OFFICE FOR FOREIGN AFFAIRS PRINCIPALITY OF LIECHTENSTEIN
INTEGRATION OF THE FOREIGN POPULATION IN LIECHTENSTEIN
Status report on facts, causes, measures and recommended integration policy actions published by the Working Group against Racism, Anti-Semitism, and Xenophobia
Vaduz, August 2007
Source: Office of Equal Opportunity, Vaduz. Photographer: Ingrid Delacher, blusky.li.
Integration in Liechtenstein
TABLE OF CONTENTS
INDEX OF TABLES AND FIGURES 6
INTRODUCTION 7
SUMMARY 10
PART I: INTEGRATION POLICY 14
1 Goals and content of integration policy 14 1.1 Government Policy Paper on Integration Policy 14 1.2 Non-discriminatory treatment of foreigners 16
2 Legal framework of integration policy 17 2.1 Integration and non-discrimination 17 2.2 Temporary and permanent residence, naturalization 19
3 Competences and instruments for the promotion of integration 22 3.1 Office of Equal Opportunity, commissions, and working groups 22 3.2 Offices of the National Administration 23 3.3 Police, Office of the Public Prosecutor, and Probation Service 24 3.4 Municipalities 24 3.5 Non-governmental organizations 24
PART II: FOREIGNERS IN LIECHTENSTEIN 26
4 Overview data on the foreign population 26 4.1 Share of foreigners 26 4.2 Sociodemographic characteristics 28 4.3 Length and status of stay 29 4.4 Data on crime perpetrated by the foreign population 30
5 Asylum 31 5.1 Asylum procedure and competences 31 5.2 Asylum seekers and provisionally admitted persons 32 5.3 Admission on humanitarian grounds, persons in need of protection, and refugees 35
6 Attitudes toward foreigners, discrimination 37 6.1 Attitudes toward foreigners 37 6.2 Discrimination 41 6.3 Racism and right-wing extremism 41 6.4 Measures against discrimination and right-wing extremism 44 6.5 Recommended integration policy actions 50
PART III: AREAS OF INTEGRATION 51
7 Schooling 51 7.1 Data on foreign students and their integration 51 7.2 Causes of integration deficits 54 7.3 Especially vulnerable groups (risk groups) 54
3 Integration in Liechtenstein
7.4 Competences and existing measures 54 7.5 Recommended integration policy actions 58
8 Vocational training 59 8.1 Data on foreign apprentices and their integration 59 8.2 Causes of integration deficits 60 8.3 Especially vulnerable groups (risk groups) 61 8.4 Competences and existing measures 61 8.5 Recommended integration policy actions 62
9 Labor market 63 9.1 Data on the foreign population on the labor market 63 9.2 Causes of integration deficits 65 9.3 Especially vulnerable groups (risk groups) 67 9.4 Competences and existing measures 67 9.5 Recommended integration policy actions 68
10 Social security 69 10.1 Data on the situation of the foreign population with respect to social security 69 10.2 Causes of integration deficits 72 10.3 Especially vulnerable groups (risk groups) 72 10.4 Competences and existing measures 72 10.5 Recommended integration policy actions 73
11 Health 74 11.1 Data on the health situation of the foreign population 74 11.2 Causes of integration deficits 75 11.3 Especially vulnerable groups (risk groups) 75 11.4 Competences and existing measures 75 11.5 Recommended integration policy actions 77
12 Language 78 12.1 Data on the language situation of the foreign population 78 12.2 Causes of integration deficits 78 12.3 Especially vulnerable groups (risk groups) 79 12.4 Competences and existing measures 79 12.5 Recommended integration policy actions 80
13 Housing 81 13.1 Data on the housing situation of the foreign population 81 13.2 Causes of integration deficits 83 13.3 Especially vulnerable groups (risk groups) 83 13.4 Competences and existing measures 83 13.5 Recommended integration policy actions 84
14 Participation in social life and the political process, naturalization 85 14.1 Situation with respect to social and political participation, naturalization 85 14.2 Measures 88 14.3 Recommended integration policy actions 90
15 Religion and culture 91 15.1 Data on the religious affiliation of the foreign population 91 15.2 Dealing with cultural and religious tensions 91 15.3 Recommended integration policy actions 95
4 Integration in Liechtenstein
PART IV: CONCLUSIONS 96
16 Integration in Liechtenstein 96 16.1 Heterogeneity of the foreign population 96 16.2 Interactions among areas of integration 96 16.3 Naturalization and political rights 97
17 Statistical foundations 98 17.1 Importance of statistical surveys 98 17.2 Recommended integration policy actions 98
18 Uniform integration policy 100
ANNEX 101
I Legal framework of integration policy 101 II Foreigners’ associations in Liechtenstein 104 III Country groups for evaluation of the 2000 Census 105 IV Flyer demanding assimilation of foreigners 106 V Right-wing extremist incidents in Liechtenstein, 2004 to 2006 107 VI Implementation of the conclusions drawn by the Government from the Final Report of the Independent Commission of Historians 109 VII Naturalization votes 114 VIII Compilation of the existing statistical gaps 116 IX Tables 125
REFERENCES 140
5 Integration in Liechtenstein
INDEX OF TABLES AND FIGURES
Table 1: B permits granted according to ground for admission and origin (column percentage), 1.1. to 31.12.2006 27
Table 2: Number and share of foreigners from selected countries, June 2006 28
Table 3: Number of asylum applications and population of asylum seekers and provisionally admitted persons per year, 2001 to 2006 33
Table 4: Attitudes toward immigrants (agreement with statement, in percentage of respondents) 37
Table 5: Share of students at the secondary level according to origin (2006/07) (row percentage) 51
Table 6: Share of students at the secondary level according to origin (2006/07) (column percentage) 51
Table 7: Special schooling at the Therapeutic-Pedagogical Center according to country group, 2006 52
Table 8: Apprentices by nationality, 2006 59
Table 9: Registered unemployed in all benefit categories, April 2004, according to country group (in percentage) 65
Table 10: Problems of the clients of the Social Services Division in finding housing, 2003 83
Table 11: Naturalizations by type, 2005 and 2006 87
Figure 1: Discriminatory rental advertisement 39
6 Integration in Liechtenstein
INTRODUCTION
The Working Group against Racism, Anti-Semitism, and Xenophobia, which was appointed by the Government pursuant to its decision RA 2002/1818-9761.2/8 of 18 June 2002 and dissolved pursuant to RA 2007/388-9761.2/8 of 14 February 2007, consisted of the following members:
• Christine Stehrenberger, Deputy Director of the Office for Foreign Affairs, Chair • Nancy Barouk-Hasler, Office of Social Affairs • Peter Gstöhl, Director of the Office of Public Health • Jules Hoch, National Police • Alicia Längle/Domenik Wanger (mutual substitutes), Office for Foreign Affairs • Veronika Marxer, Office of Equal Opportunity • Helmut Müssner, Office of Education • Regine Walzl, Immigration and Passport Office.
Pursuant to RA 2006/542-9761.2/8 of 21 March 2006, the Working Group was mandated to prepare a Status Report for the Government on the situation pertaining to racism and integration. Ms. Marion Malin, staff member of the Office for Foreign Affairs, compiled this report on behalf of the Working Group. The Status Report aims to show the current state of affairs, the problems, and the need for action with respect to integration, and in this way to supplement the already existing foundations for a coherent integration policy on the part of the Government. Affected Offices of the National Administration were consulted for their expertise in the preparation of the report. The Office of Equal Opportunity, which is in charge of the topics of migration and integration and which will continue the mandate of the Working Group against Racism, Anti-Semitism, and Xenophobia, should thus be able to draw on an overview of the integration status quo that is as comprehensive as possible.
With approximately 12,000 foreigners living in the country, Liechtenstein is one of the European countries with the highest share of foreigners, namely 33.9% of the population (31 December 2006). Among EU and EFTA States, only Luxembourg, Estonia, and Latvia have a higher share of foreigners. Specific to the Liechtenstein situation is that 57.2% (end of June 2006) of its resident foreigners are from German-speaking countries. Comparisons with other countries with respect to integration efforts and problems relating to the share of foreigners should therefore be regarded with caution. Given the largely peaceful coexistence of foreigners and citizens, the integration of foreigners can be considered relatively unproblematic. The goal of the present report is to show existing deficiencies and deficits in the area of integration that could, in the long term, lead to social problems, as well as to propose possible countermeasures. In addition to the Introduction and Summary, the report is structured as follows:
In Part I on “Integration Policy”, the goals, contents, and legal framework of Liechtenstein policy on foreigners and integration are explained, and the responsibilities and tools for the promotion of integration are illustrated.
In Part II on “Foreigners in Liechtenstein”, basic data on the foreign population and the Liechtenstein refugee situation is presented. Next, the attitudes of Liechtenstein citizens toward their foreign neighbors are examined, measures already taken to combat racism and xenophobia are enumerated, and the need for action in the view of the Working Group against Racism, Anti-Semitism, and Xenophobia is outlined.
7 Integration in Liechtenstein
In Part III on “Areas of Integration”, already existing data and findings on the status quo of integration in the following areas are outlined: schooling; vocational training; labor market; social security; health; language; living situation; participation in social life and the political process, naturalization; religion and culture. In each area, a situation analysis is performed, integration deficits and deficiencies are determined, their causes identified, particularly affected risk groups named, existing measures explained, and the need for action shown.
In Part IV, “Conclusions”, the most important general results with respect to the integration of foreigners in Liechtenstein are emphasized. On this basis, the priority needs for action in the view of the Working Group against Racism, Anti-Semitism, and Xenophobia are identified.
The Annex contains supplemental material such as legislative texts, press clippings, and statistics.
To provide the envisaged overview of the status quo of the integration of foreigners in Liechtenstein and to give recommendations on how to deal with the existing difficulties, the Status Report makes use of previous research. This fact leads immediately to one of the key findings of the report: The topic of migration and integration has so far been only insufficiently treated and documented in Liechtenstein. Given this background, both the identification of integration deficits and deficiencies as well as the evaluation of measures already taken are difficult. Accordingly, a need for action exists with respect to expansion of the statistical data on integration in Liechtenstein, in order to facilitate targeted and efficient integration measures.
The available research is either limited to old data or to specific – generally legal – aspects.1 More up-to-date and comprehensive are documents issued by the Liechtenstein Government in the form of “Reports and Proposals”, “Consultation Reports”, or “Statements” submitted to Parliament in connection with new laws, legislative amendments, or the conclusion of international treaties. Additional analyses on the integration of foreigners in Liechtenstein have been compiled in the form of internal notes, reports, and studies at the level of Offices of the National Administration. The present report draws in particular on such materials. In its presentation of the measures taken so far to promote integration, the report in general looks back only as far as 2002, the initial year of the five-year National Action Plan against Racism (NAP, 2002-2007) implemented by the Working Group against Racism, Anti-Semitism, and Xenophobia.
For statistical information, the Status Report draws on various sources of data. Primarily, the following official statistics were used: - Census2
1 Claudia Heeb-Fleck/Veronika Marxer (2001; 2004) illuminate Liechtenstein migration policy from 1945 to 1981, as part of a Swiss National Science Foundation project. The immigration and integration study by Janine Dahinden/Etienne Piguet (2004) focuses on the analysis of statistical data of the Office of Economic Affairs, however only considering the census data through 1990. A diploma thesis by Tobias Ritter considers naturalization policy in the 1930’s and 1940’s. Likewise, past eras of immigration and the life of foreigners in Liechtenstein are covered in the works of Peter Geiger (1974), the conference documentation of the Liechtenstein Academic Society (1974), and various papers by Peter Meusburger (1969; 1970; 1981). From a legal perspective, the papers on relevant basic law by Höfling (1994; 1995) and the older papers by Ivo Beck on settlement (1962) as well as the doctoral thesis by Ralph Wanger on Liechtenstein citizenship (1997) are of note. 2 A census is conducted in Liechtenstein every ten years. The census is a complete statistical survey of the entire population (individuals, households, and buildings). Tabular evaluation is provided as part of official statistical 8 Integration in Liechtenstein
- Population and foreigners’ statistics3 - Crime statistics - Civil status statistics - Education statistics - Employment statistics - Naturalization statistics.
The Working Group against Racism, Anti-Semitism, and Xenophobia commissioned political scientist Wilfried Marxer of the Liechtenstein Institute to undertake a survey and evaluation of statistical data in connection with racial discrimination. The study was completed in September 2005 and evaluated all statistical data through the end of 2003. Due to the lack of official statistics, data in the following areas was evaluated especially for the Liechtenstein Institute study: - Share of foreigners at schools - German as a Second Language at Liechtenstein schools - Special schooling - Disability - Unemployment among foreigners - Search for housing.
The present report draws on the data evaluated by the Liechtenstein Institute as well as on the official statistics. Because different sources were used for different years, the data cannot always be compared directly.
publications in a simplified, summarized form. Not all census data is disaggregated according to population group. 3 As a rule, the official statistics are updated once a year. The Office of Economic Affairs publishes a summary in the Statistical Yearbook. 9 Integration in Liechtenstein
SUMMARY
This report presents the current integration situation of foreigners in Liechtenstein, existing integration deficits and their causes, and the countermeasures already taken. Additionally, it identifies the need for action with respect to the promotion of integration.
Following the Government Policy Paper on Liechtenstein Integration Policy, this report regards the integration of foreigners as successful if all population groups coexist in mutual respect and tolerance, and foreigners extensively participate (or are able to participate) in the economic, social, and cultural life of Liechtenstein.4 For the analysis of the status quo of integration of foreigners in Liechtenstein, this means that the current state of affairs must be measured against a desired state of affairs characterized as follows: a) Equal opportunity prevails, i.e. foreigners in Liechtenstein enjoy similar statistical indicators in key areas of integration as Liechtenstein citizens in similar life situations (age, gender, education...). b) Foreigners in Liechtenstein are not confronted with exclusion, discrimination, xenophobia, or racism.
In summary, the following picture emerges with respect to the integration of the foreign population in Liechtenstein:
Treatment of foreigners: In comparison with the Swiss and German population, Liechtenstein society demonstrates greater openness with respect to the social integration of immigrants. These results can be explained with reference to the economic prosperity, the low crime rate, and the fact that a large share of immigrants come from German-speaking neighboring countries and at the same time predominantly have a high level of education. Attitudes towards foreign-language, generally poorly educated foreigners in Liechtenstein would have to be analyzed separately. The attitudes of Liechtenstein young people towards foreign nationals are ambivalent. Foreigners are seen as an enrichment on the one hand, but also as a threat.
Right-wing extremist tendencies exist in Liechtenstein. There is an ideologized core group of approximately 20 to 30 right-wing extremists and a larger group of young people with affinities to right-wing extremist ideology. Right-wing extremists in Liechtenstein are neither formally nor politically organized. There is no right-wing political party. Since introduction of the anti-racism penal provision in 2000, the Office of the Public Prosecutor has filed three charges under § 283 of the Criminal Code. Two cases resulted in convictions, while one case is still pending.
Numerous measures to combat xenophobia and right-wing extremism have been taken in recent years at the legislative, administrative, social, and scholastic level.
4 Government of the Principality of Liechtenstein (2007). 10 Integration in Liechtenstein
Overview of the individual areas of integration: Schooling: Approximately one third of the children and young people attending school in Liechtenstein are of foreign origin. Foreign-language children, especially from Southern, Eastern, and Southeastern Europe and Turkey, are overrepresented at the Oberschule (lower- tier secondary school) and in special-needs schooling. Sufficient knowledge of the German language is therefore of fundamental importance for students’ educational and later professional careers. The most important existing measure to promote the education of foreign children and young people consists in the German-language courses for foreigners offered by the Office of Education in the framework of “German as a Second Language” (GSL).
Vocational training: Of the young people with an apprenticeship (vocational training) in Liechtenstein in 2006, 47.2% were foreigners. No statistical surveys exist on whether disproportionately many foreign youths lack well-grounded vocational training in the long run and therefore run a greater risk of unemployment and dependence on social welfare. The Office of Vocational Training and Counseling is responsible for counseling young foreigners with respect to vocational training. Young foreign-language immigrants arriving in Liechtenstein after the end of their compulsory schooling can be integrated into the training process through a pre-apprenticeship or an integration year.
Labor market: Of the workers living in Liechtenstein, 37.5% are foreigners. The more secure the foreigner’s residence status, the higher the probability that the foreigner will be working in the service sector. Foreign workers – especially those whose first language is not German – tend to be in a lower socio-economic category than Liechtenstein workers. Foreign-language immigrants are disproportionately affected by unemployment. The Employment Service Bureau of the Office of Economic Affairs supports both unemployed citizens and foreigners in their search for an appropriate job.
Social security: Certain nationalities represent a disproportionately high share of the clients of the Office of Social Affairs. Foreigners are exposed to a higher risk of poverty. The share of beneficiaries of Disability Insurance from Southern Europe, Eastern/Southeastern Europe, and Turkey was disproportionately high in 2004. Liechtenstein citizens and foreigners can benefit equally from the support measures offered by the Office of Social Affairs and by Old Age and Survivors’ Insurance/Disability Insurance (AHV/IV).
Health: No statistical surveys exist on the state of health of foreigners in Liechtenstein. According to representatives of the Liechtenstein health services, illnesses of foreigners may sometimes reflect social or familial problems rooted in their migration situation or change of cultures. Discrimination of migrants with respect to access to treatment methods is prohibited. Some difficulties arise due to language problems, cultural differences, or differences in mentality.
Language: 12.3% of the total population of Liechtenstein spoke a main language other than German in 2000. Educational disadvantages (especially also of parents of school-age children), poor study habits, lack of competence in the first language (language of origin), lack of opportunities and motivation to use the language, and also some gaps in offerings are causes of the deficient language skills of some foreigners. German as a Second Language, which is integrated into the school curriculum, as well as measures offered in the framework of vocational training exist to promote the language skills of children and young people.
11 Integration in Liechtenstein
German-language courses for adults are offered by several educational institutions, some of which are supported by the State.
Housing: In Liechtenstein, there are no separate neighborhoods predominantly inhabited by foreigners (segregation). Foreigners disproportionately live in rented apartments and are underrepresented with respect to home ownership. Immigrants from non-EU countries generally have lower than average living space per person, i.e. their living situation tends to be more cramped. So far, no statistical surveys have been conducted on discrimination on the basis of ethnic origin with respect to the search for housing. Native and immigrant families who are disadvantaged financially receive equal rental subsidies from the Housing Office.
Participation in social life and the political process, naturalization: Foreign-language immigrants are less active than others in clubs and associations. The foreign population in Liechtenstein cannot participate in the political process – either at the national or at the municipal level. Over the last 35 years, the naturalization of foreign children of Liechtenstein mothers has been the most significant type of naturalization. Compared with naturalization by a popular vote, the option of facilitated naturalization introduced in 2001 is the more practicable alternative especially for foreign-language immigrants.
Religion and culture: The relatively large and relatively quickly increasing share of Muslims in the foreign population is striking. A Working Group on the Integration of Muslims in Liechtenstein was created in 2004. At secondary schools, a choice is offered between Catholic or Protestant religious instruction and a course on “Religion and Culture”. The Government has introduced a pilot project on Islamic religious instruction at primary schools. Cultural differences are taken into account in everyday life in schools. Foreign children subject to mandatory schooling receive support in learning their native language and getting to know the culture of their country of origin.
Conclusions: The overview of the most important integration areas shows that general educational disadvantages, lack of language skills, a difficult socio-economic situation, and cultural differences are the most important causes of integration deficits. Conversely, access to (well- paid) work is the key condition for successful integration. Moreover, the overview shows that integration success in the areas of education and work is closely linked to knowledge of the national language. Specific groups at risk for poor integration are therefore foreign-language immigrants from educationally disadvantaged families, and in particular women. For this reason, the promotion of integration must focus especially on the areas of language, vocational training, and the labor market.
Existing measures and further need for action: The analysis shows that in several areas, effective measures have already been taken, while the problem of integration in other areas has hardly experienced systematic treatment and consideration in the form of appropriate steps. Accordingly, while the measures already taken in individual areas must be supplemented in certain points, concepts and strategies for the promotion of integration must first be developed in other areas. The heterogeneity of the foreign population in Liechtenstein and the interactions among the various integration areas must be taken into account. Existing naturalization requirements must be reviewed critically and, where possible, liberalized. Urgently needed is an improvement of the statistical data, both to improve understanding of the actually existing integration difficulties and to verify the effectiveness of the measures taken. It will be equally crucial to improve the coordination and
12 Integration in Liechtenstein harmonization among the various measures and to provide the necessary resources for developing and implementing a unified integration policy.
13 Integration in Liechtenstein
PART I: INTEGRATION POLICY
1 Goals and content of integration policy 1.1 Government Policy Paper on integration policy a) Goals and principles The revised Ordinance on the Movement of Persons of 30 November 2004 for the first time legally enshrined the political will to achieve a successful integration of foreigners in Liechtenstein. On 28 February 2007, the Government adopted a Policy Paper on Liechtenstein integration policy drafted by the Equal Opportunity Commission based on this ordinance.5 The Policy Paper provided the conceptual targets on which the Government will henceforth base its integration policy. The Policy Paper can be seen as a reaction to the need to coordinate the initiatives for the promotion of integration that have been launched over the past few years, and in this way to make use of synergies. At the same time, the Policy Paper serves as a foundation for a targeted and therefore more efficient integration policy.
Based on the fact that migrants constitute a significant portion of the Liechtenstein resident population, the Policy Paper formulates the goal of making use of the potential and achievements of all people living in the country for the benefit of society. Integration is understood as a comprehensive social concern, which is central both to the conduct of life of the individual and to the general welfare and social peace. A conscious and sensitive approach to difference and diversity is viewed as a precondition for the long-term success of integration policy.
According to the Policy Paper, the goal of integration is coexistence of all population groups that is characterized by mutual respect and tolerance, based on the constitutional order and especially the fundamental values thereof. This goal is to be met by achieving equal opportunity for all persons living in Liechtenstein. In regard to the migrant population, this means that the migrants should be given the opportunity to participate fully in the economic, social, and cultural life of Liechtenstein.
The Policy Paper notes that the following principles must form the basis of Liechtenstein integration policy: • Respect for human dignity and protection from discrimination • Understanding of the achievement of equal opportunity as a process demanding engagement on the part of the immigrant and native populations • Mutual respect • Respect for the Liechtenstein Constitution, laws, and traditions • "Promoting and demanding", starting with the individual • Cooperation of the national authorities with municipalities, business organizations, the various religious communities, research and teaching institutions, and private organizations, especially foreigners’ associations • Initiation of integration promotion upon arrival in Liechtenstein
5 In March 2004, a parliamentary postulate was submitted to create a commission responsible for integration matters as well as an Office of the National Administration for the integration of foreigners. This demand was met with the establishment of the Equal Opportunity Commission and the Office of Equal Opportunity in 2005. Since its appointment, the Commission has mainly focused on the development of an integration policy guideline on migration, which was presented to the Government on 7 March 2006 for the first time. After thorough revisions, the Policy Paper on Liechtenstein integration policy was approved by the Government on 28 February 2007 with Government Resolution RA 2006/2949-2564. The remarks in section 1.1 are based on the Policy Paper of the Government of the Principality of Liechtenstein (2007). 14 Integration in Liechtenstein
b) “Promoting and demanding” According to the Policy Paper, Liechtenstein integration policy is determined by two significant aspects, “promoting” and “demanding”. On the one hand, the integration of lawfully resident migrants in Liechtenstein into the economic, cultural, and social life of the country is promoted; on the other hand, the immigrant population is expected to undertake its own efforts to integrated into society.
With respect to promoting, the Policy Paper lists the following focus areas: • Improving mutual understanding between the host society and the migrant population, taking account of specific problems arising due to migration • Creating the framework conditions for migrants to participate on equal terms in the social life of the country and to contribute and collaborate in the integration process • Securing the de facto equality of women and men and consideration of the special demands on the integration of families, children, and young people when implementing the promotion of integration • Promoting the acquisition of the German language and professional integration, as well as ensuring equal access to social welfare systems and health care • Promoting training of staff members of the National Administration and municipalities entrusted with implementation of the promotion measures • Making financial resources available for the integration process.
On the proposal of the Equal Opportunity Commission, the Government determines the areas of action in which, under the leadership of the Commission and the Office of Equal Opportunity and with the participation of the municipalities, measures for promoting integration are developed. The persons concerned are to be included in the development phase. The Government decides on implementation of the proposals.
According to the Policy Paper, the following is demanded of migrants: • Making active efforts to acquire the German language6 • Recognizing the fundamental social order of the State, including the equality of women and men • Becoming acquainted with the Liechtenstein context and participating in social life • Informing themselves about their rights and duties.
Employers should support their foreign employees in taking advantage of integration offerings and with respect to the obligations associated with integration.
The Working Group against Racism, Anti-Semitism, and Xenophobia believes that integration is not a one-sided process. It does not rely exclusively on the efforts of the migrants; the host society also has certain responsibilities. At the same time, the Working Group agrees that migrants should be required to learn the language of the host country, to become acquainted with the basic values of the host society, and to engage themselves on behalf of their own integration to the extent possible. The Working Group against Racism, Anti-Semitism, and Xenophobia therefore views the mutual complementarity of "promoting and demanding" as an important principle of Liechtenstein integration policy. As a foundation for State integration policy, the present report focuses on the measures to be taken by the
6 According to the Policy Paper, the right to stay in Liechtenstein (temporary and permanent residence) should be linked to knowledge of German. Through a system of incentives and sanctions, language acquisition is to be promoted and demanded. 15 Integration in Liechtenstein
Government and the authorities in determining the need for action in the various areas of integration. However, the appeal to the foreign inhabitants of Liechtenstein to actually use the available integration offerings should also be borne in mind.
1.2 Non-discriminatory treatment of foreigners a) National Action Plan against Racism To combat and prevent racism, Government Resolution RA 2003/258-9761/2/8 of 4 February 2003 approved the five-year National Action Plan against Racism (NAP, 2002-2007). The working basis for NAP included the Programme of Action against Racism, which was adopted at the World Conference against Racism held from 31 August to 7 September 2001 in Durban (South Africa), the Liechtenstein Report of the European Commission against Racism and Intolerance (ECRI) of 28 June 2002, and the Liechtenstein-specific recommendations of the UN Committee on the Elimination of Racial Discrimination (CERD) of 22 March 2002. The Action Plan took up the topics within the broad scope of the Durban Programme of Action that were relevant to Liechtenstein and that called for action. b) Working Group against Racism, Anti-Semitism, and Xenophobia The NAP was implemented by the Working Group against Racism, Anti-Semitism, and Xenophobia (WG R)7 between 2002 and June 2007 by means of various projects on the basis of rolling planning. The Working Group primarily served as a coordination and steering group, focusing on preventive measures. It coordinated various awareness-raising and integration activities and developed models for their implementation and financing. • Awareness raising: The working group conducted public outreach at different levels and in different forms and advocated on behalf of recognizing the causes and the potential for conflict and violence of racism and xenophobia. It launched and promoted projects in broad groups of the population (schools, administration, civil society) pursuing the objectives set out above. Moreover, the Working Group gathered statistical material on the topic of racism. The Working Group against Racism, Anti- Semitism, and Xenophobia also collected extensive Liechtenstein-specific material on combating racism, the integration of foreigners, and many related areas. • Integration: In cooperation with the Office of Equal Opportunity, the Working Group actively contributed to the development of a comprehensive concept for the integration of foreigners in Liechtenstein, and advocated for its implementation. It supported and promoted existing integration efforts in society by making information and (international) expertise available, along with other forms of support.
2 Legal framework of integration policy8 2.1 Integration and non-discrimination
7 The original name was “Working Group for a National Action Plan against Racism (WG NAP)”. Government Resolution RA 2005/1141-0208 of 24 May 2005 assigned the Working Group an additional mandate to combat anti-Semitism, and Government Resolution RA 2005/2828-9761/2/8 of 17 August 2005 subsequently renamed it “Working Group against Racism, Anti-Semitism, and Xenophobia (WG R)”. The Final Report of the Independent Commission of Historians on the role of Liechtenstein in the Second World War and the measures subsequently taken by the Government gave rise to the expansion of the mandate and the name change. 8 See Annex I for the relevant excerpts from the legislative texts. For the legal developments in Liechtenstein foreigners law since 1934, see the overview table contained in Marxer (2007), pp. 15 et seq (Annex). 16 Integration in Liechtenstein a) Integration provisions Article 77 of the Ordinance on the Movement of Persons (PVO) of 30 November 2004 (Liechtenstein Law Gazette 2004 No. 253) articulates the integration policy goal of coexistence of the native and foreign population on the basis of common basic values and the constitutional order, characterized by mutual respect and tolerance. As a precondition for attaining this goal, the PVO names sufficient language skills and familiarity with the social conditions in Liechtenstein on the part of foreigners (article 78). Article 79 contains the fundamental declaration of intent to promote the integration of foreign citizens living in Liechtenstein lawfully and for the long term into the economic, cultural, and social life of the country.
On the basis of the new Swiss Foreigners Act, a separate Liechtenstein Foreigners Act is currently being developed. It will contain legal foundations for the integration of foreigners. The planned amendments of the Law of 4 January 1934 on the Acquisition and Loss of Liechtenstein Citizenship in the version of 2 November 1960 (LGBl. 1960 No. 23) also contain provisions relevant to integration. Both the Foreigners Act and the aforementioned legislative amendments are expected to enter into force in 2008, once they are adopted by Parliament. The legal foundations for integration will accordingly be expanded considerably in the near future.
The Project Group9 established pursuant to Government Resolution RA 2006/1647-2550 of 4 July 2006 for the development of legal foundations for the integration of foreigners was commissioned by Government Resolution RA 2006/3143-2550 of 19 December 2006 to participate in the two aforementioned legislative processes and to contribute an integration policy aspect. The Project Group will also participate in the subsequent development of ordinance provisions with respect to integration. b) Non-discrimination According to article 31, paragraph 1 of the Liechtenstein Constitution of 5 October 1921 (LGBl. 1921 No. 15), all Liechtenstein citizens are equal before the law. Article 31, paragraph 3 states that the rights of foreigners are determined in the first instance by international treaties or, in their absence, by reciprocity. According to § 33 of the General Civil Code (ABGB) of 1 June 1811 as amended, foreigners have the same rights as Liechtenstein citizens on the basis of reciprocity if citizenship is not expressly required for the enjoyment of these rights.
Liechtenstein has been a State Party to the European Convention on Human Rights (ECHR, LGBl. 1982 No. 60) since 1982. Article 14 of the ECHR stipulates the prohibition of discrimination, in particular on grounds of sex, race, color, language, religion, political or other opinion, national or social origin, association with a national minority, property, birth or other status.
