No magic wand: co-development as an integration tool TOGETHER FOR SOCIAL EUROPE BRIEFING ON MIGRATION AND INTEGRATION 07
* Glossary Co-development: Although there is no common definition, the common understanding is that the co-development approach brings together migration, integration and development policies, and is based on the mutual benefit principle (i.e. migration should be beneficial for the countries of origin and transit, the host society, and the migrants themselves). Co-development therefore aims to bring development to countries of origin, as well as a better integration of migrants in their host societies. What does the integration of migrants mean? A real integration of migrants into society is about migrants having equal opportunities both in social and civic terms. In social terms, integration is about migrants having the same opportunities to lead a dignified, independent, active and decent life like the rest of the population. In civic terms, it is about all residents committing themselves to mutual rights and responsibilities on the basis of equality. Co-development*, by empowering migrants to become agents of their countries of origin and hence enhancing their role as active citizens, can have a positive impact in their integration. Open Method of Coordination (OMC): A European policy method which relies on soft law mechanisms such as guidelines and indicators, benchmarking and sharing of experiences and best practice. Common policy objectives are defined and a system of national reports is set up in view of policy coordination and convergence. It is used in policy areas where EU competencies are restricted. Context At the European Council meeting in Tampere in October 1999, European leaders called for a common immigration policy to ensure the integration of third-country nationals residing in the EU, with the ultimate goal of granting third-country nationals rights and obligations equivalent to those of EU citizens. Despite willingness from the European Commission, the process has so far been mainly intergovernmental since competences around migration and integration policies are primarily at the national level. Following the Tampere Council, in November 2004 the European Council adopted The Hague Programme which underlined the need for a greater coordination of national integration policies and EU initiatives in this field. The Justice and Home Affairs Council then adopted a set of Common Basic Principles (CBPs) underlining the importance of a holistic approach to integration. These principles were further developed in September 2005 with the Common Agenda for Integration by the European Commission. In the field of non-discrimination, the EU has important powers at its disposal to control Member States after a package of anti-discrimination measures was adopted by the EU Council of Ministers in 2000. This package consists of two legal instruments: a directive on racial discrimination and a directive on discrimination in employment. Since the adoption of the Tampere consensus, there has been a shift towards a Fortress Europe mentality where border control has become the main priority. An example of the current regressive stand of the EU on migration and integration issues is the Return Directive which has effectively narrowed down the debate on migration to a security perspective and established deprivation measures to the freedom of migrants, implying a backwards step in the defence of human rights. SOLIDAR and its member organisations have been closely monitoring these processes since their start and contributed to debates and consultations on issues including employers sanctions directive, the blue card initiative, co-development, migration and education. To read more about SOLIDAR s work, please visit www.solidar.org. ACPP
About Asamblea de Cooperación Por la Paz Asamblea de Cooperación Por la Paz (ACPP) is a SOLIDAR member from Spain. It supports democratic and progressive civil society organisations in developing countries to promote local structures and enhance active citizenship in search of alternatives to achieve more just and democratic societies. At European level, ACPP aims to develop an integral approach to formal and non-formal education through its work on education of values, particularly to prevent racism and promote integration. In the field of migration and integration ACPP has developed numerous projects and set up support services for more than one decade now. The projects of ACPP in the field of co-development intend to promote the integration of migrants into the labour market and society by means of counselling, offering vocational training in particular aimed at women, running job/placement centres and sensitising and informing employers. www.acpp.org What the social workers think Co-development on its own cannot address all the world s inequalities nor ensure the integration of all migrants in host societies. It can, however, be a good approach for migrants like Abdelaaziz, who want to be involved in decisions on how to promote the development of their societies of origin, while at the same time offering them a framework to actively participate in their host societies. By training them and facilitating their participation in society as active citizens, co-development can make people like Abdelaaziz aware of their potential to change conditions in society by being a vector of social, economic and cultural development in both their host societies and in their countries of origin. Meet Abdelaaziz Abdelaaziz is a young Berber of about 29 years of age. He is from Hansala, a very small village of 1,000 inhabitants in the middle of the Moroccan Atlas, without electricity, running water, roads or shops. Abdelaaziz arrived to Spain in 2000 on a patera (small boat) and 9 years later is Secretary General of a small association of Moroccan migrants in Spain, which works regularly with ACPP. Simply through the process of