Finding the Way: A Discussion of the Finnish Migrant Integration System

Transcription

1 Finding the Way: A Discussin f the Finnish Migrant Integratin System Pre Finding the way: A discussin f the Finnish migrant integratin system OECD January 2017

2 Finding the way: A discussin f the Finnish migrant integratin system OECD

3 Finding the way: A discussin f the Finnish migrant integratin system OECD

4 Intrductin Finland des nt have a lng histry f hsting internatinal migrants. Indeed, fr much f its recent histry, the cuntry has been characterized by large-scale, ecnmically-mtivated emigratin and, prir t the early 1990s, migrants in Finland were largely made up f return migrants and their family. Beginning in the 1990s, hwever, Finland became an immigrant receiving cuntry with migrants arriving frm Russia, Estnia, Smalia, Yugslavia and mre recently Afghanistan and Iraq. Migrants frm Estnia and Russia cntinue t make up the largest immigrant grup (see Figure 1). Hwever, in recent years, arrivals frm the MENA regin in particular Syria have been increasing. By 2015, the freign-brn accunted fr ver 6% f the Finnish ppulatin, and the native-brn children f the freign-brn accunted fr a further 1%. These numbers remain small bth by internatinal standards, and when cmpared t ther Scandinavian cuntries. The freign-brn in Sweden and Nrway, fr example, accunt fr 16.5% and 15.2% f the ppulatin respectively, and the lnger migratin histry in these cuntries particularly Sweden - means that the native-brn children f immigrants als accunt fr a larger share f the ppulatin. Nevertheless, while the number f migrants in Finland remains small, the relatively shrt histry f migratin in Finland has led t a number f integratin challenges, and the labur market utcmes f certain grups ntably wmen, the children f immigrants and humanitarian migrants are pr. These integratin challenges have been cmpunded by the increased number f arrivals thrugh the asylum channel in late In that year, Finland received asylum seekers equivalent t 6.6 asylum seekers fr every 1000 f the Finnish Figure 1. Cmpsitin f the Finnish freign-brn ppulatin Permanent arrivals by natinality, Iraq China Smalia Sweden Russia Estnia Other Surce: OECD Internatinal Migratin Database ppulatin and the cuntry is grappling with the implicatins f this; bth in terms f meeting the immediate needs regarding husing and initial settlement, and in terms f lng-term integratin int the Finnish labur market and sciety. The gvernment has planned integratin effrts n the basis that just 30% f these asylum requests will result in psitive decisins. Nevertheless, even a figure f f whm are expected t be unaccmpanied minrs wuld represent a significant increase n the number f refugees cmpared t previus experiences in Finland. 1 Integrating these new arrivals, given the current ecnmic climate (unemplyment rates reached 9.4% in 2015), the relatively highly-skilled labur market (in which fewer than 6% f wrkers are emplyed in lw-skill ccupatins), and Finland's limited experience with integratin, will require careful recnsideratin f integratin plicy design and implementatin. Integratin must encmpass all areas f sciety, educatin, and the labur market. This is necessary t ensure that the large number f recent arrivals d nt fall thrugh the cracks. If this were t happen, it wuld als have damaging repercussins n hw migrants mre generally are viewed in Finland, with pssible negative implicatins fr the integratin prspects f already resident migrant grups, as well as f future arrivals. It is nt yet clear whether the recent increase in the numbers seeking asylum in Finland will be sustained in the lnger term. Nevertheless, develpment f an integratin system that is sufficiently flexible t respnd t such Finding the way: A discussin f the Finnish migrant integratin system OECD

5 temprarily augmented numbers, while nnetheless perating within tight budget cnstraints, is nw f paramunt imprtance. In rder t supprt Finland in this prcess, n the 20 June 2016, the OECD c-rganised, tgether with the Finnish Ministry fr Emplyment and the Ecnmy, a wrkshp t identify bttlenecks and inefficiencies in the current integratin system and develp cncrete ideas f hw t tackle these challenges. The wrkshp brught tgether practitiners drawn frm acrss gvernment ministries and agencies, scial partners, reginal actrs, private sectr emplyers, academia and nn-gvernmental rganisatins t discuss the Finnish integratin system in a hlistic manner. The design f the wrkshp built upn infrmatin gathered during an initial OECD fact-finding missin in April Building n the in-depth knwledge and expertise f each participant, small grups first wrked t identify the bttlenecks and shrtcmings in the design and implementatin f integratin plicy in Finland. Supprted by expert peer reviewers frm ther OECD cuntries, participants then began t develp cncrete ideas f hw t tackle these challenges. The wrkshp fcused n six themes identified by the OECD as critical issues facing migrants in Finland n their path t integratin int the labur market. I. Building skills in schl fr yung arrivals and the children f immigrants II. III. Language training and early integratin supprt Validatin and recgnitin f migrant skills IV. Cntact with emplyers and scial partners V. Discriminatin VI. C-rdinatin amng actrs at the natinal, reginal, and municipal level Each f these six thematic areas was discussed in small sub-grups f relevant stakehlders. The findings in these areas frm the basis f this synthesis nte and will be discussed in turn, fllwing a brief presentatin f the Finnish situatin as highlighted at the beginning f the wrkshp. The views expressed in this nte, hwever, d nt necessarily reflect the views f all participants in the wrkshp. Finding the way: A discussin f the Finnish migrant integratin system OECD

6 United Kingdm Germany Prtugal Ireland Luxemburg Italy Austria Switzerland Nrway Netherlands France Sweden Finland Denmark Spain IMD A shared understanding f integratin in Finland Acrss the OECD, migrants face mre difficulties finding emplyment than their native-brn peers. The extent t which these challenges are reflected in emplyment disparities depends n a number f factrs relating bth t the cmpsitin f the migrant ppulatin, but als t the institutinal, the linguistic, and the plicy cntext prevalent in the hst cuntry. Over the past ten years, excluding free mvement migrants nly 13% f Finland's migrants have arrived as labur migrants, with the majrity cming as family migrants. This has meant that, in cntrast t cuntries such as the United Kingdm r Prtugal (where between 40% and 50% arrived as 5% 0% Surce: Eurpean Labur Frce Surveys labur migrants ver the same perid) few migrants t Finland arrived with a jb already in hand. Alngside this and the difficulty f learning Finnish (see Challenge II) the relatively recent migratin histry in Finland has meant that plicies and institutins have had less time t develp than in many ther OECD cuntries. Figure 3. NEET rates by migratin backgrund and gender Percentage f ppulatin (aged 15-34) in emplyment, 2013 unless therwise stated In Finland, as in many ther OECD cuntries, emplyment disparities are largest amng the highly-educated, and labur frce survey data suggests that emplyment rates amng this grup lag nearly ten percentage pints behind their native-brn peers. Furthermre, amng thse wh have fund emplyment, many are in jbs requiring less than their frmal educatin level. Figure 2. Unemplyment amng wmen Unemplyment rates amng native and freign-brn wmen and percentage pint disparities, years ld, % 30% 25% 20% 15% 10% Native brn Freign brn Disparity (percentage pints, right axis) Mre striking still, disparities between the labur market utcmes f freign- and native-brn wmen are particularly prnunced in Finland (Figure 2). And, disparities exist als amng Ntes: These figures are based n labur frce surveys and as such represent estimatins f the characteristics f the full ppulatin. Surce: Labur Frce Surveys: Belgium (2012), France (2012), Prtugal (2012), Switzerland, United Kingdm, the Netherlands. Census in 2011: Australia, Spain and Luxemburg. Ppulatin register: Denmark, Finland (2012), Nrway, and Sweden. Natinal Husehld Survey 2011: Canada. Mikrzensus: Austria, Germany (2012). Current Ppulatin Survey: United States. Finding the way: A discussin f the Finnish migrant integratin system OECD