The European Commission against Racism and Intolerance (ECRI) is a body of the Council of Europe established in 1993 and composed of independent members. As part of its country-
9 The Project Group was established pursuant to a parliamentary motion submitted on 15 March 2006 concerning the integration of foreign citizens in Liechtenstein. The motion called for development of an integration law and the introduction of proof of language skills as a condition for the grant of permanent residence permits and proof of knowledge of the language, culture, and history of Liechtenstein as a precondition for naturalization. The Project Group is responsible for overall coordination of the response to the motion of 15 March 2006 and must present an overall report at the appropriate time. Given the incorporation of integration provisions into the new Foreigners Act, the Government has decided not to develop a separate integration law (RA 2006/3143-2550 of 19 December 2006). 17 Integration in Liechtenstein specific approach, ECRI reviews the situation concerning racism and intolerance in the Member States of the Council of Europe by conducting country visits, during which discussions are held with representatives of State authorities and non-governmental organizations. On the basis of these visits, ECRI drafts country reports, which indicate the problems concerning racism and intolerance and contain recommendations on how to improve the situation. ECRI has so far reported on Liechtenstein twice (1997 and 2002) and will visit Liechtenstein again in September 2007.
Liechtenstein also ratified the UN Convention on the Elimination of All Forms of Racial Discrimination (LGBl. 2000 No. 80) in 2000 and recognized the competence of the Committee on the Elimination of Racial Discrimination to receive and consider complaints from individuals in 2004. Liechtenstein regularly reports to the Committee on the Elimination of Racial Discrimination (CERD), which monitors implementation of the Convention. On the basis of the submitted reports, the Committee issues recommendations, implementation of which is reviewed in the context of the following periodic report.10 c) Criminal offense of racial discrimination The basic criminal offense of incitement was already introduced into Liechtenstein criminal law with § 283 of the Criminal Code (StGB), which entered into force on 1 January 1989. In the course of Liechtenstein’s ratification of the UN Convention on the Elimination of All Forms of Racial Discrimination in 2000, the criminal offense contained in § 283 was expanded and renamed “Racial discrimination” (LGBl. 2000 No. 36). Since then, racial discrimination has been subject to prosecution on the basis of the new version of § 283. The criminal offense of racial discrimination is broken down into four main variants:
1. Racist propaganda in a broad sense (paragraph 1(1), (2), and (3)): Paragraph 1(1) covers public incitement to hatred or discrimination against a person or group of persons on the basis of the race, ethnicity, or religion. Paragraph 1(2) penalizes the public dissemination of ideologies aiming at systematic debasement or defamation of members of a race, ethnicity, or religion. The organization, promotion, and participation in propaganda actions are covered as offenses by paragraph 1(3). 2. Attack against human dignity (paragraph 1(4) and (5)): Another form of endangerment of public peace through racist conduct consists in the concrete verbal abuse or insulting of certain persons due to their affiliation with a race or ethnic or religion group (paragraph 1(4)). Furthermore, paragraph 1(5) penalizes the denial, gross trivialization, or justification of genocide11 or other crimes against humanity. 3. Denial of a publicly offered service (paragraph 1(6)): The other provisions under § 283 are supplemented by the penalization of racial discrimination as such, namely the denial of equal and equivalent rights on the basis of racist motives. 4. Participation as a member in an association promoting or inciting racial discrimination (paragraph 1(7)): Since associations often play a special role in connection with offenses motivated by racism, they should be subject to criminal prosecution. The term “association” means a long-term joining together of several persons, the
10 The abovementioned conventions, reports, and recommendations are available on the Internet portal of the State of Liechtenstein (www.liechtenstein.li). 11 Genocide is punishable under § 321 StGB. Liechtenstein is also a State Party to the Convention on the Prevention and Punishment of the Crime of Genocide (LGBl. 1995 No. 45) and ratified the Rome Statute of the International Criminal Court (LGBl. 2002 No. 90) in Jahr 2001. The International Criminal Court has jurisdiction over persons accused of the most serious crimes of international relevance, namely genocide, crimes against humanity, and war crimes, provided that such cases are not investigated by a national court. 18 Integration in Liechtenstein
organizational element of which manifests itself in objectively determinable arrangements.
The threat of punishment of imprisonment of up to two years is based on the earlier offense of incitement (old § 283 paragraph 1 StGB). The Court of Lay Assessors has jurisdiction in cases of racial discrimination, as in most cases of criminal offenses against the public peace.
It is also of note in this context that, when adjudicating all offenses contained in the Criminal Code, § 33 paragraph 5 StGB provides the special aggravating factor of racist or xenophobic motives.12
2.2 Temporary and permanent residence, naturalization a) Temporary and permanent residence13 The Liechtenstein provisions on the residence of EEA citizens follows the EEA acquis, i.e., the Agreement on the European Economic Area. The temporary and permanent residence of Swiss citizens in Liechtenstein is governed by the Vaduz Convention (LGBl. 2003 No. 119 and LGBl. 2004 No. 311). With respect to the law on foreigners, Swiss citizens enjoy the same rights as EEA citizens. Pursuant to the Customs Treaty and the Agreement between the Principality of Liechtenstein and Switzerland on the Administration of Immigration Matters for Third-Country Citizens in the Principality of Liechtenstein and on Cooperation in Immigration Matters (LGBl. 1963 No. 39), the Swiss federal laws and enactments on entry and exit and on temporary and permanent residence apply to third-country foreigners in Liechtenstein. The key legislative basis is the Federal Law of 26 March 1931 on the Residence and Settlement of Foreigners (ANAG) and the associated ordinances. As mentioned above, a Liechtenstein Foreigners Act is currently under development and is expected to replace the ANAG in Liechtenstein by 2008.
The Liechtenstein legal enactments relevant to temporary and permanent residence are the following: • Law of 12 April 2000 on the Procedure for Granting Residence Permits (ABVG, LGBl. 2000 No. 98) • Ordinance of 27 June 2000 on the Law on the Procedure for Granting Residence Permits (ABVV, LGBl. 2000 No. 140) • Ordinance on the Movement of Persons (PVO) of 30 November 2004 (LGBl. 2004 No. 253).
The Ordinance on the Movement of Persons specifies the conditions under which short-term stay permits (L), temporary residence permits (B), and permanent residence permits (C) may be granted, depending on the citizenship of the applicant.14 Short-term stay permits allow employed persons to come to Liechtenstein for time-limited and immediately consecutive stays of a total of up to one year. Temporary residence permits are also limited in time, allowing employed or self-employed persons (only EEA and Swiss citizens) and their families
12 Oberdorfer. 13 This section follows Walch (2004). 14 The other types of permits governed by the PVO, which will not be discussed in detail here, are the permit in letter form (BIB), the cross-border permit for third-country citizens (G), the cross-border commuter notification confirmation (GMB), cross-border permanent business activity (GDG), and the cross-border provision of services by self-employed persons (GDL) (LGBl. 2004 No. 253). 19 Integration in Liechtenstein to stay in Liechtenstein for up to one year (third-country citizens) or five years (EEA and Swiss citizens). Permanent residence permits provide unlimited residence in Liechtenstein.15
Within the EEA, Liechtenstein has been granted a special solution according to which the free movement of persons has been implemented only in part, so that the immigration of EEA citizens may be restricted. Liechtenstein is required to grant a minimum number of permits each year, not including the permits to be granted for family reunification (16 for residence without employment, 56 for residence for purposes of employment). The immigration of Swiss citizens is also subject to a quota. Citizens of third countries generally only receive a residence permit if they are especially qualified workers who cannot be recruited in the EEA or Switzerland. With respect to immigration and residence conditions, two groups of foreigners can therefore be distinguished in principle, namely EEA and Swiss citizens on the one hand, and citizens of third States on the other hand. The most important legal difference between these two groups consists in the possibility of employment, the possibility of residence without employment, the right of family reunification, and the right to remain in the country.
Citizens of third States may only be granted residence in Liechtenstein as non-self-employed workers. While Austrian and Swiss citizens may receive a permanent residence permit after five years, other EEA citizens and citizens of third States may only receive one after ten years. In both cases, the stay in Liechtenstein must be proper and uninterrupted pursuant to a temporary residence permit. EEA and Swiss citizens may at any time bring their direct ascendants or descendents into the country (exceptions apply to students), while citizens of third States may only bring in their spouses and their common single children under the age of 18.16 These rights have so far been granted to citizens of third States regardless of reciprocity.
Permits for a residence term of more than one year are granted by the Government after preparation by the Immigration and Passport Office. Decisions of the Government may be appealed to the Administrative Court. Where constitutionally guaranteed rights are alleged to have been violated, an appeal may be lodged with the Constitutional Court. Persons without the necessary resources to assert their rights are granted legal aid.
15 Immigration and Passport Office: Online at http://www.llv.li/amtsstellen/llv-apa-home.htm [as of 26 September 2006]. 16 With respect to the residence of foreigners after dissolution of a marital union, the Government took the following basic decision on 23 February 2005: Upon declaration of invalidity of a marriage, divorce, legally effective separation, or abandonment of joint residence before the end of five years after the temporary residence permit has been granted, the residence situation of the foreign spouse must be reviewed in principle, since the claim to granting and extension of the temporary residence permit expires once the original ground of approval (family reunification) lapses. The basic decision enumerates aspects that are to be taken into account in the review, such as the welfare of the child. Women whose children are integrated in Liechtenstein, attend school, and would be negatively affected by a change in residence generally receive a temporary residence permit in practice upon separation from their partner. Likewise, if it has been determined that the foreign spouse cannot be expected to continue the marital union due to the experience of physical, psychological, or sexual violence, this fact must be taken into special account when exercising discretion for the benefit of the victim. To prevent abuse (e.g. premature termination of a fictitious marriage by feigning marital violence), proof of domestic violence must be given. In 2007 for the first time, a woman from Kosovo was able to maintain her residence status despite separation, after her husband had been found guilty of domestic violence by the Court of Justice (Liechtensteiner Volksblatt, 18 May 2007). 20 Integration in Liechtenstein
Especially vulnerable groups, such as nightclub dancers, receive additional protection by the State, such as by means of minimum wage directives and extensive labor law rules, compliance with which is monitored by the authorities.
The Law of 2 April 1998 on the Admission of Asylum Seekers and Persons in Need of Protection (Refugee Act, LGBl. 1998 No. 107) and the associated Ordinance of 7 July 1998 (Refugee Ordinance, LGBl. 1998 No. 125) serve as the legal framework for the Liechtenstein asylum system, which will be discussed in more detail in chapter 5. b) Naturalization Liechtenstein citizenship is based on descent (jus sanguinis). Until 1996, citizenship could only be obtained through the father; since then, it may be obtained through either parent.17 The provisions on naturalization are set out in the Law of 4 January 1934 on the Acquisition and Loss of Liechtenstein Citizenship in the version of 2 November 1960 (LGBl. 1960 No. 23). As mentioned above, an amendment to this law is being drafted, which is expected to enter into force in 2008. Currently, there are three possibilities for acquiring Liechtenstein citizenship by naturalization:
Citizenship may be acquired by marrying a person with Liechtenstein citizenship. For this form of naturalization, the marriage must have existed for at least three years, and the person must have resided in Liechtenstein for at least twelve years (years of marriage count double).
Since amendment of the Law on the Acquisition and Loss of Liechtenstein Citizenship in April 2000 (LGBl. 2000 No. 141), long-term resident foreigners have a right to municipal and national citizenship if they can demonstrate proper residence in Liechtenstein for a duration of at least 30 years, where the years from birth to the 20th birthday count double (“facilitated procedure”). Applicants receive the citizenship of the municipality in which they have had proper residence for the last five years. Upon acquisition of municipal and national citizenship by way of the facilitated procedure, the underage children of the applicants also receive municipal and national citizenship if certain conditions are met. Young people after their 15th birthday must submit a declaration whether they want to be included in the naturalization process.
Thirdly, naturalization may be applied for after five years of uninterrupted residence, which is then decided in a discretionary procedure. This procedure includes a secret vote by the members of the municipality in which the applicant lives.
Regardless of the procedure by which naturalization is achieved, the person concerned must renounce his or her original citizenship.
3 Competences and instruments for the promotion of integration
17 In the event of adoption, a foreign child receives Liechtenstein citizenship if the child has not reached his or her 10th birthday by the time of adoption and the adoptive mother or adoptive father is a Liechtenstein citizen. If the biological child of a spouse is adopted by the other spouse, the child receives Liechtenstein citizenship if he or she is not yet of age at the time of adoption, i.e. has not reached his or her 18th birthday. 21 Integration in Liechtenstein
3.1 Office of Equal Opportunity, commissions and working groups After an extended internal process18, the Office of Equal Opportunity was established in March 2005 by expanding the already existing Office of Gender Equality. The Office of Equal Opportunity is the contact, coordination, and counseling office for general questions concerning gender equality and equal opportunity, and it serves as the secretariat of the Equal Opportunity Commission. In the area of integration, the Office of Equal Opportunity fulfills a coordination mandate by enabling contacts and exchanges of experience between various Offices of the National Administration and affected persons. For this purpose, it is engaged in various working groups; for instance, it was a member of the Working Group against Racism, Anti-Semitism, and Xenophobia, it chairs the Statistics Project Group and the Integration Law Project Group, and it was represented in the coordination body of the European youth campaign “All different, all equal”. In 2006, a networking platform (“Integration Task Force”) was created under the guidance of the Office of Equal Opportunity for foreigners’ associations and organizations working in the field of integration. Currently, the Office of Equal Opportunity is researching the targeted promotion of migrants’ language skills.
The Equal Opportunity Commission was established at the same time as the Office of Equal Opportunity to develop and ensure the implementation of interagency solutions to questions of equal opportunity in all areas of life. In the area of migration, its work since its inception has primarily focused on drafting an overall integration policy concept (policy paper and concept for action), which was presented to the Government for the first time on 7 March 2006. After thorough revisions, the Policy Paper on Liechtenstein Integration Policy was approved by Government Resolution RA 2006/2949-2564 on 28 February 2007. The Government took note of the concept for action on 21 March 2007 with Government Resolution RA 2007/622-2564.
On the initiative of the “Right-Wing Extremism” coordination group of the National Police (active from 1999 to 2003), an interagency Violence Protection Commission was established in 2003. The Commission includes representatives of all relevant Offices of the National Administration (Office of Social Affairs, Office of Education, Office of the Public Prosecutor, National Policy), as well as the Association of Liechtenstein Youth Workers. The Commission is chaired by the Ministry of Home Affairs. The task of the Violence Protection Commission is to assess the situation of violence in Liechtenstein and, on the basis of its analysis, develop appropriate measures and concepts. The focus of the Commission’s work is on public violence (vandalism, gang conflicts, social tension, political-religious conflicts, racism) and special forms of youth violence. The Commission’s objective is to develop a State response to violence behavior. For this purpose, it advises the Government with respect to violence and initiates and coordinates social and administrative intervention concepts. The Violence Protection Commission also strives to ensure cross-border cooperation. In this connection, the Chairman of the Commission also took part in the Council of Europe project entitled “Response to violence in everyday life in a democratic society”, which ran until the end of 2004. The goal of this project was to formulate pan-European strategies for preventing manifestations of violence in everyday life, taking appropriate account of the principles of the rule of law and the protection of human rights.
As mentioned above (see 2.1.a), the mandate of the Integration Law Project Group consists in drafting the new Foreigners Act and contributing an integration policy perspective to the revision of the Law on the Acquisition and Los of Liechtenstein Citizenship, as well as participating in the subsequent drafting of ordinance provisions governing integration.
18 See Government of the Principality of Liechtenstein (2004). 22 Integration in Liechtenstein
Moreover, the Project Group is responsible for overall coordination of the response to the parliamentary motion of 15 March 2006 on the integration of foreign citizens in Liechtenstein.
In May 2004,the Government appointed a Working Group on the Integration of Muslims in Liechtenstein. It is composed equally of representatives of Muslim interests and of representatives of the Offices of the National Administration familiar with the subject matter.
The task of the Working Group against Racism, Anti-Semitism, and Xenophobia, which served from the June 2002 to June 2007, was to implement the National Action Plan against Racism by, as mentioned above, initiating awareness-raising measures, supporting integration projects, and gathering statistical material in connection with racism and integration (see 1.2.b).
3.2 Offices of the National Administration The Immigration and Passport Office is entrusted with implementation of immigration law. It grants and extends foreigners’ permits (job entry, taking up residence, family reunification, cross-border provision of services), issues cross-border commuter notification confirmations, and processes changes of address and employment as well as visa applications. The Refugee Division of the Immigration and Passport Office carries out the registration and questioning of asylum seekers and prepares the Government decisions on asylum applications. Moreover, it advises the Government and other institutions on questions relating to refugees. The Immigration and Passport Office drafts instructions and ordinances for implementation of the Refugee Act, carries out repatriation programs, and promotes cooperation with neighboring countries. It also processes appeals procedures and administrative measures relating to immigration law that fall within its scope of competence (entry restrictions, exit decisions, administrative criminal proceedings).19
The Office of Social Affairs is the central office of the Liechtenstein social welfare system, operating at three levels: The basis consists of counseling and supporting its clients. At the administrative level, the Office of Social Affairs administers a broad range of responsibilities, from the protection of minors to financial social assistance. At the third level, the Office provides services for the Government in the areas of planning, promotion, and coordination.20 At all three levels, the Office of Social Affairs is involved in questions relating to integration, such as the therapeutic and economic counseling of immigrations, the support of youth projects in the areas of awareness raising and integration, the analysis of the attitudes of the Liechtenstein population toward immigrants, and the development of appropriate catalogues of measures.
The scope of responsibility of the Office of Education includes measures on the integration of foreign children. This primarily involves linguistic integration, where the “German as a Second Language” program is promoted, serving as the foundation for a successful education. A further task is the inclusion of appropriate instruction units in the curriculum to enhance the understanding of young Liechtenstein citizens for their foreign classmates, thereby counteracting xenophobia. The continuing education of teachers plays a crucial role in this
19 Immigration and Passport Office: Online at http://www.llv.li/amtsstellen/llv-apa-home.htm [as of 26 September 2006]. 20 Office of Social Affairs: Online at http://www.llv.li/amtsstellen/llv-asd-home.htm [as of 26. September 2006].
23 Integration in Liechtenstein regard, containing guidelines for a multicultural classroom environment and for dealing with potential conflicts. The Office of Education also offers other educational programs allowing young people to expand their horizon during a stay abroad.
In the areas of anti-racism and integration, the Office for Foreign Affairs monitors compliance with Liechtenstein’s relevant international obligations and coordinates implementation efforts. The Office is responsible for reporting to international bodies such as the European Commission against Racism and Intolerance (ECRI) of the Council of Europe and the UN Committee on the Elimination of Racial Discrimination (CERD). Moreover, the staff members of the Office for Foreign Affairs take or took part in various working groups on this topic, such as the Working Group on Racism, Anti-Semitism, and Xenophobia (chairmanship), the Equal Opportunity Commission, the Integration Law Project Group, and the Statistics Project Group.
3.3 Police, Office of the Public Prosecutor, and Probation Service The Liechtenstein National Police enforces the legal provisions on integration and anti- racism. The Violence Protection Commission under its direction (see 3.2) is mandated to carefully monitor the activities of right-wing extremists and to intervene in the event of illegal conduct. Right-wing extremists are registered by the National Police. Violations of the prohibition against racial discrimination are reported to the Office of the Public Prosecutor. Such cases fall within the jurisdiction of the Court of Justice. In addition to monetary penalties and imprisonment, right-wing extremists may be sentenced to probation. Probation is administered by the Probation Service and serves the goal of social reintegration.
3.4 Municipalities The municipalities are responsible for administering their facilities so that no premises or places are available for meetings of right-wing extremists. They may promote the integration of foreigners at all levels of municipal life (citizenship, work in commissions, employment, etc.). Youth work at the municipal level plays an important role in raising the awareness of young people with respect to integration.
3.5 Non-governmental organizations In Liechtenstein, several non-governmental organizations are working in the field of integration. These include the Association for Intercultural Education (Verein für interkulturelle Bildung, ViB) founded in 2001, which offers German-language courses to foreign-language young people and adults as well as cultural activities. The group Justitia et Pax, the Information and Contact Center for Women (infra), and the European Institute for Intercultural and Interreligious Research established in 2004 are also noteworthy.
In 2002, the NGO Working Group on Integration met with representatives of Justitia et Pax, infra, ViB, the Parent-Child Forum, and the Evangelical Church to discuss questions of migration and integration in the Principality of Liechtenstein. On the basis of interviews with concerned persons and institutions, it drafted a report in 2003 with integration policy demands, and initiated an investigation in the area of migration/integration, the results of which were published in February 2007. 21
21 Marxer (2007). 24 Integration in Liechtenstein
The Liechtenstein Refugee Assistance association, which operates the Reception Center for Asylum Seekers, as well as Caritas Liechtenstein and the Liechtenstein Red Cross work in the field of asylum and refugees.
Many foreigners are engaged in associations for people from their countries of origin. These associations play an important role as interlocutors for authorities and non-governmental organizations in the area of integration. There are a total of 24 foreigners’ associations in Liechtenstein, joined together in their umbrella organization, the Conference of Foreigners’ Associations (see Annex II).22
22 Information from the Office of Equal Opportunity in June 2007. 25 Integration in Liechtenstein
PART II: FOREIGNERS IN LIECHTENSTEIN
4 Overview data on the foreign population 4.1 Share of foreigners a) Immigration In the recent past, immigration to Liechtenstein has changed in several ways. Geographically, the migrants’ regions of origin have expanded to include Turkey, Eastern Europe, and Southeastern Europe. Increasingly, people of a non-Christian religious background, especially Muslims, have immigrated to Liechtenstein.23 Because of the expansion of the geographical immigration horizon as a consequence of a generally higher degree of mobility, the share of persons in the total population who do not speak German as their main language is now 12.3% (2000 Census).24 For integration, these changes mean that the cultural and linguistic heterogeneity is rising, and accordingly strengthened integration efforts are necessary both on the part of the immigrants and on the part of the host country and host society.
In 2005, 45.6% of the total increase in population (2003: 69.8%, 2004: 41.3%) was due to net immigration. The migration surplus was 139 persons (2003: 301, 2004: 132).25
The grounds for admission cited by the Immigration and Passport Office for permits to reside in Liechtenstein provide an indication of the motives for immigrating. In 2006, key immigration motives were employment and family (family reunification, residence of life partners). In total, the Immigration and Passport Office granted 925 short-term stay permits (L) and 444 temporary residence permits (B) in 2006.26 Short-term stay permits are mainly granted pursuant to employment in Liechtenstein (81.7% of all L permits). In second place were students taking up residence in Liechtenstein (15.6%), while family reunification hardly played a role as a ground for admission in the case of L permits. Nearly two thirds of the short-term stay permits were granted to third-country citizens (62.9%), while one third were granted to EEA citizens (33.1%).27
B permits, i.e. permits for longer-term residence in Liechtenstein, were in the majority of cases granted for purposes of family reunification or residence of a life partner (73.9%), in contrast to short-term stay permits. Employment in Liechtenstein was the reason for granting a temporary residence permit to 19.1% of applicants. EEA citizens received more than half of all B permits granted (55.2%). Swiss citizens were 24.5% and third-country citizens 20.3% of the new residents.28 Temporary residence permits to third-country citizens were primarily granted for family reunification (including residence of life partner, 93.4%). In the majority of cases, Swiss and EEA residents in Liechtenstein likewise received a permit for family reunification (including residence of life partner). Compared with Swiss citizens and third- country citizens, EEA citizens more frequently received a B permit pursuant to employment, namely in nearly one third of cases.29
23 Marxer (2005): 59 et seq. 24 Main language means the language that a person speaks the best and in which the person thinks. Definition according to the Office of Economic Affairs, Statistics Division (2006d): 16. 25 Office of Economic Affairs, Statistics Division (2006a): 5. 26 The permanent residence permits issued in 2006 are not taken into account, since permanent residence is only granted after temporary residence of 5 or 10 years. Accordingly, permanent residence permits say nothing about the motives of new immigrants. 27 Immigration and Passport Office (2007a). 28 Immigration and Passport Office (2007a). 29 Immigration and Passport Office (2007b): 51. 26 Integration in Liechtenstein
Table 1: B permits granted according to ground for admission and origin (column percentage), 1.1. to 31.12.2006 Ground for admission Swiss EEA citizens Third-country citizens Employment 12.2% 31.5% 5.5% Family reunification (incl. 79.1% 61.2% 93.4% residence of life partner) Residence without employment 8.7% 7.3% 1.1% Total 100% 100% 100% Source: Immigration and Passport Office (2007b): 51. Own calculation.
47.2% of persons receiving a B permit on grounds of family reunification in 2006, i.e. 32.8% of all new B-permit residents, were brought into the country by Liechtenstein citizens, while 38.4% (i.e. 26.8% of all new B-permit residents) were brought in by EEA citizens and 10.3% (7.2%) by third-country citizens. b) Share of foreigners In a time series extending over many years, the share of foreigners increased from the 1920s to the 1990s. In 1995, the historic maximum of 39.1% was reached. Subsequently, the share of foreigners sank to 34%, in part due to the equality of women with respect to citizenship, and has since stabilized.30 According to preliminary results of the Population Statistics as of 31 December 2006, 11,920 of the 35,174 persons living in Liechtenstein were foreigners. This corresponds to a share of foreigners of 33.9%.31 The largest share of the foreign population consists of Swiss citizens (30.2%), followed by Austrian (17.0%) and Italian citizens (10.1%, all June 2006). 49.4% of all foreigners living in Liechtenstein are from the EEA32, while 20.4% are from third countries (June 2006).33
In June 2006, 5,101 people living in Liechtenstein were citizens of States not belonging to the German-language region. This group of persons makes up 14.6% of the population of Liechtenstein. Their share in the foreign population was 42.8% (see section 12 on the integration area of language). The substantial share of migrants from German-speaking countries (57.2%) puts the high share of foreigners in Liechtenstein into perspective with regard to the problem of integration.34
Table 2: Number and share of foreigners from selected countries, June 2006
30 Marxer Veronika (2006): 1 et seq. 31 Office of Economic Affairs, Statistics Division (2007a): 4. 32 The EEA States are the EU States (Austria, Belgium, Bulgaria, Cyprus, the Czech Republic, Denmark, Estonia, Finland, France, Germany, Greece, Hungary, Ireland, Italy, Latvia, Lithuania, Luxembourg, Malta, the Netherlands, Poland, Portugal, Romania, Slovakia, Slovenia, Spain, Sweden, and the United Kingdom) as well as Iceland, Liechtenstein, and Norway. 33 Office of Economic Affairs, Statistics Division (2007b): 5. 34 Office of Economic Affairs, Statistics Division (2007b): 5. 27 Integration in Liechtenstein
Country Number Share Switzerland 3,593 30.2% Austria 2,024 17.0% Italy 1,205 10.1% Germany 1,186 10.0% Turkey 887 7.5% Portugal 566 4.8% Serbia and Montenegro 561 4.7% Spain 465 3.9% Other countries 1,417 11.9% Total 11,904 100.0% Of which EEA States 5,876 49.4%
Source: Office of Economic Affairs, Statistics Division (2007b): 5.
For sake of completeness, the large number of foreign cross-border commuters should be mentioned in this context who commute to Liechtenstein for work (14,140 persons as of 31 December 2005, of which 47.2% Austrian, 35.3% Swiss, 9.5% Germans).35
4.2 Sociodemographic characteristics The demographic composition, i.e. age, sex, and marital status, of the Liechtenstein population varies considerably depending on country of origin. According to the 2000 Census, the share of young persons up to the age of 19 (mean 24.5%), for instance, is significantly higher than average in the cases of persons from Turkey/the Middle East/North Africa (40.4%) and from Eastern/Southeastern Europe (30.6%). Conversely, the number of 36 Liechtenstein citizens older than 65 (12.4%) is higher than average (mean 10.4%).
Somewhat more than half of Liechtenstein’s inhabitants in June 2006 were female. This surplus of women is typical for almost all Western societies and is related to the higher life expectancy of women. Among the native population, the share of women was 51.6%, while it was 49.0% among the foreign population.37 The difference is due to the higher immigration rate of foreign men, who often only bring their families to Liechtenstein after a long stay, if at all. With respect to the distribution of sexes among different groups of foreigners, it is striking that men of Southeastern European origin are especially heavily overrepresented, with a share of 60.7% (mean 49.3%, 2000 Census).38
Since 1950, the majority of Liechtenstein men living in Liechtenstein have married foreigners. Since 1970, the greatest share of these foreign women have been Swiss. The share of wives from non-German-speaking countries has increased substantially since the end of the 1990s. In the period from 2000 to 2004, this group represented 43.6% of foreign wives. Most Liechtenstein women also marry foreigners. Between 1970 and 2004, an average of 51.8% of the new husbands were foreigners. Among foreign husbands, Swiss men represent the largest
35 Office of Economic Affairs, Statistics Division (2006b): 66 et seq. 36 Marxer (2005): 53 et seq. Marxer classifies countries with similar backgrounds into country groups (p. 43). This classification is maintained in the following (see Annex III). 37 Office of Economic Affairs, Statistics Division (2007b): 44. 38 Marxer (2005): 54. 28 Integration in Liechtenstein share (56%), followed by Austrians (19.5%) and men from non-German-speaking countries (17.5%). In the period from 2000 to 2004, 26.2% of foreign men were foreign-language speakers.39 In 2005, 58.0% of the wives of Liechtenstein men were foreigners, and 55.4% of the husbands of Liechtenstein women were foreigners. 20.6% of the foreign men living in Liechtenstein who married in 2005 married a Liechtenstein citizen, while 34.0% of the foreign women who married in 2005 married a Liechtenstein citizen.40
The birthrate (number of births/inhabitants) among persons from third countries was the largest for the years 2001 to 2005, with an average of 2.4%. Liechtenstein citizens had the lowest birthrate, at 0.8%. Foreigners therefore contribute much more strongly to domestic natural growth than Liechtenstein citizens. In total, foreigner women – who on average represented about 33% of all women living in Liechtenstein – contributed approximately 51% of newborns between 2001 and 2005, irrespective of the citizenship of the father and the child.41
4.3 Length and status of stay According to the census, 82.3% of all foreigners had been in Liechtenstein for more than five years in 2000. Comparatively, foreigners from Sub-Saharan Africa/Latin America/Asia/Oceania, Eastern/Southeastern Europe, and Southern Europe had spent less time in Liechtenstein. The share of persons from these regions who had already lived in Liechtenstein five years earlier was 42.3%, 66.1%, and 67.0%, respectively.42
The most secure status is permanent residence, which foreign citizens may apply for after ten years of proper and uninterrupted temporary residence in the Principality of Liechtenstein. 62.3% of all foreigners living in Liechtenstein in June 2006 had such permanent residence.43 There are striking differences with respect to the status of foreigners of different origin. Among the population originating from EEA States, the share of permanent residents is 54.6%, while it is 61.4% among citizens from third countries. The foreign citizens with the highest share of permanent residents were Turks (91.5%), Greeks (91.3%), and Croatians (76.6%). Persons from Switzerland, Macedonia, and Austria also had a higher-than-average share of permanent residents.44
While the sex ratio of permanent residents is nearly balanced (Swiss 49.3%, EEA States 50.4%, and third countries 50.6% share of females), differences emerge with respect to temporary residents: While the share of women among Swiss temporary residents is 46.8% and among temporary residents from EEA countries is 45.5%, it is 54.6% among temporary residents from third countries.45 As mentioned above (see 4.2), the surplus of men among temporary residents from Switzerland and EEA countries can probably be explained with reference to the fact that in the case of classic labor migration, men migrate first, followed later by their families, which leads to a balance of the sex ratio among the permanent resident
39 Marxer, Veronika (2006): 7. 40 Office of Economic Affairs, Statistics Division (2006a): 29. 41 Office of Economic Affairs, Statistics Division (2006a): 16. Office of Economic Affairs, Statistics Division (2007b): 5, 44. 42 Marxer (2005): 54. 43 Office of Economic Affairs, Statistics Division (2007b): 7. 44 Office of Economic Affairs, Statistics Division (2007b): 12 et seq., 20 et seq. The calculation only considers countries with more than 50 citizens living in Liechtenstein. 45 Office of Economic Affairs, Statistics Division (2007b): 10. 29 Integration in Liechtenstein population. The reasons for the surplus of women among temporary residents from third countries are unclear.
