work concept will be developed with the involvement of scientists and practical experts to inform persons with a background of migration on the risks associated with the internet and highlight the accompanying dangers. The provision of information and educational material in the appropriate languages is foreseen. It will also be examined whether media which approach the relevant target groups in Germany are willing to participate in sensitisation measures in order to disperse the relevant information on a broad and effective basis. klicksafe will explore the possibilities of networks and will approach institutions such as immigrant associations, relevant foundations, clubs, self-organisations, etc. to examine potential opportunities of support and cooperation. Deutsche Telekom will participate in the implementation of measures and actions in support of integration, in particular the provision of advice and active know-how from the appropriate operational areas within the areas of diversity, marketing and technology, the provision of support e. g. links to and from internet pages, the provision of 0800 hotlines and the provision of concepts and support in the implementation of measures analogue to X on the net. The regional capital Stuttgart will provide a multilingual information and service programme on the internet under the project title MUSS [Multilingual Business Services Stuttgart] with the support of the university college Electronic Government Stuttgart run by the Alcatel SEL Foundation and in cooperation with the Technical University in Munich. The objective of the MUSS project is an improved and better structured access to services and information provided by public offices and other public sources for persons of non-german origin. The MUSS initia- Foreign language and multilingual media services Representatives of German and foreign language media directed at immigrants have worked alongside each other with little contact who up until now have cooperated for the first time within this working group. A cooperation between German and socalled ethnic media exposes previously unutilised potential to produce media contributions which support integration. This cooperation potential between German media and institutions and ethnic media must be developed through joint projects and regular intercommunication. Reports on individual projects ranging from language courses to social information reveal a wealth of topical fields which are suitable for collaboration. The following selection serve as relevant examples: With the foundation of the association Our house Germany, the Werner Media Group, the Jewish Community in Berlin and the Turkish Community in Berlin will provide common opportunities for Russian, Jewish and Turkish immigrants in Berlin with services such as legal advice, language training, computer courses and the opportunity to become acquainted with each others cultures. A regular German-Russian language TV magazine is also in preparation with a local broadcasting company on everyday life in the German capital. The campaign Countering domestic violence run by the newspaper Hürriyet (Dogan publishing group) has met with great success in Germany. Its primary aim is to provide information on and increase awareness to this topic and to provide support for victims through a variety of modules. A hotline with German- and Turkish-speaking experts is active for eleven hours per week, interactive education seminars are held and information distributed. The campaign receives editorial and advertising support in the Hürriyet newspaper and voluntary workers are active nationwide as multiplicators. 163

82 4.8. permits the in-depth and service-oriented presentation of targeted information which has no proper place within the main programme, but also functions as a crystallisation point for both programme development and the recruitment of staff, that can subsequently also be employed within the main programme. The campaign has been running since 2005 and will be continued for an unlimited period of time. The Ihlas Media Group is planning the broadcast of the BR German language course series Deutsch Klasse with Turkish subtitles in its programme. The publishing group is also planning a German course in its print media. International intercommunication The Sabah/ATV group is planning a German course cooperation together with Deutsche Welle which is particularly directed at female readers. The reciprocal exchange of editors is also planned with the daily newspapers Frankfurter Rundschau and Wiesbadener Kurier for the purpose of exchange of experiences. The publishing group is planning an initiative in cooperation with the Turkish Community in Germany and the Federal Employment Agency for the provision of vocational training places for young persons of Turkish origin. 164 Deutsche Welle is planning to extend its local services in the appropriate immigrant countries of origin to provide German courses for future immigrants. For the achievement of valuable synergy effects, further development of so-called target group programmes such as Funkhaus Europa (WDR and Radio Bremen) or Radiomultikulti (RBB) to competence centres within the appropriate programme companies is vital and necessary. As experience shows, this type of broadcasting format not only At the EBU Conference on the Role of the Media in European Immigrant Society held by the WDR on 23 and 24 November 2006 in cooperation with partners such as ZDF, Deutsche Welle and France Télévisions and with UNESCO, the European Commission and other organisations which was given a longerterm prospective through the planned follow-up conference in November 2007 at the UNESCO in Paris, a European exchange project for journalists was launched