7 Prtugal Spain United States Canada New Zealand Netherlands Germany France Nrway United Kingdm Sweden Denmark Australia Ireland Finland IMD yuth wh shuld still be develping their skills. The large disparities bserved between the native-brn children f the freign-brn and thse f their peers with native-brn parents pint t deeply-ingrained integratin challenges in Finland (see Challenge VI). Indeed the prprtin f year lds with a migratin backgrund wh are neither in emplyment nr in educatin and training (NEET) is amng the highest in the OECD. Survey data suggest that amng thse yuth wh were brn in Finland with parents brn verseas NEET rates reach 36% and 34% amng men and wmen respectively placing Finland as the wrst perfrmer in the OECD in this regard (Figure 3 abve). These prnunced disparities d nt result frm the recent increase in asylum seekers in Finland, as these are nt included in the survey, rather they are reflective f lngstanding integratin challenges. And while the extent f the challenges migrants face in the labur market varies with the reasn they migrated and cuntry frm which they arrived, Finland perfrms particularly prly when it cmes t integrating sme f thse migrants wh face the mst significant barriers t labur market entry. Indeed, at the time f the last rund f census in OECD cuntries, the emplyment rates amng migrants arriving frm Smalia and Iraq were the lwest f all cuntries cvered in the Database n Immigrants frm OECD Cuntries (see Figure 4). Alngside the challenges invlved in learning Finnish (see Challenge II) and gaining a fthld in the Finnish labur market (see Challenge IV), many f Finlands migrants cme frm failing educatin systems and sme lack even basic qualificatins and skills, while thers, with frmal qualificatins, face difficulties in getting these valued in the Finnish labur market (see Challenge III). Hwever, alngside the challenges linked with the migratin prcess itself, additinal hurdles created by discriminatin (see Challenge V) and a lack f clarity in the Figure 4. Emplyment rate amng selected diaspra and native-brn, Percent f ppulatin (aged 25-64) in emplyment, % 80% 70% 60% 50% 40% 30% 20% 10% Iraqi Smali Native brn 0% Surce: Database n Immigrants in OECD and nn-oecd Cuntries integratin system (see Challenge I) can render the integratin pathway still mre difficult. Given the large number f recent asylum seekers, and given the challenges assciated with ppulatin ageing in Finland, the cuntry can neither affrd t waste the valuable skills embdied in migrants and their children, nr can it affrd t allw recent arrivals t fall thrugh the cracks f sciety. Against the backdrp f this shared understanding f the Finnish integratin cntext, the six key challenges and the plicy directins t address them as identified in the wrkshp are discussed in turn belw. Finding the way: A discussin f the Finnish migrant integratin system OECD

8 Challenge I. C-rdinatin amng integratin actrs The multi-faceted challenges, utlined in this nte, that face migrants in Finland bth new-arrivals and thse wh are already established ensure that there are a wide number f stakehlders invlved in their integratin (see Figure 5). C-peratin amng these actrs bth at the natinal, and the municipal level is therefre paramunt t the efficiency f the integratin system. At the natinal level: Primary respnsibility fr the integratin f newly-arrived immigrants lies with the Ministry f Ecnmic Affairs and Emplyment, under which the Centre f Expertise in Integratin cmpiles and distributes research, statistics, and data, as the basis fr the planning and implementatin f integratin plicy. The Centre als disseminates gd practice, and develps netwrks f c-peratin in the field f integratin. Alngside this the Finnish Immigratin Service (Migri), which perates under the Ministry f Interir, is respnsible fr granting residence permits, handling asylum applicatins and perating receptin centers. The Ministry f Educatin and Culture as well as stakehlders such as the Finnish Natinal Bard f Educatin are paramunt t the efficiency with which the skills f migrants are recgnized, develped, and put t effective use. Figure 5: The integratin path f new arrivals in Finland At the reginal level: The Centres fr Ecnmic Develpment, Transprt and the Envirnment (ELY centres) are respnsible fr negtiating the municipal allcatin f thse receiving internatinal prtectin as well as prviding supprt t municipalities in implementing integratin. Additinally, the Reginal State Administrative Agencies (AVI) are respnsible fr ensuring reginal equality in access t public services, legal rights, and educatin. At the lcal level: Municipalities have primary respnsibility fr the c-rdinatin f integratin effrts in Finland. They are respnsible fr the develpment and implementatin f the integratin plans f thse wh are nt seeking wrk, as well as fr mnitring the executin and impact f integratin. Alngside the integratin f their residents, municipalities are als respnsible fr the prvisin f basic educatin and childcare fr thse wh are living temprarily in their area wh d nt have a municipality f residence. Municipalities are als respnsible fr scial assistance (incme supprt) f thse wh are nt eligible fr unemplyment supprt. The Public Emplyment Service (TE ffices) perates under the Ministry f Ecnmic Affairs and Emplyment and is respnsible fr the integratin f migrants wh register as jbseekers. Tgether with ELY centres, TE ffices are respnsible fr rganising the integratin-prmting emplyment services, literacy training, and basic educatin f this grup. Finding the way: A discussin f the Finnish migrant integratin system OECD