4.4 Data on crime perpetrated by the foreign population So far, the Liechtenstein National Policy has not broken down its annual criminal statistics of perpetrators by nationality. Data collection is currently being newly defined with respect to criminal statistics. Since 1 January 2007, a new method of data collection and evaluation has been possible, so that the relevant perpetrator data for 2007 broken down by nationality should be available in 2008. Until then, no reliable general statements can be made on the crime perpetrated by the foreign population in Liechtenstein.46
Violations of the law on foreigners represent a special case (ANAG, 2006: 73 reports), which can only be committed by persons without Liechtenstein citizenship and are also included in the criminal statistics. The predominant offenses are violations of entry regulations (35) and non-compliance with entry prohibitions (prohibited reentry: 8), i.e. violations by persons who are not (legally) living in Liechtenstein. Other violations include breaches of residence regulations (9), taking up employment/employment without a permit (5), identification paper offenses (3), and aiding and abetting illegal entry (people smugglers: 10).47
In light of the threat of terrorism and the associated countermeasures that have become more prominent since 11 September 2001, it is noteworthy that the National Police filed criminal charges against members of a Turkish, radical Islamist sect under § 283 StGB on grounds of disseminating racist ideologies and under § 278b StGB on grounds of supporting terrorist groups. The members of the religious association originally met in a mosque in Liechtenstein, which has since relocated to Buchs (Switzerland). They obtained PowerPoint presentations with racist content and disseminated them. The responsible imam had been residing illegally in Switzerland and has been deported. Due to insufficient evidence, the Office of the Public Prosecutor dropped the charges of supporting terrorist groups. However, two persons were indicted for disseminating racist ideology (§ 283 StGB). It is unknown when the judgment will be issued.48
46 Information provided by Jules Hoch, Head of the Criminal Police, 15 September 2006. 47 National Police (2006). 48 Längle (2006b) and Längle/Malin (2006). 30 Integration in Liechtenstein
5 Asylum 5.1 Asylum procedure and competences a) Legal foundations and competences The Law of 2. April 1998 on the Admission of Asylum Seekers and Persons in Need of Protection (Refugee Act, FlüG, LGBl. 1998 No. 107) and the associated ordinance (LGBl. 1998 No. 125) constitute the legal foundation for the Liechtenstein asylum system. Work on a revision of the Refugee Act is underway.49
According to article 5 of the Refugee Act, which is based on the definitions set out in the Geneva Refugee Convention of 195150, refugees are persons who “a) owing to well-founded fear of being persecuted for reasons of race, religion, nationality, membership of a particular social group, sex, or political opinion, are outside the country of their nationality and are unable, or owing to such fear, are unwilling to avail themselves of the protection of that country; or who b) not having a nationality and being outside the country of their former habitual residence as a result of such circumstances, are unable or, owing to such fear, are unwilling to return to it.”
In the course of the asylum procedure, a review is conducted whether the asylum seeking persons are refugees as defined by the Geneva Convention and whether they accordingly will be granted asylum in Liechtenstein. The Immigration and Passport Office is responsible for administering the asylum procedure. Under a service agreement concluded with the Government, the Liechtenstein Refugee Assistance association is entrusted with the housing and care of asylum seekers in the Reception Center in Vaduz. The State assumes the costs for the activities performed pursuant to the service agreement. The Commission for Refugee Issues advises the Government on all questions relating to the acceptance of refugees and persons in need of protection. b) Asylum procedure The illegal arrival of asylum seekers in Liechtenstein is the rule, according to information provided by the Immigration and Passport Office. Asylum applications are then deposited with the Immigration and Passport Office or, outside office hours, with the National Police. The Immigration and Passport Office registers the personal data of the asylum seekers and conducts an initial summary questioning on its premises. The applicant’s travel documents and identity papers are kept on file until a final decision on the asylum application has been made. Asylum seekers may remain in Liechtenstein until conclusion of the procedure (article 30 FlüG).
Within 20 days of submission of the application, the Immigration and Passport Office questions the asylum seeker in detail on the grounds for asylum. According to article 24, paragraph 1 FlüG, a representative of an aid organization recognized by the Government (in practice, Liechtenstein Refugee Assistance) must be present at the hearing on the grounds for asylum. The representative may ask questions to illuminate the circumstances and may have objections or suggestions for clarification recorded in the minutes.
49 Statement by Thomas Gstöhl, Head of the Refugee Division, Immigration and Passport Office, 17 July 2007. 50 Liechtenstein ratified the Convention of 28 July 1951 relating to the Status of Refugees (Geneva Refugee Convention, LGBl. 1956 No. 15) in 1956. 31 Integration in Liechtenstein
The next step in the asylum procedure is the decision whether the asylum application will be considered or not. Article 25 of the Refugee Act enumerates grounds for non-consideration. In practice, the Immigration and Passport Office issues non-consideration decisions • if the applicants can leave for another country in which an asylum application is already pending or which pursuant to international treaties is responsible for administration of the asylum and expulsion procedure, and which will not force the applicants to leave for another country in which the persons would be persecuted or subject to inhuman treatment (article 25, paragraph 1(c)), or • if the applicants have already unsuccessfully completed an asylum procedure in Liechtenstein or another Member State of the Council of Europe, or if they have withdrawn their application or have returned to their home country or country of origin during the pending procedure, and if they cannot show probable cause that events have occurred in the meantime that are relevant to their refugee status (article 25, paragraph 1(d), only applied in conjunction with (c)).
If the asylum application is considered, the Government may grant asylum, decide to admit the applicant provisionally or grant provisional protection, or reject the asylum application (articles 26 to 29 FlüG51). If the asylum application is not considered or is rejected, the applicant is generally expelled from Liechtenstein and execution of the expulsion is ordered (article 33 FlüG).52 The decision on the asylum application may be appealed to the Administrative Court or, with reference to an alleged violation of constitutionally guaranteed rights, to the Constitutional Court, which according to the Immigration and Passport Office occurs relatively frequently. Since asylum seekers often have only modest financial resources, they receive legal aid.53 Once the decision is final, rejected asylum seekers must in principle leave the country. The number of asylum seekers for whom expulsion is not possible (no possibility of obtaining papers) or not reasonable (security situation in their home country) is on the rise, according to information provided by the Immigration and Passport Office.54
5.2 Asylum seekers and provisionally admitted persons a) Number and origin Asylum seekers are individuals requesting asylum under the provisions of the Refugee Act (article 6 FlüG, N permit). Provisionally admitted refugees are persons who cannot be granted asylum under the law, but expulsion is not possible, not permissible, or not reasonable. In this case, provisional admission is ordered (article 7b FlüG, F permit).
Between 2001 and 2006, a total of 484 persons requested asylum in Liechtenstein. Most asylum seekers during this period came from Macedonia (129), followed by Serbia and Montenegro (115), Russia (49), Ukraine (28), Belarus (26), and Bosnia and Herzegovina (20). 54.8% of all asylum seekers originated from successor States of the former Yugoslavia, 74.1% from Eastern Europe. The number of asylum seekers per year has experienced a decreasing trend since 2001: While 112 persons applied for asylum in 2001, only 47 persons from 15 different countries applied for asylum in 2006. The decreasing trend in the application numbers throughout Europe is therefore also reflected in Liechtenstein.55
51 In practice, asylum applications are not rejected without further clarifications (article 28 FlüG). 52 Information provided by Thomas Gstöhl, Head of the Refugee Division, Immigration and Passport Office, 24 July 2007. 53 Walch (2004). 54 Information provided by Thomas Gstöhl, Head of the Refugee Division, Immigration and Passport Office, 24 July 2007. 55 Immigration and Passport Office (2007c). 32 Integration in Liechtenstein
Between 2001 and 2005, by far the largest share of asylum seekers and provisionally admitted persons in Liechtenstein, on average 57.9%, were from Serbia and Montenegro. This fact is due to the effects of the Kosovo conflict. Beginning in 2003, asylum applications from persons originating from Russia and the CIS States increased substantially. Due to the generally short duration of the procedures, however, these groups of asylum seekers do not play a prominent role in the annual statistics.56 The number of asylum seekers and provisionally admitted persons in Liechtenstein has been decreasing since 2001. The stabilization of the situation in Kosovo is a significant factor in the parallel decreases of the numbers of asylum applications and of the asylum seekers and provisionally admitted persons present in Liechtenstein. As of 31 December 2006, 25 asylum seekers and provisionally admitted persons were present in Liechtenstein, the largest group of which originated from Somalia (9) and Serbia and Montenegro (4).57
Table 3: Number of asylum applications and population of asylum seekers and provisionally admitted persons per year, 2001 to 2006 Year 2001 2002 2003 2004 2005 2006 Total Number of asylum 112 96 102 74 53 47 484 applications Population of 187 137 92 68 60 25 -- asylum applicants and provisionally admitted persons Source: Immigration and Passport Office (2007c). Own illustration. b) Framework conditions for asylum seekers During the time their status is being clarified, asylum seekers are housed in a specially Reception Center in Vaduz established for this purpose, run by Liechtenstein Refugee Assistance. The Center does not have any restrictions on coming or going. In the Reception Center, asylum seekers can attend German classes and receive practical information, such as on the topics of hygiene, insurance and housing, facilitating their integration into everyday life in Liechtenstein if they are admitted or granted asylum. The legal advisor of Liechtenstein Refugee Assistance informs asylum seekers about their rights and duties upon their arrival in Liechtenstein and answers any legal questions.58 The difficult situation of unaccompanied minors is taken into account by offering them immediate legal assistance and, where possible, housing them in a supervised living group for young people. The placement of unaccompanied minors at the Reception Center is an exception, and if it occurs, minors are housed in separate rooms.
For the duration of the asylum procedure, the asylum seekers are called upon to engage in work identified though a placement procedure, in order to contribute to their cost of living. The quotas on foreign workers do not apply. The salaries are currently paid in accordance with collective employment agreements. On behalf of the Immigration and Passport Office, Liechtenstein Refugee Assistance administers the income from work. Upon completion of the asylum application, the amount is paid out after subtracting any deductibles (social welfare, departure, and execution costs). Since asylum applications are generally rejected, this income
56 Information provided by Thomas Gstöhl, Head of the Refugee Division, Immigration and Passport Office, 24 July 2007. 57 Immigration and Passport Office (2007c). 58 Liechtenstein Refugee Assistance (2007): 3 et seq. 33 Integration in Liechtenstein from work constitutes a financial basis for the applicants’ return to their home country or a third State.
Where necessary, asylum seekers receive social welfare, which is granted in accordance with the principles applicable to Liechtenstein citizens. Housing in the Reception Center is free of charge for asylum seekers without income or assets, otherwise costs are levied. Within the framework of the house rules, the asylum seekers are themselves responsible for purchasing groceries, cooking, cleaning, etc. Per person and per day, they receive CHF 9 support plus CHF 3 allowance, which can be withheld if the house rules are violated, in addition to CHF 9 for the first child, CHF 6.50 for the second child, and CHF 4 for any further child, as well as certain in-kind benefits (e.g. a Liechtenstein bus pass). The children of asylum seekers are granted access to kindergartens, public schools, and vocational training institutions.59
In its Annual Report 2006, Liechtenstein Refugee Assistance stated that the situation of asylum seekers is burdened by the uncertainty concerning the outcome of the asylum application. Liechtenstein Refugee Assistance cites lack of language skills, lack of familiarity with the culture of the host country, and insufficient vocational training as additional problems. In its annual report, the association also mentions that asylum seekers are often in poor physical health.60 c) Framework conditions for provisionally admitted persons If an asylum application is rejected and execution of expulsion is not possible, not permissible, or not reasonable, the applicant is provisionally admitted. The provisional admission is generally extended by 12 months at a time if nothing has changed with respect to the obstacle to expulsion. In cases of particular hardship, the provisional admission may be converted into a temporary residence permit. Provisionally admitted persons continue to be housed and taken care of at the Reception Center.61 Provisionally admitted persons are authorized to work and are exempt from the quota for foreign workers (article 49 FlüG). The claims of provisionally admitted persons to social insurance and social welfare benefits are governed by the relevant legislation (article 51 FlüG).
Provisionally admitted persons often remain in Liechtenstein for several years. The Swiss Federal Office for Migration emphasizes the low level of education, the lack of language skills, and a high susceptibility to psychological, physical, and somatic illnesses among persons provisionally admitted to Switzerland.62 It may be assumed that the situation of persons provisionally admitted to Liechtenstein is similar.
59 Marxer (2007): 78 et seq. and information provided by Thomas Gstöhl, Head of the Refugee Division, Immigration and Passport Office, 24 July 2007. 60 Liechtenstein Refugee Assistance (2007): 1-5. 61 Information provided by Thomas Gstöhl, Head of the Refugee Division, Immigration and Passport Office, 17 July 2007. 62 Swiss Federal Office for Migration (2006): 97 et seq. 34 Integration in Liechtenstein
5.3 Admission on humanitarian grounds, persons in need of protection, and refugees a) Admission on humanitarian grounds If, generally due to exhaustion of legal remedies by the asylum seeker, an asylum procedure lasts more than four year, the Government may upon application and under certain conditions issue a temporary residence permit (article 33, paragraph 2 FlüG, B permit). The affected persons then no longer fall within the scope of the Refugee Act, but rather of the Ordinance on the Movement of Persons.63
From 2001 to the end of 2006, the Government granted residence in Liechtenstein to 121 persons on humanitarian grounds or for purposes of family reunification. 43.0% of the admitted persons come from Bosnia and Herzegovina, 38.8% from the People’s Republic of China (Tibet), and the rest from Serbia, Montenegro, and Armenia. In 2006, 38 persons were admitted, one from Bosnia and Herzegovina, 6 from Armenia, and 31 from Serbia and Montenegro.64 b) Persons in need of protection Persons in need of protection are members of groups whose lives, safety, or freedom is endangered as a consequence of a situation of general violence, foreign aggression, grave violations of human rights, or other grave disruptions of public order (article 8, S permit). The Government decides whether, according to which criteria, and to what extent groups of persons in need of protection are granted provisional protection. It takes its decision after consulting the Commission on Refugee Issues and – if necessary – the United Nations High Commissioner for Refugees (UNHCR) (article 55 FlüG). The Immigration and Passport Office determines who belongs to the groups of persons in need of protection defined by the Government and who is granted provisional protection in Liechtenstein. If a person is granted provisional protection, the asylum and expulsion procedure is suspended (articles 57-58 FlüG).
After appropriate consultations, the Government decides when to terminate the provisional grant of protection for specific groups of persons in need of protection. The Immigration and Passport Office grants legal hearing to the persons affected by the decision. If there are indications of persecution, an asylum application will be considered. In other cases, the Office issues an expulsion order (article 63 FlüG).
In October 1998, the Liechtenstein Government issued a grant of protection to persons displaced by the war in Kosovo.65 Upon cessation of hostilities in June 1999 and conclusion of the peace treaty, the grant of protection was terminated at the end of September 1999.66 Currently, no group of persons is granted protection. c) Refugees Recognized refugees are persons whom the Government has granted asylum based on the Refugee Act (article 7a, B permit). Practice shows that the large majority of asylum seekers are not refugees as defined by the Geneva Convention, but rather (often young) persons seeking work and a better economic life. Since entry into force of the Law on the Admission
63 Information provided by Thomas Gstöhl, Head of the Refugee Division, Immigration and Passport Office, 17 July 2007. 64 Immigration and Passport Office (2007c). 65 Passport Office (1999): 41. 66 Immigration and Passport Office (2000): 40. 35 Integration in Liechtenstein of Asylum Seekers and Refugees, i.e. from 1998 to the end of 2006, Liechtenstein has granted asylum in five cases, namely to four Argentine citizens and one Serbian citizen.67
The status of recognized refugees in Liechtenstein is based on the law applicable to foreigners, unless other special provisions, namely pursuant to the Refugee Act and the Geneva Convention of 1951 relating to the Status of Refugees, are applicable (article 46 FlüG). When granted asylum, recognized refugees have a legal right to presence in Liechtenstein (article 48 FlüG) and receive a temporary residence permit. If they have maintained proper and uninterrupted residence in Liechtenstein for at least five years, they have a right to a permanent residence permit, if no grounds for expulsion apply (article 50 FlüG). Spouses of recognized refugees and their minor children are granted asylum if the family was separated during their escape and wants to reunite in Liechtenstein (article 40 FlüG).
Persons whom Liechtenstein has granted asylum are authorized to work outside the quotas for foreign workers (article 49 FlüG). The claims of refugees to benefits from social insurance and social welfare are governed by the applicable legislation (article 51 FlüG).
Under specific circumstances, the Government may revoke asylum or cease to recognize refugee status (article 52 FlüG).
67 Immigration and Passport Office (2007c). 36 Integration in Liechtenstein
6 Attitudes toward foreigners, discrimination 6.1 Attitudes toward foreigners Information on the attitudes of the Liechtenstein population toward foreigners and on questions of integration are provided by the study on Liechtenstein’s national identity by Wilfried Marxer (2007) and by the Youth Study 2006 commissioned by the Office of Social Affairs. a) Study on Liechtenstein’s national identity: Surprising openness In his analysis based on a representative opinion survey, Marxer concludes that Liechtenstein society exhibits astonishing openness with respect to the social integration of immigrants in comparison with the Swiss and German populations. For instance, a significantly lower percentage of respondents (38.6%) views knowledge of the usual customs and traditions of Liechtenstein as a precondition for being a real citizen than in Switzerland (47.1%) and Germany (58.3%). The Liechtenstein population also shows a greater willingness to support groups of foreigners in maintaining their culture – 47.1% of respondents spoke in favor of State support. However, if the question is asked whether migrants should adapt to the culture of the host country or should preserve their own customs and traditions, the demand for adaptation predominates. Two thirds of the Liechtenstein respondents advocate this route, which is approximately the same percentage as in Germany and slightly higher than in Switzerland.
Skepticism vis-à-vis immigration and a negative assessment of migration are, however, less widespread in Liechtenstein than in Switzerland and Germany. A significant majority of the respondents is of the opinion that migrants are good for the economy and an enrichment of culture. Only a minority believes that immigrants increase the crime rate, take jobs away from natives, and that the State spends too much money on immigrants.
Table 4: Attitudes toward immigrants (agreement with statement, in percentage of respondents)
Statements FL CH D Immigrant increase crime rate 38 57 64 Immigrants are in general good for the (CH/D) economy 63 17 26 Immigrants take jobs away from natives 21 52 45 Immigrants make Liechtenstein (CH/D) open to new ideas and 78 76 54 other cultures The State/the Government spends too much money supporting 36 44 72 immigrants Source: Marxer (2006): 220.
The relatively positive attitudes toward migrants are also consistent with respect to opinions on the further development of immigration. Although Liechtenstein has a high share of foreigners in an international comparison, only comparatively few voices call for a reduction of immigration: 7.5% of respondents spoke in favor of a strong decrease (CH: 17%, D: 47.5%), 19.2% for a slight decrease of immigration (CH: 27.6%, D: 25.6%). Approximately two thirds of respondents called for maintaining the current level. It is noteworthy that positive attitudes toward migrants are disproportionately expressed by people with a higher level of education, by people who deem themselves to be flexible, and by foreigners living in the country.
37 Integration in Liechtenstein
These results can largely be explained with reference to the specific circumstances in Liechtenstein. Although Liechtenstein has an extremely high share of foreigners in comparison with Switzerland and Germany, the Liechtenstein economy is dependent on foreign workers, and the country has a relatively low unemployment rate. The crime rate is also comparatively low. Foreigners are therefore viewed less strongly than in other countries as rivals on the labor market. It is also often recognized that Liechtenstein’s prosperity is to a large extent thanks to foreign workers. The fact should also be taken into account that a large share of immigrants are from German-speaking neighboring countries and at the same time have a relatively high level of education. These factors substantially facilitate integration in society.68 With respect to integration policy, a comparison between the attitudes of the Liechtenstein population toward German-speaking, well-educated foreigners on the one hand and toward foreign-language immigrants from other cultural groups would be informative.
It should also be mentioned that the geographic and social circumstances in Liechtenstein counteract any segregation of foreigners. Contacts with foreigners and (positive) experiences with them can be had anywhere and at all times. Marxer also indicates that throughout its history, Liechtenstein as a small State has always been exposed to stronger influences from abroad than larger States, many of which are only now confronted with external influences due to increasing globalization, so that cultural acclimatization to migration and experience in dealing with migration processes already exist in Liechtenstein.69
Marxer (2007: 81 et seq.) suspects that a strong change in attitudes in the direction of acceptance of foreigners has taken place in Liechtenstein over the past decades. He justifies this thesis with reference to the changes in the relevant political decisions, which – in a political system with well-developed direct-democratic rights – reflect the attitudes of the (voting) population. Marxer also indicates that the distinct surge in populist and xenophobic movements in some European countries during the 1990s has largely bypassed Liechtenstein. According to Marxer, this can also at least in part be explained on the basis of the considerations above and the high percentage of persons with dual citizenship and of mixed citizenship families in Liechtenstein.
That racism and discrimination still exist in Liechtenstein, however, and may even surface unvarnished can be seen in the example of Figure 1 and the distribution of a flyer in two Liechtenstein municipalities in December 2006, in which a stronger assimilation of foreigners is demanded (see Annex IV).
68 Marxer (2006): 217 et seq., 227. 69 Marxer (2007): 84. 38 Integration in Liechtenstein
Figure 1: Discriminatory rental advertisement
Triesen: Beautiful 4 1/2-room apartment, balcony, laminate, garage, basement, CHF 1,800 including utilities, only Liechtenstein citizens. Tel. +423/... Source: Liechtensteiner Woche, 19 September 2005. b) Liechtenstein Youth Study 2006: Ambivalent attitude The Youth Study 200670 does not present a clear picture with respect to the attitudes of Liechtenstein young people toward people of other nationalities. Three quarters of the young people agree “strongly” or “somewhat” with the view that where different cultures coexist, each culture can learn and benefit from the other. Three fifths are “strongly” or “somewhat” of the view that people from other countries represent an enrichment for Liechtenstein. Almost as many believe that foreigners are important for the prosperity of the country. More than half of the young people “strongly” or “somewhat” agree that refugees should be helped and admitted to Liechtenstein. However, 60% of the respondents indicated that they “strongly” or “somewhat” believed that Liechtenstein citizens were less often involved in criminal offenses and violence than foreigners. More than half “strongly” or “somewhat” agreed that foreigners provoke xenophobia themselves with their way of living.
Similar results were already seen in the Liechtenstein Youth Study 1998/99: At that time, nearly two thirds of the respondents stated that one could learn from other cultures. Not quite one third indicated, however, that foreigners “cause trouble”, and they connected them with “crime” and “violence”. Since the media play an important role in the formation of public opinion, the authors of the 2006 study suspected that the reporting on foreigners in connection with (drug) crime, job seekers, economic refugees, Islamism, etc., constituted one of the reasons for the prevalence of the aforementioned views among young people, but likely also among adults.
With increasing age, the young people were less likely to believe that refugees should be helped and admitted to the country. The anxiety about potential jobs or loss of prosperity could be a reason for this, according to Kromer/Hatwagner/Oprava. The correlation between age and more distancing attitudes toward foreigners is only very low, however. In the case of all other “negative” statements regarding foreigners, no correlation exists with the age of the respondents.
With respect to sex differences, it can be noted that girls significantly more frequently “strongly” agreed with respect to the possibility of enrichment and learning from other cultures, while boys significantly more frequently “strongly” agreed with the “negative”
70 Kromer/Hatwagner/Oprava (2007): 107 et seq. 39 Integration in Liechtenstein ascriptions to foreigners. Girls are also less likely to justify xenophobia in terms of the behavior of foreign persons. The surveyed boys are more likely than the girls to attribute criminal behavior to people not originating from Liechtenstein. On the other hand, the young men significantly more frequently than the female respondents “strongly” agreed that people from abroad are important for prosperity in Liechtenstein.
Interesting differences with respect to attitudes toward migrants also exist among different levels of education. Young people attending Oberschule (lower-tier secondary school) are most likely to believe that people without Liechtenstein citizenship should have as many rights as Liechtenstein citizens, that people from abroad are important for prosperity, that one can benefit from the coexistence with other cultures, and that people from other cultures are an enrichment. According to the authors of the study, an explanation may be the higher share of young foreigners in the Oberschule compared with other tiers. Apprentices are least likely to believe that one should help foreigners and admit them to the country. Possibly, according to Kromer/Hatwagner/Oprava, these young people are afraid of losing “their” jobs to young people without Liechtenstein citizenship. Students in the Gymnasium (upper-tier secondary school) are least likely to agree with self-provoked xenophobia and greater criminality among foreign citizens.
In the context of the Youth Study, the young people were asked whether they were afraid of being accosted by right-wing extremists in certain situations.71 The evaluation indicated that more than one third of the respondents were afraid of being harassed by “right-wing extremists” in public areas and at school. 40% indicated that they were afraid at events, 35% were afraid at bus stops, and 14% at school. While the boys tended to be more afraid of harassment at school, girls indicated that they were most afraid of harassment at bus stops and events. The question regarding actual experience of harassment showed that every one in five young people had been accosted at least once at events, one in seven at bus stops, and one in ten at school.72
Where the young people were asked to assess in which areas in Liechtenstein they believed problems to exist, the responses again showed an ambivalent attitude with respect to immigration and integration questions. Nearly two thirds of the respondents cited “right-wing extremism” as a problem. About half, however, believed that the situation of “too many immigrants” was problematic. As a possible explanation for this seemingly contradictory assessment, the authors of the study note the following: The more immigrants come to Liechtenstein, the more likely is the possibility of not being able to deal well with foreigners. Given the fact that about half of the surveyed young people assess youth unemployment and lack of jobs to be problematic, it could also be that this enhances their feeling of being threatened and their rejection of foreigners.
Broken down by school type, it becomes apparent that education substantially influences perspectives on the aforementioned problems: “Youth unemployment” and “lack of job” are problems primarily identified by students attending Oberschule. For apprentices and Oberschule students, “too many immigrants” are more frequently a problem than for Gymnasium students and students attending Realschule (middle-tier secondary school). Apprentices and Gymnasium students both view right-wing extremism as a serious problem.
71 It should be noted that the study did not clarify with the young people what they mean by the term “right-wing extremists” or what group of persons they associate with this term. 72 Kromer/Hatwagner/Oprava (2007): 115 et seq.. 40 Integration in Liechtenstein
The problems of “too many immigrants” and “right-wing extremism” are perceived more strongly with increasing age.73
6.2 Discrimination According to the study authored by Marxer (2005), foreigners are exposed to discrimination in general and to right-wing extremist violence in particular to different extents, depending on language, origin, type of employment, and level of education.74 For instance, German- speaking, Western European immigrants with above-average education are hardly affected by discrimination.
With respect to Southern European immigrants with below-average education and a high degree of employment in undesired segments of the labor market, Liechtenstein has developed a largely peaceful mode of coexistence – or at least a rather unproblematic separate existence according to language groups – due to the long-time tradition of immigration (habituation effect), the low share of children (inconspicuousness), the high usefulness, the partial absence due to their seasonal residence status, and the affinity of the religious culture (Roman Catholic). Although this situation appears to be largely accepted both individually and across society as a whole, it is not entirely free of discrimination overall and is not conducive to integration.
With respect to Eastern and Southeastern European and Turkish immigrants with a substantially below-average education and low employment rate, the cultural, religious, and linguistic differences give rise to group differences between immigrants and the local population that are more difficult to bridge, according to Marxer (2005). Disadvantages on the labor market, both due to ethnic origin and due to educational deficits and low individual motivation or other factors, are relatively frequent. A high share of children and long-term residence or permanent residence pose new challenges to social integration, both qualitatively and quantitatively.
6.3 Racism and right-wing extremism a) Young right-wing extremists in Liechtenstein
The right-wing extremist scene in Liechtenstein consists of a core group of approximately 20 to 30 persons and a larger group of hangers-on.75 While in the early 1990’s, the persons involved were generally teenagers, the Annual Report 2006 of the Working Group Working Group against Racism, Anti-Semitism, and Xenophobia indicates that the followers of the right-wing extremist scene are now mainly young adults. No formal or politically organized right-wing extremist group has been identified so far, even though it must be assumed that informal structures exist.
The right-wing scene, which is mainly visible in the Liechtenstein Lower Country, has become more strongly ideologized and politicized in recent years. It is also increasingly
73 Kromer/Hatwagner/Oprava (2007): 95 et seq. 74 Marxer (2005): 61 et seq. 75 St. Galler Tagblatt, 25 August 2006. 41 Integration in Liechtenstein networked abroad, whereas the contacts are no longer limited to the Swiss scene76 as they were in earlier years, but are now more strongly oriented toward the scenes in the Austrian province of Vorarlberg and in Southern Germany. According to the National Police, contacts exist between Liechtenstein followers of the right-wing extremist scene with the “Blood and Honour” movement active in various European countries, especially with its section in Vorarlberg. Although the group of ideologized and networked persons in Liechtenstein is relatively small, it offers a good breeding ground for further ideologization.
Political, right-wing extremists have not officially made an appearance. Distribution of flyers, public political statements, and participation in a radio program indicate political ambitions, however. Graffiti with right-wing extremist symbolism and statements have been found on public buildings in Liechtenstein. In April 2006, the “No Exclusion” poster campaign against racial discrimination organized by the Working Group against Racism, Anti-Semitism, and Xenophobia was defaced with racist symbols.77
As the study conducted by the Office of Social Affairs in 1998 on the topic of “Right-wing extremism in Liechtenstein” shows, right-wing extremist individuals come together for joint actions. These include primarily informal meetings, parties, concert trips abroad, but also individual activities such as establishing a website calling for racially motivated acts of violence (shut down by the National Police in 1998) or the organization of a skinhead concert (in Triesenberg 1997). Conflicts with groups of young people, including foreigners, are often provoked by right-wing-oriented young people.