among other measures. The planned project is oriented towards young journalists in Europe and North Africa and will offer job shadowing opportunities in broadcasting companies in Europe and North Africa, qualified and prominent seminar courses and professional workshops for the production of multimedia reports to provide a unique framework for joint learning, reflection and work beyond national borders. Partners of the WDR include the UNESCO, the Anna Lindh Foundation and the COPEAM. Concrete plans for the project are currently being formulated and its launch is planned for 2008, the EU Year of Intercultural Dialogue. Deutsche Welle is considering the provision of personnel and logistic support for the project Members Under supervision of: Federal Government Commissioner for Migration, Refugees and Integration State minister Prof. Maria Böhmer, MdB Federal Government Commissioner for Migration, Refugees and Integration Buket Alakus Producer Minou Amir-Sehhi German Journalists Association Ali Aslan Federal Ministry of the Interior Martin Berthoud Zweites Deutsches Fernsehen [Second German Channel] Erik Bettermann Director of Deutsche Welle Bernd Burgemeister German Federation of Television Producers Matthias Buth Office of Commissioner for Culture and Media Günter Clobes Adolf Grimme Institute Jutta Croll Foundation Digital Chances Jürgen Doetz President of Federation of Private Broadcasting and Telemedia Lutz Drüge Federation of German Magazine Publishers Seref Erkayhan Turkish Community in Germany Werner Felten Radyo Metropol FM Evelyn Fischer Deutsche Welle Wolfgang Fürstner Executive Director of Federation of German Magazine Publishers Harald Geywitz Alice HanseNet Telekommunikation GmbH Dr. Kerstin Goldbeck Federation of German Newspaper Publishers Ernst Hans Hanten Office of Commissioner for Culture and Media Marlene Kerpal Federal Office for Migration and Refugees Michael Konken Federal Chairmen of German Journalists Association Kenan Kubilay Ilhas Media group Inez Kühn Ver.di [union for public service workers] Ahmet Külahçı Dogan Media International GmbH Anke Lehmann Federation of Private Broadcasting and Telemedia Michael Mangold Centre for Art and Media Technology 165

83 Ilona Marenbach Radiomultikulti, RBB Sebastian Olenyi Youth Press in Germany Maud Pagel Deutsche Telekom AG Prof. Dr. Ulrich Pätzold University of Dortmund Jan-Eric Peters Director of Axel Springer Academy Günter Piening Integration Commissioner for the Berlin Senate Anne Pietrzak RTL Television GmbH Prof. Fritz Pleitgen Director of West German Radio Pierre Sanoussi-Bliss Actor Prof. Dr. Markus Schächter Director of Zweites Deutsches Fernsehen Prof. Dr. Beate Schneider Institute for Journalism and Communication Research Klaus Schrotthofer WAZ Media Group Walter Schumacher Press Spokesman State Chancellery Rhineland-Palatinate Ekkehart Siering Senate Chancellery of Bremen Willi Stächele State Minister for European Affairs Baden-Württemberg Dr. Wilfried Ströhm Federal Government Press and Information Office Prof. Dr. Helga Theunert JFF Institute for Media Education in Research and Practice Renko Thiemann Federal Ministry for the Interior Larissa Thyrong Werner Media Group Kani Top Merkez Sabah AtV GmbH Canan Topcu Frankfurter Rundschau Prof. Dr. Hans-Jürgen Weiß Free University in Berlin Frank Werneke Deputy Chairman of Ver.di Nicholas Werner Werner Media Group Dr. Gualtiero Zambonini West German Radio Renate Ziegler Ziegler Film 167

84 4.9. Topical area 9: Encouragement of integration through civil commitment and equal participation 1. Review of current situation Civil commitment and integration Integration is a process affecting the whole of society which demands the participation and involvement of all citizens in Germany. Civil commitment strengthens equal participation and supports integration first and foremost on a local level within the direct environment of immigrants. A society which is committed to the central theme of civil society sustains itself through civil commitment and respects its diversity. Simultaneously, structures are created which permit self-initiative, co-determination and participation and equally the acquirement of new knowledge, new abilities and competences which also affect other areas of life, as commitment creates competence and guarantees educationability and employability. Civil commitment is based on voluntary self-commitment, the undertaking of public responsibility and networking. It helps to create identity and strengthens the competence to act. For this reason, civil commitment has a special catalyst function, also in the integration of persons with a background of migration. Integration will succeed where voluntary commitment in classical associations, federations, churches and religious communities and in immigrant organisations is involved on an equal footing and independently in the structuring of society. A common civil commitment also enables the host society to come to terms with increased diversity and cope with changes. 168 Immigrants experience effective participation in the community if their commitment in immigrant organisations and classical associations and also other social fields of commitment is desired and recognised. Voluntary commitment on the part of immigrants from all immigrant strata represents a valuable contribution and is an enrichment for society. Civil commitment is not possible without participation. Immigrants are active, albeit to a certain extent in other forms and contexts than in the traditional voluntary sector. Different educational systems and traditions of civil commitment in the countries of origin and differing lengths and statuses of residence in Germany are only some of the factors to be considered. Voluntary commitment on the part of immigrants encourages integration if the exertion of these activities is oriented towards the common welfare, is not directed towards a partitioning off from the host society and permits transparency and the willingness for dialogue. Civil commitment which is successfully anchored in an individual culture, language or religion can also provide the starting point for building bridges with the host society. Integration through civil commitment and the strengthening of equal access requires in turn participation, a commitment based on competence and the intercultural opening of traditional associations, federations, churches, religious communities and immigrant organisations. 169