engaging with other migrants, and with other organisations here in Spain and in Morocco, people like Abdelaaziz act as active citizens, hence clearly increasing their sense of belonging and integration in their host societies. When a patera sunk off the South coast of Spain in October 2003, the life of Abdelaaziz s village changed for ever. 37 people perished in the accident, 12 of whom were from Hansala, all with friends and relatives already living in Spain. Deeply moved by the accident, a group of Spanish citizens set up the association Solidaridad Directa and created in Hansala in 2004 La asociación por el progreso y la cultura de Hansala (Association for the progress and culture of Hansala). In 2005 and with the involvement of Abdelaaziz La Asociación de Inmigrantes de Hansala en España (Association of migrants from Hansala in Spain) was created in Spain with two aims: to improve the living conditions and economic development of Hansala and avoid their young people from having to migrate illegally. Abdelaaziz, as well as all the other members of the association, contribute monthly to a fund that is transferred to the local association in Hansala. This money has enabled the inhabitants there to build a small health centre, rehabilitate and enlarge the school, buy an ambulance, give scholarships to all high school students and improve the irrigation systems. Abdelaaziz is particularly proud of the fact that no young inhabitant from Hansala has chosen to migrate illegally since the association started their activities. For Abdelaaziz, being integrated into society means Having the same rights as other citizens Being considered as part of the civil society and therefore provided with opportunities to be an active citizen and participate in society Having access to training Having equal opportunities to access the labour market ACPP
03 Interview with member of staff at Asamblea de Cooperación Por la Paz How can co-development contribute to the integration of migrants? Co-development is not a magic solution to integrate migrants into society and guarantee the development of their countries of origin, but it is a good way of ensuring that migrants participate in their host society whilst not losing links with their society of origin. What is ACPP s approach to co-development? There are three reference points in the Universal Declaration of Human Rights key to ACPP s understanding and approach to co-development, the articles 1, 13 and 29 1. ACPP s work in the field of co-development is structured around the following conceptual orientations: awareness-raising on issues related to immigration and codevelopment, the promotion of mutual respect and realisation of human rights for everyone, strengthening civil society, and the promotion of transnational networks. ACPP sees its role as an intermediary encouraging the civic involvement of immigrants, due to their important potential to advance the economic and civic development of their societies of origin, and constructing a more just receiving society. Providing migrants with opportunities to actively participate in society is the responsibility of all European countries. Based on ACPP s long experience in this field, how can we make co-development work? We have found that successful policies and measures promoting co-development need to be built on four points. Firstly, promoting change in society by combining education on values, awarenessraising on the positive contributions of migration to society and promoting codevelopment. Secondly, promoting a sustainable path to development where those benefiting from development are not treated as mere recipients, but as individuals with qualifications and capacities who can contribute to the economic and civic development of their countries of origin and host society. Thirdly, ensuring the involvement of different institutions and stakeholders including solidarity organisations at a local level and the creation of intercultural dialogue spaces. Fourthly, supporting and promoting local organisations and the participation of citizens in them, aiming for more just and democratic societies. What are your demands to your national government? First and foremost, public policies based on the respect of fundamental rights are needed. Processes of integration in the host society are to be favoured and the personal autonomy and right to decide one s own fate as a person with rights to be guaranteed. We also need a single, coherent theoretical framework for co-development; currently there is just a series of projects and issues which makes it difficult to illustrate what the co-development concept entails across its different dimensions. Finally, in order to allow immigrants to play their pivotal role, a political and institutional recognition of co-development is needed as well as the elimination of spaces of exclusion, marginalisation and vulnerability. Migration policy in Spain In Spain about 10% of the population, over 4.5 million people, are born outside of Spain. In absolute terms only Germany has a higher number of inhabitants with a foreign nationality in the EU-27. According to the Spanish National Statistics Institute, the means of transport most commonly used for entering Spain has not been pateras or small boats, which only represents 1% of the total, but plane (63%), followed by terrestrial means (car, coach) (22%). Migrant workers in Spain have a remarkably higher percentage of unemployment than national workers. At the end of the last trimester of 2008, 15% of Spanish were unemployed, and 28% of foreigners. Most migrants to Spain come from Latin America (39%), followed by countries from the European Union (33%) and Maghreb (13%). In Spain the entry and residence conditions of migrants are regulated by the law Ley Orgánica 4/2000, de 11 de enero, sobre derechos y libertades de los extranjeros en España y su integración social, currently undergoing a reform, which would toughen the current law by for example, increasing the internment period for people without residence permit from 40 to 60 days and limiting the right to family reunification to relatives in the ascending line to people over 65 and requires 5 years of residence in Spain and not guaranteeing access to certain basic services. Regarding the civic rights of migrants both the current law and the reform project acknowledge the right to vote in local elections, as long as the reciprocity principle with the country of origin is fulfilled i.e. Spanish people living in that country are also allowed to vote. Minors under 16 also have the right and duty to be educated independently of their administrative situation. Foreigners also have the right to free healthcare. 