Cliques frequent (or have frequented over the last ten years) meeting places for young people in various municipalities, characterized by right-wing-oriented ideology and defending certain territorial claims. The youth club in Triesenberg was particularly affected in the second half of the 1990’s, and the youth club in Nendeln continues to be affected. Youth workers complained of exclusionary and conflict-laden, at times violent behavior of young people in everyday life. The study on “Right-wing extremism in Liechtenstein” finds that teachers in all school were also very concerned about the prevalent xenophobia, violent behavior, and mutual exclusion of children and young people.78 The observations of the teachers with respect to the frequency of right-wing extremist attitudes among children and young people and membership in the right-wing scene differed between primary and secondary schools, however, and – in line with the results of the Youth Study 2006 – between type of school.79
In the “Military Parlor”, an antique store in Nendeln specializing in military objects, various materials from the Nazi past (literature, emblems, etc.) are available. The owner of the store also presents his merchandise at relevant events in Switzerland.80 A private record store in Schaan selling music with right-wing extremist lyrics closed again in the summer of 1997 after a few months of business.81
76 Such as regional cooperation with the Eastern Swiss skinhead group “Patriotic East Wing”. Swiss Federal Police (1998), Statement before the Court of Justice in Vaduz, 6 October 1998. Cited in Office of Social Affairs (1999b): 17. 77 Working Group against Racism, Anti-Semitism, and Xenophobia (2007): 7 et seq. 78 Office of Social Affairs (1999b): 24. Office of Social Affairs (2004): 34 et seq., 39 et seq. 79 Office of Social Affairs (1999b): 22 et seq. 80 Luzern Heute, 9 April 1998, cited in Office of Social Affairs (1999b): 17. 81 Office of Social Affairs (1999b): 16 et seq. 42 Integration in Liechtenstein b) Right-wing extremist incidents At the beginning of the 1990’s, right-wing-oriented young people became conspicuous in Liechtenstein for the first time. In 1996 and 1997, an increase in their activities was observed. In addition to private meetings, the young right-wing extremists now also appeared in public.82 6 incidents were reported in 2004 and 3 in 2005 involving young right-wing extremists. The number in 2006 was approximately 6 (for an overview of right-wing extremist incidents in 2004 to 2006, see Annex V). The conspicuous activities were primarily violent assaults against individuals or entire groups at public events. The incidents in the past years indicate that some members of the scene use violence and seek out the use of violence. The number of incidents connected with right-wing extremist violence has been low in the last three years, but the increasing ideologization and networking of right-wing extremists gives rise to concern.83 c) Violations of the anti-racism penal provision According to the criminal statistics published since 2002 in the Government’s accountability report, 13 reports of racial discrimination were filed with the police between 2002 and 2006.84 In addition, an unknown number of unreported cases must be assumed.
Since the introduction of the anti-racism penal provision in 2000, the police filed three charges under § 283 StGB with the Office of the Public Prosecutor. Two cases resulted in a conviction, while the third judgment is still pending.
1st case: In 2002, a dark-skinned woman in a grocery store in Schaan was subject to racist verbal abuse. The perpetrator was sentenced in the first instance to a monetary penalty of CHF 500 and to one year probation. The case was appealed to the Court of Appeal, which confirmed the judgment of the Court of Justice and extended the probation to three years.
2nd case: In November 2004, charges were filed with the Office of the Public Prosecutor concerning dissemination of racist ideology. The suspect was accused of listening to music with right-wing extremist texts so loudly that the lyrics could easily be understood in the neighborhood, and of placing paraphernalia (posters, flags, etc.) in his apartment so that it could be easily seen by the inhabitants of the neighborhood. The Juvenile Court sentenced the accused person in 2006 in the first instance to a suspended term of imprisonment of three months during a probationary period of 3 years for dissemination of racist ideology and ordered the destruction of the material confiscated during the house search. The judgment was appealed. The conviction in the first instance was fully upheld by the Court of Appeal in May 2006. However, the Court of Appeal reduced the sentence imposed in the first instance, making use of the option provided for in § 8 paragraph 1 of the Juvenile Court Act, and provisionally suspended imposition of the sentence with a probationary period of three years. Moreover, a probation officer was appointed for the sentenced person. The Supreme Court confirmed this judgment in August 2006. The judgment is therefore final.
3rd case: In September 2006, the Office of the Public Prosecutor indicted two members of a Turkish, radical Islamist sect. The two persons are accused of obtaining and further disseminating racist material on the Internet (see section 4.5). The trial date has not yet been set.
82 Office of Social Affairs (1999b): 3, 16 et seq. 83 Working Group against Racism, Anti-Semitism, and Xenophobia (2005/06/07). 84 National Police (2003/04/05/06/07). 43 Integration in Liechtenstein
In 2002 and 2003, two charges were filed with the Office of the Public Prosecutor against unknown perpetrators in connection with the dissemination of racist propaganda. The racist graffiti at issue in both cases were not prosecuted under § 283 StGB, however, but rather under the offense of vandalism. Further charges were filed against several Hungarian citizens who were in possession of extensive National Socialist propaganda materials when they were stopped at the Liechtenstein border. The materials were confiscated. The persons were traveling through Liechtenstein en route from Austria to Switzerland, so the connection to Liechtenstein is minor. These proceedings are still pending, since requests for clarification addressed to the Hungarian authorities have not yet been answered.85
6.4 Measures against discrimination and right-wing extremism a) Legislative level As explained above (see section 2.1), Parliament adopted a revision of the Criminal Code in 1999, in the framework of which the offense under § 283 was expanded and newly titled “Racial discrimination” (LGBl. 2000 No. 36). On the basis of the new version of § 283, racial discrimination can now be criminally prosecuted. When evaluating offenses, § 33 paragraph 5 StGB considers racist or xenophobic motives to be a special aggravating factor.
On 22 November 2006, Parliament transmitted a petition to the Government to tighten the anti-racism penal provision. The petition calls for the criminalization of wearing Nazi emblems and racially discriminatory symbols. The petition was launched by the group “Colorida”, in which Liechtenstein young people are engaged in raising the awareness of the population on the topic of right-wing extremism.86 On the request of the Government, the Violence Protection Commission and the Office of the Public Prosecutor have submitted an opinion on the petition to the responsible Minister.87 The Ministry of Justice is currently considering a revision of the Criminal Code, in which an amendment to § 283 StGB may be included. Concrete decisions in this regarded are planned for the autumn of 2007.88
The revision of the Police Act adopted by Parliament in May 2007 authorizes the National Police in administrative proceedings to secure, seize, and confiscate propaganda material inciting violence (article 25, LGBl. 1989 No. 48 as amended). If the material is located on a Liechtenstein server, the National Police may order deletion of the website; if it is on a foreign server, it may issue blocking recommendations to the Liechtenstein Internet service providers.89
The Probation Assistance Act adopted by Parliament in September 2000 (LGBl. 2000 No. 210) significantly expands the traditional response options (un-/conditional monetary penalties/sentences of imprisonment) available to criminal judges on the Court of Justice with respect to behavior punishable under criminal law. Where the legislative conditions are met, the judge may assign the convicted person a probation officer, who monitors the convicted person’s moral conduct and compliance with instructions ordered, and who endeavors to help the perpetrator achieve a new attitude and approach to life ensuring that the perpetrator will not commit any further crimes in the future. The support function of the probation officer is also shown in that he is called upon to keep temptations away from the perpetrator and help
85 Längle (2006a). 86 Press release of 21.12.2006. 87 Statement by Jules Hoch, Head of the Criminal Police, 18 June 2007. 88 Statement by Harald Oberdorfer, Government Officer in the Ministry of Justice, 20 June 2007. 89 Information provided by Jules Hoch, Head of the Criminal Police, 18 June 2007. 44 Integration in Liechtenstein him find appropriate housing and work. The focus of probation assistance is therefore on resocialization. Since 2003, probation assistance is carried out by the Probation Service association on the basis of a service agreement with the Office of Social Affairs, and in cooperation with that Office and other relevant authorities. Particularly in cases of social marginalization, immaturity, helplessness in taking care of oneself, weakness of motivation, and other conspicuous behavior going beyond delinquency, ordering probation assistance is a promising measure. When dealing with the enforcement of penalties against right-wing extremists, generally young people who must detach themselves from their previous social environment in order to master their problems, the tool of probation assistance may therefore play an important role.90
On 1 January 2007, diversion measures were introduced in Liechtenstein. When diversion measures are imposed, criminal proceedings are waived or terminated without a sentence or a formal punishment or unnecessary stigmatization of the suspect. The precondition is that the suspect agrees to render certain services, e.g. a fine, restitution, therapy, or charitable work, or to claim responsibility vis-à-vis the victim. This provides a legal basis for flexible, case-to- case, and effective responses to criminal behavior at the lower and, in exceptional cases, middle level of criminality, taking into account the interests both of the person injured by the crime as well as the interests of specific and general deterrence, without however conducting criminal proceedings with a formal sentencing of the perpetrator. The introduction of diversion measures will especially have an impact on juvenile criminal justice and therefore play an important role in dealing with young right-wing extremist.91
In 2000, Liechtenstein ratified the UN Convention on the Elimination of All Forms of Racial Discrimination. In 2004, Liechtenstein recognized the competence of the Committee on the Elimination of Racial Discrimination to receive and consider complaints from individuals. Liechtenstein submitted its initial report in 2002 and its second and third periodic reports on the Convention in 2005.92 b) Administrative level Cooperation among the various authorities in the prevention and suppression of racism has been improved in recent years. With the introduction of probation assistance, a connection has been established between the areas of law enforcement/administration of justice and social welfare/social institutions, allowing the application of preventive, pedagogical, and therapeutic measures in addition to prosecution. At the municipal level, youth workers and political decision-makers are included in the process. The improved coordination makes a more efficient intervention possible on a case-by-case basis.
The police depend on being able to precisely monitor the activities of right-wing-oriented persons and intervene in the event of illegal conduct. They have increased their investigative work since 1999. Data on persons willing to use violence in the right-wing extremist scene are gathered and stored by the police.93 The National Police repeatedly conduct internal training courses on racism and violence and facilitate the participation of officers of the Criminal Police in external training courses. In 2006, for instance, the National Police conducted a
90 Probation Service (2004): 11 et seq. 91 Press release, 24 November 2005. 92 The periodic reports submitted by Liechtenstein to the Committee on the Elimination of Racial Discrimination (CERD) and the concluding observations by CERD are available at www.liechtenstein.li under State/Foreign policy/Human rights/Racism. 93 Statement by Jules Hoch, Head of the Criminal Police, 23 October 2006. 45 Integration in Liechtenstein seminar on hate crime, which representatives of the Court of Justice and the Office of the Public Prosecutor also attended.94
Since 1997, the municipalities have been required by the Government not to make premises or places available for meetings of right-wing extremist persons. The national authorities also do not make premises available for right-wing extremist propaganda events.95
During the term of its mandate, the Working Group against Racism, Anti-Semitism, and Xenophobia initiated several projects to train and sensitize persons working in the public service with respect to the prevention and suppression of racism. In October 2002, for instance, it offered a training block on the topic of human rights and combating racism for police candidates, in cooperation with the National Police. In 2003, this topic was integrated into general police training. In the course of 2003, the Working Group initiated lectures and discussions on compliance with human rights and the prevention of racial discrimination in the Office of Social Affairs and the Criminal Police. The Conference of Directors of Offices of the National Administration and the Conference of School Directors were briefed on the activities of the Working Group and asked for assistance. In 2004 and 2005, an awareness- raising campaign with an expert in intercultural conflict resolution was initiated and co- financed for apprentices in the National Administration on the topic of racism. At the same time, a seminar on the topic of intercultural communication was organized and co-financed within the National Administration, which was offered a second time due to high demand. The staff members of the Immigration and Passport Office were required to participate in this seminar. In 2005, the activities of the Working Group were presented in the newsletter for the staff of the Liechtenstein National Administration (Flip), and all Offices of the National Administration were called upon to contact the Working Group in the event of questions relating to racism.96
As a State response to the growing phenomenon of violence, the Government appointed an interagency Violence Protection Commission in 2002 (see section 3.3). This Government commission aims to ensure a continuous and systematic consideration and treatment of the problem of violence in Liechtenstein. It analyzes current events and develops appropriate measures and concepts. The Commission focuses on the analysis of developments and trends. It also initiates and supports prevention projects. In 2005, representatives of the Violence Protection Commission worked on the cross-border St.Gallen/Liechtenstein Violence Protection Project. The outcome of the project is a documentary film with young people on the topic of violence and dealing with violence. Building on this, the violence prevention campaign “Respect, please!” was launched in February 2007. In cooperation with the Conference of Mayors and the Minor’s Protection Officer of the Office of Social Affairs, the Violence Protection Commission is developing a “Manual for the Organization of Public Events” in municipalities, which aims to reduce the risk of violence at such events and create uniform conditions for the organization and hosting of events.97
With Government Resolution RA 2007/388 of 14 February 2007, the Government has mandated the Violence Protection Commission to develop a strategy against right-wing extremist violence. Government Resolution RA 2007/1474-9791.2 of 22 May 2007 furthermore mandates the Commission to conduct a sociological study on the motives of right-wing extremism in Liechtenstein, based on the recommendations of the UN Committee
94 Working Group against Racism, Anti-Semitism, and Xenophobia (2007): 5 et seq. 95 Office of Social Affairs (1999b): 35. 96 Working Group against Racism, Anti-Semitism, and Xenophobia (2004/05/06). 97 Violence Protection Commission (2006). 46 Integration in Liechtenstein on the Elimination of Racial Discrimination. Illuminating the backgrounds and motives for right-wing extremism is a precondition for developing a counterstrategy. Since the common assumption that right-wing extremism mainly arises in population strata with high unemployment, poor education, and a general lack of perspectives is not accurate in Liechtenstein, other reasons for the attractiveness of these attitudes must be identified.98 c) Societal level To continue the awareness-raising process within society, the Working Group against Racism, Anti-Semitism, and Xenophobia has taken a series of measures. The International Day against Racism on 21 March is commemorated with a press release in the national newspapers. In 2003, all official documents relevant to combating racism in Liechtenstein as will as the relevant international treaties were published on the official Internal portal of Liechtenstein. In 2004, a seminar with people working in the media was organized on the topic of “The role of the media in preventing and combating racism and discrimination”. The participants included journalists from the national newspapers as well as freelance reporters and media officers, staff members of the Press and Information Office, and staff members of the Government Spokesperson’s Office. In March/April 2006, the poster campaign “No Exclusion” of from the Swiss Federal Commission against Racism (FCR) was adopted and modified for Liechtenstein. On posters and postcards, a total of six victims of discrimination spoke out and drew attention to unequal treatment and exclusion motivated by racism in everyday life, such as at work or in interactions with authorities.99
In the last few years, numerous multicultural projects and events promoting mutual understanding among members of different nations in Liechtenstein have been supported by the Government and initiated or organized by Offices of the National Administration and working groups. These projects include those described in section 13.2.b and the film project “El Dorado Liechtenstein”, supported by the Cultural Advisory Council of the Government and the Working Group against Racism, Anti-Semitism, and Xenophobia, which premiered in August 2006.100
The “European Year of Equal Opportunities for All”, launched in 2007 under the direction of the Office of Equal Opportunity, will be celebrated in Liechtenstein with a series of events targeting different kinds of discrimination. The Conference of Foreigners’ Associations is a member of the steering and evaluation committee for implementation of the Year of Equal Opportunities.101 With respect to promoting the integration of foreigners in Liechtenstein, the following projects are especially noteworthy: the intercultural evening of Inter-Choirs FL to promote intercultural communication and cultural exchange, the Parents’ University at the Liechtenstein University of Applied Sciences as a counterpart to the Children’s University focusing on the topics of equal opportunity and promotion of tolerance, the “Babylon Slam” project of the Liechtenstein Literature House on the topic of different languages, the symposium on “Competitive advantage through cultural diversity?” organized by the European Institute for Interreligious and Intercultural Research, the establishment of a “religion.li” website, and the press campaign “At home in Liechtenstein” organized by the Integration Task Force.102
98 Office for Foreign Affairs (2007). 99 Working Group against Racism, Anti-Semitism, and Xenophobia (2004/05/06). 100 Working Group against Racism, Anti-Semitism, and Xenophobia (2004). 101 Kubik-Risch (2006): 8. 102 Press release, 12 February 2007. 47 Integration in Liechtenstein
To investigate the history of Liechtenstein in the Second World War, the Government appointed an Independent Commission of Historians on 22 May 2001 with the mandate to clarify questions on Liechtenstein’s role in the Second World War in depth. At the same time, the Government appointed an Advisory and Coordination Committee with the mandate to advise the Government on all questions arising in this connection, especially in the areas of domestic and foreign policy, public outreach, and consequences to be drawn from the work of the Independent Commission of Historian. In 2005, after nearly four years of work, the Independent Commission of Historians presented the final report on its research on the role of Liechtenstein in the Second World War and individual studies on special topics. In May of the same year and on the recommendation of the Advisory and Coordination Committee, the Government adopted an extensive catalogue of measures targeting activities both within the country, especially in the area of education, as well as activities abroad. The Working Group against Racism, Anti-Semitism, and Xenophobia was entrusted with coordination of the implementation. In the meantime, the mandates to various Offices of the National Administration in connection with the fight against anti-Semitism issued pursuant to Government Decision RA 2005/1141 of 24 May 2005 have been concluded or launched (see Annex VI).103 Following the suggestion of the Commission of Historians to continue to research the recent history of Liechtenstein, Parliament agreed on 21 June 2007 to a credit for the promotion of research projects on the history of the country in the 1930’s and 1940’s, which will be carried out between 2008 and 2011.104 d) School and youth work Programs against violence and racism are also organized in schools and in the context of public youth work. The Children and Youth Division of the Office of Social Affairs provides information and counseling services on the topic of right-wing extremism. These offerings can, upon request, also be included in public youth work. Young people affected by violence and/or racism and their families are counseled with respect to their individual situation and encouraged to file charges. The Children and Youth Division also financially supports projects against racism and violence.105
In the context of the Liechtenstein education system, efforts are made to counteract racism of all kinds, requiring measures to be taken to promote the mutual understanding of members of different culture groups. In the 1999/2000 school year, cultural reflection was introduced in the curriculum as an independent learning area with the following objective: “The students get to know and learn to understand different forms of linguistic expression. They thereby learn to look critically at their own culture, strengthening their own cultural understanding and creating the willingness to deal with other cultures and develop understanding for them.” Intercultural communication is specially promoted at school by organizing concrete multicultural projects with the goal of emphasizing similarities between different cultures as well as illuminating differences.106
The curriculum has also been revised with respect to the treatment of National Socialism. Taking into account the findings of the Independent Commission of Historians, a working group established by Government Resolution RA 2005/2807 of 18 January 2006 is developing new teaching materials on the history of Liechtenstein in the 20th century, with special consideration of the relationship with Nazi Germany.107
103 Government of the Principality of Liechtenstein (2005). 104 Liechtensteiner Volksblatt, 22 June 2007. 105 Statement by Ludwig Frommelt, Youth Development Bureau, Office of Social Affairs, 21 June 2007. 106 Eurydice European Unit (2004): 10. 107 Working Group against Racism, Anti-Semitism, and Xenophobia (2007): 9. 48 Integration in Liechtenstein
In secondary school, it is prohibited to wear racist emblems and clothing. Teachers are required to intervene in the event of rule violations and ideological-racist speech and to actively cultivate a good climate at school. In cooperation with the Office of Social Affairs, panel discussions have been organized at various schools on the topic of dealing with violence at school. In January 2007, the violence prevention and integration project by “People’s Theatre” supported by the Working Group against Racism, Anti-Semitism, and Xenophobia conveyed a relaxed and creative approach to crisis situations at Liechtenstein secondary schools, using interactive theater performances and an open culture of discussion.108
In the training of Liechtenstein teachers, which takes place in Switzerland or Austria, the acquisition of intercultural skills is emphasized, in order to prepare future teachers for the challenges of a multinational school environment. In the framework of legally required continuing training, teachers may attend foreign educational institutions for a period of up to six months.109 The Children and Youth Division of the Office of Social Affairs has in recent years sporadically offered teacher training courses on topics such as integration, communication and the ability to deal with conflict, and dealing with aggression.110
International exchange programs to improve the language and cultural skills of young people from Liechtenstein are promoted. Students in the upper level of Gymnasium may attend equivalent schools in other countries for a period of up to one year, while students from other countries may come to Liechtenstein. Class trips up to one week for learning languages may, under certain conditions, be conducted at the secondary level. Student exchanges also take place in the context of the Comenius and Erasmus programs.111 Through participation in projects of the Leonardo da Vinci vocational training program, the Office of Vocational Training and Counseling allows apprentices as well as individuals who have completed their basic vocational training to complete an internship in a European country with financial support by Liechtenstein and the EU. The experience horizon of the participants is expanded, and intercultural competence is strengthened.112
Open youth work is also employed as an instrument for improving multicultural coexistence. The youth workers exchange experiences within the Association of Liechtenstein Youth Workers (VLJ). In 2003, a working group of the VLJ under the direction of a staff member of the Children and Youth Division of the Office of Social Affairs dealt with violence prevention. A rough concept for the creation of a conflict mediation group to be employed during large events was developed.113 Through “aha – Tips and Info for Young People”, exchange projects among young people with a multicultural character are promoted, and youth counselors and leaders who supervised the youth divisions of various clubs are trained in the fields of conflict resolution and racism. Several campaigns were implemented in 1995, 1997, and 2006 as part of the youth campaign “All different, all equal” of the Council of Europe. The campaign called for the organization of national projects throughout Europe to raise awareness against racism, intolerance, xenophobia, and anti-Semitism, and to encourage the political participation of young people. From March to December 2006, the Office of Social Affairs and the Office of Equal Opportunity coordinated numerous projects that were developed and implemented by young people, for instance the intercultural project
108 Working Group against Racism, Anti-Semitism, and Xenophobia (2007): 6. 109 Eurydice European Unit (2004): 10 et seq. 110 Statement by Ludwig Frommelt, Youth Development Bureau, Office of Social Affairs, 21 June 2007. 111 Eurydice European Unit (2004): 10 et seq. 112 Office of Vocational Training (2006). 113 Office of Social Affairs (2003). 49 Integration in Liechtenstein
“Liechtenstein’s foreign AFFAIRS”, which experimented with new pedagogical approaches, the submission of a petition to expand the anti-racism penal provision, and the organization of an anti-racism forum by the “Colorida” group.114
The abovementioned campaign “Respect, please!” against youth violence was presented to the public in February 2007. It lasts until summer 2008. A pedagogical DVD serves as the starting point for an in-depth discussion of different aspects of the phenomenon of violence. Supported by expert speakers in schools and youth officers in the municipalities, young people are encouraged to reflect upon their own conduct and to discuss alternative, non- violent ways of resolving conflicts. Other goals of the campaign are to initiate a public discussion on the topic of youth violence and to build bridges between parents, teachers, and authorities to find joint solutions to the problems underlying youth violence.115
6.5 Recommended integration policy actions • A study on the perception of foreign-language immigrants in Liechtenstein would be desirable. • The anti-racism penal provision in § 283 StGB should be tightened, i.e. the wearing of racist/right-wing extremist emblems (avowals of racist ideology) should be penalized, and racist/right-wing extremist organizations should be banned.116
114 Office of Social Affairs (2006). 115 Press release of 7 February 2007. 116 According to the recommendations of the UN Committee on the Elimination of Racial Discrimination (CERD) of 8 May 2007 and Government Resolution RA 2007/1474-9761.2 of 2 May 2007. 50 Integration in Liechtenstein
PART III: AREAS OF INTEGRATION
7 Schooling 7.1 Data on foreign students and their integration a) Distribution among school types The total number of students in compulsory schooling at public school was 4,397 in the 2006/07 school year. 21.9% were of foreign origin.117 As Marxer (2005) has shown, the placement of students into different tiers at the secondary school level is a significant indicator of differences between various population groups in the educational sector. Significant differences are seen between groups of different origin. Liechtenstein and Swiss citizens are overrepresented in the Realschule (middle-tier secondary school) and Gymnasium (upper-tier secondary school), while students from EU States and other foreign countries are overrepresented in the Oberschule (lower-tier secondary school).
Table 5: Share of students at the secondary level according to origin (2006/07) (row percentage) Nationality School type Liechtenstein Swiss EU States Others Total Oberschule 54.5% 4.4% 17.0% 24.1% 100.0% Realschule 74.5% 6.3% 12.2% 7.0% 100.0% Gymnasium* 79.1% 7.4% 11.7% 1.8% 100.0% Total 69.5% 6.0% 13.5% 11.0% 100.0%
Source: Office of Economic Affairs, Statistics Division (2007c). Own calculation. * Only students in the lower years of the Gymnasium are counted.
Table 6: Share of students at the secondary level according to origin (2006/07) (row percentage) Nationality School type Liechtenstein Switzerland EU States Others Oberschule 22.9% 21.4% 36.8% 64.3% Realschule 54.2% 53.6% 45.8% 32.5% Gymnasium* 22.9% 25.0% 17.4% 3.2% Total 100.0% 100.0% 100.0% 100.0%
Source: Office of Economic Affairs, Statistics Division (2007c). Own calculation. * Only the students in the lower years of the Gymnasium are counted, since an inclusion of students in all 7 years of the Gymnasium would have generated a far higher share of Gymnasium students than the average per class year.
While more than 20% of Liechtenstein and Swiss children attend the Gymnasium and more than half attend the Realschule, more than one third of the children from EU countries and almost two thirds of the other foreign children attend the Oberschule. In the 2003/04 school
117 Office of Economic Affairs, Statistics Division (2007c). The number of students does not include the students in the upper years of the Liechtenstein Gymnasium. 51 Integration in Liechtenstein year, a separate survey by Marxer (2005) shows that more than half of the Southern, Eastern, and Southeastern European children and almost 80% of Turkish children attend the Oberschule.118
The Therapeutic-Pedagogical Center (HPZ) is responsible for special schooling in the Liechtenstein education system. 69.0% of the children taught at the HPZ were from abroad as of December 2006. According to the HPZ, most of the foreign children were born in Liechtenstein or Switzerland. They are taught and promoted at the day school of the HPZ due to especially slow language development or mental development.119 Relative to the share in the population, children from Southern Europe and Turkey are particularly overrepresented in the special school. Under the assumption that the native intelligence of human beings does not exhibit significant differences, the systematic distortion must have other causes. It makes sense to identify language deficits as an important cause. If this be the case, the affected foreign-language groups in Liechtenstein suffer from reduced educational opportunities.120
Table 7: Special schooling at the Therapeutic-Pedagogical Center according to country group, 2006 Students Population Nationality Number Share Share Liechtenstein 35 31.0% 66.1% Switzerland 33 29.2% 10.2% Turkey 15 13.3% 2.5% Italy 6 5.3% 3.4% Portugal 4 3.5% 1.6% Former Yugoslavia 3 2.7% 3.4% Others 17 15.0% 12.8% Total 113 100.0% 100%
Source: Therapeutic-Pedagogical Center (2007): Separate survey. As of 31 December 2006. b) Results of the PISA 2003 study According to the results of the PISA 2003 study121, a close correlation exists in Liechtenstein between scholastic performance and the migrant background of students. Students with a migrant background on average performed significantly worse than native students. The difference in performance between the native and foreign-born foreign-language students was greater than in all Swiss German cantons.122
When interpreting the differences in performance between native students and students of a migrant background, it must be taken into account that many foreign-language migrants have
118 Marxer (2005): 35 et seq. 119 Statement by Anna Batliner, Secretariat of the Therapeutic-Pedagogical Center, 25 June 2007. 120 Marxer (2005): 47. 121 This entire section follows the PISA Research Group for German-Speaking Switzerland and Liechtenstein (2005): 93-98. 122 The differences in performance between native students and students with a migrant background is in general greater, the higher the share of students of students with a migrant background. This may be a result of poorer scholastic integration of such students once a certain number of foreign-language students is reached. The fact that the tested Liechtenstein students are more culturally heterogeneous than the students tested in Swiss German cantons may therefore partially explain the conspicuous Liechtenstein result. 52 Integration in Liechtenstein a low socio-economic status123. The lower their social background, the lower their scholastic performance. This correlation is manifested particularly strongly in Liechtenstein in comparison with Switzerland. Apparently, Liechtenstein is comparatively less able to adequately promote students from disadvantaged backgrounds. Due to the socio-economic status of their families, children with a migrant background are therefore often subject to a dual burden with respect to their scholastic performance.
Given these correlations, the placement of students after primary school into different tiers not only results in a selection according to the performance of the students, but also a selection according to their social background. Students from disadvantaged backgrounds are much more likely to attend the Oberschule. The secondary school model segregated into different tiers therefore not only results in learning groups that are relatively homogeneous with respect to performance, but also with respect to social background. 80% of the differences between the classes of the different school types can be explained by the school type, while the individual characteristics of the students only explain about 14% of the differences in performance between the classes.
The students subject to lower requirements (basic requirements) as a proportion of the total number of students is steadily dropping in Liechtenstein. At the same time, the students with a migrant background represent an increasingly large share of students subject to basic requirements. This leads to a disproportionately high increase of the share of students with a migrant background in the Oberschule. This increase indicates that the education system is unable to react sufficiently quickly to the increasing heterogeneity.
As a consequence of the formation of homogeneous groups, the learning conditions in classes subject to basic requirements are particularly unfavorable, since the good students are missing. In various surveys124 conducted it recent years, it has repeatedly been shown that homogeneous learning groups primarily become a problem for an education system when the learning groups consist of poorly performing and socially disadvantaged students
The danger of the formation of such “leftover classes” exists in the Oberschule and also manifests itself in the higher degree of disciplinary problems. Schools with basic requirements are in danger of deteriorating into “leftover schools” with the same fate as small classes: With respect to the learning success of the students, the classes are less effective and therefore lead to an increasing stigmatization of students over time. Since the learning conditions differ significantly among school types, i.e. performance levels with different requirements, the attendance of a given school type substantially determines learning success in Liechtenstein.
123 The index of socio-economic background, which is used to assess the relative socio-economic status, is composed of the highest educational level of the parents, the highest professional status of the parents, and the possession of educational and cultural objects. It is also called socio-economic index or index of social background. 124 Bless (1995), Haeberlin et al. (1999), Moser and Rhyn (1999). 53 Integration in Liechtenstein
7.2 Causes of integration deficits Educationally disadvantaged parents are often not able to adequately support their children experiencing scholastic difficulties and/or often do not accord their children’s education the necessary importance.125 Migrants from educationally disadvantaged strata often live in households with many dwellers. It has been shown that the existence of multiple siblings in such families has a negative impact on the scholastic performance of the children.126 In many cases, the language spoken by migrants at home is not the language of instruction in the schools attended by the children. Language usage is an important factor in the performance deficits of the students with migrant backgrounds.127 The dialect spoken in Liechtenstein, which is significantly different from the written language, also makes it more difficult to acquire German-language skills.
Before their 6th year of life, a large number of foreign children are without institutional supervision (kindergarten), which has a negative impact on their educational career.128 Deficient prior schooling or prior schooling with different focus areas, e.g. in the primary school of the home country, also adversely affects integration in the everyday school environment. The shorter the time the children have spent in Liechtenstein, the more poorly adapted they are in general to the Liechtenstein environment and the more difficult it is for them to integrate in school as well.129
A disproportionately high number of foreign-language children attend the Oberschule or special schools. Research in Switzerland has shown that the placement into tiers statistically cannot be correlated exclusively with skills and talents, but also may be determined by background and social status.130 It can be assumed that similar mechanisms are at work in Liechtenstein.