85 Definition of targets a public sharing of responsibility through a network structure linking German associations and immigrant organisations on the basis of mutual respect and acceptance, increase in the commitment to counter xenophobia, intensification of public relations measures by organisations and more extensive media information on activities for and by persons with a background of migration and Integration through civil commitment particularly requires recognition and equal participation, the support of education and the acquisition of competences. For this reason, the short- and medium-term targets are as follows: intercultural opening of organisations, strengthening of equal participation and selfresponsibility of men and women in the integration process, (financial) support, counselling and further training for immigrant organisations and their integration projects. Equal participation of immigrants: participation of immigrants in state co-determination and decision-making bodies, support, education and development of immigrants to permit them to become local integration helpers Measures and self-commitments on state levels/public authorities Self-commitments on the part of the Federal Government Joint measures on the part of the Federal Government, federal states and local authorities The Federal Government commits itself to: the development of integration within civil society within the context of civil commitment as a programmatic transversal focal point. Support for the intercultural opening process from traditional associations, federations, churches, religious communities and immigrant organisations Support for civil commitment to counter xenophobia Equal treatment and equal recognition of integration efforts on the part of immigrant organisations: the increase of research promotion within the area of civil commitment on the part of immigrants. Time scale: legislative period support for the integration of immigrant organisations in existing networks, Measures on an individual level: 170 involvement of immigrant organisations in the compilation of local and regional integration plans, Measures on an institutional level: Brief description: To enable targeted support for civil commitment on the part of immigrants, further scientific research is required on the extent and nature of this commitment, particularities of commitment on the part of the second and third generation, factors which encourage and hinder voluntary commitments and on the status and problems of the intercultural opening of NGOs. 3. Measures for implementation and mutual voluntary selfcommitments In the division of responsibility and network structure, the state, the economic sector and society must recognise integration as a common reform process within civil society. Immigration organisations are also involved in this process, which demands equal participation on the part of all social partners. Time scale: ongoing the development of a culture of recognition the opening of access to the acquisition of competences in voluntary commitment, [Editorial comment: The common measures on the part of the Federal Government, federal states and local authorities and all recommendations for self-commitments have not been harmonised on a sectoral or federal level. The voluntary self-commitments on the part of representatives of organisations and churches are concrete self-commitments on the part of representatives of the working group.] tural opening and establishment of networks will be designated as a selection criterion for infrastructural projects and/or be anchored in support agreements. Institutionally supported organisations are urged to open up their personnel development concepts and project measures to enable the equal participation of immigrants. Brief description: Within the framework of federal programmes, infrastructure and network projects involving civil commitment supported by the Federal Government and also within the framework of invitations to tender, all federal departments and their subordinated institutions will guarantee a proportionate involvement of immigrants and/or immigrant organisations as the provider of measures. The intensified intercul- involve immigrants proportionally in their expert panels and advisory committees. Brief description: The Federal government departments will appoint competent immigrants as experts in their advisory boards and expert committees in particular representatives from immigrant organisations. Their appointment guarantees integration-specific consultation within the department and is a signal for the willingness for integration on the part of the Federal Government. Appointed experts with a background of migration are simultaneously biographical role models for the younger immigrant generation. Time scale: legislative period provide support for the intercultural opening of associations and federations within the area of civil commitment Brief description: The Commissioner and State Minister for Integration has commissioned an expert report and assistance for