1 Art. 1: All human beings are born free and equal in dignity and rights. They are endowed with reason and conscience and should act towards one another in a spirit of brotherhood. Art. 13 (1): Everyone has the right to freedom of movement and residence within the borders of each state. (2) Everyone has the right to leave any country, including his own, and to return to his country. Art. 29 (1): Everyone has duties to the community in which alone the free and full development of his personality is possible.
04 Issues prioritised by the PES Group in the Committee of Regions The PES Group in the Committee of the Regions (CoR) strongly believes that the integration of migrants is an incontestable component of any attempt at a coherent migration policy. The EU benefits from migration, but migration must be managed effectively, and those who arrive need help. Local and regional authorities are the first points of encounter between migrants and the host country. It is the local and regional level that is called on to provide key services for migrants, ranging from reception centres and healthcare to schooling and housing. But even once the immediate needs are met, integration into a new society is a complex process. For it to be successful, it must be a two-way process, in which the migrant and the host society learn about each other, accept each other and find ways to live together, a process that pre-supposes a clear definition of rights and responsibilities of both parties. This is where things tend to go wrong. At the same time, most migrants keep strong links with their countries of origin. Therefore, in order to manage migration and make it beneficial to all parties concerned, local and regional authorities should work with those interested migrants in order to help also their home countries and build lasting partnerships. INTERNATIONAL LABOUR ORGANIZATION View from a regional authority Anna Terrón i Cusí Member of the Committee of the Regions and Secretary for European Union Affairs, Government of Catalonia, Spain Oriol Amorós i March, Secretary for Immigration, Ministry for Social Action and Citizenship, Government of Catalonia, Spain The Catalonia-Maghreb Programme was launched by the Ministry for Social Action and Citizenship of the Government of Catalonia, through the Secretary for Immigration and the General Directorate for the Care of Children and Teenagers. This Programme targets children living in government-run or subsidised centres, under the administrative supervision of the General Directorate for the Care of Children and Teenagers (Direcció General d'atenció a la Infància i l'adolescència, DGAIA in Catalan), whose families are identified, and who want to return to Morocco, leading to family reunification, education and vocational training and, therefore, to their working and social integration through the resources provided under the Programme. The goals of the programme are: 1. To promote the voluntary return of unaccompanied Moroccan minors living in Catalonia (under the tutelage of DGAIA) to their country of origin, in accordance with their families and ensuring the superior interest of the minor in the process of reunification. 2. To develop, in Tangier and its area of influence, the necessary actions to ensure a valid alternative for children who have emigrated and for minors who seek to do it, consisting of: The set up of a vocational training centre that will deliver Moroccan and European qualifications, acting in collaboration with the Office of Professional Education of Morocco, in several areas: hotel services, computers, electricity, construction, textile, etc. This includes an interdisciplinary team of care of minors. The work in networks with European and Moroccan institutions that carry out actions for the prevention of migration without guarantees. The agreement with the Moroccan and European companies present in the region of Tangier, for the establishment of training contracts and work practices of these children and minors. Fostering the definition of new professional figures for social services, according to the needs and interests of the Moroccan institutions. Training of the responsible persons involved in social actions Morocco. The Catalonia-Maghreb Programme was one of the projects selected in 2006 by the Europe Aid Office of the European Commission, under the AENEAS programme. It is a follow-up of the successful Programme Tangier-Barcelona, which was initiated in 2003. It has also the financing of the Catalan Agency for Development Cooperation. The Catalonia-Maghreb Programme is a pilot experience held for 3 years having started in December 2006. During its development it foresees cooperation with Morocco with a view to strengthening networks for prevention of risks for children and for care of minors. This Programme, beyond the objectives stated above, should enable progress in relations and development cooperation between Morocco and Catalonia, especially in the optimisation of social services in that country. The legal framework of the programme is supported also by the agreements on migrant children signed in Rabat on March 7 2007 between the Governments of Morocco and Spain.