7.3 Especially vulnerable groups (risk groups) Children with insufficient German-language skills from educationally disadvantaged families and/or with parents who have insufficient or no German skills represent an especially vulnerable group. With respect to their later position on the labor market, foreign children who attend special schools or the Oberschule are exposed to a particularly high risk.
7.4 Competences and existing measures a) Legal foundations Both children with a migration background as well as children and adolescents who have acquired Liechtenstein citizenship have a right to special scholastic support if: • German is not their native language • They have gaps of knowledge due to insufficient schooling in their home country • They emigrated to Liechtenstein during their schooling • They have learning difficulties • They have to deal with traumatic experiences
125 Marxer (2005): 35 et seq. 126 Swiss Federal Office for Migration (2006): 23. 127 Marxer (2005): 35 et seq. Organisation for Economic Co-operation and Development (2004): 191. 128 Näscher (2003). 129 Marxer (2005): 35 et seq. 130 Swiss Federal Office for Migration (2006): 23 et seq. 54 Integration in Liechtenstein
• They have specific needs in comparison with Liechtenstein children.131 The Ordinance on Special Scholastic Measures, Pedagogical-Therapeutic Measures, Special Schooling, and the School Psychology Service (LGBl. 2001 No. 197) governs the framework conditions for the implementation, availability, and execution of special schooling measures.
With respect to the education of children of refugees, article 32, paragraph 4 of the Law on the Admission of Asylum Seekers and Persons in Need of Protection (Refugee Act, LGBl. 1998 No. 107) specifies that children of asylum seekers who are of compulsory school age must be given access to primary schools and continuing schools in Liechtenstein. It is the responsibility of the Government to take the requisite measures to ensure that the access of these children to kindergartens, public schools, and vocational training institutions is facilitated. b) Remedial language instruction / German-language courses The most important existing measure for the promotion of the education of foreign children and adolescents is the German-language instruction for foreign-language children offered by the Office of Education. Remedial language instruction is based on the premise that knowledge of the German language is an important precondition for a successful educational career and for improving equal opportunity. Since the introduction of the new curriculum in the 1999/2000 school year, “German as a Second Language” (GSL) has been a separate area of instruction. Classes are taught in the form of an intensive course (ICGSL) and a subsequent additional class, and are attended by students of different ages and with differing prior knowledge.
The intensive course is intended for newly arrived children and adolescents between the ages of eight and sixteen132 whose native language is not German and who are attending compulsory schooling. Students are placed in classes independently of their general level of performance and the type of school previously attended, since the intensive courses work on an individual basis. The intensive course conveys basic knowledge of the German language. In addition to the main subject “German as a Second Language”, lessons in mathematics and in “Design, Music, and Sports” are also offered. The German intensive course also familiarizes children with the culture and school life in Liechtenstein. The intensive course allows instructors to assess the scholastic performance level of the child and constitutes a basis for placement in an appropriate regular class.
After their attendance of the intensive course, the children and adolescents continue to be taught intensively by specialized GSL teachers in small learning groups, in addition to their instruction in regular classes, until they are able to follow regular class instruction. Children with learning difficulties are supported by means of a special introduction to school that is as individually tailored as possible. This “Remedial German-Language Instruction” builds on the existing basic knowledge and accompanies students while they expand their language skills. This remedial instruction initially encompasses several lessons each week and is then steadily reduced in parallel with the increasing language skills of the children and adolescents. For children who need further support in addition to regular class instruction, special support is made available for the achievement of specific learning goals. Depending on their language skills, foreign children may be temporarily exempted from grading and instruction in a further foreign language in addition to German and may advance to a higher class despite achieving
131 Eurydice European Unit (2004): 5. 132 Younger children immediately are placed in kindergarten or the first grade of primary school, where they receive remedial instruction in German. 55 Integration in Liechtenstein certain learning goals. With the increased acquisition of the language, grading is gradually reinstated until equal treatment with the other students is achieved.
For the duration of the intensive course, regular contact is maintained between the parents and the teacher, so that the former may gain insight into the Liechtenstein school system and German instruction. Information material, especially at the kindergarten level, is available in nine languages and is distributed upon registration of the children. Once the children have entered regular classes, information is provided on the occasion of parent meetings and parent evenings, at which, if needed, a translator paid by the Government is present. Support teachers, who along with the regular GSL teachers are the contact persons for intercultural issues, are responsible for the information flow to the individual schools, placement in the appropriate class, and contact with parents. GSL teachers simultaneously serve as contact persons for difficulties of an intercultural nature. If disturbances occur, all teachers are authorized to immediately intervene with adequate instruments (mediation, individual meetings, notification of guardians, discussion in class, etc.).133
In the 2006/07 school year, a total of 677 children and adolescents from 32 nations speaking 23 different native languages received GSL instruction. Accordingly, 13.6% of all students in Liechtenstein attended GSL courses. Most of the students learning German came from the Turkish language area (215), followed by Italian- and Portuguese-speaking students (93 and 85, respectively).134 As for native children, attendance of public schools for migrant children is free of charge pursuant to the School Act of 15 December 1971 (LGBl. 1972 No. 7). The use and distribution of schooling materials is subject to a reduced rate. This rule also applies to the intensive course and remedial language instruction.
To improve the capacity to support the linguistic integration of migrant children, new support paths are continuously being development. In the framework of the project “New Learning Paths”, for instance, integral approaches to language acquisition are researched and learning programs tailored especially to the needs of migrant children are developed. The teachers of the GSL course and persons confronted with the topics of migration and scholastic success in a multicultural society were the target audience of a course offered in the 2004/05 school year on an introduction to the situation in Liechtenstein and preparation for dealing with migrant issues. c) “Heterogeneous Schooling” According to the Office of Education, the growing heterogeneity of school classes confronts teachers with great challenges.135 In order to maintain the principle of equal opportunity, the Office of Education is implementing the measures formulated in the rough concept “Heterogeneous Schooling – Challenges and Opportunities”. Starting the beginning of the 2005/06 school year, the increasing diversity in society and school will be the focus of school development for three years. Special attention will be paid to a productive approach to heterogeneous groups of students. In the 2005/06 school year, kindergartens and schools evaluated their approach to heterogeneity. Based on this situation analysis, the need for action was identified, implementation of which began in the 2006/07 school year and will be continued in the 2007/08 school year. Continuing training and counseling with respect to approaches to heterogeneity has been intensified both for staff members of the Office of Education and for the teachers themselves. A cooperation agreement with the Zurich Teachers College allows teachers to obtain anonymous consultation and support.
133 Eurydice European Unit (2004): 6 et seq. 134 Office of Education (2007b). 135 For the following discussion: Office of Education (2007b): 131 et seq. 56 Integration in Liechtenstein
The promotion and cultivation of Standard German is of particular relevance to integration- specific concerns with respect to the individual projects carried out in the framework of the “Heterogeneous Schooling” concept. The pilot project “Standard German in Kindergarten” launched in 2004 was completed in 2006. According to the accountability report of the Office of Education, the evaluation showed that the majority of both parents and kindergarten teachers considered the consistent use of Standard German to be positive. The kindergartens will further develop their Standard German usage in the coming school years. Beginning in the 2009/10 school year, Standard German will be spoken in all kindergartens. Accompanying this, a continuing education program on remedial language instruction in kindergartens will be offered. In the 2006/07 school year, kindergarten teachers completed a mandatory continuing education course on remedial language instruction for migrant children and children with language acquisition and development deficits.
Also significant is the further development of day structures and support systems. They can contribute to the elimination of language deficits and partially compensate for the lack of support by educationally disadvantaged parents. In all primary and secondary schools, homework tutoring has been established. Support and remedial courses and accompanied learning have received a fixed spot in the curricula of secondary schools. Almost all secondary schools and one primary school offer lunch service.136 The needs assessment on “Day structures and care outside the home” conducted by the Office of Education and the Office of Social Affairs during the 2004/05 school year shows that new support structures are desired. The Government plans to establish two day schools or partial day schools at existing school locations in the 2007/08 school year. One of these school will be established in the Upper Country and one in the Lower Country. Both the kindergartens and the primary and secondary school levels will be integrated.137 The Office of Education has reviewed the mandate to establish two (partial) day schools at primary school locations and has developed a concept for day structures in Triesen, which can also be adopted to other locations.138 c) School and profile development at secondary level I (SPES I) With its resolution of 22 May 2007, the Government has decided that students at all levels of performance in six secondary school locations should henceforth be taught at a joint profile school. Development teams for each secondary school location will design the school profile, school model, and organizational structure for their locations in the 2007/08 school year. A uniform core program will ensure the possibility of transfers irrespective of the profile of the schools.139 The establishment of the profile schools aims to better mix the students of different social and national backgrounds. This step will abolish the existing three-tier school model and accordingly also the Oberschule as a “leftover school”.
Additionally, the time of selection for the various secondary school types will be delayed. As research shows, the opportunities of children and adolescents are less dependent on the educational level of their parents if the decisions on continuing schools are made at a later stage. Later selection is therefore likely to benefit children and young people from educationally disadvantaged migrant families.140
136 Office of Education (2007b): 133. 137 Press release, 19. Mai 2006. 138 Office of Education (2007b): 133. 139 Press release, 22. Mai 2007. 140 Main Research Group for NRP 52 (2007): 21. 57 Integration in Liechtenstein
7.5 Recommended integration policy actions • Inclusion of parents: Through targeted educational offerings and stressing of the importance of education, foreign parents should be supported in their child-raising responsibilities. In particular, the language skills of foreign-language parents should be promoted, for instance through German courses for parents offered in analogy with to the German as a Second Language courses for children at schools. A binding rule governing the right or the duty to acquire the German language would be desirable. In addition, measures to improve the social and cultural integration of parents – especially mothers – should be targeted. Schooling should not be conveyed as a responsibility falling solely within the responsibility of the State, but rather as a child- raising responsibility in which parents can and should actively participate. Incentives for engagement in this regard should be created. The promotion of linguistic, social, and cultural integration of the parents will indirectly have a positive effect on the integration of children with respect to their scholastic performance. • Preschool age: A precondition for entering school is an understanding of language appropriate to the student’s age, so that the student is able to follow class instruction. Inclusion in care options outside the home as early as possible (i.e. even before kindergarten age), such as playgroups and childcare facilities should be promoted, so that foreign children are confronted as early as possible with the German language. A targeted subsidy of childcare options is recommended, so that the costs do not deter foreign families. The measures to promote German-language skills in kindergarten should be further strengthened. 141 • All-day schools: The establishment of all-day schools should be advanced. Such schools can improve the linguistic integration of foreign children and therefore also their scholastic performance, if, for instance, homework tutoring and learning groups are offered.142 Social integration would also be promoted by more intensive contact with Liechtenstein children outside the regular school hours. • Reduction of the proportion of “risk students”: Equal opportunity should be guaranteed irrespective of social status and background. The potential of children and adolescents coming from diverse environments and experiences should be recognized, utilized, and promoted at school. The establishment of profile schools in the context of SPES I should take account of the problem of segregation of students according to social and national background. Measures should be taken to prevent “leftover classes” from developing. • Social cooperation: External partners such as foreigners’ and parents’ associations, public authorities, and the business world should be included in the measures to promote the education of young migrants.143
141 Marxer (2007): 89. 142 Marxer (2007): 89. 143 Eurydice European Unit (2004): 11. 58 Integration in Liechtenstein
8 Vocational training 8.1 Data on foreign apprentices and their integration Of a total of 1,135 person with an apprenticeship in Liechtenstein in 2006, 536 or 47.2% were foreign citizens. The apprentices with foreign citizenship were from 20 countries, of which Switzerland had by far the greatest share with 334 trainees (29.4% of the total number, 62.3% of foreign apprentices).
Table 8: Apprentices by nationality, 2006 Nationality Share of total number Share of foreign apprentices Liechtenstein 52.8% --- Switzerland 29.4% 62.3% Italy 3.4% 7.2% Serbia and Montenegro 2.6% 5.5% Bosnia and Herzegovina 2.1% 4.4% Kosovo 1.7% 3.6% Austria 1.5% 3.2% Turkey 1.2% 2.6% Others 5.3% 11.2% Total 100% 100% Source: Office of Vocational Training (2007): Separate survey. Own calculation.
There is no statistical data on whether young foreigners have greater difficulties in finding an apprenticeship than Liechtenstein citizens. According to the experience of the Office of Vocational Training and Counseling, young foreigners have more difficulties in finding apprenticeships than young Liechtenstein citizens if one or more of the following factors apply: • lack of German-language skills • insufficient scholastic performance • conspicuous behavior • lack of personal engagement in choosing careers and in the application process • limited personal (family) environment or lack of network, and/or • low level of integration of the parents. In Liechtenstein, young people from Turkey, Southeastern Europe, and Portugal are most strongly affected by a combination of these factors.
In the assessment of the Office of Vocational Training and Counseling, it can be said in principle that problems during apprenticeships are apparently primarily due to the motivation of the young people, not their nationality. The factors above may play a role, but they are secondary, since the apprentices are chosen by the businesses on the basis of their qualifications for a certain apprenticeship. According to the Office of Vocational Training and Counseling, it can happen that supervisors give interested young foreigners an opportunity and subsequently realize that the training hurdle for the career in question is nevertheless too high due to the language or performance difficulties. Comparing, by way of a sample, the share of young foreigners in the total number of apprentices (47.2%) with the share of young foreigners in the number of persons whose apprenticeship contracts have been cancelled (51.6% in 2006), it appears that the apprenticeship contracts of young foreigners are cancelled
59 Integration in Liechtenstein slightly more frequently than others. This one-time observation does not allow any binding conclusions to be made, however.144
It is striking that young foreigners represent a disproportionately high share of the students in the 10th year of schooling in the 2006/07 school year, namely 45.2%. Approximately half of these students are from third countries, approximately one third from the EU, and one sixth from Switzerland.145 The 10th school year is thus likely to be not only an opportunity for further education, but also a transitional solution if problems arise in finding an apprenticeship. The high proportion of young foreigners may be an indication that young foreigners have difficulties in finding an apprenticeship position.
8.2 Causes of integration deficits The factors mentioned above may be causes of the difficulties young foreigners have in applying for apprenticeships. It can be assumed that, in addition to the level of personal motivation, the lack of German skills and a comparatively poorer education, which are undoubtedly causally linked, represent the key obstacles. For instance, one third of the migrant children from the EU attend the Oberschule, and even more than 60% of the young people from other countries (see section 7.1.a). The chance of finding a good apprenticeship position is lower, the lower the level of education. The causes of the integration problems of foreigners in the area of schooling are therefore indirectly also triggers of the difficulties in the area of vocational training. Accordingly, their risks with respect to unemployment, dependence on social welfare, or other needs for support (working poor) are increased (see chapters 9 and 10).
It is also worth considering that the demands on trainees in various fields have risen in recent years. In Liechtenstein and the surrounding region, the supply of careers for which a low level of education is sufficient is steadily decreasing, so that young foreigners who on average have a lower level of education are especially under pressure when looking for apprenticeships.146
Disadvantages when entering the vocational training market also arise for young foreigners due to their lack of relationships: They lack a social network (provided by the parents or the entire family or surroundings) with which contacts to apprenticeship businesses can be established. According to research conducted in Switzerland, such a network is especially important with respect to the type of apprenticeship found (including with a view to the status of the career) and the type of alternatives available to an apprenticeship position (interim solutions versus continuing secondary education).147
In addition to the aspects already mentioned, the Office of Vocational Training and Counseling also cites the possible role played by the psychological situation of young foreigners in finding an apprenticeship, especially to the extent that this situation affects their motivation. It may be that the recognizable discrepancies between the lifestyle and standard of living of migrant families on the one hand and the Liechtenstein norm on the other hand make it more difficult for young foreigners to find their identity and accordingly have a negative
144 Information provided by Werner Kranz, Director of the Office of Vocational Training and Counseling, 5 November 2006. 145Office of Economic Affairs, Statistics Division (2007c): 56. 146 Statement by Werner Kranz, Director of the Office of Vocational Training and Counseling, 5 November 2006. 147 Haeberlin et al. (2004): 9 et seq., in: Swiss Federal Office for Migration (2006): 33. 60 Integration in Liechtenstein effect on their self confidence. Along with a lack of feeling of belonging to a group of peers, this may lead to lower motivation or conspicuous behavior in school or the working world.
Whether prejudices on the part of potential employers play a significant role in the decision on hiring foreign apprentices in Liechtenstein cannot be ascertained without a representative survey. According to a Swiss study, however, fictitious applications from “Swiss citizens” and “foreigners” with the same qualifications and identical curriculum vitae, used to respond to actual apprenticeship vacancies advertised in the newspapers, showed very different success rates: The applications of the young foreigners were rejected more often than the applications of the Swiss citizens.148 Prejudices may therefore play an aggravating role in gaining access to an apprenticeship.
8.3 Especially vulnerable groups (risk groups) The main risk group consists of young people with only insufficient German-language skills and unsatisfactory scholastic performance who come from poorly integrated families and only have a limited social network. Integration deficits during the school years have a negative impact on the opportunities available for vocational training and therefore constitute a basic cause of later integration difficulties on the labor market.
In particular, the Office of Vocational Training and Counseling cites the difficult situation of young women from families with a different cultural, especially Muslim, background. From the perspective of their parents, they are expected to maintain cultural values and continue a traditional life, but at the same time also earn money. The personal needs of the young women are accordingly not taken into account sufficiently, and their possibilities of gaining their own experiences are severely limited.149 Swiss studies also explain the difficulties encountered by foreign women in finding an apprenticeship with reference to the fact that young foreign men increasingly are entering “women’s professions” in the service sector as a fallback strategy. Taking over traditional women’s roles instead of joining the workforce may be a cause of the disadvantages experienced by young foreign women with respect to entry into vocational training.150
Statistics for Switzerland show that, in addition to young foreign women, provisionally admitted young people experience particular difficulties in finding an apprenticeship and are disproportionately disadvantaged. This can be explained by the fact that they have educational gaps, since they entered the country at a comparatively older age, that they do not have the local educational prerequisites, and that they do not have a secure long-term residence status.151 There is no Liechtenstein-specific research in this regard, but it may be assumed on the basis of the similar structural conditions that provisionally admitted young people experience similar difficulties in Liechtenstein.
8.4 Competences and existing measures The Office of Vocational Training and Counseling is the supervisory authority for basic vocational training. It supports school graduates and apprentices irrespective of their
148 Fibbi/Kaya/Piguet (2003): 16, in: Swiss Federal Office for Migration (2006): 33. 149 Statement by Werner Kranz, Director of the Office of Vocational Training and Counseling, 5 November 2006. 150 Swiss Federal Office for Migration (2006): 33f. 151 Swiss Federal Office for Migration (2006): 33f. 61 Integration in Liechtenstein background with individual and goal-oriented measures in the event of learning difficulties, behavioral problems, or when looking for apprenticeships. 152
Foreign-language young people who generally come to Liechtenstein through family reunification may attend an integration course at the Career and Training Center Buchs (bkb) if they have insufficient knowledge of German to be able to enter an internship or vocational training directly. The goals of the course are a rapid acquisition of the German language, the closure of gaps in general education, and assistance integrating into society and the workforce. Young people who have sufficient knowledge of German but also educational deficits may enter a pre-apprenticeship. This offering aims to close scholastic gaps and convey practical job experience.153 The Office of Vocational Training and Counseling assumes approximately 90% of the tuition for each of these offerings.154
8.5 Recommended integration policy actions • The access to the apprenticeship and labor market for young migrants, especially with a poor socio-economic background, should be improved through targeted programs. • Career preparation: Preparation for the career and working world and the conveyance of information on scholastic and extracurricular educational paths already during compulsory school age should be intensified. Measures to raise consciousness concerning the importance of a successful apprenticeship for further life planning and professional career as well as social integration should be designed with a special view to young foreigners and their parents. • Development of a scholastic foundation: An expansion of opportunities that are as unbureaucratic and with as low a threshold as possible to catch up on scholastic and vocational basic education should be appraised. The introduction of longer-term support courses in parallel with an apprenticeship might be considered. Vocational and educational degrees acquired abroad should be recognized according to the duration and content of the education. • Prejudices in apprenticeship businesses: Programs to combat prejudices against foreign apprentices and the potentially resulting discrimination in the employment of such young people should be developed and implemented, with the input of the apprenticeship businesses. Irrespective of nationality and background, young people should have the possibility of finding an apprenticeship appropriate to their skills.
152 Office of Vocational Training and Counseling: Online at http://www.llv.li/amtsstellen/llv-abb-home.htm [as of September 2006]. 153 Career and Training Center Buchs (bzb): Online at www.bzb.ch [as of June 2007]. 154 Information provided by Werner Kranz, Director of the Office of Vocational Training and Counseling, 19 June 2007. 62 Integration in Liechtenstein
9 Labor market 9.1 Data on the foreign population on the labor market In 2005, 46.9% of the 30,170 workers in Liechtenstein were foreigners living abroad (cross- border commuters) and 19.5% were foreigners living in Liechtenstein.155 The workers with Liechtenstein nationality and residence in Liechtenstein thus represented fewer than one third of all workers in Liechtenstein. Of the workers living in Liechtenstein in June 2006, 37.5% were foreigners. The Liechtenstein economy is therefore to a considerable extent dependent on foreign workers.
45.9% of the Liechtenstein citizens living in Liechtenstein were employed in June 2006. The foreign population living in Liechtenstein had a significantly higher employment rate, namely 53.4%.156 According to the figures from the 2000 Census, the foreigners living in Liechtenstein differ strongly with respect to employment depending on their origin. The share of employed persons among foreigners of Southern and Western European origin is particularly high (68.8% and 61.8%, respectively, with a mean of 54.6%). The highest share of full-time employed persons is also found in these groups (54.4% and 45.8%, with a mean of 39.3%). The employment rate of persons from Turkey/Middle East/North Africa is low, namely 41.8%. The main reason for the low employment rate of the last-mentioned group is that it primarily consists of families, many of which also have a relatively high number of children. The share of part-time workers is highest among employed persons who are Liechtenstein citizens, namely 8.9% (mean = 7.9%). Approximately 90% of the employed Southern Europeans, Eastern/Southeastern European, and employed members of the Turkey/Middle East/North Africa group worked 40 hours or more per week. Among Liechtenstein citizens and persons from Western/Northern European/North America, this share was approximately 80%.157 In 2005, 30.6% of self-employed persons were foreigners, only insignificantly below average.158
With respect to employment, there is a clear correlation among persons living in Liechtenstein between their residence status (Liechtenstein citizens, permanent residents, temporary residents) and their employment in a particular economic sector. The more secure the residence status, the higher the probability that someone will be employed in the service sector (tertiary sector). In June 2006, 69.2% of Liechtenstein citizens, 57.9% of permanent residents, but only 49.8% of temporary residents worked in the service sector. 48.5% of temporary residents worked in the industrial sector, however, in comparison with 41.3% of permanent residents and 28.5% of Liechtenstein citizens. Temporary residents are therefore overrepresented in the secondary sector. If the service sector is differentiated according to different lines of business, a gradation can again be observed within this sector with respect to residence status. While Liechtenstein citizens are overrepresented especially in the banking and insurance industry (78.4%) and public administration (87.1%) (62.5% share of employed persons living in Liechtenstein), temporary residents are significantly overrepresented in the restaurant and hotel industry (38.4%) and in private households (26.0%) (14.8% share of employed persons living in Liechtenstein).159
155 Office of Economic Affairs, Statistics Division (2006b): 15. 156 Office of Economic Affairs, Statistics Division (2007b): 7. 157 Marxer (2005): 56 et seq. 158 Office of Economic Affairs, Statistics Division (2006b): 14. 159 Office of Economic Affairs, Statistics Division (2007b): 31. 63 Integration in Liechtenstein
The classification according to socio-professional categories shows a significant difference between Liechtenstein citizens and foreigners. While the 2000 Census indicates that 3.3% of foreigners worked in the highest levels of management (share of women: 24%), 4.9% of Liechtenstein citizens worked in this tier (share of women: 13%). 8.9% of employed foreigners worked in an academic profession or in upper management, of which 21.6% were women. Among Liechtenstein employees, 8.2% worked in this category. The share of women was 22%. Liechtenstein citizens were also relatively strongly represented among qualified employees. Among unskilled workers, the difference between foreign and Liechtenstein employees was particularly striking. 16.9% of foreign employees belonged to this category, compared with only 9% of Liechtenstein employees. Among unskilled workers of Liechtenstein nationality, 62.9% were women, while women represented 42% of unskilled workers of foreign nationality.160
Also remarkable are the differences among the various groups of foreigners with respect to membership in the socio-professional categories. Northern/Western European and North Americans were significantly overrepresented among management and self-employed persons (34.3%, mean = 29.5%) and among intermediaries (professions between qualified workers and management, 20.7%, mean = 17.8%). Southern Europeans (66.3%), Eastern/Southeastern Europeans (42.7%) and members of the Turkey/Middle East/North Africa group (59.0%) were far above the average in the category of unskilled workers (mean = 17.3%). Eastern/Southeastern Europeans were also significantly overrepresented among qualified workers (23.0%, mean = 9.7%).161
As of 31 December 2006, the unemployment rate (according to the new definition) totaled 3.3%. The unemployment rate was 2.5% among Liechtenstein citizens and 4.7% among foreigners.162 Foreigners accounted for 54.5% of all unemployed persons. They are accordingly disproportionately affected by unemployment. Permanent residents are less affected by unemployment than temporary residents (59.9% of unemployed foreigners, at 62.3% of the total foreign population). In comparison with foreign men, foreign women are more frequently unemployed (52.1% of unemployed foreigners, at 49.0% of the total foreign population).163
Since the unemployment statistics are not disaggregated by nationality, a separate calculation by Marxer (2005) for April 2004 will be cited in the following. At the time of the survey, 1.4% of the Liechtenstein resident population was unemployed (according to the old definition). For individual groups of foreigners, their share of registered unemployed persons was a multiple of their share of the resident population. The unemployed share of the population from Eastern/Southeastern Europe and Turkey was approximately 6%, and the unemployed share of the population group from more distant, non-European countries was approximately 9%.
Table 9: Registered unemployed in all benefit categories, April 2004, according to country group (in percentage) Country group Share of Share of resident Unemployed registered
160 Office of Economic Affairs, Statistics Division (2006c). 161 Marxer (2005): 58. 162 Office of Economic Affairs, Statistics Division (2007d): 6. 163 Office of Economic Affairs, Statistics Division (2007d): 37. 64 Integration in Liechtenstein
unemployed population share persons Liechtenstein 44.0 65.7 1.4 Western/Northern Europe/North America 24.2 20.8 2.4 Southern European 10.7 6.6 3.4 Eastern/Southeastern Europe 10.1 3.5 6.0 Turkey/Middle East/North Africa 7.7 2.6 6.2 Sub-Saharan Africa/Latin America/Asia/ 3.3 0.7 9.2 Oceania Total 100.0 100.0 2.1
Source: Office of Economic Affairs, Statistics Division (2005a). Resident population according to Office of Economic Affairs, Statistics Division (2005b). Calculation in Marxer (2005): 50.
9.2 Causes of integration deficits The available statistical figures do not allow any interpretation concerning the differing risk of unemployment. It is conceivable that foreign job seekers from country groups especially affected by unemployment are discriminated against in their job search. It is also possible, however, that the high share of unemployed persons is due to educational deficits, the labor market situation in certain lines of business, or other factors. 164
Education is an important factor for success on the labor market. Looking at the data on the education level of the population, no serious deviations arise between the population groups of Liechtenstein citizens and foreigners. This is due to the simultaneous immigration of highly educated and less qualified foreign workers. However, serious differences with respect to education appear between groups of persons from different countries of origin. In the umbrella category of “foreigners”, these difference are not apparent, which is why it must be considered with caution.
Liechtenstein citizens can be used as a reference for the highest completed level of education. According to the 2000 Census, 4.4% of Liechtenstein citizens have completed no education, 28.9% have completed secondary level I, 51.2% have completed secondary level II, and 15.5% have completed the tertiary level. Persons from Northern/Western Europe and North America represented a higher share in the categories with higher education, especially at the tertiary level (27.5%). In contrast, the education level of all other groups is considerably lower. The share of persons without education is 27.2% in the Turkey/Middle East/North Africa group, and about 15% among persons from Eastern/Southeastern Europe.165
While Western European immigrants have a higher level of education than Liechtenstein citizens, the average education level among the larger foreign-language groups of foreigners is significantly lower. In most cases, this is not directly a result of discrimination in schooling and career in Liechtenstein, since many of these persons completed their education in their countries of origin. The inequality among persons immigrating after completion of their education is due to the educational situation in the countries of origin, as well as the motives
164 Marxer (2005): 49 et seq. 165 Marxer (2005): 56. 65 Integration in Liechtenstein for immigrating and the recruitment mechanisms in Liechtenstein.166 The decisive influence of education on career can be seen in the fact that the classification of the population groups according to socio-professional category most closely correlates with the classification according to completed education.
Another important factor for success on the labor market is language skills. To measure their influence, however, data on the German skills of foreign-language foreigners would have to be gathered and compared with their membership in different socio-professional categories. Due to the correlation between language and level of education, the level of education would have to be controlled for when making statements concerning the isolated influence of language on labor market performance.
In addition to the abovementioned factors, qualifications that are not statistically observable (motivation, effort, etc.), problems asserting qualifications, and unequal treatment of foreign versus Liechtenstein workers also play a role. Research in Switzerland has shown that foreign workers with the same profile with respect to qualification, job tenure, experience, etc., are paid less than their Swiss counterpart. Differences according to residence status were found: Persons with a permanent residence permit were less poorly situated relative to Swiss than temporary residents, who in turn were in a better situation than cross-border commuters. The on average lower-ranking jobs can also not be explained solely by education, age, and job tenure. Of note in this connection is also the difficulty in transferring a foreign educational qualification to Switzerland. Such factors that cannot be explained in economic terms are, on the one hand, likely due to the conduct and attitudes of the employers. On the other hand, additional factors also play a role, such as the availability of local relationship networks. This shows that the integration in the labor market is closely linked to social integration in society.167
It can be assumed that similar forms of discrimination exist in Liechtenstein for comparable reasons. It would be desirable if appropriate statistical foundations were created to verify this assumption. A first step in this regard could be to take account of integration policy considerations in the wage statistics, the first publication of which is planned for November 2007 (reference year 2005). According to information provided by the Statistics Division of the Office of Economic Affairs, the wage statistics will disaggregate the average gross salary in the various economic sectors also according to citizenship, using the categories Liechtenstein, Switzerland, EU/EEA countries, and third countries.168
9.3 Especially vulnerable groups (risk groups) As of 31 December 2006, the total unemployment rate was 3.3%. Women, with a rate of 3.9%, were more strongly affected by unemployment than men, with a rate of 2.9%. Looking at age categories, 15- to 24-year-olds had the highest unemployment rate, namely 5.3%, compared with 3.1% for ages 25 to 49 and 3.0% for ages 50 and older.169 Consequently, young foreigners and foreign women are particular in danger of becoming unemployed.