associations, federations, organisations and initiatives within the area of civil commitment. This should help to achieve a greater participation of immigrants in non-governmental organisations and immigrant associations and highlight the network structure of their organisations. Time scale: 2007 targeted prevention and educational activities for the immigrant society Brief description: Xenophobia and a lack of intercultural competence are fuelled by lack of experience and contacts between persons of differing ethnic and cultural origins and through an insufficient reflection on individual premises and presuppositions. For this reason, projects involving intercultural and inter-religious learning processes and also the handling of interethnic conflicts within the immigrant society will receive targeted support. Intercultural and anti-racist learning activities will be so designed that a specific culturalisation and intensification of prejudices is avoided and intercultural contacts are encouraged or conditions for these contacts be reflected on. In the implementation of these prevention and educational measures, great efforts will be undertaken to develop and stabilise cooperation links with democratic federations and religious communities of immigrants resident in Germany. Time scale: a maximum of three years support for these projects examine the possibility of the introduction of voting rights for non-eu immigrants on a municipal level1) examine to what extent an outstanding commitment to the support of integration could be taken into account in the naturalisation process. 2) Following conclusion of the work on this report, the Federal government submitted the following self-commitments: The Federal Government will commence the creation of a nationwide network Educational and vocational training mentors for immigrants during the current year. 1 Following the completion of the working group s activities, the Federal Government issued a general statement within the minor interpellation for the implementation of an examination procedure for the introduction of voting rights for non-eu citizens on a municipal level (BT-Drs. 16/436) and indicated that the necessary majorities required for an alteration to the Constitution Laws were currently not given. The Federal Government would therefore consider the existing legal and political implementations for activity without the pressure of time. 2 In the voting procedures concerning the recommendations submitted by the working groups of the National Integration Plan, the Federal Government has established that the current draft laws compiled by the Federal Government and the Bundesrat concerning amendments to the Nationality Act [StAG] already contain recommendations for regulations concerning the consideration of commitment to the support of integration. The adoption of these laws is foreseen during the current year. In addition, naturalisation procedures fall within the sphere of responsibility of the federal states. 171

86 4.9. This network will intensify civil commitment within the area of education and will cover three focal areas: the accompaniment of children up to the end of primary school by educational, learning and reading mentors support for young persons and young adults during the transfer period between school and professional career encouragement and support for the willingness to provide vocational training on the part of companies, skilled craftsmen and self-employed persons from immigrant families and more targeted information reports in public media). Recommendations for self-commitments on the part of local authorities It is recommended that the federal states undertake the commitment to orientate their subsidies policy towards the equal participation of immigrants in accordance with the self-commitment on the part of the Federal Government. This means: they will provide particular support within their subsidy programmes for projects by immigrant organisations oriented towards integration, they will anchor the interlinking of immigrant organisations with other associations, federations and organisations and their intercultural opening as subsidy criteria in their regional programmes, they will support the intercultural opening of German associations and immigrant organisations through the creation of concepts and representations of good practice, they will develop programmes to support the commitment of immigrants in both German and immigrant associations, according to suitability, they will appoint competent immigrants in particular representatives from immigrant organisations as experts in advisory boards, expert panels and other committees in order to guarantee an integrationspecific consultation within departments and 172 they will increase public recognition and awareness of commitments supporting integration on the part of immigrants and their organisations (e. g. through competitions, prizes, other awards Intercultural opening of organisations: sharing of responsibility and interlinked networks, strengthening of bridging function and the equal participation of immigrants in management structures support for further and advanced training courses for immigrants support for acquisition of competences through informal education orientation of possibilities for commitment towards individual motives and interests of immigrants willing to undertake commitments National Network for Civil Society (BBE) This network provides a platform for the harmonisation and communication of immigrant organisations with German associations and federations, the state and the economic sector on a federal level. the provision of long-term support for the involvement of immigrant organisations in local and community networks, the intercultural