9 Imprving c-rdinatin amng actrs Key challenges Sils amng actrs and agencies wrking n integratin can mean that there is a lack f hlistic knwledge that undermines referrals amng service prviders. Guidance fr migrants trying t navigate the system is fragmented. Lng delays characterise the transitin between phases f the integratin plan. Misinfrmatin can spread rapidly thrugh migrant netwrks in the cntext f fragmented infrmatin surces. Pssible directins fr future plicy develpment 1. Enhance c-rdinatin n implementatin f integratin plicy. The increase in the number f asylum seekers in Finland in 2015 prmpted imprtant develpments in the c-rdinatin f plicy develpment and strategy. At the natinal level, representatives frm the relevant ministries are nw cnvened n a regular basis t prmte c-peratin and the flw f infrmatin n integratin-related matters. Hwever, increased c-rdinatin n integratin strategy has nt been matched by c-rdinatin n implementatin. In general, when migratin numbers are small, a piecemeal apprach is less prblematic. Prly c-rdinated integratin plicies, hwever, are put under strain when faced with large fluctuatins in the number f arrivals. Building sustainable rganizatinal structures t exchange infrmatin and pl resurces, bth between gvernmental and nngvernmental actrs, will be an imprtant step twards prmting c-peratin at the level f plicy implementatin. 2. Hlistic guidance. Lack f c-peratin between gvernment services, their dispersed lcatins, and diversity f prcedures and cmmunicatin channels creates a lack f clarity in the integratin system. As a result, the integratin prcess can be difficult t navigate fr new arrivals wh are nt familiar with the system and must, at the same time, vercme cmmunicatin difficulties. In this cntext, misinfrmatin can spread rapidly thrugh migrant netwrks and hlistic guidance t prvide the verall picture and t guide new arrivals thrugh the system may be valuable. Infpankki.fi, a website prviding infrmatin in multiple languages, is an imprtant first step in this directin but newly-arrived migrants must be mre systematically directed t the site sn after arrival. 3. C-peratin between municipalities and the Public Emplyment Service. Municipalities have the verall respnsibility fr develping, designing and mnitring integratin at the lcal level. And while municipalities are well placed t c-rdinate health care, scial services, schls, day care, and extra-curricular activities, the divisin f autnmy between municipalities and the PES requires enhanced clarity in the structures fr c-peratin between these bdies. Pr c-peratin bth undermines the labur market fcus f the integratin plans drawn up by the municipalities (fr thse migrants wh are nt actively seeking emplyment), and can limit the scial and familial cntext f the integratin f thse whse plans are drawn up by the PES (thse actively seeking emplyment). Furthermre, because municipalities are liable fr scial assistance f lng-term unemplyed migrants, sme municipalities run labur market training curses t supplement the emplyment supprt prvided by the PES. While this has the benefit f strengthening the labur market fcus f municipal-rganised integratin activities it can create duplicatin f services and further c-rdinatin challenges. 4. Multiple prviders f services. Gaps in service prvisin, fr example the gap between the language level prvided under integratin training and the level required in educatin r the labur market (see challenge II), have led ther prviders t step in t fill these gaps ften thrugh prject-based interventins. Such prjectbased interventins can be an imprtant surce f knwledge regarding what wrks in integratin plicy, but can lead t a cmplex and cnfusing landscape if they are used t slve structural integratin challenges. T be useful in the lng-term, prjects must be carefully designed, effectively evaluated and thse aspects that are fund t be successful must be scaled-up and firmly embedded within the integratin system. Cntinued reliance n prject financing in the lnger-term impedes the ability t plan and train staff and can undermine staff mtivatin. In additin, resurces are devted t seeking cntinued finance rather than integratin itself. Finding the way: A discussin f the Finnish migrant integratin system OECD

10 Challenge II. Language and early integratin supprt Acrss the OECD, knwledge f the hst-cuntry language is a key factr in determining the speed and success f integratin. This is particularly true in Finland, where language skills are an essential prerequisite t scial interactin with the native-brn ppulatin and finding emplyment. Given that bth netwrks and emplyment are imprtant rutes thrugh which t build further language skills, pr knwledge f the hst cuntry language can prmpt a vicius cycle. And, early develpment f sund language skills can have a substantial impact n the transferability f existing skills as well as enabling further skill acquisitin. In 2014, the mst cmmn mther tngues amng migrants undertaking integratin training were Russian (16%), Arabic (10%), Estnian (7%) and English (7%). While Finnish and Estnian are bth Uralic languages, the linguistic difference between Finnish, English, and particularly Arabic, are large, and btaining prficiency can take sme time. Indeed, at the end f the language training the majrity f participants achieve nly level A2.2 (Figure 6). Language, hwever, is nly part f early integratin supprt. Tailred integratin activities that build upn the skills with which migrants arrive, and initiate effrts t bridge disparities with the skills required by the Figure 6: End f Integratin training language results Finnish labur market, are als central. 100% Plicy gverning language training and early integratin in Finland Since 1999, integratin supprt in Finland is prvided n the basis f individualised integratin plans drawn up with all nnemplyed migrants resident in Finland fr under 3 years. The aim f these plans is t prvide sequenced integratin measures designed t maximise the efficiency f training given the skills and circumstances f each migrant. The scpe and structure f training varies accrding t the individuals initial assessment results (see belw) and can last at mst 60 study weeks. 0% Writing test Speaking test Reading test Surce: Testipiste The integratin path is based upn an initial placement assessment undertaken by externally cntracted prviders. The largest amng these, Testipiste, bases placement assignment n infrmatin n study and wrk experience, current circumstances and career aspiratins as well as tests f reading and writing skills in the Rman alphabet, Finnish language skills, mathematics, and tests f structural perceptin. These tests are emplyed in the hpe f ascertaining bth current language ability and the likely speed f language acquisitin. Integratin plans can incrprate either labur market training r 'self-mtivated educatinal study'. Within the frmer, a placement assessment allcates participants t ne f fur tracks: a fast, intermediate and slw track, and a track fr thse requiring basic literacy training. In 2014 the majrity f test-takers were allcated t the intermediate (52%) r slw (26%) tracks. Thse entering 'self-mtivated educatinal study' may enter vcatinally-riented integratin training, basic r upper-secndary educatin, r preparatry classes. Integratin plans are drawn up by the Public Emplyment Service fr thse migrants seeking wrk. Fr thse wh are inactive, such as wmen with small children, municipalities are respnsible fr drawing up integratin plans. Access t municipal-run early childhd educatin and care (ECEC) is a right with participatin subject t a fee which is dependent n family incme and the number f children. A database, Kulutusprtti, is available t share infrmatin between PES ffices and educatinal institutins n placement test results, as well as labur market prgrammes and educatinal curses undertaken. Labur market integratin training is prcured n a cmpetitive basis frm bth public and private educatin prviders and the public emplyment service has recently launched a prject t pilt the prcurement f training n a payment-by-results basis. A new mdel fr integratin is currently under pilt in the frm f a Scial Impact Bnd t assess the efficiency f ffering training interspersed with emplyment rather than the current system in which all training is prvided prir t first emplyment. Participatin will be randmly assigned amng eligible participants t enable evaluatin, and investrs in the privately-financed bnd will see a return if integratin csts are less than fr thse wh d nt receive the new training. Thse undertaking the pilt prgramme will be able t undertake perids f wrk fllwed by tp-up integratin training t fulfill training needs as they emerge. 80% 60% 40% 20% B1.1 B1.2 A1.2 B2.1 A2.1 A2.2 Finding the way: A discussin f the Finnish migrant integratin system OECD