166 Marxer (2005): 61. 167 Swiss Federal Office for Migration (2006): 46. 168 Statement by Wilfried Oehry, Director of the Statistics Division of the Office of Economic Affairs, 19 June 2006. 169 Office of Economic Affairs, Statistics Division (2007d): 6. 66 Integration in Liechtenstein
Moreover, like in Switzerland, it can be assumed that precarious employment relationships and low wages affect persons working in lines of business with workforce reductions and generally difficult labor situations.170
9.4 Competences and existing measures The Employment Service Bureau of the Office of Economic Affairs supports native and foreign unemployed persons in their search for an appropriate job. Vacancy announcements of employers are sent directly to the Employment Service Bureau, so that job placement advisors can draw the attention of job seekers to the vacancies. Contact information for private job placement offices are made available. Job placement advisors can direct clients to appropriate institutions offering professional, social, or psychological counseling. The Employment Service Bureau also advises job seekers on education and employment programs. A number of courses are available aiming to expand professional skills and thereby improve chances on the labor market.171 Foreign job seekers with insufficient German- language skills are placed in German courses. Course attendance is financially supported by the Office of Economic Affairs.172
The Office of Social Affairs serves as a coordination and placement office for the “Public Sector Work Project”, in which jobless social welfare recipients capable of working are employed for a maximum of six months with the municipalities or the National Administration. Furthermore, the Office of Social Affairs places unemployed persons with work projects of the Employment Service Bureau of the Office of Economic Affairs and with private social welfare sponsors.173
JUMP (the Youth Motivation Program) was launched on 1 March 2007. The program targets young people who cannot find employment for a longer period of time. To realize JUMP, the JOB consulting office was commissioned to establish a clearinghouse solely dedicated to job seekers up to the age of 25. This arrangement aims to ensure more comprehensive services than would be possible with the public Employment Service Bureau of the Office of Economic Affairs.174
One possibility for bridging an unemployed phase for young people with vocational training is participation in the MOJA (MobilityYouthWork) and PONTE programs, through which young people may intern with an EU company.175
On 12 November 2007, a conference on the topic of “Equal Opportunity/Diversity in Businesses” will be held in the framework of the European Year of Equal Opportunities. The organizers are the Office of Equal Opportunity and the Women’s Department of the Government of Vorarlberg, in collaboration with business organizations. Entrepreneurs and human resource officers will be sensitized with respect to the topics of discrimination and utilization of diversity, and information will be provided on the legislative framework,
170 See Federal Statistical Office (2005) and Tschannen (2003): 36-39, in: Swiss Federal Office for Migration (2006): 47. 171 Office of Economic Affairs: Online at http://www.llv.li/amtsstellen/llv-avw-arbeit/llv-avw-arbeit-arbeitsvermittlung.htm [as of 3 October 2006]. 172 Telephone information provided by Sandra Kind, Employment Service Bureau of the Office of Economic Affairs, 26 June 2006. 173 Office of Social Affairs (2006a): 241 et seq. 174 Press release, 26 March 2007. 175 Office of Vocational Training (2006): 137. 67 Integration in Liechtenstein implementation steps to improve the business climate, and best practice examples. For this purpose, a lecture on diversity and the dissemination of an information brochure are planned. Diversity with respect to the culture/origin of employees will be one of the dimensions of diversity discussed.176
9.5 Recommended integration policy actions • The unequal distribution of foreign and native workers among socio-professional categories can to a large extent be explained – as the data on education and vocational training indicates – with reference to the different education levels of foreigners and natives. For this reason, measures in education and training such as those mentioned in the preceding chapters should be taken to tackle indirect discrimination. • Available professional qualifications of migrants should be promoted and used, by recognizing their education and by providing low-threshold and unbureaucratic options for catching up on relevant skill certifications. • The raising of motivation and consciousness with respect to the significance of acquiring language skills should be a priority, and binding measures for promoting language skills should be introduced. • Information on possibilities for self-employment and knowledge concerning one’s rights in the workplace (gender equality, compensation appropriate to position and line of business, membership in the Employees Association, etc.) should be improved. • The employment of migrants in the public administration at the national and municipal level could serve as a role model for private employers, help diminish potential prejudices against foreign employees, and play an important role in the integration of the foreign population in general (low threshold of access to authorities). • Measures to combat illegal employment relationships should be (further) developed.
176 Kubik-Risch (2006): 11, and telephone information provided by Bernadette Kubik-Risch, Director of the Office of Equal Opportunity, 3 July 2007. 68 Integration in Liechtenstein
10 Social security 10.1 Data on the situation of the foreign population with respect to social security a) Poverty Absolute poverty as such does not exist in Liechtenstein, though there are people who are financially disadvantaged and who need State support. The study on poverty in Liechtenstein conducted by the Office of Social Affairs in 1997 does not address to specific situation of foreigners. It merely cites a study by the Swiss Federal Social Insurance Office from 1995, according to which 9% of low income women in Switzerland were foreigners and 13% of low income men were foreigners.177 The data on the support payments made by the Liechtenstein State indicates, however, that foreign-language immigrants in Liechtenstein in particular are disproportionately disadvantaged economically.
With an overall population share of 34.1%, foreigners represented a disproportionately high share of all clients of the Office of Social Affairs in 2006, namely 48%. 22% of the clients were from the EU, 8% from Switzerland, and 18% from other countries. The relatively low share of clients from Liechtenstein, Switzerland, and other States has risen by 1% each in comparison with 2005, while the share of clients with EU citizenship has decreased by 3%.178
Of the 26 families or individuals supported by the Office of Social Affairs in 2006 as “working poor”, six were from Liechtenstein (23.1%), while 20 were of foreign origin (76.9%). Foreigners were therefore substantially overrepresented in this category.179 The largest group in total was from Turkey (26.9%), followed by Liechtenstein in second place, and Bosnia and Herzegovina and Italy (11.5% each) in third place. The total number of support cases in this category dropped significantly in comparison with 2005 (37). Based on the analyses conducted so far, it cannot be shown what causes lead to changes, especially reductions, in the number of low-income employed persons. Based on the experiences of the Liechtenstein authorities, the typical size of a “working poor” household is four to five persons (two to three children). Often, the head of household is a person from abroad who has few or no professional qualifications or is working in a different field. The high share of the foreigner groups from Turkey, Bosnia and Herzegovina, and Italy among the working poor is likely due to the fact that their level of education is below average, that they live in larger families with three or more children, and that they often work in low-wage sectors.180
The Housing Office supports families with dependent children (including parents and dependent persons living in the same household) and single parents with dependent children who have maintained civil residence in Liechtenstein for at least one year, if the annual household income does not exceed a fixed threshold. In 2006, a total of 360 persons received rental subsidies. 37.2% of the recipients were Liechtenstein citizens, 17.5% were from Turkey, 10.6% from Switzerland, 7.8% from Austria, and 5.8% each from Italy and from Serbia and Montenegro. Foreign citizens represented a disproportionately high share of
177 Swiss Federal Social Insurance Office (1995): 20, in: Office of Social Affairs (1997): 42. 178 Office of Social Affairs (2007): Parliament, Government and Courts 2006: 245. 179 Information provided by Rainer Gstöhl, Internal Services, Office of Social Affairs, 25 June 2007. According to the customary international definition, the group of low income workers (working poor) encompasses all persons living in households which, despite full-time employment of at least one member of the household or despite the equivalent of one full-time job when cumulating the jobs held by the individual members of the household, have an income below a defined poverty threshold. 180 Office of Social Affairs/Office of Economic Affairs/Immigration and Passport Office (2005): 10 et seq. 69 Integration in Liechtenstein recipients, namely 62.8%. Foreign-language immigrants were particularly overrepresented, accounting for 41.9% of all recipients and 66.7% of all foreign recipients.181 These figures are a further indication of the worse economic situation of foreign-language immigrants in Liechtenstein in comparison with the overall population. b) Unemployment The situation of foreigners on the labor market has already been discussed in detail in chapter 9. For the number of unemployed foreigners, please therefore refer to section 9.1. The present section will discuss the consequences of loss of employment on the residence status of foreign persons living in Liechtenstein.
Citizens of third States with a temporary residence permit who have been admitted to Liechtenstein for employment may, according to article 20, paragraph 1 of the Ordinance on the Movement of Persons, stay in the country to seek new employment for a maximum of six months from the beginning of their entitlement period for unemployment benefits. This period may be reduced in justified cases (e.g. an individual without family obligations who is difficult to place) and, if there is a concrete prospect of new employment as a well-qualified employee, may be extended by a maximum of six months.
This rule does not apply to EEA citizens and Swiss citizens with a temporary residence permit who have been admitted to Liechtenstein for employment but have become unemployed. The validity of the temporary residence permit for EEA employees and Swiss citizens who are unemployed in Liechtenstein for longer than 12 consecutive months may be limited, provided the temporary residence permit is subject to renewal for the first time. The validity of the temporary residence permit may not be shorter than 12 months, however.
For unemployed foreign citizens with short-term stay permits, the rule is that the person must leave the country upon expiry of the short-term stay permit, independently of any claims for unemployment insurance.182
Foreigners from third States who have been admitted to Liechtenstein for employment and who do not have a permanent residence permit are therefore confronted with the loss of their right to stay in Liechtenstein, along with their economic difficulties, in the event of (prolonged) unemployment. c) Pensions In December 2006, 13,865 old age and widow’s/widower’s pensions were paid out. 5,538 recipients lived in Liechtenstein (39.9%) and 8,317 abroad (60.1%). This unusual situation in an international comparison reflects the conditions on the Liechtenstein labor market, where foreigners in general and cross-border commuters in particular play an important role. The persons living abroad generally do not have an uninterrupted insured period in Liechtenstein, since they have spent part of their insured career in other States. The total of pension payments abroad is therefore lower than the total of payments in Liechtenstein, despite the greater number of pensioners abroad. 68.5% of the total pension amount was paid out in Liechtenstein, 18.4% in Austria, 8.0% in Switzerland, and 5.1% in other countries.183
181 Information provided by Harald Marxer, Director of the Housing Office, 25 June 2007. 182 Immigration and Passport Office: Online at http://www.llv.li/amtsstellen/llv-apa-arbeitslosigkeit.htm [as of June 2007]. 183 AHV/IV/FAK (2007): 14. 70 Integration in Liechtenstein
No data is available on the citizenship of the pensioners. Without figures on the foreign pensioners and the amount of their pensions in comparison with Liechtenstein Old Age Insurance (AHV) recipients, no reliable statement can be made on the receipt of pensions by foreign workers or any associated integration deficits. Such figures would also be difficult to obtain, since the age structures of the Liechtenstein and foreign populations differ, and since migration processes – i.e. immigration and emigration – change the basic population.184 d) Disability No breakdown of Disability Insurance (IV) pensioners by nationality exists for 2006. It can only be stated that of 2,245 disability pensioners, 1,168 (52.9%) lived in Liechtenstein and 1,077 (48.0%) abroad. 74.1% of the pension amount was paid out in Liechtenstein, 11.6% in Austria, 9.1% in Switzerland, and 5.2% in other countries. Similarly to AHV, this ratio can be explained by the special circumstances of the Liechtenstein labor market.185
In a separate study, Marxer (2005) broke down the number of IV pensioners by origin in December 2004. In total, 2,091 persons received a disability pension at that point in time. The number of disabled persons may be related to the resident population or to the number of workers. The share of disabled persons among employed persons for each country group, taking cross-border commuters into account, is the more meaningful quantity. Accordingly, the share of IV recipients in the Western/Northern Europe/North America group, at 6.2%, was almost the same as the share of IV recipients among Liechtenstein employed persons (6.5%). Significantly higher was the share of IV recipients in the Southern European (12.0%) and Eastern/Southeastern European (13.4%) country groups. Extremely high – namely 34.2% - was the share of IV recipients in the Turkey/Middle East/North Africa country group. It is not possible to assess this situation merely on the basis of statistical data. However, it may be assumed that persons from the country groups with a high disability rate are exposed to an especially high risk of disability in their job, e.g. in the construction industry.186
According to information provided by Liechtenstein physicians, rehabilitation and reintegration measures are undertaken in many cases of disability among foreigners after the IV assessment.187 Especially in the case of inability to work, e.g. due to accident or illness, disadvantages with respect to foreign patients can be observed, since retraining is often not possible due to language difficulties or lack of professional qualifications. Unemployment not only impedes social reintegration, but in most cases also entails loss of residence in Liechtenstein. This consequence is particularly burdensome for the foreign population, even though the continued payment of disability benefits may serve as an incentive to return to the country of origin. Persons from economically disadvantaged countries are affected, i.e. classical labor migrants who belong to lower social strata in Liechtenstein and engage in poorly qualified work. Less affected are the foreigners working in Liechtenstein from German-speaking neighboring countries, who generally have a good education.
The accusations of abuse of Disability Insurance, especially with respect to the foreign population, are not substantiated by the representatives of the Liechtenstein healthcare system on the basis of their practical experience.188
184 Marxer (2005): 34f. 185 AHV/IV/FAK (2007): 24. 186 Marxer (2005): 47 et seq. 187 Working Group against Racism, Anti-Semitism, and Xenophobia (2005a). 188 Working Group against Racism, Anti-Semitism, and Xenophobia (2005a). 71 Integration in Liechtenstein
10.2 Causes of integration deficits Poverty is often the result of an accumulation of risks. The probability of being affected by poverty or belonging to a “working poor” household is correlated with the number of children in the household, sex, age, line of work, working conditions, education, and profession. The available statistical data does not provide information on the origin of the foreigners reliant on social welfare. However, it may be assumed that they are primarily non-German-speakers and not from Western Europe. The share of persons without compulsory or post-compulsory education is disproportionately high among this segment of the foreign population. Foreign- language immigrants not from Western Europe are also frequently employed in typical low- wage sectors such as the restaurant and hotel industry and in private households. It may be assumed that many are employed under poorer wage conditions than Liechtenstein citizens and German-speaking foreigners, irrespective of line of business and employment relationship. Foreigners who are not from Northern/Western Europe/North American are also disproportionately frequently affected by unemployment. They also have more children more frequently, whereas starting a family represents a particular high risk of poverty in light of the often precarious income situation.
The cause of the disproportionately high disability rates among the non-German-speaking foreign population is likely that they tend to be employed in poorly qualified job entailing greater physical strain and accordingly a higher risk of disability.
10.3 Especially vulnerable groups (risk groups) In light of the discussion above, non-German-speaking, poorly educated foreigners and single parents or couples with multiple children are in particular danger of financial hardship. Foreigners working in low-wage sectors or sectors entailing greater physical strain have a disproportionately high risk of becoming disabled.
10.4 Competences and existing measures Insurance coverage under AHV/IV/FAK (Old Age and Survivors’ Insurance, Disability Insurance, Family Allowances) is compulsory for all non-workers whose civil residence is in Liechtenstein and for all persons employed in Liechtenstein. Accordingly, all foreigners with a residence permit are insured under AHV/IV and also receive family benefits (birth, child, single parent allowances). The working foreign population, like Liechtenstein citizens, is subject to compulsory unemployment and occupational accident insurance. According to the Social Welfare Act, persons residing in Liechtenstein in a personal hardship situation or who are unable to support themselves or their family have a right to counseling and assistance.
Foreign and Liechtenstein citizens have a right to measures for reintegration into the labor market offered by the Employment Service Bureau of the Office of Economic Affairs (see section 9.4) and to disability insurance benefits. The latter are governed by the principle “reintegration over pensions” and primarily seek to promote disabled persons to the extent that they are able to support themselves fully or in part and are able to lead a life that is as independent as possible. Disability pensions are only secondary, and are paid out only when the reintegration measures are not or only insufficiently successful or can be ruled out in advance.
72 Integration in Liechtenstein
Liechtenstein has concluded social security agreements with all EU States and with Switzerland, Norway, and Iceland. AHV and IV pensions acquired in Liechtenstein are also paid to citizens of these countries abroad.189
During the European Year of Equal Opportunities for All, the Office of Social Affairs compiled a study in 2007 on “Poverty and Social Disadvantage”. Building on the first poverty report from 1997, findings on the living conditions of low-income population groups and on social disadvantages will be gained. The “income” and “living situation” dimensions will be examined on the basis of data from 2004. The nationality of the persons affected will be considered in the assessment of the extent of poverty and disadvantages. The study will issue recommendations to alleviate disadvantages.190
10.5 Recommended integration policy actions Specific measures on the equality of foreigners do not need to be taken directly in the area of social insurances, since foreigners are not discriminated against with respect to the provision of State social benefits. Rather, the causes must be combated which lead to a disproportionately high risk of poverty and disability among the foreign-language immigrant population.
• Since lack of education is a striking characteristic of “working poor” households, educational and training measures constitute an important form of support. It is important in this regard that promotion measures are primarily offered to workers with low professional qualifications.191 • Measures specifically for persons with lacking language skills are important in order to reduce the relatively high number of foreign “working poor”. Adult migrants should be able to take advantage of German as a Second Language courses similar to those offered to children, or should even be required to do so.192 • Research should be conducted on what grounds exist for the higher disability rate of persons from certain country groups, and what measures are likely to lower the disability risk in these country groups. Particular attention should be paid to the potential occupational hazards of persons in these country groups.193
189 AHV/IV/FAK: Online at http://www.ahv.li/ [as of 9 October 2006]. 190 Information provided by Nancy Barouk-Hasler, Children and Youth Division of the Office of Social Affairs, 27 June 2007. 191Office of Social Affairs/Office of Economic Affairs/Immigration and Passport Office (2005). 192 Office of Social Affairs/Office of Economic Affairs/Immigration and Passport Office (2005). 193 Marxer (2005): 47 et seq. 73 Integration in Liechtenstein
11 Health 11.1 Data on the health situation of the foreign population Neither are the health insurance scheme statistics for Liechtenstein disaggregated by nationality, nor do statistics exist on the sicknesses among foreign persons in comparison with Liechtenstein citizens. Also in Switzerland, no representative data exists on the health situation of migrants. Partial studies conducted in specific areas indicate, however, that the foreign population is exposed to a higher health risk than Swiss citizens. In 2002, foreigners’ inability to work due to health reasons was nearly twice as long as Swiss citizens. The surveyed subjective health is also poorer among the foreign population. Several studies show that the psychosocial constitution of migrants is poorer than that of the Swiss population.194 It is possible that a similar picture would emerge in Liechtenstein with respect to the (foreign- language) immigrant population. This remains to be investigated, however.
Since no statistically secure findings can be used to illustrate the situation of the foreign population with respect to health, the following remarks are drawn from field reports, appraisals, and assumptions.
According to statements made by representatives of the Liechtenstein healthcare system at the “Health and Integration” round table organized by the Working Group against Racism, Anti- Semitism, and Xenophobia in 2005195, the sicknesses of foreigners may be an expression of societal, social, or familial problems caused by the migrant situation or change of cultures. The experience of the participants shows that the confrontation with the mentality and customs of the host society and the resulting feeling of isolation may reinforce the lack of physical, psychological, and social well-being or may lead to sickness. In addition, there may be traumas relating to the migration background or cause of migration. A relatively frequent disease among foreigner is fibromyalgia, which manifests itself in pain throughout the body and for which no concrete cause can be determined. This possibly post-traumatic stress condition is difficult to treat. Often, organic disease among foreigners develops because the underlying psychological ailment is not property identified or recognized and treated. According to the participants at the round table, physicians often lack the requisite cultural background knowledge to be able to grasp and appropriately react to the whole complex of problems. Back problems are a very common organic disease among foreigners, but practical experience indicates not disproportionately so.
According to representatives of the Liechtenstein physicians, the problem of foreigners not covered by insurance, which is a cause for concern in Switzerland, does not exist in Liechtenstein. The few cases in which foreigners have not had health insurance have been concluded without any problems.
Discrimination of migrants with respect to access to treatment can also be ruled out. In the assessment of the physicians attending the round table, foreigners and Liechtenstein citizens are treated and provided with medical care equally well and intensively. However, foreign – especially foreign-language – patients from lower socio-economic strata sometimes have insufficient health or risk information, which is why preventive medicine should be promoted more heavily in these groups. Moreover, the representatives of the Liechtenstein healthcare system indicated that communication problems with foreign-language patients make
194 Swiss Federal Office for Migration (2006): 60. 195 Working Group against Racism, Anti-Semitism, and Xenophobia (2005a). 74 Integration in Liechtenstein treatment in doctor’s offices and hospitals more difficult. The frequent solution of using family members as translators conflicts with doctor-patient confidentiality.
Foreign-language migrants are mainly present in the Liechtenstein healthcare system as patients. Other than nursing staff members at the National Hospital, they are hardly represented in the healthcare institutions.
11.2 Causes of integration deficits Socially disadvantaged strata are exposed to higher health and disability risks. In addition, people with a low socio-economic status generally make less use of preventive check-ups than persons from higher social strata.196 The fact that foreign-language migrants are overrepresented in lower strata therefore has a negative effect on their general health situation. In addition, the poorer knowledge of health and risk factors compared with the Liechtenstein population as well as the different cultural understandings of health, sickness, and hygiene are likely to have negative effects on the healthcare situation of foreign-language migrants in a lower socio-economic position. Culturally different views than those prevalent in Liechtenstein exist, for instance, with respect to the care of infants and children, but also with respect to nutrition. Foreign-language migrants are therefore likely to exhibit less healthy behavior than the native population and German-language inhabitants.
Difficulties in public health arise for the foreign-language migrants in Liechtenstein also due to language difficulties, making communication with the attending doctor and hence access to basic healthcare more difficult. This is aggravated by the lack of knowledge about the Liechtenstein healthcare system. The lack of understanding on the part of physicians with respect to the cultural background of different groups of foreigners may impede successful treatment, since certain sensibilities are not taken into account. In general, this also hinders a trusting and relaxed doctor-patient relationship.197
11.3 Especially vulnerable groups (risk groups) As is often the case in the Liechtenstein context, a distinction must be made between foreigners from the surrounding countries whose native language is German and non- German-speaking foreigners. Healthcare problems are more likely to affect the latter, since they belong to low social strata and since their living conditions, health behavior, and lack of knowledge of language and the health care system constitute risk factors.
Moreover, persons with a difficult or even traumatic migration background are more likely to be affected by integration deficits, which may lead to long-term psychological and/or long- lasting physical problems.
11.4 Competences and existing measures Compulsory health insurance accords all persons living or working Liechtenstein access to medical care. It provides in-kind and monetary benefits in the case of sickness or accident, unless already covered by accident insurance. Compulsory accident insurance is an insurance for employees. It covers the financial consequences arising for an insured person or the
196 Bisig (2004), in Swiss Federal Office for Migration (2006): 61. 197 Working Group against Racism, Anti-Semitism, and Xenophobia (2005a). 75 Integration in Liechtenstein survivors from an insured event (occupational accident, occupational disease, non- occupational accident, and accident-like injuries).
The Office of Public Health is responsible for organizing and coordinating preventive medical measures and check-ups. The goal is to promote health awareness and to identify disease and disability at an early stage. All inhabitants of Liechtenstein receive a personal invitation to a free preventive check-up once every five years. Women are additionally invited to a gynecological check-up once every two and a half years. In regular intervals, children are invited to preventive check-ups nine times after birth.
Moreover, the Office of Public Health develops its own projects to promote health and supports campaigns of other institutions, such as by providing expert advice or making experts and information available. Through public outreach, the Office raises the awareness of Liechtenstein society on matters of public health.198
The Office of Public Health became active in the field of occupational health promotion in 2007 with its “living consciously” campaign. Occupational health promotion includes all joint measures of employers, employees, and society to improve health and well-being at work. It aims to prevent disease in the workplace and to strengthen health potentials, thereby going beyond the traditional areas of occupational health and safety. As current studies show, occupational health promotion benefits employees, but also the businesses themselves by reducing absenteeism – resulting in cost savings – as well as the social welfare State, especially Disability Insurance, by preventing (partial) inability to work due to disabilities and psychological problems. The Office of Public Health serves all businesses as a hub for knowledge and information and as a coordination office for occupational health promotion. A working group has been formed in which representatives of all interest groups jointly plan further campaigns. A one-year initialization project, in which business managements will be informed about the possibilities, prejudices, and projects relating to occupational health promotion, was launched at an expert meeting on 16 May 2007.199
The goal of the abovementioned round table on “Health and Integration” was – in collaboration with representatives of the healthcare system – to identify integration problems of foreigners in the Liechtenstein healthcare system, determine the need for action, and develop concrete approaches to solutions. Based on the results of the round table, the following measures have been initiated: • To improve communication and integration of the healthcare system with respect to the topic, the Director of the Office of Public Health was included in the Working Group against Racism, Anti-Semitism, and Xenophobia. • Physicians were provided with a list of interpreters, an overview of all contact offices and persons for cultural communication in Liechtenstein and Switzerland, and the revised Ordinance on the Movement of Persons. In addition, the Health and Integration Office of Caritas Switzerland in Chur has offered to serve as a contact point and clearinghouse. Accordingly, physicians in Liechtenstein can also make use of the list of interpreters provided by Caritas. • Physicians were introduced to the existing overview of integration services in Liechtenstein in the updated Social Encyclopedia on the Internet (www.solex.li). The
198 Office of Public Health: Online at http://www.llv.li/amtsstellen/llv-ag-home.htm [as of 7 August 2007]. 199 Office of Public Health: Online at http://www.llv.li/llv-lebensthemen/llv-ag-bewussterleben-bgf.htm [as of 7 August 2007]. 76 Integration in Liechtenstein
brochure of the Information and Contact Center for Women (infra) in different languages was also sent to doctors’ offices.200 • Finally, the Office of Public Health was commissioned to discuss the topic in further depth in the form of a workshop organized by the Health and Integration Office of Caritas, in collaboration with the Medical Association. Due to the discussions on fundamental restructuring of the Liechtenstein healthcare system, however, the Medical Association has so far not taken up this topic.201
Since July 2007, the National Hospital in Vaduz has been able to use the telephone interpreter service TeleLingua when communication difficulties arise between doctors or nurses and foreign-language patients. Nine of the most commonly used foreign languages are available. In emergencies and for shorter conversations, the telephone service represents an uncomplicated alternative to the personal presence of interpreters. In this way, doctors and nurses no longer have to rely on the family members of the patients who may speak German, but who often lack the necessary expertise and for whom the interpretation is too difficult.202
11.5 Recommended integration policy actions • A more comprehensive integration policy and the requisite political backing for measures promoting integration in all social areas are cited by the representatives attending the round table as the most important preconditions for solving migration- specific problems also in the healthcare system. Better integration of the foreign population and accordingly a higher quality of living reduce the risk of disease and facilitate communication and treatment in the event of sickness. • Guidelines: A code of conduct for dealing with patients from different cultures would be useful in the public health field, in order to reduce the knowledge deficit among doctors and nurses in this regard and to improve the success of treatments. A manual to this effect would educate the attending physician or medical staff about cultural particularities and differences that should be taken into account for the diagnosis, discussion with the patient, examination, and treatment. • Improved health and risk information: The use of preventive medicine (i.e. the implementation of preventive measures such as nutrition, hygiene, exercise) should be made available to the foreign population groups with less knowledge in this regard. A collaboration between the Office of Public Health and the educational institutions, the Office of Social Affairs, and various other organizations (family and women’s organizations, foreigners’ organizations) would be useful. Compiling multilingual information material on preventive medicine and developing strategies for promoting health and counseling specific migrant groups, taking into account gender-specific circumstances, would be desirable. • Better representation of migrants in the healthcare system would be an advantage for all sides. However, lack of language skills or work authorization problems might be an obstacle. Greater flexibility on the part of the authorities would be desirable in this regard.203
200 Working Group against Racism, Anti-Semitism, and Xenophobia (2006). 201 Working Group against Racism, Anti-Semitism, and Xenophobia (2007):7. 202 Liechtensteiner Vaterland, 17 July 2007. 203 Working Group against Racism, Anti-Semitism, and Xenophobia (2005a). 77 Integration in Liechtenstein
12 Language 12.1 Data on the language situation of the foreign population According to the 2000 Census, 87.7% of the Liechtenstein population used German as a main language, i.e. were most fluent in German and thought in this language. Foreign-language speakers were a relatively shall share of the population, namely 12.3%. Given a share of foreigners of 34.4% (2000), these results can be explained by the fact that approximately 61% (2000) of the foreigners are from Switzerland, Austria, and Germany, most of whom, like Liechtenstein citizens, use German as their main language. At the end of 2006, 57.2% of the foreign population was from the German-language area.204
According to the census, 68.2% of the foreign inhabitants in 2000 spoke German as their main language, while 31.8% designated a different language as their main language. It is striking that in 1970, 80.8% of the foreigners still used German as their main language. The percentage of German-speaking Liechtenstein citizens has hardly changed over this period, however (1970: 99.3%, 2000: 98.9%). The share of all persons using German as their main language sank by 5.5% from 1970 to 2000, from 93.2% to 87.7%, even though the absolute number of German-speaking people rose.205 The widespread use of German among originally foreign-speaking groups of foreigners probably manifests itself most strongly in the second immigrant generation. 39.1% of Eastern/Southeastern Europeans and 29.7% of foreigners from Turkey/Middle East/North Africa spoke German as their main language.206
Both in relative and in absolute figures, Italian was the most widely spoken non-official language in 2000, with 1,000 speakers or 2.9%. Italian was followed by Turkish, Spanish, and the Slavic languages of the former Yugoslavia (Serbian, Bosnian, Croatian, Macedonian, and Slovenian) with shares between 1.5% and 1.8% and between 500 and 600 speakers. The languages with the largest rate of increase between 1990 and 2000 were Albanian and Portuguese, at far more than 100%. This is due to the small population shares of these language groups, so that a small number of immigrants were able to bring about a large percentage change. The number of speakers of Italian (979), Turkish (604), and Spanish (577) also rose steadily in the 1990’s, albeit not as strongly. French, conversely, lost ground since 1990 both in relative and absolute figures, although only modestly. Looking at the last two decades, the share of French speakers in the population has been relatively constant. English, Romansh, and the Slavic languages of the former Yugoslavia have also remained more or less stable over the past 20 years, although the latter experienced far greater absolute fluctuations than the other languages.207
12.2 Causes of integration deficits Knowledge of the national language is a key prerequisite for integration. Insufficient language skills can endanger or hinder chances in almost all other areas of integration. Educational disadvantages and inadequate learning habits as well as poor command of the language of origin, which constitutes the basis for acquiring a second language, limit language acquisition (see especially also chapter 7).
204 Office of Economic Affairs, Statistics Division (2007b): 5. 205 Office of Economic Affairs, Statistics Division (2006d): 16 et seq. 206 Marxer (2005): 54. 207 Office of Economic Affairs, Statistics Division (2006d): 16 et seq. 78 Integration in Liechtenstein
One problem for the linguistic integration of foreigners that should not be underestimated is the Alemannic dialect spoken in everyday life in Liechtenstein. The Standard German skills acquired in courses are only of limited use in everyday situations and cannot be consolidated through frequent practice. This retards the learning process and often leads to an acquisition of language that is shaped by dialect. However, the Liechtenstein dialect offers foreigners language skills that are only of limited use, especially since it is not used for written communication. Learning the spoken language is therefore an insufficient precondition especially for professional integration.