opening of initiatives and federations, the public intercultural dialogue and immigrants as integration helpers. notification of target group-specific information events concerning opportunities for commitment (e. g. events for specific immigrant groups, open days, initial welcoming information, multilingual information flyers and Internet announcements). Some of the major aims of the COMITES in Munich: COMITES (Comitati degli Italiani all Estero Committees of Italians abroad) The COMITES in Munich aims to help Italians resident within the consular district to become integrated as fully-fledged citizens, i. e. participation in local social, political and cultural life. information for Italian families on the Bavarian school system, sensitisation of families for the importance of a good education for children and young persons; information for Italian citizens on the next local elections in Bavaria which will take place in March 2008 and the sensitisation of citizens in order to achieve a high turnout of voters; German PARITÄTISCHE welfare association The German PARITÄTISCHE welfare association will set up a forum for immigrants in which the significance of immigrant self-organisations (MSO) within the integration process should be recognised. The immigrants forum is linked with further concrete activities on the part of the PARITÄTISCHE to support the MSOs such as the Specialised Counselling Office for Immigrant Self-Organisations in North Rhine-Westphalia. creation of service centres within organisations providing advice to immigrants on existing opportunities for commitment Voluntary self-commitments by representatives of organisations and churches 4.9. information for Italian citizens on the opportunities of naturalisation and/or dual citizenship/ nationality. Reduction of associated prejudices. The ca. 100 MSOs who are affiliated to the PARITÄTISCHE will be invited to participate in the forum. Concrete objectives are the improved awareness of the work of the MSOs, exchange of information on successful strategies, the allocation of projects and the greater consideration of specialised knowledge among the MSOs. Additionally, intercultural opening and further and advanced education issues should be addressed. At the forum meetings, current immigration policy developments should also be discussed in order to develop a common position which can subsequently be discussed within the PARITÄTISCHE association and also represented externally. General recommendations for self-commitments support immigrants in their self-organisations. Here it is decisive that these organisations adhere to the principles of a free and democratic constitutional state, must not be active in isolation from the host society and should be willing to be integrated into local social structures. participation of immigrants particularly from immigrant organisations in governmental codetermination and decision-making bodies and involvement in local processes (e. g. neighbourhood management, urban development, etc.). the particular recognition of commitments on the part of immigrants and the collaborative participation of immigrant organisations in their integration strategies/concepts. support good practice projects encouraging integration and common integration plans in cooperation with German organisations. An example for this type of measure is the training of immigrants as community integration helpers who can act as mediators connecting with the host society. In addition, the foundations Bertelsmann, Robert Bosch, Körber, Bürger für Bürger, Hertie, the Polytechnic Society and Schader are providing support for promising projects and/or have identified particularly successful projects within the framework of integration competitions. additional encouragement to participate in social functions (e. g. as tenant or parent representatives, management boards of clubs, etc.). Recommendations for self-commitments on the part of traditional associations, federations, churches and religious communities and immigrant organisations Local authorities should commit themselves to: The network will be coordinated by regional administration offices. Recommendations for self-commitments on the part of federal states Additionally, the federal states will undertake efforts within the framework of regional broadcasting conventions and regional media legislation to ensure that immigrants are represented in broadcasting commissions and regional media companies. German Red Cross (DRK) In December 2004, the German Red Cross formulated its programmatic objectives: Intercultural opening for the DRK. The German Red Cross not just for Germans. Elements of this programmatic objective are the principle propositions and fundamental statements on the intercultural opening of the DRK. From 2005 on, the committees and working groups of the association will be addressed. The preliminary result is a plan by stages which will be implemented. The task area Voluntary/citizen commitment on the part of immigrants has been taken up by the working group Immigrants as Partners of the DRK set up by the DRK executive board which will help to develop pilot projects with the participation of persons with a background of migration in the voluntary structures of the DRK. The starting signal for the implementation of these pilot projects is planned for 8 May 2007, the traditional World Red Cross Day, which, in this year, will address the focal topical area of the DRK for 2007: Integration being different together. Living together with respect. 173