11 Strengthening language and early integratin training Key challenges Heavy caselads mean that, in times f high inflws, Public Emplyment Service casewrkers have insufficient time t prvide apprpriate guidance and supprt. In sme regins the caselad currently reaches up t 400 freign-brn clients with 0-5 years residence per casewrker. Wmen with childcare duties and the inactive d nt have access t integratin training. Furthermre, the time-limited nature f integratin training means that inactivity can be perpetuated when the temprarily inactive attempt t re-jin the labur frce. Delays t language training cmprmise the efficiency f the integratin prcess and fail t capitalise n early mtivatin. In 2014 fr example, there was a wait f apprximately 6-8 mnths fr integratin training in the capital regin. Participants reprt that language training is verly theretical and the heavy fcus n grammar, des nt meet early integratin needs. Pssible directins fr future plicy develpment 1. Vcatinal and real-wrld language learning. Language is mst effectively learnt in cmbinatin with vcatinal integratin activities. Even learners wh are far frm the labur market may benefit mre when the curse is fcused n their real-wrld language needs such as shpping, cmmunicating with medical practitiners and asking fr directins. 2. Re-examine the early separatin f the active frm the inactive particularly wmen with children. Childcare respnsibilities can ften mean that migrant wmen find it difficult t participate in full-time integratin activities at the time f arrival. Withut the pprtunities and incentives t participate in integratin prgrammes, such wmen can becme increasingly islated bth scially, and frm the wrld f wrk. In Finland, the apprach t these additinal hurdles has been t direct wmen, and the inactive, t a separate stream f activities, rganized by municipalities, that is nt riented at labur market entry. This apprach has the effect f maintaining the distance between these wmen and the labur market, and preventing them frm accessing labur market integratin training when they return t the labur frce. This can impact nt nly n the integratin utcmes f the wmen themselves but als n the integratin utcmes f their children. 3. Clarify and c-rdinate intensive supprt. The Finnish PES currently directs clients t ne f three supprt streams; immigrants are mst cmmnly channelled t service stream 2, fr cmpetence-building. Hwever, the supprt ffered t thse directed t the third stream, special supprt fr emplyment, which is designed fr thse requiring the mst supprt, may nt be sufficient. This is due t the large number f jbseekers per PES casewrker perating in this service line. Prject-based supprt, led by municipalities and NGO's, ften fills this gap, but a clearer acknwledgement f what the PES can prvide given their resurces will be imprtant, t ensure that rles are clarified and help is cnsistently available t thse migrants with heavy supprt needs. Online infrmatin n the availability f Finnish curses, including prject-based curses and thse run by NGO's is available n Finnishcurses.fi. Hwever, currently nly larger municipalities are cvered. 4. Re-examine language requirements fr entry int vcatinal training. Language requirements fr entry int educatin (level A2.2 fr entry int preparatry educatin fr vcatinal training, level B1.1 fr entry int vcatinal training, and level B2.2 fr entry int preparatry studies fr plytechnic educatin) have limited the ability f the freign-brn t access these curses and led t delays between the end f integratin training and further educatin. The majrity f migrants achieve nly level A2.2 upn cmpletin f integratin training. Increasing pprtunities and supprt t build language skills alngside further studies may be a mre fruitful rute thrugh which t ensure language skills are adequate t enable further learning. Finding the way: A discussin f the Finnish migrant integratin system OECD

12 Italy Nrway Sweden Denmark France Netherlands Finland Austria Ireland Belgium Germany Switzerland United Kingdm Luxemburg IMD Challenge III. Validatin and recgnitin f skills and freign qualificatins In Finland, as in many OECD cuntries, educatin acquired utside the OECD is strngly discunted in the hst-cuntry labur market. While verqualificatin rates amng the highly-educated freign-brn in emplyment are 10 percentage pints higher than the prprtin f their nativebrn peers, the majrity f this disparity is driven by the freign-brn wh btained their qualificatins utside Finland (Figure 7). Efficient recgnitin and credible validatin f cmpetences can help t reduce the uncertainty invlved in the value f freign qualificatins. Figure 7. Overqualificatin rates f highly-educated wrkers Persns aged nt in educatin, selected OECD cuntries, % 60% 50% 40% 30% 20% 10% 0% Freign brn with hst cuntry educatin Freign brn with freign educatin Native brn Plicy gverning recgnitin and validatin in Finland Recgnitin decisins are made by a number f different bdies in Finland. Primary Figure 8: The path t recgnitin in Finland amng these, is the Finnish Natinal Bard f Educatin (FNBE) which decides n eligibility fr psitins requiring a higher educatin degree, and in the majrity f the 83 regulated prfessins. Alngside the FNBE, field-specific authrities decide n freign qualificatins within their area f cmpetence (Figure 8). Surce: Labur Frce Surveys ; Ntes: Cuntries rdered by disparity between freign brn with a hst cuntry educatin and thse wh btained their educatin abrad. Percent f labur frce. Fees fr recgnitin f qualificatins range frm 213 EUR fr recgnitin f the level f a higher educatinal degree, t 340 EUR fr recgnitin f a prfessinal qualificatin r a decisin ffering cmparisn t a Finnish degree. The FNBE will als issue, fr a fee f 206 EUR, an advisry statement n freign vcatinal qualificatins that can be used t supprt jb search. The average prcessing time fr an applicatin is 3-4 mnths. Higher educatinal institutins have autnmy ver recgnitin fr entry int further studies r fr use twards the cmpletin f a Finnish qualificatin. The FNBE may advise, upn request. "Cmpetence-based qualificatins" cmbine accreditatin and bridging and enable qualitative recgnitin f vcatinal cmpetences, irrespective f whether they were acquired thrugh wrk experience, studies r ther activities. Such qualificatins thus prvide a flexible way t demnstrate, renew and maintain vcatinal skills r qualify fr a new prfessin. Vcatinal mdules, based n real wrk tasks, are defined in cllabratin with business, and it is recmmended that candidates facing additinal challenges in attaining these qualificatins fr example recent immigrants are ffered additinal instructin and supprt. Finding the way: A discussin f the Finnish migrant integratin system OECD