The insufficient contact between the native and foreign population constitutes a further obstacle to linguistic integration. Persons, especially women, who come to Liechtenstein through family reunification and adopt traditional roles are affected in particular. They spend most of the time in the household and raising children and are not compelled to satisfy a minimum amount of linguistic integration, such as through employment outside the home. This situation not only reinforces dependency on the husband, but also shifts the family structures, since the children – who speaker better German – take over tasks for the “languageless” mother. At the same time, the lack of language skills of the mother also has a negative effect on the language acquisition and scholastic education of the children (see chapter 7).
12.3 Especially vulnerable groups (risk groups) An especially vulnerable group with respect to language acquisition consists of persons who, due to their circumstances, do not take part in “public” life. As mentioned above, this primarily concerns non-employed family members, especially women, who adopt traditional roles in the family. The situation is also challenging for foreign children who come to Liechtenstein during their schooling and are expected to follow classroom instruction in a language that is foreign to them, without being able to rely on assistance from their parents. Another risk group includes young adults who immigrate after the compulsory school age and do not (or cannot) start an apprenticeship. Special problems in language acquisition are also experienced by persons with low-qualified work, since they generally have less education, and the willingness of their employers to invest in language instruction is often low.208
12.4 Competences and existing measures As described in section 7.4, the Office of Education promotes the linguistic integration of young foreigners of compulsory school age through the German as a Second Language program enshrined in the curriculum. German courses for adults are offered by the Adult Education Foundation, the Association for Intercultural Education (ViB), and various private organizations, but not by the State.
Since 2005, ViB has administered the “Mother-Child German” project. This project includes German courses that can be attended by foreign-language women and their children. Foreign- language mothers with small children are often the hardest target group to reach for German courses. Often, these women do not have the time or social environment allowing them to take time off from child-raising to attend a German course.209
208 Swiss Federal Office for Migration (2006): 67. 209 Working Group against Racism, Anti-Semitism, and Xenophobia (2006/2007). 79 Integration in Liechtenstein
Pre-kindergarten institutions complementing the family take on an important role in early promotion and significantly influence later success in school and career, especially of migrant children. The project “your – my – our language” run by day care centers, which focuses on the continuing education of care providers for the purpose of introducing early GSL instruction already in day care centers, won the second prize in the 2006 Equal Opportunity Contest and has been supported with public financial resources by the Working Group against Racism, Anti-Semitism, and Xenophobia.210 Given the realization that language plays a key role in the integration of the foreign population, measures to promote and demand language skills have recently been introduced. For instance, the Government Resolution of 3 April 2007 reduced the number of languages accepted for the basic theoretical driving test from currently nine down to one – German – as of 1 January 2008. This measure aims to achieve an integration effect through the application process for a driver license. Other State benefits will henceforth also only be offered in the national language, thereby increasing the incentive or pressure to learn German. Similar approaches will also likely be taken in the new Liechtenstein Foreigners Act. It is expected that the acquisition of a permanent residence permit and of citizenship will in the future be conditional on evidence of German-language skills (see section 14.2.b).
In addition to this trend toward greater demands on the acquisition of the German language, increasing importance is attached to mastering the native language, i.e. the language of origin, as a cornerstone for language development and as a prerequisite for the successful acquisition of any other language. The Government makes the requisite infrastructure available to the foreign population for language courses in this regard (see also the remarks on the “Religion and culture” integration area, 14.2.d).
12.5 Recommended integration policy actions • Please refer to the point relating to language acquisition and promotion enumerated under the “Need for action” in preceding chapters. • Awareness raising: The raising of motivation and awareness concerning the importance of acquiring language skills for all areas of integration as well as for personal development and social mobility in the host country should be approached in a more targeted manner. Language acquisition should be conveyed as an opportunity. • Promoting and demanding language: The German skills of foreign adults should be increasingly promoted and demanded. An incentive system restricting access to various State benefits, as already initiated in such areas (driver license, revision of citizenship law), should be developed and implemented. The effects of such a system on foreign-language inhabitants should be monitored continuously. Translation services should no longer be offered universally, but rather only in situations that cannot be mastered with everyday language.
210 Working Group against Racism, Anti-Semitism, and Xenophobia (2007): 6 et seq. 80 Integration in Liechtenstein
13 Housing 13.1 Data on the housing situation of the foreign population So far, Liechtenstein has not experienced the formation of foreigners’ neighborhoods (segregation), which is in part also due to the rather rural structure of the country. The infrastructure surrounding the housing of foreigners is therefore no different from the infrastructure available to the Liechtenstein population.
With respect to the ownership of housing space, the 2000 Census shows significant differences between the Liechtenstein and the foreign population. 70.6% of foreign occupants lived in rental apartments or cooperatives, while 18.4% were sole owners of a home. In contrast, 33.7% of Liechtenstein citizens rented, while 49.0% of Liechtenstein occupants were sole owners of a home. In other words: Foreigners were underrepresented among homeowners at 18.6% and overrepresented among renters at 56%. 64.3% of Liechtenstein citizens and 28.2% of the foreign population owned residential property. 79% of all persons living in their own property were Liechtenstein citizens.
The unequal use of home construction subsidies by the Liechtenstein and foreign population is interesting in this connection. The Housing Office promotes the construction, purchase, and renovation (if in connection with a change of ownership) of single-family homes and residential units in dense housing developments in Liechtenstein. In addition to Liechtenstein citizens, foreigners who have resided in Liechtenstein for a total of at least three years or who are Swiss or EEA citizens, and whose annual income does not exceed CHF 90,000, may claim home construction subsidies. In 2005, a total of 138 persons received an interest-free loan to promote home construction. 91.3% of the total amount was paid to Liechtenstein citizens, while 9 were foreigners from other German-speaking countries and 3 were from foreign- language countries.211
The aforementioned results correspond roughly to the distribution of Liechtenstein residents among the various types of building in 2000: 53% of Liechtenstein occupants and 28.7% of foreign occupants lived in single-family dwellings. Approximately equal shares (about 11% each) lived in two-family dwellings, while 20.6% of Liechtenstein occupants and 42.1% of foreign occupants living in multiple-family dwellings. Foreigners therefore represented 24.8% of the occupants of single-family dwellings, but 55.4% of the occupants of multiple-family dwellings.212
The 2000 Census does not provide data on the rents paid by foreign renters in comparison with Liechtenstein renters. The only statistical basis in this regard is a survey by the Office of Social Affairs from 2003 on the living situation of social welfare recipients.213 The average rental amount of all independently living social welfare recipients in 2003 was CHF 1,235 (average rental amount of all renters according to the 2000 Census: CHF 1,225). The comparison of the rental amount with respect to the origin of the renters did not indicate any notable difference, but is also not very meaningful since the figures were not converted to price per square meter of living space (Liechtenstein citizens: CHF 1,233/month, EU and Swiss citizens: CHF 1,210/month, others: CHF 1,218/month).
211 Information provided by Harald Marxer, Director of the Housing Office, 25 June 2007. 212 Office of Economic Affairs, Statistics Division (2006e): 75 et seq. Own calculations. 213 Office of Social Affairs (2003c). 81 Integration in Liechtenstein
Since foreign occupants were overrepresented in multiple-family dwellings and since the foreign population on average has more children, it must be assumed that foreign inhabitants on average have fewer square meters of living space per person than Liechtenstein citizens. In the abovementioned survey of the Office of Social Services, no notable difference existed with respect to living space per person between foreigners from the EU and Switzerland and Liechtenstein citizens (1.98 and 1.86 rooms/person, respectively). However, a significant difference emerged with respect to living space between Liechtenstein and Swiss/EU citizens on the one hand, and “other foreigners” on the other (1.98 and 1.86 versus 1.37 rooms/person).214 An explanation of this result is likely the relatively large number of children and the on average lower social status of foreign persons from non-EU countries.
Data collection on the discrimination of foreigners seeking housing is methodologically problematic215 and has not yet been attempted in Liechtenstein. Discrimination is illegal, and the possibility exists to take legal action if it does occur. However, only few charges have been filed and proceedings initiated in this regard. It may be assumed that an unknown dark figure of cases of discrimination on the housing market exists.
Migrants sporadically report difficulties in finding housing to the Office of Social Affairs.216 The operators of the Liechtenstein Women’s Home mention in their annual report how difficult it is for foreign-language migrant women – especially with children – to find an apartment after separation from their husbands.217
In 2003, the Office of Social Affairs attempted to survey problems in finding housing among a limited segment of the clients of the Social Services Division. Marxer (2005) concludes from the results that a discrimination of persons from Turkey or the Balkans on the basis of nationality is not atypical. Not only due to the low number of cases, but also due to lack of knowledge concerning the fact pattern in the specific cases, however, no statistical interpretation is possible.218
Table 10: Problems of clients of the Social Services Division in finding housing, 2003
214 Office of Social Affairs (2003c). 215 An objective survey method could be the evaluation of police records and court cases. A subjective survey method would be a representative survey of the resident population as a basic population, in which questions are asked concerning housing discrimination. Since, however, the responses would be based on a subjective assessment, any findings would be difficult to substantiate. It would certainly be possible that someone might feel discriminated against on the basis of origin, skin color, or other ethnic or cultural characteristic when searching for housing, but the actual reason from the perspective of the landlord might be very different. Marxer (2005): 50 et seq. 216 Statement by Hugo Risch, Head of the Social Services Division, Office of Social Affairs, 21 June 2007. 217 Association for the Protection of Abused Women and Their Children (2006): 8. 218 Marxer (2005): 50f. 82 Integration in Liechtenstein
Country group Number (persons or families) Subjective appraisal of the reasons Liechtenstein 4 Dog (2), argument with landlord, costs Western/Northern Europe/North 2 Costs America Southern Europe -- -- Eastern/Southeastern Europe 1 Nationality Turkey/Middle East/North Africa 3 Nationality, children (1) Sub-Saharan Africa/Latin -- -- America/Asia/Oceania Total 10
Source: Office of Social Affairs. Separate survey by Marxer (2005): 51.
13.2 Causes of integration deficits The reasons for the differences between the native and the foreign population with respect to ownership of housing and the type of housing cannot be explained with the help of the available statistical data. The fact that foreigners are overrepresented in rental housing could be due either to the conscious decision not to tie themselves to a country they may someday leave again by building or buying a home, or to the structural factor that foreigners do not possess inherited land in Liechtenstein.
Nevertheless, the assumption is plausible that at least foreign-language immigrants with a relatively low socio-economic status on average have a lower standard of housing than Liechtenstein citizens and persons from Northern/Western Europe/North America, as the survey of the Office of Social Affairs may indicate. The cause of problems relating to housing is likely due primarily to the financial circumstances of the affected foreigners. These circumstances in turn ultimately depend on education, language skills, and the position of foreigners in the labor market. A high number of children and associated demands on living space may be a further aspect. To what extent discriminatory attitudes on the part of landlords play a role would require further study.
13.3 Especially vulnerable groups (risk groups) Migrants with a comparatively low socio-economic status, with poorer education, and with insufficient German-language skills are more strongly affected by the high rental costs in Liechtenstein than other population groups. For families, searching for appropriate housing is difficult. Since foreigners from third countries on average have more children than Liechtenstein, Swiss, or EU citizens, they are especially impacted thereby.
13.4 Competences and existing measures §1108 and §1116 of the General Civil Code of 1 June 1811 as amended contain tenancy law provisions on rent increases, incidental costs, cancellation provision, and so on (LR 210.0).
Native and foreign families in a difficult financial situation who are unable or only barely able to support themselves due to the high housing costs are granted a housing allowance, as
83 Integration in Liechtenstein specified in the Law of 13 September 2000 on Rental Allowances for Families (LGBl. 2000 No. 202). Families with dependent children may claim the allowance, if the family does not exceed a certain annual household income and has been residing in Liechtenstein for at least one year. Single parents with dependent children are considered families. The housing space must meet recognized standards and the needs of the applicant and the applicant’s family with respect to size and facilities.219
13.5 Recommended integration policy actions • Low income persons, especially families, should continue to receive housing subsidies, and affordable housing should be increased, especially taking into account the needs of families. • Discrimination against foreigners seeking housing should be investigated and, if it exists, eliminated. • Tenancy law provisions should be reviewed.
219 Housing Office: Online at http://www.llv.li/amtsstellen/llv-aww-mietbeihilfen-2.htm [as of 9 October 2006]. 84 Integration in Liechtenstein
14 Participation in social life and the political process, naturalization 14.1 Situation with respect to social and political participation, naturalization a) Participation in social life Participation in volunteer work serving the public good can be viewed as an indicator of identification with the community and of social integration. In this respect, there are striking differences among the population groups living in Liechtenstein. Based on the results of the 2000 Census, Marxer (2005) calculates that volunteer work is three to four times as prevalent in the German-language group (including Liechtenstein citizens) as in the other language groups.220 According to this result, all country groups other than the Liechtenstein and Northern/Western European/North American group have a lower-than-average share of members engaged in voluntary activities. With a mean of 10.9%, the share of Liechtenstein citizens and members of the Northern/Western European/North American group is 11% to 12%, while the share of members of other groups is 4% to 5%.221
It should be emphasized that there are 24 foreigners’ associations in Liechtenstein, which are joined together under the umbrella of the Conference of Foreigners’ Associations, representing important interlocutors on integration issues. It would be interesting to investigate how many foreigners active in associations belong to a foreigners’ association and how many belong to a different, mixed-national association. On various occasions, representatives of foreigners’ associations have expressed the wish for premises and financial support for association activities. b) Participation in the political process Foreigners do not have the right to vote in Liechtenstein either at the municipal or the national level. Hardly any other routes exist (membership in community and State bodies, commissions, political parties) for foreigners to participate politically. For active and equal ownership of social processes and developments, however, political participation options would be a fundamental prerequisite. Political rights in a broader sense, i.e. freedom of association, assembly, and opinion, also apply to foreigners. These rights at least enable foreigners to participate indirectly in political decision-making processes.
Consultative or participatory bodies (foreigners’ advisory councils or commissions) for representing the interests of the resident foreign population are rudimentary. In 2004, the Prime Minister on behalf of the Government engaged in direct talks with the foreigners’ associations. Representatives of 14 foreigners’ associations met for two round tables with the Prime Minister, Government Officers, and several directors of Offices of the National Administration and presented their wishes and concerns. As a concrete possibility for registering needs and wishes, the Government suggested to the participants that a flexible discussion platform be established, following the example of the Liechtenstein Women’s Network. Under the coordination of the Office of Equal Opportunity, a networking platform (Integration Task Force) for foreigners’ associations and organizations working on integration was launched in 2006.
220 Marxer (2005): 61. 221 Marxer (2005): 58 et seq. 85 Integration in Liechtenstein
The Working Group on the Integration of Muslims in Liechtenstein, equally composed of representatives of Muslim interests and of the Offices of the National Administration familiar with the subject matter, was established in May 2004 and constitutes an already implemented example of the new participatory strategy. c) Naturalization By and large, the number of naturalizations per year has increased over time. Some maxima correlate with legislative amendments and associated new naturalization options (for the current legal foundation, see section 2.2.b). For instance, the newly created possibility of renaturalization of former Liechtenstein women who lost their citizenship due to marriage with a foreigner, introduced in 1975/76, impacted the number of naturalizations. Significant amendments with respect to the transferability of Liechtenstein citizenship resulted from the gradual introduction of equality of women, so that initially the children of Liechtenstein women and foreign men, and eventually the foreign husbands of Liechtenstein women became able to acquire Liechtenstein citizenship. In 1987 and 1996 to 1998, the facilitated naturalization of foreign children of Liechtenstein mothers affected the naturalization figures. The adjustment of citizenship law to the equality of men and women (LGBl. 1996 No. 124, corrected pursuant to a judgment of the Constitutional Court of 24 April 1997) led to a particularly large number of new Liechtenstein citizens. The high number of naturalizations in 2001 is due to the introduction of the legal claim to facilitated naturalization for foreign citizens with long-time residence status (LGBl. 2000 No. 141).
In 2006, a total of 169 persons were naturalized. The naturalization of long-time resident foreigners was the most important type of naturalization, followed by the naturalization of foreign wives of Liechtenstein men. Of the 6,199 naturalizations carried out between 1970 and 2006, the facilitated naturalization of the foreign children of Liechtenstein mothers represents a share of 42.8% of all naturalizations. In second and third place are the naturalization of long-time resident foreigners (14.9%) and the naturalization of women by marriage (13.3%). Only one tenth of all naturalizations are pursuant to a municipal vote (10.1%).222
222 Office of Economic Affairs, Statistics Division (2007e): 46. 86 Integration in Liechtenstein
Table 11: Naturalizations by type, 2005 and 2006 Type of naturalization Persons in 2006 Persons in 2005 Number Share Number Share Children of Liechtenstein mothers* 6 3.6% 18 11.3% Foreign wives of Liechtenstein 22 13.0% 17 10.7% men Foreign husbands of Liechtenstein 11 6.5% 12 7.5% women Voting 12 7.1% -- 0.0% Long-time residents 111 65.7% 103 64.8%
Adoption 4 2.3% 3 1.9% Legitimation 3 1.8% 6 3.8% Total 169 100% 174 100% Source: Office of Economic Affairs, Statistics Division (2007e): 5. *Naturalizations through conferral of Liechtenstein citizenship pursuant to the judgment of the Constitutional Court of 24 April 1997 are included under “Children of Liechtenstein mothers”.
Especially interesting from an integration policy perspective is the comparison between “naturalization through voting and conferral” and “naturalization of long-time residents”. In this regard, an examination taking into account the former citizenship of these categories of naturalized persons is informative. The data indicates that facilitated naturalization – i.e. the administrative procedure without a naturalization vote in the municipality – is of particular importance for foreign-language immigrants. For foreign-language population groups, naturalizations by municipal vote are associated with uncertainty and fear of rejection of the application (see Annex VII). Between 1988 and 2006, for instance, only 4 Italian and 5 Turkish citizens were naturalized through the voting procedure.223 Conversely, 56 Italian and 111 Turkish citizens have acquired Liechtenstein citizenship since 2000 by using the administrative option of naturalization of long-time residents.224
Naturalization in Liechtenstein entails loss of the previous citizenship. For this reason, it may be assumed that many foreigners refrain from applying for naturalization, although they are very well integrated into Liechtenstein society, they feel at home in Liechtenstein, and they could use the facilitated naturalization procedure.
Both the European Commission against Racism and Intolerance of the Council of Europe (ECRI) and the Commissioner for Human Rights of the Council of Europe, Alvaro Gil- Robles, as well as the UN Committee on the Elimination of Racial Discrimination (CERD)225 have expressed criticism concerning the current Liechtenstein naturalization rules. They all consider the residence requirement of 30 years for facilitated naturalization to be too long. ECRI and Gil-Robles point out that the unconditional requirement of giving up one’s original citizenship may dissuade immigrants from applying for Liechtenstein citizenship. The procedure of municipal voting on naturalization applications is criticized in all reports, since it
223 Office of Economic Affairs, Statistics Division (2007e): 16. 224 Office of Economic Affairs, Statistics Division (2007e): 26. 225 ECRI (2003): 7 et seq. Council of Europe (2005): 6 et seq. CERD: 3 et seq. This criticism is contained in the report by ECRI on its visit to Liechtenstein in 2002, the report by Alvaro Gil-Robles on his visit to Liechtenstein in 2004, and the concluding observations of CERD in March 2007 on the second and third periodic reports of Liechtenstein. All reports are available at www.liechtenstein.li under State/Foreign policy/Human rights. 87 Integration in Liechtenstein is not based on any objective or measurable criteria and has a discriminatory effect against persons of certain origins.
14.2 Measures a) Participation in social life The Working Group against Racism, Anti-Semitism, and Xenophobia provided targeted support to projects aiming to strengthen the participation of the foreign population in social life in Liechtenstein. Of particular note are selected projects of the Association for Intercultural Education, the annual intercultural festival of the Turkish Women’s Association entitled “Hi Turkey – Merhaba Liechtenstein”, the “El Dorado Liechtenstein” film project (2006), the “People’s Theatre” youth theater project (2007), and several projects in connection with European or international initiatives.226
In 2002, the Integration Working Group of the Office of Social Affairs, in collaboration with the Ministry of Cultural Affairs and the Office of Cultural Affairs, launched the competition entitled “Diversity 2002 – Intercultural Encounters”. The goal of the project was to support projects organized jointly by people from different countries and Liechtenstein citizens. A convincing concept had to be presented to the competition jury that strengthened cultural roots, identities, and self-confidence while promoting cooperation among people from different cultures. Particular emphasis was placed on the sustainable nature of the projects and their presentation to the public. Ten projects were submitted. The main prize was awarded to Camäleon Youth Work for its project “Forget-me-not – the multicultural youth organizer”, to which more than 130 young people contributed their experiences and thoughts concerning the coexistence of people from different countries of origin in the form of texts written themselves. These texts were used to create an annual date book for young people, which was distributed to students and apprentices. The projects “Corn – a crop connecting peoples”, “Intercultural Library”, and “Inter-Choirs FL” were also awarded prizes. Implementation of these projects was supported by the Office of Social Affairs. They were successfully completed in 2003 and 2005.
The project “Corn – a crop connecting peoples” by the Liechtenstein Traditional Costume Association presented this crop over the entire course of 2003. Liechtenstein traditions and culture were conveyed to foreign inhabitants from sowing to harvest and the final products. In return, the foreigners’ associations presented their customs surrounding this crop. The Italian, Moroccan, and Turkish Associations as well as the Austrian, Swiss, and Slovenian Associations participated.
After two years of work, the participants in the “Intercultural Library” project presented their study to the public in 2005, with a survey of the available foreign-language literature in Liechtenstein libraries. Through this Intercultural Library in the form of a directory of foreign-language books, foreign-language persons, especially foreign children, are better able to use books in the own native languages, in addition to learning the German language and getting to know Liechtenstein culture.
In “Inter-Choirs FL”, members of different nationalities jointly cultivate international musical heritage. As part of the “Foreigners sing for seniors” project, concerts were performed in senior homes, nursing homes, senior clubs, and rehabilitation centers in Liechtenstein and the region.
226 Working Group against Racism, Anti-Semitism, and Xenophobia (2006). 88 Integration in Liechtenstein
The idea of promoting intercultural cooperation as implemented in the “Diversity 2002 – Intercultural Encounters” competition turned out to be very successful. The willingness to participate was very high, and realization of the projects was achieved through high levels of motivation and substantial volunteer efforts. The response among participants and the public was accordingly positive.227
The “Location: Schaan” project group conducted a three-part workshop in 2006 entitled “Foreigners among us”. The question was investigated how the coexistence of foreigners and natives can be improved. Conflict potential should be recognized early on, and approaches to tolerant and harmonious coexistence of the cultures should be discussed more often. The results of the project were presented to the Schaan Municipal Council.228
The International Women’s Café grew out of the “Foreigners among us” project and is administered by the Association for Intercultural Education (ViB). The Women’s Café in Schaan serves as a meeting place for native and foreign women. Cultural events, lectures, workshops, excursions, and other activities promote intercultural exchange and understanding among the natives and foreigners living in Liechtenstein.229 b) Political participation From the perspective of integration policy, the combination of severely restricted possibilities of political participation for foreign citizens and restrictive naturalization legislation and practice is problematic. The abovementioned round tables including affected persons and the Government, the establishment of the Integration Task Force, and the equal representation in the Working Group on the Integration of Muslims are measures already taken to improve possibilities for political participation. c) Naturalization At the time of the present report, the revision of the Law on the Acquisition and Loss of Liechtenstein citizenship had not yet been concluded. The revised law will, subject to approval by Parliament, require evidence of German-language skills and basic knowledge of the legal order of Liechtenstein and structure of the State as a prerequisite for naturalization.230 These criteria will be considered an expression of the willingness of the citizenship applicants to integrate, and will take the aspect of “demanding” contained in the Government Policy Paper on Integration Policy into account.
According to the Consultation Report, the new law will contain the following changes with respect to facilitated naturalization: The residence requirement for facilitated naturalization pursuant to marriage will be reduced from 12 years to 10 years231, and the residence requirement for facilitated naturalization pursuant to long-time residence will be reduced from 30 years to 20 years. De jure stateless persons232 born in Liechtenstein who have been stateless since birth will now obtain a legal right to naturalization after five years of proper
227 Office of Social Affairs (2003/2004/2006): Parliament, Government, and Courts 2002/2003/2005. 228 Municipality of Schaan (2006): 13. 229 International Women’s Café Liechtenstein (2007): Online at http://www.ifc.li/index.html [as of July 2007]. 230 Government of the Principality of Liechtenstein (2007): 25 et seq. 231 In return, the requirement of proper marriage will be increased from three to five years. According to the Consultation Report, this will make fictitious marriages unattractive and largely prevent them. Government of the Principality of Liechtenstein (2007) 29. 232 De jure stateless persons are considered those who have no citizenship under the domestic law of the States in question. In contrast, de facto stateless persons formally possess citizenship, but their home country is unable or unwilling to accord them the rights of a citizen and in particular give them diplomatic protection. Government of the Principality of Liechtenstein (2000): 4. 89 Integration in Liechtenstein residence in Liechtenstein, if the general conditions are met.233 This will allow Liechtenstein to ratify the Convention relating to the Status of Stateless Persons of 28 September 1954 and the Convention on the Reduction of Statelessness of 30 August 1961.
14.3 Recommended integration policy actions • The participation and membership of migrants in commissions, school boards, parent associations, organizations, and associations should be promoted. • The introduction of a right of foreigners to vote at the municipal level should be examined. • The self-organization of migrants should be promoted, for instance by facilitating access to premises. • Abolition of naturalization by municipal vote234 and introduction of the possibility to maintain original citizenship upon naturalization should be examined. • The status of stateless persons should be improved by revising national citizenship law and by ratifying the relevant international conventions.
233 Government of the Principality of Liechtenstein (2007): 30 et seq. 234 See the recommendations of the UN Committee on the Elimination of Racial Discrimination (CERD, 2007): Online at www.liechtenstein.li under State/Foreign policy/Human rights/Racism [as of June 2007]. 90 Integration in Liechtenstein
15 Religion and culture 15.1 Data on the religious affiliation of the foreign population In the 2000 Census235, 56.9% of the foreign population considered themselves Roman Catholic, while 90.8% of the Liechtenstein population indicated that they were members of the Roman Catholic Church. 17.1% of the foreign population, but only 3.2% of the Liechtenstein population stated that they belonged to a Protestant church or community. Both large religious groups lost membership among the foreign population in the 1990’s, both in relative and absolute figures.
The high share of members of the Islamic communities among the foreign population (12.5%) is striking in comparison with the share among Liechtenstein citizens (0.3%). Due to immigration, the membership share of the Islamic communities and the Orthodox Christian churches among foreigners has increased far more substantially than among Liechtenstein citizens. The share of the Orthodox Christian churches among the foreign population rose from 1.8% to 2.7% between 1990 and 2000, and the share of the Islamic communities more than doubled from 6.2% to 12.5%. Among Liechtenstein citizens, these shares continued to remain at a low level, only increasing by 0.1% to 0.2% and by 0.3% to 0.3%, respectively.
The share of persons not considering themselves to belong to any religious communities was higher among foreigners (4.8%) than among Liechtenstein citizens (1.7%) and also increased more strongly among foreigners. This trend was similar among persons who made no declaration of religious affiliation (5.1% and 3.6%, respectively), although the differences were not as striking here.236
The religion of foreigners correlates with their nationality. Persons from Southern Europe are almost exclusively Roman Catholic (87.0%). The Northern/Western European/North American group is predominantly Roman Catholic (60.3%), but also includes many Protestants (27.9%). Eastern/Southeastern European divided primarily into members of Islamic (52.3%), Roman Catholic (19.1%), and other Christian (18.4%) communities. Persons in the Turkey/Middle East/North Africa group almost all belong to Islamic communities. Foreigners from other regions are mainly Roman Catholic (53.4%), but many also belong to other religious communities (19.6%).237
15.2 Dealing with cultural and religious tensions a) Support of the different religious communities The Liechtenstein Constitution guarantees freedom of religion and conscience. It also guarantees civil and political rights irrespective of religious affiliation. According to the Constitution, the Roman Catholic Church is the “national church of Liechtenstein”, which is not equivalent to a State or established church. In addition to the Roman Catholic Church, the Evangelical churches and, since 2006, the Islamic religious communities receive financial
235 Since 2003, the Population Statistics have not contained any data on religion. 236 Office of Economic Affairs, Statistics Division (2006d): 11 et seq. 237 Marxer (2005): 54. 91 Integration in Liechtenstein support from the State.238 As a consequence of the creation of the Archdiocese of Liechtenstein, a disentanglement of State and Church is currently under consideration.
One of the greatest challenges relating to religious tolerance is the integration of the growing number of Muslims into traditionally Christian-influenced Liechtenstein society. For this reason, the Government established a Working Group on the Integration of Muslims in May 2004. The Working Group is composed of an equal number of representatives of Muslims and of the Offices of the National Administration familiar with the subject matter. The Working Group serves to build up an institutionalized dialogue between Muslims and authorities and contributes to a climate of mutual respect. To promote a better understanding on the part of the Liechtenstein population for Islamic culture, the Working Group has acquired literature on Islam, which has been presented to the public and made available in the Liechtenstein National Library.
On the suggestion of the Working Group, the Government has paid a contribution to the Islamic communities since 2006 for religious and cultural uses. In 2006, it also approved a short-term stay permit for an additional imam during Ramadan, meeting a long-standing need of the Islamic religious communities. The short-term stay permit is tied to the condition that the Turkish Association and the Islamic Community, two of the most important Muslim associations in Liechtenstein, guarantee that no religious fanaticism will be preached.239
Since the end of 2006, the Liechtenstein media have repeatedly discussed the question whether the establishment of a cemetery for Muslims would be necessary or desirable in the view of the majority of the population. Until now, Muslims have been repatriated to their country of origin after their death and buried there. The Muslims living in Liechtenstein have so far not expressly demanded their own cemetery or specific last resting places. Possibly, the desire for an Islamic last resting place in Liechtenstein will increase as Muslims who have grown up in the country and consider Liechtenstein their home grow older. The Working Group on the Integration of Muslims is aware of this topic, but has not prioritized it so far. In any event, the equal treatment of all religious communities must be observed: If Islamic last resting places are established, the establishment of last resting places for Jews or Hindus in Liechtenstein, for instance, would also have to be considered.240 b) Religious instruction At the primary school level, denominational Catholic and Evangelical (Protestant) religious instruction is offered. Children may exempt their children from religious instruction. No replacement subject is offered. The respective churches are responsible for denominational religious instruction. The Catholic religious instructors are employed and paid by the municipalities, the Protestant religious instructors by the State. Since the instruction takes place in the context of public schools, the parameters established by the State also apply to religious instruction. The municipalities may mandate the Office of Education to evaluate the religious instruction.241
238 In 2007, the Liechtenstein State paid contributions in the amount of CHF 300,000 to the Catholic Church, CHF 40,000 to the Evangelical Church, CHF 30,000 to the Evangelical-Lutheran Church, and CHF 25,000 to the Islamic religious communities. The two Evangelical churches received additional contributions in the total amount of approximately CHF 185,000 from the municipalities. Statement by Martin Frick, Chief of Staff of the Prime Minister, May 2007. 239 Office for Foreign Affairs (2006). 240 Liechtensteiner Vaterland, 20 February 2007. 241 Statement by Stefan Hirschlehner, Consultant on Religious Instruction, Office of Education, 6 July 2007. 92 Integration in Liechtenstein
Through the 2006/06 school year, Muslim religious instruction was exclusively offered through the Islamic religious community (imam). A survey conducted on the initiative of the Working Group on the Integration of Muslims in 2006 found that there was a need for Islamic religious instruction at public primary schools. The Government therefore decided to make Islamic religious instruction possible for primary school students in the form of a pilot project, under the following conditions: • The instruction is offered by pedagogically and technically trained teachers. • The language of instruction is German. This is intended to promote integration and to ensure that classes may be attended by Muslims from all nations. • German as the language of instruction also allows the Office of Education to monitor and evaluate the religious instruction, which constitutes a further condition. Compliance with the Liechtenstein Constitution and laws must be ensured. • Instruction is based on a curriculum examined by experts.