87 4.9. The DRK aims to encourage the voluntary participation of immigrants in the sense of its fundamental objectives. German Federal Youth Council (DBJR) The member organisations of the DBJR aim to integrate children and young persons with a background of migration better in existing structures, whether as individuals in existing activities or as immigrant self-organisations under an umbrella structure. For this purpose, cultural and sports activities and cooperation with schools at both youth federation and council levels should be utilised. Educational concepts will be developed further and exchanged among the federation, in particular within the JULEICA training programme for youth leaders to increase intercultural competence for full-time and voluntary staff. The opening of the existing umbrella organisations and youth councils for immigrant self-organisations (including those for female immigrants) should be accelerated through consultation, support and accompaniment. Best practice examples will be publicised nationwide. Evangelical Church in Germany (EKD) In its recommendations for action for the church and the welfare service Diakonie, issued in June 2006, the social welfare organisation Diakonie affiliated to the Evangelical Church in Germany underlines, that the intercultural opening for persons with a background of migration must also be extended to the area of voluntary commitment. Existing forms of voluntary commitment must be further developed and made accessible to other target groups. In an argumentation aid formulated by the EKD on the strengthening of voluntary services, it was established that the churches should make themselves the advocate of the greatest possible affiliation of social groups in order to reinforce the concept of voluntary service within society. Catholic Church Through baptism and confirmation, all Catholics belong to the worldwide Catholic Church and simultaneously to their local church. For this reason, Catholic immigrants in Germany (ca. two million) are not merely guests of the Catholic Church in Germany, but possess eo ipso equal rights of membership and all possibilities of participation as German Catholics. In addition, the German Caritas welfare organisation is, in cooperation with the immigration commission of the German Bishops Conference, currently formulating a conception of intercultural opening for the target group of non-catholics 174 for the entire range of services offered and for employment opportunities for its employees. The member organisations of the Federal Association for Non-Statutory Welfare [BAGFW] submitted the following recommendations for self-commitments after completion of the work on this report: The BAGFW affiliated associations commit themselves to encourage the involvement of persons with a background of migration in voluntary posts in both voluntary services and voluntary management committees, will develop plans for relevant overall concepts, strategies and measures and implement these consistently. The associations consider the voluntary commitment of immigrants to be an indispensable contribution within the area of civil society and will increase their support for these services accordingly. The associations will ensure that persons with a background of migration have open access to the voluntary services of their organisations. This includes the active addressing of immigrants and their self-organisations; the creation of contact centres for immigrants interested in voluntary work manned by staff with a background of migration who are sensitive to cultural differences and possess linguistic competence; opportunities of intercultural organisation and personnel development for voluntary structures as the requirement for intercultural opening. The associations do not consider immigrant volunteers primarily as helpers for their own original community, but as the joint organisers of association and social life. They will organise civil commitment activities (e. g. advisory and accompanying services, educational activities, parent work, first aid, hospital auxiliary work and emergency management) in such a manner that the linguistic and cultural diversity of our society is taken into consideration and the concrete requirements are addressed. The plural nature of teams from a cultural aspect will be a heightened attraction to encourage immigrants to participate in these activities. As the organisers of the voluntary social year, the associations will increase the number of young persons with a background of migration in the operational locations in which they arrange placements or which they themselves provide. The associations guarantee to undertake efforts to provide additional operational locations which are supported by immigrant organisations Recommendations for the economic sector German businesses and companies owned by immigrants should support civil commitment on the part of immigrants, in particular through: 1. encouragement and sponsoring of projects by immigrant organisations and projects in which immigrant and German organisations cooperate 2. implementation of joint projects within the framework of corporate citizenship 3. support for the civil commitment related qualification of immigrants 4. recognition, utilisation and support of commitment on the part of immigrants in businesses and the creation of a commitment-friendly corporate culture (e. g. within the framework of the Diversity charter ). 