13 Strengthening validatin and recgnitin Key challenges Multiple recgnitin bdies reduce clarity and limit the transparency f the recgnitin prcess. Early stage referral fr recgnitin and bridging is nt systematic. Bridging curses (cmplementary educatin) are undevelped and, where they exist, they can require a very large time investment. Cmpetence based qualificatins are limited t vcatinal fields. Recgnitin is difficult fr thse wh have nt finished r wh have n prf f their degrees. Pssible directins fr future plicy develpment 1. Enhance c-rdinatin f recgnitin services. Such arrangements in OECD cuntries range frm nline infrmatin prtals t fully fledged c-rdinating bdies. While the frmer explain the recgnitin requirements and prcedures, refer immigrants t relevant recgnitin bdies, and prvide applicatin templates, the latter tend t accept applicatins fr the assessment f different types f qualificatins and transfer these internally t the cmpetent recgnitin bdies. Such c-rdinated recgnitin bdies can als play an imprtant rle in enhancing c-peratin with ther relevant stakehlders. 2. Ensure that assessment f freign qualificatins and validatin f infrmal skills frms an integral part f early integratin effrts. Despite effrts t enhance the tailring f early integratin activities, referral f new arrivals t recgnitin services is currently ad hc and largely left t the migrants themselves. The qualificatin an immigrant hlds is perhaps the mst imprtant cmpnent in determining their integratin path and the necessary skill upgrading that they require. Early validatin is therefre a fundamental fundatin upn which t build an apprpriate integratin plan. In Australia, Austria, Canada Denmark, Germany and Sweden, targeted cunselling services are prvided t tackle lack f awareness abut recgnitin prcedures. 3. Cnsider creating flexible pathways t enable individuals with qualificatins btained abrad t begin emplyment in psitins that require little r n additinal training but that relate t the prfessin in which they have experience and training. Such pathways can prvide the pprtunity t acquire vcatinal-specific language, build cntacts and strengthen understanding f the lcal labur market. At the same time, by speeding up the bridging prcess such pathways can prvide much-needed supprt in, fr example, the field f educatin and medicine. It is imprtant, hwever, that recgnitin and bridging are pursued in tandem with early emplyment t ensure that the individual des nt remain stuck in a jb fr which he r she is verqualified. 4. Strengthen c-peratin with emplyers. Addressing emplyer uncertainty abut the value f skills and experience btained abrad is the primary aim f recgnitin in nn-regulated prfessins. Engaging emplyers and generating buy-in frm all stakehlders is therefre crucial t build trust, and ensure that recgnitin prcedures and utcmes are widely accepted and utilised. 5. Prvide cncurrent language supprt. In Finland, language skills tend t be a pre-requisite fr recgnitin, bridging and cmplementary educatin. Finnish cmpetence-based qualificatins incrprate prvisins t supprt thse with language difficulties, such as the cncessin that nn-native speakers may prvide ral rather than written demnstratin f cmpetences. Other OECD cuntries such as Sweden are ging further; prviding recgnitin in the migrants mther-tngue fllwed by language supprt during bridging studies. Such ptins may als be wrth pursuing in Finland. Finding the way: A discussin f the Finnish migrant integratin system OECD

14 Challenge IV. Demand fr labur and cntact with emplyers Where the skills r educatin f migrant wrkers fall shrt f thse required n the Finnish labur market, a skills mismatch can undermine their emplyment utcmes. In the shrt-term, skills mismatch can arise due t temprary limits n prductivity caused by language difficulties, fr example. Hwever, alngside the skills f migrant jbseekers, the attitudes f emplyers and incentives they face when hiring migrants can als impact upn labur market integratin. Relatively strict emplyment prtectin legislatin fr permanent emplyment in Finland can exacerbate this by reducing emplyer's willingness t hire immigrants abut whse skills there is mre uncertainty. And in 2013/14, mre than ne in fur freign-brn wrkers wh arrived in the previus 5 years were emplyed n temprary cntracts duble the prprtin f native-brn wrkers. Furthermre, clse t 90% f these immigrant wrkers undertk temprary wrk because they have been unable t find a permanent psitin a prprtin that is 20 percentage pints higher than amng native-brn wrkers n temprary cntracts. Prgrammes prviding jb seekers an initial fthld in the Finnish labur market thrugh subsidised wages, wrk experience and vcatinal labur market training have prven t be amng the mst effective Active Labur Market Plicies in Finland. Hwever, freign-brn jbseekers rarely take part in these prgrammes while 23.4% f nativebrn jbseekers undertk subsidised emplyment, amng the freign-brn the figure was just 6.9% (Maunu and Sardar, 2015). This is partly due t the fact that newly-arrived immigrants are directed, in the first place, t integratin training; a first, but mre distant, step twards labur market entry. When it cmes t public sectr emplyment, the freign-brn are under-represented in mst OECD cuntries. In Finland, this underrepresentatin is particularly stark; nly 1.5% f thse emplyed in the public sectr were brn utside the cuntry. Furthermre, just 1.7% f freign-brn wrkers are emplyed within the public sectr, placing Finland amng the OECD cuntries with the mst limited rle fr the public sectr in prviding emplyment fr the freign-brn (Figure 9). Plicy supprting emplyer demand in Finland While nt directly targeted at migrants, there exist several prgrammes t help jbseekers gain an initial fthld in the labur market. These include: Wrk try-uts, which must nt exceed 12 mnths in duratin, are designed t supprt career chice ptins and identify what skills supprt is needed fr labur market entry. Try-uts can be an imprtant surce f Finnish labur market Figure 9: Public sectr emplyment Percentage f freign-brn wrkers emplyed in public sectr Surce: EULFS 2013/2014 experience fr the freign-brn whse experience abrad is ften heavily discunted n the Finnish labur market. Participants receive the same benefits as under unemplyment. Under these cntracts, the trainee is paid in line with cllective agreements and the emplyer is reimbursed the csts f training. Subsidised wages may, upn applicatin, be available t thse ver 30. Eligible jbseekers must identify an emplyment pprtunity and the emplyer must submit then an applicatin. Subsidies range frm 30-50% depending n time spent in unemplyment. While integratin training des nt qualify as part f time in unemplyment, recent changes mean the lwest wage subsidy, f 30%, can nw be ffered directly after integratin training. The Finnish PES als ffers training t respnd t emplyers' recruitment needs. These trainings last fr 3-9 mnths and the expectatin is that participants are hired by in the rganisatin rdering the training. Prtugal France Belgium Netherlands Sweden United Kingdm Luxemburg Nrway Germany Austria Denmark Switzerland Finland Ireland Spain Italy Finding the way: A discussin f the Finnish migrant integratin system OECD