05 Together for Social Europe is aone-year project which aims to demonstrate that a more social Europe is necessary for a socially sustainable and cohesive Europe. SOLIDAR seeks to demonstrate this by highlighting SOLIDAR members experiences of working with socially and economically disadvantaged people and putting forward proposals to EU and national decision makers. This briefing, coordinated by SOLIDAR, is supported by the Foundation for European Progressive Studies (FEPS) with contributions by SOLIDAR member Asamblea de Cooperación por la Paz and the PES Group in the Committee of the Regions. All Together for Social Europe briefings are available on www.solidar.org SOLIDAR is a European network of 53 NGOs active in over 90 countries working to advance social justice in Europe and worldwide. SOLIDAR lobbies the EU and international institutions in three primary areas: social affairs (more social Europe), international cooperation (decent work for all) and education (lifelong learning for all). SOLIDAR s recommendations for EU decision makers on migration and co-development 1. Integration can only be succesfully achieved by Providing migrants with decent working and living conditions. Establishing a coherent European framework for integration based on the Common Basic Principles (CBPs) and assessing the progress of national governments in implementating the CBPs. Strengthening the Open Method of Coordination (OMC) * on migration and integration as a good instrument to promote good practices and assess the implementation of the CBPs. Promoting integration policies designed as a two-way process, which provides migrants with opportunities to fully participate in society (like the right to vote on local elections) and undocumented migrants with access to services that are essential to guarantee fundamental rights (like access to health services). Promoting the participation of migrants in the sphere of employment by ensuring their right to seek jobs and enjoy full trade union rights. 2. Using co-development as a tool to integrate migrants by Not using it asatool to control migration flows. Implementing effective policies which enable migrants to contribute to the development of both their countries of origin and host societies. Making all EU Member States ratify the 1990 UN convention on the rights of all migrant workers and members of their family. Broadening legal channels for the entry of third-country nationals as the most effective means of combating irregular migration and ensuring that migrant workers are not exploited. Guaranteeing undocumented migrants access to basic services and ensuring migrant children access to free education. Allowing circular migration, also ofl ow-skilled migrants, to partially solve problems related to brain drain. Ensuring a greater coordination of EU and Member States foreign, development, and social and home affairs policies to arrive at more coherent measures and programmes. 3. Facilitiate integration by strengthening the role of civil society organisations by Enhancing the role of civil society and educational institutions in the debate on migration and integration policies to ensure that the rationale for these policies and their beneficial effects on societies are better explained to the public. Involving stakeholders, including civil society, in the design and implementation of migration, integration and co-development policies, especially at local and regional level as this is the level at which integration takes place. Providing civil society actors with the means to further develop co-development. Responsible editor: Conny Reuter Project coordinators: Mathias Maucher and David Andrés Viñas Publication coordinator: Abigail Goundry Printed on recycled paper SOLIDAR September 2009 This publication has been produced with the assistance of the European Union. The content of this publication is the sole responsibility of SOLIDAR and can in no way be taken to reflect the views of the European Union