4. Standards for integration projects Projects by immigrant organisations and cooperation projects between immigrant organisations and the organisations of the host society should fulfil the following quality criteria. These criteria apply to both association and project levels: intercultural opening and willingness for dialogue 3. network linking: involvement of immigrant organisations with those of the host society, integration in local and/ or regional structures and the sharing of available resources 4. competence: synergetic encouragement of competence and measures for qualification and intercommunication of competence and experiences 5. equal participation of all committed parties: equal opportunities for men and women; active participation of Germans and immigrants in both German and immigration organisation projects, e. g. in the planning and implementation of projects; resource-oriented approach 6. orientation towards interests and requirements: focus on interests and requirements of committed parties and relevant target groups; appropriate approach for target groups 7. effectivity: greater participation of immigrants in social life, integrative action, improved cooperation between immigrants and the native population 8. sustainability: continuity of commitment and role model function 5. Evaluation The social partners should develop self-assessment strategies in order to examine and evaluate the implementation of measures and/or concrete selfcommitments. 1. acceptance of the constitutional state: adherence to the Basic Law and actions adhering to democratic principles The associations recognise and value the commitment of immigrants and their self-organisations and offer collegial cooperation. 175

88 Members Under supervision of: Federal Ministry for Family Affairs, Senior Citizens, Women and Youth 176 Gerd Hoofe State Secretary at the Federal Ministry for Family Affairs, Senior Citizens, Women and Youth Dr. Michael Bürsch, MdB German Federal Assembly Claudio Cumani Comitato degli Italiani all Estero, Munich Sabine Drees German Association of Towns and Cities Nashaat Elfar Federation of German-Arabic Associations in Germany Susanne Ellinger Federal Office for Migration and Refugees Gabriele Erpenbeck Commissioner for Foreigners, Ministry of the Interior and Sports in Lower Saxony Dr. Volker Faigle Evangelical Church in Germany Adolf Fetsch Territorial Association of the Russian Germans Uwe Franke Public Authority for Social Affairs, Family, Health and Consumer Protection of Hamburg Abdelmalik Hibaoui Imam and Islamicist Andrea Hoffmeier German Federal Youth Council Dr. Konrad Hummel City of Augsburg Susanne Huth INBAS Sozialforschung GmbH [social research company] Dr. Roland Kaehlbrandt Foundation Polytechnic Society Frankfurt/Main Dr. Ansgar Klein National Network for Civil Society Ursula Krickl German Association of Towns and Municipalities Dr. Claudia Martini Task Force for the Federal Government Commissioner for Migration, Refugees and Integration Wolfgang Miehle German Bishops Conference Thomas Niermann German Paritätische [welfare federation] Dr. Olaf Obst Federal Ministry for Family Affairs, Senior Citizens, Women and Youth Beate Oertel Federal Ministry for Family Affairs, Senior Citizens, Women and Youth Henriette Reker Town of Gelsenkirchen Hartmut Renken Ministry for Social Affairs of Mecklenburg-West Pomerania Dr. Klaus Ritgen German County Association Dr. Gabriele Rössler German Red Cross Ramazan Salman Ethno-Medical Centre Hanover Dr. Martina Sauer Centre for Turkish Studies Dr. Martin Schenkel Federal Ministry for Family Affairs, Senior Citizens, Women and Youth Tassew Shimeles International Gardens Association Prof. Dr. Rita Süssmuth Former President of the German Federal Assembly 177

89 Topical area 10: Sciece and scholarship open to the world 1. The assignment Cosmopolitism and internationality are the prerequirements and trade marks of academic excellence. Science and scholarship is characterised by universality and intercultural dialogue, worldwide cooperation, mobility and competition. For this reason, science and scholarship is a central field of action in the integration efforts on the part of the Federal Government and its partners who are jointly formulating and implementing the National Integration Plan. In view of demographic change and the growing global competition to obtain the brightest minds, the integration potential of citizens with a background of migration must be better developed and the immigration of highly qualified persons utilised in a more targeted fashion to guarantee that Germany remains the country of ideas and innovation. Immigration and integration are two sides of one coin. The productive efficiency of science and scholarship and research profits from these to an equal extent to the innovation, growth and job potential of businesses. Immigrants make a substantial participation to the intellectual and cultural diversity of Germany and enrich our society. academics, the situation and perspectives of foreign students and highly qualified immigrant academics, issues concerning the improvement of educational nationals and aspects related to the development of research into immigration and integration. Impulse papers by members of the working group were discussed in detail during the four sessions held and these form the basis for this report for the National Integration Plan. The compiled recommendations address public and private actors and urge for a coordinated approach to the improvement of integration within the area of scholarship and the more targeted development of the qualification potential of educational nationals. The recommendations are formulated as suggestions and expectations for all actors within the academic system to undertake a more intensive networking of their previous commitment and a better harmonisation of their future measures and initiatives. The working group declares its willingness to participate actively in this process. The Federal Ministry for Education and Research (BMBF) coordinated the working group which was supervised by the State Secretary Mr Michael Thielen. Against this background, the working group Science and scholarship open to the world has addressed topical areas such as the integration of foreign