15 Encuraging emplyer demand fr immigrant wrkers Key challenges Pr infrmatin limits emplyers understanding f migrant skills and qualificatins. Emplyment prtectin legislatin fr permanent jbs cmbined with risk aversin amng emplyers limits the ability f migrant wrkers t btain this type f cntract. Public sectr emplyment f migrants is lw and the requirement in much f the Finnish public sectr that public servants speak bth Finnish and Swedish represents a substantial challenge fr thse withut a backgrund in these languages. Wrk try-uts cannt be ffered by emplyers wh have invluntary part-time wrkers r have recently made layffs, even if these were in anther part f the cuntry. Verifying that they qualify t ffer try-uts has been an administrative cst many emplyers are unwilling t pay. Migrants are prly represented in subsidised wage prgrammes, despite the fact that these prgrammes help them vercme initial hurdles and prvide imprtant labur market experience. Pssible directins fr future plicy develpment 1. Enhance dialgue and c-peratin with emplyers. Emplyer demand fr migrant skills is, in large part, limited by a lack f infrmatin abut the skills f migrants. Better identificatin and selectin f suitable migrant candidates may help vercme this. Enhancing c-peratin with emplyers in develping a widely-accepted assessment f skills, as well as in identifying and addressing the hidden administrative csts that limit the number f wrk-based prgramme places ffered by emplyers will be imprtant avenues fr supprting emplyer demand. 2. Prmte access t prgrammes ffering wrkplace experience. Access t the wrk place can be particularly valuable fr migrants and can help them vercme the shrt-term challenges psed by early language difficulties and lack f Finnish labur market experience. Ensuring that migrants have apprpriate access t wrk experience prgrammes will invlve mnitring referrals t ensure that migrants are directed t prgrammes n the basis f their characteristics and needs rather than their status as newcmers. PES casewrkers culd als benefit frm training and supprt t prmte understanding f the additinal hurdles beynd language facing migrants, and the apprpriate tls t address these. 3. Facilitate access t public sectr emplyment. By increasing the visibility f migrants in public life, prviding rle mdels fr yuth with a freign backgrund, and ensuring that migrants are given the pprtunity t integrate and develp their skills, public sectr emplyment is an imprtant tl fr integratin. In additin, by increasing the dayt-day cntact between migrants and the native-brn, the emplyment f migrants in the public sectr can address the miscnceptins and infrmatin deficiencies that can arise frm lack f interactins and understanding. 4. Mentrship prgrammes can help newly-arrived migrants vercme their lack f netwrks and labur market knwledge and can be a cst-effective means f integratin. Such prgrammes match migrant jb seekers with native-brn individuals with a similar backgrund (e.g. age and ccupatin) with the aim that the native-brn persn prvides the migrant with access t persnal netwrks and tacit knwledge abut the functining f the labur market. At the same time, these prgrammes invlve the native-brn ppulatin in taking an active rle in integratin and by increasing interactins prmte mutual understanding. Finding the way: A discussin f the Finnish migrant integratin system OECD

16 Discriminatin generally takes ne f tw frms. The first, statistical discriminatin, ccurs when lack f infrmatin abut a candidate s experience r qualificatins causes risk-averse emplyers t avid hiring him/her, while the secnd, taste-based discriminatin, ccurs when emplyers simply prefer t hire candidates with a particular rigin. Discriminatin in hiring may ccur even when the emplyer themselves is unprejudiced. If a significant share f cnsumers d nt want t interact with immigrant wrkers, prfit-mtivated emplyers may wish t limit the recruitment f such wrkers t avid displeasing their custmers. Mre indirectly still, discriminatin may arise if steretypes drive precnceptins amng the service wrkers such as career advisers and PES casewrkers whse advice influences the educatin and career chices f migrants. If migrants are directed t the curses and careers in which the freign-brn are already cncentrated, they may nt even attempt t enter certain prfessins. Frm the perspective f the immigrant themselves, the prprtin f freign-brn individuals that feel discriminated against in Finland, at just 11%, is amng the lwest in the OECD. Hwever, field experiments investigating discriminatin in recruitment in Finland have fund that, in spite f a relatively strng legal anti-discriminatin framewrk, jb applicants with Russian names and therwise equivalent CVs were bliged t send twice the number f applicatins in rder t be called t interview than candidates with Finnish sunding names (TEM 2012). These findings suggest that discriminatin remains an issue in Finland. Given that immigrants themselves largely d nt perceive it suggests that such discriminatin is rarely vert. Recent data suggest that the prevalence f discriminatin may be particularly prnunced in certain ccupatins. Indeed a 2014 survey f Finlands freign-brn ppulatin fund that immigrant's wrking in managerial psitins experienced less inequality than thse in lwer-level psitins. These findings were mirrred in the findings f Sutela and Leht (2014) wh interviewed native-brn wrkers and fund that thse in white-cllar ccupatins were mre likely t feel their immigrants clleagues were treated equally than thse wrking in blue-cllar psitins. Discriminatin Plicy in Finland IMD Challenge V. Discriminatin In 2015, a refrm t the Finnish Discriminatin Act bradened the cncept f discriminatin frm the previusly narrw fcus n ethnic discriminatin t include all frms f equality (ther than gender equality). At the same time, the new law cncentrated anti-discriminatin plicy under the aegis f the Ministry f Justice. The refrm als created the independent and autnmus Nn-Discriminatin Ombudsman (previusly the Ombudsman fr Minrities) and that Natinal Nn-Discriminatin and Equality Tribunal (previusly tw separate tribunals fr discriminatin and equality). The Nn-Discriminatin Ombudsman bth investigates cases f discriminatin and cncurrently wrks twards imprving the rights and status f grups at risk f discriminatin. Activities include cunselling, prmting cnciliatin, prviding training, and lbbying. The Natinal Nn-Discriminatin and Equality Tribunal an independent judicial bdy supervises cmpliance with the Nn-Discriminatin Act in public administratin and cmmercial activities. The Natinal Advisry Bard fr Ethnic Relatins (ETNO) brings tgether migratin experts frm acrss gvernment and civil sciety with the aim f building trust thrugh c-peratin and discussin with immigrants, minrities, public authrities, plitical parties and NGOs. The 2015 act cmpels all emplyers with greater than 30 emplyees t draft an equality plan. The plans, which must cntain details f hw equality will be prmted and discriminatin prevented, must be renewed n a regular basis. Diversity training is available fr cmpanies. A mnitring system t cllect and publish infrmatin n incidences f discriminatin is currently under develpment by the Ministry f Justice. Finding the way: A discussin f the Finnish migrant integratin system OECD

17 Tackling discriminatin IMD Key challenges Steretypes can influence the behaviur f well-meaning service prviders. Anti-discriminatin laws are difficult t implement because discriminatin is difficult t prve. Implicit discriminatin can take many different frms and is difficult t identify. Unnecessarily high language requirements ften result in effective discriminatin. Thugh equality plans must be updated regularly, neither the frequency nr ptential sanctins have been defined. Pssible directins fr future plicy develpment 1. Educatin fr service prviders. When career advice bth in the educatin system and in the labur market is based upn steretypes, statistical discriminatin can be self-perpetuating. If migrants are directed mre frequently t lwer-skilled prfessins, their lack f representatin in highly-skilled sectrs will perpetuate the lack f rle mdels in such sectrs, and the statistics upn which the steretypes are based will persist. Similarly, if children are directed primarily t vcatinal, rather than academic, curses n the basis that these are the curses that migrants mst ften attend, their aspiratins will be limited. T avid such a situatin, it is imprtant that effrt is placed in prviding service prviders in the PES and the educatin system with training t ensure that they direct everyne t the mst apprpriate curses regardless f their place f birth, r that f their parents. 2. Prviding frums fr cntact between native-brn Finns and migrants. Finland's relatively shrt histry as a migrant-hsting cuntry means that many Finns have, thus far, had limited cntact with migrants. Segregatin in husing and in educatin, where migrants are ften cncentrated in preparatry classes, has further undermined such interactins. Mentring schemes, such as Wment which wrk t prmte netwrks and labur market knwledge f educated migrant wmen, are an imprtant step twards strengthening cntacts and increasing scial interactins between migrants and native-brn Finns. Hwever, frums fr scial cntact that g beynd such vlunteering schemes will als be necessary t ensure that ignrance and inexperience d nt drive fear and mistrust which, in turn, may ultimately underpin discriminatin. 3. Overcming pssible prejudices amng emplyers and enhancing the benefits f nn-discriminatin. Genuine experience f wrking with immigrants is ften far mre effective in cmbating discriminatin than antidiscriminatin law itself. Hwever, the relatively small number f immigrants in Finland means that few emplyers have direct experience f wrking with immigrants. Allwing emplyers t vercme imperfect knwledge f the skills f the immigrant by hiring them initially n a trial basis is a key cmpnent in reducing the prejudice and uncertainty that ften prevents emplyers frm hiring migrants. Reducing the restrictins n emplyers wishing t use wrk try-uts t emply newly arrived immigrants wuld be ne step twards addressing this. Prviding tls t allw migrants t signal their quality (fr example thrugh enrllment in prestigius and selective prgrammes), may be anther. Finding the way: A discussin f the Finnish migrant integratin system OECD

18 Challenge VI: Integratin in Schl Acrss cuntries, studies have shwn integratin utcmes tend t be better when immigrant children arrive at an early age, (see fr example Åslund et al., 2009). In Finland, hwever, even thse migrants wh arrive befre the age f 15, struggle t integrate, and survey data suggests that 35% f this grup leave schl early the highest in the OECD. Mre wrrisme still, accrding t data cllected as part f the OECD Prgramme fr Internatinal Student Assessment, the literacy disparity between the native-brn children f the freign-brn and thse with native-brn parents is the largest amng surveyed cuntries. Given the relatively shrt histry f migratin in Finland, there have been relatively few native-brn children f the freign-brn. Hwever, as the children f thse migrating t Finland in the 1990 s are nw entering the schl system in increasing numbers, the magnitude f the literacy disparities is psing an increasingly urgent questin. While helping native-brn children with freign-brn parents t thrive in schl is clearly a challenge in Finland, prviding supprt fr thse wh arrive just befre adulthd is likely t be mre challenging still. Apprximately asylum-seekers arrived in Finland between the ages f 16 and 18 in The vast majrity (apprximately 2 800) f these minrs arrived unaccmpanied. Thse arriving belw the age f 16/17 will have access t basic educatin r preparatry studies (see figure 10 belw). Hwever, language prblems, alngside ther difficulties, will temprarily hamper the perfrmance f newly-arrived children. Given that, n tp f this, many will bring with them limited prir educatin, it is likely that many will nt have acquired the basic skills t be emplyable by the age at which cmpulsry educatin ends. The Ministry f Educatin and Culture estimates that in 2016, apprximately yung migrants will be in this psitin. Finland stands ut amng OECD cuntries in the lack f high-stakes tests, and indeed the first natinal assessment is the matriculatin examinatin at the end f general upper-secndary educatin. In thery this shuld allw newlyarrived migrants time t vercme the initial setbacks that, in the presence f age-related perfrmance assessments, can cnstrain educatinal ptins. Hwever, freign-brn students and children with freign-brn parents are nnetheless mre likely t pt fr vcatinal educatin tracks, and stakehlders have expressed the belief that these aspiratins are reinfrced by the steretypes held by careers advisrs. While the vcatinal track des nt prhibit entry int the university system, few vcatinal students are able t successfully navigate this rute (OECD 2015b). Research has shwn that graduates frm upper-secndary vcatinal prgrammes have, at 13%, an unemplyment rate that is duble the rate f that amng graduates f plytechnics (7%), and universities (6%) (Stenström and Virlainen, 2014). They are als twice as likely t find themselves in NEET (20%), as cmpared with thse cmpleting a general upper-secndary educatin. Finding the way: A discussin f the Finnish migrant integratin system OECD

19 Figure 10: The path t integratin in the Finnish schl system Integrating yung migrants and the children f migrants int the Finnish schl system In Finland, families are entitled t access early childhd educatin bth in receptin centres and when placed in a municipality after a residence permit has been granted. Municipalities may prvide preparatry studies fr basic educatin fr freign-brn students (and, when needed, fr the native-brn with freign-brn parents). The emphasis f instructin is n Finnish, r Swedish, as a secnd language and the gal is that, at the end f preparatry studies, students shuld achieve level f A1.3- A Alngside this, sme mther-tngue instructin is prvided. Integratin frm preparatry studies (PEVA) int standard pre-primary and primary educatin is undertaken accrding t the student's knwledge and skills and begins as sn as is pssible in thse subjects where language knwledge is less critical. These preparatry studies, which are funded n a per student basis with a central gvernment transfer amunting t 2.49 times the transfer fr regular pupils, prvide teaching equivalent t ne year's full-time educatin ( hurs). Preparatry studies fr vcatinal training (VALMA) prvide 6-12 mnths f language and cntent-based tuitin cnducted entirely in Finnish/Swedish. Alngside the freign-brn, VALMA is targeted at smthing transitin t qualificatin-riented studies fr yuth with special needs, and thse utside the educatin system. Freignbrn adults may als access the supprt alngside integratin training r shrtly thereafter, while thse wh d nt meet the language requirements f VALMA may pursue a mdular cmpetence-based qualificatin (OPVA) targeted at thse with insufficient language, technlgy r study skills. Freign-brn students in vcatinal upper-secndary may study Finnish/Swedish as a secnd language, emphasizing prfessin-related vcabulary. They may als be ffered remedial educatin if necessary. Since 2014, it has been pssible t rganise preparatry studies fr general upper-secndary educatin (LUVA). These classes take ne academic year and, alngside language studies, incrprate subject-based study, knwledge f sciety and culture, and student cunselling. Basic educatin subjects can als be incrprated as part f LUVA t imprve grades. Finding the way: A discussin f the Finnish migrant integratin system OECD

20 Strengthening integratin in schl Key challenges Preparatry educatin is nt available in all municipalities. A lack f flexible educatin ptins limits the mve t academic streams fllwing initial educatin setbacks. Teachers reprt experiencing limited interactin with parents as the increasing reliance n electrnic cmmunicatin impedes their ability t prvide hlistic supprt fr learning. Educatinal chices are stymied by limited awareness f labur market pprtunities and pr career advice. A large number f migrants arrive twards the end f cmpulsry educatin. Lack f immigrant teachers means that there is a lack f rle mdels fr freign brn students. Pssible directins fr future plicy develpment 1. Preparatry studies (PEVA) must be prvided in all municipalities. While the additinal funding fr PEVA (see abve) shuld enhance the incentives fr municipalities t prvide such studies, they have n legal bligatin t d s. Indeed, in 2014, the Ministry f Educatin and Culture fund such instructin was prvided in less than ne third f municipalities. Clearly lcal educatinal authrities have knwledge abut the cnditins fr success in the lcal cntext, nevertheless ensuring equal access t quality educatin acrss the cuntry requires clear natinal guidelines. Municipalities shuld be supprted in building capacity and increasing understanding f successful integratin practices. Alngside this, hwever, natinally-specified limits n the duratin f such educatin are needed t ensure children d nt get trapped in preparatry r Finnish-as-a-secnd-language curses. 2. Prvide a smth transitin frm preparatry studies (PEVA) t basic educatin. Enabling supprt t cntinue alngside mainstream classes can help speed-up and smth the transitin, facilitating integrated cntent and language learning. 3. Basic educatin must be prvided in a cherent way t thse wh have exceeded the age f cmpulsry schling but require mre supprt than is available under labur market training fr basic educatin. 4. Parents shuld be viewed as a learning resurce. The increasing rle played by technlgy in cmmunicatin between teachers and the family in Finland has, t sme extent, undermined family invlvement in educatin. This can be particularly damaging fr children with freign-brn parents wh are less familiar with the Finnish educatin system and the necessity f educatin fr integratin int the labur market and sciety mre widely. 5. Career advice must stretch educatinal ambitin and nt stymie the develpment f aspiratins. Schl guidance shuld be fcused n labur market realities and encmpass a brad range f tls including the prvisin f infrmatin, mentrs and wrk experience. Up-t-date infrmatin n emplyment pprtunities, ptential returns (expected earnings and ptential career paths) as well as the qualificatins necessary t access certain career paths is a critical cmpnent in building aspiratins and ensuring that early educatinal chices d nt lead t a path dependency. Finding the way: A discussin f the Finnish migrant integratin system OECD

21 Annex: The integratin wrkshp The OECD, tgether with the Finnish Ministry fr Emplyment hsted a migrant integratin wrkshp, Finding the way: Emplying the use f migrants in Finland, in Helsinki n the 20 th f June All majr stakehlders fr integratin in Finland were invited t view the integratin system in a hlistic manner in rder t identify bttlenecks and inefficiencies in the integratin system whether in plicy design r implementatin and t wrk tgether t develp cncrete ideas f hw t tackle these challenges. Prir t the wrkshp, an OECD fact-finding missin tk place in April The wrkshp, pened by the Permanent Secretary frm the Ministry f Educatin and Culture, Ms Anita Lehikinen, brught tgether senir experts and plicy makers drawn frm acrss Gvernment ministries Reginal and lcal actrs Gvernment agencies Academia Scial partners Nn-Gvernmental Organisatins In additin, participants were jined by internatinal experts frm Germany, frm Sweden, and frm Prtugal with expertise in qualificatin recgnitin and validatin f skills, in integrating yung migrants int schl and in integratin in a difficult ecnmic climate. A full list f the participants is included belw. The wrkshp fcused n six themes, identified as critical issues facing migrants in their integratin int the Finnish labur market. These included: I. Building skills in schl fr yung arrivals and the children f immigrants II. Language training III. Validatin and recgnitin f migrant skills IV. Cntact with emplyers and scial partners V. Discriminatin VI. C-rdinatin amng actrs at the natinal, reginal, and municipal level Finding the way: A discussin f the Finnish migrant integratin system OECD

22 The wrkshp will be fllwed-up by a full review including cncrete plicy recmmendatins and details f plicy innvatins pursued in ther OECD cuntries. The review will prvide in-depth analysis int the selected themes utlined in this synthesis nte and will be finalized in See figure 11 belw fr an utline f the prject prcess. Figure 11. Prject Prcess Participants in the wrkshp Gvernment Offices Pauliina Prkka Jb title Ministry f Emplyment and the Ecnmy Terhi Martins Ministry f Emplyment and the Ecnmy Hillevi Lönn Ministry f Emplyment and the Ecnmy Jhanna Laukkanen Ministry f Emplyment and the Ecnmy Anna Bruun Ministry f Emplyment and the Ecnmy Susanne Pieppnen Ministry f Emplyment and the Ecnmy Kaisu-Maria Piirinen Ministry f Educatin and Culture Nina Sursa Ministry f Justice/ETNO Anna Rundgren Ministry f Interir Gvernment Agencies Jhanna Niemi Jb title Natinal Bard f Educatin Kati Cstiander Natinal Bard f Educatin Marjut Kukkanen Natinal Bard f Educatin Sanna Penttinen Natinal Bard f Educatin Jussi Tervla KELA Anu Castaneda Natinal Institute fr Health Tarja Nieminen Statistics Finland Mika Sal PES Olli Snellman Migri Tiina Järvinen Migri Finding the way: A discussin f the Finnish migrant integratin system OECD