Islamic religious instruction is intended to help foreigners maintain their identity, in which their own religion and passing on their own beliefs play an important role. It is currently expected that one group each (with approximately 8 to 10 students) in the Upper Country and the Lower Country will attend Islamic religious instruction in the 2007/08 school year. The project has been designed for one year and will be evaluated by Easter 2008. The Government will then decide on its continuation.242
With reference to religious freedom, exemptions from religious instruction at the secondary level (Oberschule, Realschule, and Gymnasium) of public schools were possible until 2003. Since the 2003/04 school year, there has been the possibility of choosing between the new subject “Religion and Culture” and denominational religious instruction (Catholic or Protestant) in the first grades of the secondary schools. All students not attending denominational religious instruction take part in the “Religion and Culture” class. The goal of this subject is to examine the topic of religion and its significance for personal and social life in a way that respects different worldviews and religious convictions. Of positive note is the general acceptance of this subject also by non-Christian religious communities.243 In the 2006/07 school year, approximately 90% of Catholic students attended “Religion and Culture”, and approximately 10% attended denominational Catholic religious instruction. When no groups for Protestant religious instruction materialize at the continuing schools – in the 2006/07 school year, for instance, Protestant religious instruction could only be offered at the Liechtenstein Gymnasium – the Evangelical Church offers extracurricular instruction as a replacement that is financial supported by the Government.244 c) Respect for cultural differences in the classroom It is ensured that students are not prevented from practicing their cultural particularities in the classroom. No cultural or religious dress codes apply in kindergartens or schools. On class trips and similar occasions, food is provided to meet the different requirements of the students.245 A vegetarian option is always offered in school cafeterias. With respect to leaves of absence on religious holidays that do not coincide with official holidays in Liechtenstein, the Office of Education endeavors to find an adequate solution for everyone involved in consultation with the parents of the students concerned.246
242 Press release, 28 March 2006. 243 Office of Education (2006): 127. 244 Office of Education (2007): 136. 245 Eurydice European Unit (2004): 8. 246 Statement by Stefan Hirschlehner, Consultant on Religious Instruction, Office of Education, 6 July 2007. 93 Integration in Liechtenstein
d) Courses on the culture and language of the home country In conformity with the Ordinance of 19 December 1995 on the Instruction of Children of Migrant Workers in their Native Language and Home Country Studies (LGBl. 1996 No. 7), the children of EEA citizens who are of compulsory school age receive support in learning their native language and the culture of their home country. The State promotes this instruction, which is offered by associations, consulates, and embassies, by making extracurricular class hours and instruction rooms available as needed. The same arrangement applies with respect to the children of other nationalities, even though this is not specified by the ordinance.247 e) Forced marriage and female genital mutilation According to article 37 of the Marriage Act of 13 December 1973 (LGBl. 1974 No. 20), forced marriage results in annulment of the marriage and is punishable under current criminal law, since it is considered coercion under § 106 StGB. Forced marriages are neither compatible with the Liechtenstein moral or legal order nor acceptable with respect to human rights. The UN Convention on the Elimination of All Forms of Discrimination against Women, which Liechtenstein has ratified, accords women the right to free choice of their spouse. According to article 23, paragraph 3 of the International Convention on Civil and Political Rights, “no marriage shall be entered into without the free and full consent of the intending spouses”. So far, no cases of forced marriage have emerged in Liechtenstein.
Likewise incompatible with Liechtenstein criminal law is the practice of female genital mutilation or female circumcision, a ritual mainly practiced in Sub-Saharan Africa. Since only few foreigners from Africa live in Liechtenstein, and since only a very small number of asylum seekers originate from Africa, the probability of female genital mutilation taking place in Liechtenstein is very small. No cases have emerged so far. f) Kosher and halal slaughter According to article 13 of the Animal Protection Act of 20 December 1988 (LGBl. 1989 No. 3), mammals must be completely and generally anesthetized before their blood is withdrawn during slaughter. Kosher and halal slaughter is therefore prohibited in Liechtenstein, as in Switzerland. In preparations for the total revision of the Swiss Animal Protection Act in 2002, the Federal Council envisaged permission for kosher and halal slaughter with reference to the constitutionally guaranteed freedom of religion, but since animal protection also has constitutional status in Switzerland and the planned relaxation of the kosher and halal slaughter provision generated great controversy, the proposal to this effect was withdrawn. However, no prohibition exists on the import of kosher and halal meat, which pursuant to the Customs Treaty also is valid for Liechtenstein. The Ordinance on the Market for Slaughter Cattle and Meat (Slaughter Cattle Ordinance) of 26 November 2003 governs the quotas and criteria for approved retailers of kosher and halal meat. This entails that the import of such meat is allowed by law.248
15.3 Recommended integration policy actions
247 Eurydice European Unit (2004): 8. 248 Information provided by Peter Malin, Director of the Office of Food Inspection and Veterinary Affairs, 10 October 2006 and Urs Zimmerli, Swiss Federal Veterinary Office, 11 October 2006. 94 Integration in Liechtenstein
• The framework conditions (infrastructure) and the tolerance for the practice of different religions should be improved. • The interreligious and intercultural dialogue should be promoted, and opportunities should be created for people of different religious and cultural backgrounds to meet each other. • Strengthened cooperation with research institutions on questions of religious and cultural integration should be considered.
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Part IV: CONCLUSIONS
16 Integration in Liechtenstein 16.1 Heterogeneity of the foreign population One important conclusion from the preceding discussion is that the striking differences among the different groups within the foreign population must be taken into account both when ascertaining the current state of integration of foreigners in Liechtenstein and when formulating the resulting need for action. While German-speaking foreigners generally have a good level of education, a living standard comparable to the Liechtenstein population, and they hardly experience exclusion, foreign-language immigrants in Liechtenstein tend to have disproportionately low qualifications, are exposed to a higher risk of poverty, and are more often affected by latent or open discrimination.
Whereas the target state of integration is characterized in part by the achievement of equal opportunity between the foreign and the native population, as defined at the beginning of this report, a need for action currently exists with respect to the integration of foreign-language immigrants, especially from outside the EEA, in numerous areas of integration.
In addition, the development trends with respect to the composition of the foreign population in Liechtenstein should not be overlooked: The share of foreign-language immigrants from – historically speaking – new areas of origin, belonging to non-Christian religious grounds, and generally with below-average levels of education will presumably continue to rise in the coming years. This lends particular importance to the development of strategies for achieving equal opportunity among all persons living in Liechtenstein, regardless of their origin.
A regular statistical review of the relevant indicators for the foreign population, differentiated by language, geographical origin, religious affiliation, sex, age, and skin color, and a comparison with the indicators for Liechtenstein citizens in equivalent life situations is a precondition for improving understanding of the integration problems of specific groups and consequently for taking targeted integration measures.
16.2 Interactions among areas of integration The discussion in Part III made clear that difficulties in the various areas of integration at least correlate frequently, or are even causally linked. This close relationship constitutes a strong argument in favor of comprehensive cooperation among the Offices of the National Administration responsible for the different areas.
A particularly central relationship exists among the areas of linguistic integration, schooling and vocational training, and access to employment. Foreigners who come to Liechtenstein as adults can find (well-paid and qualified) work more easily if their level of education is higher and if their competence in the national language is better. For persons moving to Liechtenstein before or during compulsory schooling or born to foreign parents in Liechtenstein, sufficient language skills are the condition for good integration in school and vocational training. This in turn is a precondition for the success of integration in the workforce: Jobs involving less demanding work are increasingly vanishing, and the requirements on professional qualifications and language skills are rising. Access to (well- paid and qualified) employment is in turn of fundamental importance for successful social
96 Integration in Liechtenstein integration and has an impact on many other areas of integration, such as social security and health.
The Working Group against Racism, Anti-Semitism, and Xenophobia therefore advocates a harmonization of integration measures, especially in the areas of language, schooling, and vocational training, and the communication of the experiences and know-how from one authority (for instance the Office of Education in relation to GSL courses) to the other authorities confronted with similar challenges (for instance the Office of Vocational Training and Counseling, the Office of Economic Affairs).
16.3 Naturalization and political rights The options of political participation for foreign citizens are very limited in Liechtenstein, so that they remain excluded from this important sphere of social life. In combination with a restrictive naturalization law and practice, this entails that foreigners whose center of life is in Liechtenstein for a prolonged period nevertheless are often excluded from participating in the design of their environment. Even if the possibility of facilitated acquisition of Liechtenstein citizenship exists where the legal conditions are met, the prohibition of maintaining their original citizenship places foreigners in a situation of conflicting loyalties, which – according to the naturalization data available – apparently is often resolved in favor of the country of origin.
From the perspective of integration policy, this situation is unsatisfactory. Full integration without political participation is not possible. At the same time, Liechtenstein society is missing out on important inputs and impulses, and Liechtenstein politics – which due to the part-time status of many of its politicians and its strong direct-democratic nature is dependent on a relatively large portion of the population – is missing out on important resources.
Against this background, the development of possibilities for foreigners to participate in shaping the common environment and the promotion of the actual utilization of these channels of influence are an important concern for the Working Group against Racism, Anti- Semitism, and Xenophobia. The Working Group against Racism, Anti-Semitism, and Xenophobia is also eagerly awaiting the revision of national citizenship law and advocates a critical examination of the existing naturalization conditions in the light of integration policy and, where possible, a liberalization thereof. In particular, the Working Group advocates a reduction of the residence requirements for facilitated naturalization and the introduction of the possibility of dual citizenship. In addition, it calls for abolition of the traditional naturalization procedure by municipal vote, which no longer corresponds to current legal standards and has been repeatedly criticized at the international level by the European Commission against Racism and Intolerance (ECRI) and the UN Committee on the Elimination of Racial Discrimination (CERD).
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17 Statistical foundations 17.1 Importance of statistical surveys The collection of statistical data constitutes an important foundation for the effective fight against racism, xenophobia, and discrimination. Latent grievances often only become apparent through the analysis of statistical data, which is particularly true with respect to the uncovering of indirect discrimination. Only then, as already indicated in section 16.1, can effective measures be taken to combat inequality.249 In this way, statistics facilitate the path from formal to actual equality, and they constitute the basis for adequate political strategies. Since progress and regress in this political field can be shown using statistical data, they facilitate the monitoring and evaluation of measures taken. In addition, statistics may form a basis for effective public communication and awareness raising.250
In Liechtenstein, the requisite data is lacking in many integration areas to compare the situation of the foreign population with the native population and the different groups of foreigners with each other, and thereby to assess the integration situation in a differentiated way. This statistical deficit impedes the development of overarching integration strategies as well as targeted and efficient integration measures.
17.2 Recommended integration policy actions In light of the importance of statistical material for the development and evaluation of integration policy measures and in light of the calls by the European Commission against Racism and Intolerance (ECRI) and the Committee on the Elimination of Racial Discrimination (CERD) for an expansion of data gathering, an improvement of the data situation in Liechtenstein is desirable: • The annual statistics should be continued and expanded, using aggregate country groupings instead of insufficiently expressive categories such as “EU States” and “third countries”, in order to allow differentiated statements on the situation of the different groups of foreigners’ in Liechtenstein (see Annex III for the aggregate country groupings used by Marxer (2005)). In the case of Liechtenstein citizenship, a distinction should be made between naturalized and native Liechtenstein citizens. It should also be examined to what extent an indication of citizenship should be systematically linked to other variables in existing individual statistics, in order to allow additional connections to be made. • The census data should be evaluated in accordance with a new classification of the variables origin, language, and religion, in order to uncover social problem fields and changes. • Liechtenstein participation in international coordinated surveys, especially the European Social Survey and the International Social Survey Programme should be examined regularly and is recommended where the survey investigates discrimination, racism, xenophobia, migration, or integration. • Authorities and private institutions confronted with the issue of racism and discrimination should be called upon to develop appropriate statistics in this regard. Since not all interesting aspect can be documented and analyzed by way of statistical
249 Gstöhl (2005). See also “Green Paper on equality and non-discrimination in an enlarged European Union”: Online at http://europa.eu.int/comm/employment_social/publications/2004/ke6004078_en.html [as of 26 September 2006]. 250 Marxer (2005): 18 et seq. 98 Integration in Liechtenstein
data collection, additional regular surveys among target groups would be useful with a frequency of approximately every two years. • The statistics compiled at the initiative of the Working Group against Racism, Anti- Semitism, and Xenophobia (see introduction) should be continued.251
Annex VIII contains a compilation of the existing statistical gaps, which could be used as a basis for expanding public and private data collection. The Statistics Project Group established by the Government Resolution of 21 March 2006 should, in the view of the Working Group against Racism, Anti-Semitism, and Xenophobia, be mandated to clarify the possibilities for remedying the existing deficits in data collection, in consultation with the affected Offices of the National Administration, and to prepare an expansion of the available statistics.
251 Marxer (2005): 67-73. 99 Integration in Liechtenstein
18 Uniform integration policy With the adoption of the Government Policy Paper on Liechtenstein Integration Policy in February 2007, the conceptual framework has been established for the further integration policy work of the Government. As the overview of the already existing measures in the different integration areas and for combating racism and xenophobia shows, numerous measures have been taken in individual areas since the appointment of the Working Group against Racism, Anti-Semitism, and Xenophobia (formerly WG NAP) in 2002, while other problem areas relating to the integration of foreigners have hardly been addressed. Several working groups have been created to deal with specific questions of integration, while at the same time many Offices of the National Administration are confronted with integration issues in their everyday work.
The Working Group against Racism, Anti-Semitism, and Xenophobia believes that the goal articulated in the Government Policy Paper of coordinating the existing initiatives for the promotion of integration and of utilizing the resulting synergies should be pursued consistently. An institutionalized exchange of information among the numerous authorities confronted with integration policy questions is a precondition for harmonizing individual packages of measures and for identifying gaps and deficits in the practical implementation of integration policy goals, and thereby also for an efficient implementation of the integration policy envisaged by the Government.
The establishment of the Office of Equal Opportunity has led to a welcome strengthening of the human and financial resources dedicated to State integration efforts within the National Administration. In the view of the Working Group against Racism, Anti-Semitism, and Xenophobia, the Office of Equal Opportunity is predestined to coordinate the integration measures undertaken by different authorities, to ensure a smooth flow of information, and to evaluate the steps taken in the field of integration in regular intervals, so that it may in this way provide a basis for decision-making by the Government and the involved authorities on the future orientation and focus areas of integration policy.
The Working Group against Racism, Anti-Semitism, and Xenophobia therefore recommends that the necessary human and financial resources be made available for the competent execution of this mandate. Moreover, the competences of the Office of Equal Opportunity should be clarified, so that a clear delineation in relation to other bureaus and offices can be achieved. These other authorities should be called upon to inform the Office of Equal Opportunity about planned steps in the areas of integration and anti-discrimination/anti- racism and to make use of the expertise provided by the Office. The appointment of an integration officer as a contact person could be useful in this regard.
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ANNEX I: Legal framework of integration policy
a) Integration provisions Excerpt from the Ordinance on the Movement of Persons of 30 November 2006 (LGBl. 2004 No. 253):
VII. Integration Article 77 Objective The objective of integration is the coexistence of the Liechtenstein and foreign resident population on the basis of common basic values and the constitutional order, characterized by mutual respect and tolerance.
Article 78 Preconditions A precondition of successful integration is that foreign citizens become acquainted with the social circumstances in Liechtenstein and possess sufficient language skills.
Article 79 Promotion The integration of foreign residents lawfully living in Liechtenstein for an extended period of time into the economic, cultural, and social life of the country shall be promoted.
b) Non-discrimination i) Excerpt from the Constitution of the Principality of Liechtenstein of 5 October 2001 (LGBl. 1921 No. 15): Art. 31 1) All Liechtenstein citizens shall be equal before the law. Public offices shall be equally open to them, subject to observance of the legal provisions. 2) Men and women shall enjoy equal rights. 3) The rights of foreigners shall be determined in the first instance by international treaties, or, in their absence, by reciprocity.
ii) Excerpt from the General Civil Code of 1 June 1811:
Rights of foreigners § 33 Foreigners shall in general be accorded the same civil rights and responsibilities as natives, unless the enjoyment of these rights expressly requires the status of a citizen. In cases of doubt, foreigners must also show, in order to enjoy the same right as natives, that the State to which they belong would also treat Liechtenstein citizens as its own with respect to the right in question.
101 Integration in Liechtenstein c) Penal provision on racial discrimination Excerpts from the Criminal Code (StGB) of 24 June 1987 (LGBl. 1988 No. 37):
§ 33 Special aggravating circumstances It shall in particular be considered an aggravating circumstance if the perpetrator: 1. committed several punishable acts of the same or different kind or committed the punishable act over an extended period of time; 2. has already been convicted of an offense arising from the same pernicious predisposition; 3. induced another person to commit the punishable act; 4. is the author or instigator of one of several punishable acts committed, or participated in such an act in a leadership capacity; 5. acted out of racist, xenophobic, or other particularly reprehensible motives; 6. acted in an insidious or cruel manner or a manner that caused agony to the victim; 7. took advantage of the defenselessness or helplessness of another person when committing the act.
§ 283 Racial discrimination 1) A person shall be punished with imprisonment of up to two years, if the person 1. publicly incites hatred or discrimination against a person or a group of persons on the basis of race, ethnicity, or religion, 2. publicly disseminates ideologies aimed at the systematic debasement or defamation of members of a race, ethnicity, or religion, 3. organizes, promotes, or participates in propaganda actions with the same objective, 4. publicly debases or discriminates against a person or a group of persons on the basis of race, ethnicity, or religion in a manner violating human dignity, by means of spoken words, writing, images, electronically transmitted symbols, gestures, physical violence, or any other means, 5. publicly denies, grossly trivializes, or attempts to justify genocide or other crimes against humanity, by means of spoken words, writing, images, electronically transmitted symbols, gestures, physical violence, or any other means, 6. denies a service he or she provides that is meant for the general public to a person or a group of person on the basis of race, ethnicity, or religion, 7. participates as a member in an association whose activity consists of promoting or inciting racial discrimination.
2) A person shall be punished in the same manner, if the person 1. manufactures, imports, stores, or distributes, for the purpose of further dissemination, documents, sound or image recordings, electronically transmitted symbols, depictions, or other objects of this sort whose content constitutes racial discrimination within the meaning of paragraph 1, 2. publicly recommends, exhibits, offers, or presents them.
3) Paragraphs 1 and 2 do not apply if the propaganda material or the act serves the purpose of art or science, research or education, appropriate reporting on current events or history, or similar purposes.
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§ 321 Genocide 1) Anyone who, with the intent to destroy, in whole or in part, a group determined by its affiliation with a church or religious community, a race, a people, a tribe, or a State, kills members of the group, causes serious bodily (§ 84 paragraph 1) or mental harm, deliberately inflicts on the group conditions of life calculated to bring about its physical destruction in whole or in part, imposes measures intended to prevent births within the group, or, by force or the threat of force, transfers children of the group to another group, shall be punished with life imprisonment.
2) Anyone who agrees with another person to jointly commit one of the punishable acts enumerated in paragraph 1 shall be punished with imprisonment of one to ten years.
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ANNEX II: Foreigners’ associations in Liechtenstein252
Umbrella organization: Conference of Foreigners’ Associations
American Women's Club in Liechtenstein Association of Bosnia and Herzegovina in Liechtenstein Association of Italians in Liechtenstein Association of South Tyroleans in Liechtenstein Association of Spaniards in the Principality of Liechtenstein Austrian Association in the Principality of Liechtenstein British Club in Liechtenstein C.I.L. Comitato Italiani nel Liechtenstein Centro Español Croatian Association in Liechtenstein Danish Association in the Principality of Liechtenstein Dutch Association in the Principality of Liechtenstein German Association in the Principality of Liechtenstein Greek Association in the Principality of Liechtenstein Islamic Community Moroccan Association in Liechtenstein Portuguese Association in the Principality of Liechtenstein Russian Cultural Society in the Principality of Liechtenstein Slovenian Association in the Principality of Liechtenstein Swiss Association in the Principality of Liechtenstein Turkish Association for Women in the Principality of Liechtenstein Turkish Association in the Principality of Liechtenstein Turkish Parents’ Association in the Principality of Liechtenstein Union des Francais de l'étranger
252 According to information provided by the Office of Equal Opportunity, June 2007. 104 Integration in Liechtenstein
ANNEX III: Country groupings for evaluation of the 2000 Census
Liechten- Western/Northern Southern Eastern/Southeastern Turkey/Middle East/North Africa Sub-Saharan No home stein Europe/North European Europe Africa/Latin country America America/Asia/Oceania Liechten- Switzerland Italy Turkey No home stein country Germany Portugal France Spain Austria Other Western Other Southern Southeastern Europe: Middle East: Sub-Saharan Africa: Europe: Europe: Albania, Serbia, Montenegro, Cyprus, Bahrain, Iraq, Israel, Yemen, All African countries Belgium, Netherlands, Andorra, Greece, Croatia, Slovenia, Bosnia Jordan, Qatar, Kuwait, Lebanon, except North Africa Luxembourg, Monaco Malta, San Marino, and Herzegovina, Macedonia Oman, United Arab Emirates, Saudi Vatican Arabia, Syria, Palestine, Armenia, Azerbaijan, Georgia Northern Europe: Eastern Europe: North Africa: Latin America: Denmark, Norway, Bulgaria, Poland, Romania, Algeria, Libya, Morocco, Sudan, All countries in Central Sweden, Finland, Hungary, Slovakia, Czech Tunisia, Egypt, Western Sahara and South America and the United Kingdom, Republic, Moldova, Russia, Caribbean Ireland, Iceland, Baltic Ukraine, Belarus States North America: Asia: United States, Canada East Asia, South and Central Asia, Southeast Asia Oceania: Australia, New Zealand, and Pacific Island States Source: Marxer (2005): 43, 36 (Annex), compiled in Marxer (2007): 7 (Annex).
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ANNEX IV: Flyer demanding assimilation of foreigners
The flyer reproduced on the right was distributed in mailboxes in the municipalities of Schaan and Triesen at the end of 2006.
Sources: Copy of the original flyer and Liechtensteiner Volksblatt, 8 January 2006.
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ANNEX V: Right-wing extremist incidents in Liechtenstein, 2004 to 2006253
2004 January: At the Monster Concert (Mardi Gras) in Eschen, right-wing skinheads engage in brawls.
February: Mass brawl between left-wing Oi skinheads from Switzerland and right-wing skinheads from Liechtenstein.
May: Brawl at the National Fire Brigade Day in Mauren. One provoked skinhead breaks the nose of a visitor. One Liechtenstein skinhead is stopped while distributing right-wing flyers in the canton of St. Gallen.
July: At the Realschule graduation party in Mauren, drunken skinheads are involved in fistfights. No one is seriously injured
August: A group of right-wing extremists shout provocations at a Gymnasium party in Vaduz. The National Police intervene, so that the confrontation remains only verbal.
2005 A female member of the right-wing scene calls a visitor a “Negro slut” at a party and rips some of her hair out. The victim files battery charges.
Skinheads injure two visitors during a brawl at Mardi Gras in Schaan. One battery charge is filed.
At a party in the Vaduzer Saal, a confrontation erupts among several persons. During this confrontation, a pistol-like device is used to spray a riot agent into the crowd. Several persons are hit by the riot agent and injured. Two young adults in the right-wing scene are identified as the perpetrators. In the course of questioning, it is discovered that an increasing number of members of the skinhead scene go out armed with pepper spray and other utensils, claiming the need to protect themselves from attacks by left-wing extremists.
2006 Several violent confrontations erupt at public events (parties, Liechtenstein Industry, Trade and Commerce Exhibition, etc.) involving members of the right-wing scene.
In Triesen, skinheads are alleged to have attacked two young people with batons without provocation. The attackers cannot be identified, however, so that it is uncertain whether they were actually skinheads. At the Eschen Fair, a confrontation erupts as two members of the right-wing scene attack a foreigner.
253 According to document in the annual reports of the Working Group against Racism, Anti-Semitism, and Xenophobia and the Violence Protection Commission. 107 Integration in Liechtenstein
On Halloween, two men – one of whom a right-wing extremist known to the police – beat up two persons in Schaan who require treatment at the hospital.
Several incidents of graffiti are registered; one vandalism series can be attributed to opponents of the right-wing scene. Slogans such as “Nazis stay out” or “Nazis out” were sprayed on walls.
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ANNEX VI: Implementation of the conclusions drawn by the Government from the Final Report of the Independent Commission of Historians
The following compilation of implementation measures followed the report of the Working Group against Racism, Anti-Semitism, and Xenophobia of 31 January 2006 submitted to the Government pursuant to Government Resolution RA 2005/1141 of 24 May 2005 and the discussion in the Annual Report 2006 of the Working Group against Racism, Anti-Semitism, and Xenophobia.
Mandates (in Liechtenstein) Responsible authority 1 Expansion of the mandate of the Working Group for a Working Group National Action Plan against Racism (WG NAP) to include the against Racism, topic of anti-Semitism and to coordinate the following agenda Anti-Semitism, and items and report to the Government. Xenophobia
Renaming in “Working Group against Racism, Anti-Semitism, and Xenophobia” (abbreviated: WG R) (RA 2005/1818 of 17 August 2005)
Enlargement of the Working Group from six to nine members (RA 2005/2596 of 8 November 2005)
First campaign to combat anti-Semitism: financial support of the concert of the Philharmonia of the Nations in the first half of 2007, organized by the Liechtenstein Friends of Yad Vashem. 2 Recommendations to the Government on the future Office of Education commemoration of the Holocaust Memorial Day at schools (on 27 January of each year)
Report of the Director of the Office of Education, Guido Wolfinger, with recommendation on commemoration of the Holocaust Memorial Day at Liechtenstein schools254 and the scholastic implementation of the results of the conference of European ministers of education in Krakow (see 4): - Introduction on the significance of the topic and the reasons for commemorating the Memorial Day - Impulses for its commemoration at secondary schools (readings, lectures, films, visit of exhibitions on the topic, development of a school-internal exhibition, organization of a march of silence, etc.)
254 Already in 2003 the Government ordered that coming to terms with the Holocaust should be included in the curriculum of the secondary schools. The report of the Director of the Office of Education to the Permanent Government Secretary on 1 March 2005 describes in what way this order is to be implemented. The report also documents the Holocaust Memorial Day commemorated at secondary schools since 2002. 109 Integration in Liechtenstein
- Extensive media list on the topic.
Commemoration of the Memorial Day on 27 January 2006 for the first time: Lecture series by Dr. Gideon Greif, Holocaust researcher at the Israeli remembrance authority Yad Vashem, at the Liechtenstein Gymnasium. Inclusion of two students of the Liechtenstein Gymnasium in the design of the official Memorial Day.
Continuing education event for 10 to 15 teachers on “Holocaust in the Classroom”, organized by the Liechtenstein Friends of Yad Vashem from 21 April to 2 May 2006 at Yad Vashem, Jerusalem. 3 Introduction of the annual Holocaust Memorial Day in Government Liechtenstein Spokesperson’s Office With Government Resolutions RA 2005/2749 of 15 November 2005, the Government adopted the concept of the Government Spokesperson’s Office of 24 October 2005 with general considerations on the annual commemoration of the Memorial Day and concrete proposal for its first commemoration in 2006, including the requested budget of CHF 10,000 for public outreach.
The first Holocaust Memorial Day on 27 January 2006 in the form of a solemn hour of commemoration by the Government with speeches by Prime Minister Otmar Hasler and Dr. Michael Kohn, former member of the Advisory and Coordination Committee of the Independent Commission of Historians of Liechtenstein and the former president of the Swiss Federation of Jewish Communities, with the assistance of two students of the Gymnasium and Cantor Marcel Lang, attended by 150 people (including the President, Vice President, and Members of Parliament, the entire Government, invited guests, and representatives of the media).
Announcement of the Memorial Day in press releases published in the national newspapers, an article in the Swiss-Jewish publication “Tachles”, and messages sent to the members of the diplomatic corps and the National Administration, business associations, and representatives of the media.
Accompanying activities: - 12 January: Official opening of a one-month rotating exhibit in the Theater am Kirchplatz under the patronage of the Government on the Russian soldier Tolkatchev, witness of the liberation of the concentration camps Majdanik and Auschwitz. - 23 January: Lectures by Dr. Gideon Greif in the Theater am Kirchplatz and at the Liechtenstein Gymnasium (see 1) on the occasion of the abovementioned exhibit. .
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4 Support of anti-Semitism projects in the context of Office for Foreign International Humanitarian Cooperation and participation in Affairs, international organizations diplomatic missions
Submission of the second and third periodic reports under the UN Convention on the Elimination of All Forms of Racial Discrimination in 2005 (available on the official Liechtenstein website): Overview of Liechtenstein’s activities in the past four years in the fight against racism and the prevention of xenophobia.
Participation in the seminar on Holocaust instruction in the context of the Permanent Conference of European Ministers of Education (Council of Europe) in Krakow from 4 to 6 May 2005 by Minister of Education Hugo Quaderer, Director of the Office of Education Guido Wolfinger, and a student of the Liechtenstein Gymnasium. Key topics: Learning how to commemorate through cultural heritage; Holocaust Memorial Day; prevention of crimes against humanity at schools.
OSCE Conference on Anti-Semitism and Other Forms of Intolerance in Cordoba, 8 and 9 June 2005: Participation by Permanent Government Secretary Norbert Hemmerle and Jules Hoch, Head of the Criminal Police.
Participation of the diplomatic corps, to the extent possible, at relevant memorial days and events, as a sign of Liechtenstein solidarity with victims of the Holocaust.
Regular signing of the annual resolution of the General Assembly of the United Nations against denial of the Holocaust.
International Humanitarian Cooperation (IHC): No support of projects on this topic in 2005, since not a priority in the humanitarian and development policy agenda of Liechtenstein. Examination of the possibility of future support of such projects as part of the newly created “multilateral development cooperation”. 5 Incorporation of the results of the 2nd seminar in Krakow in Office of Education May 2005 in classroom instruction (instruction on remembering crimes against humanity, especially remembrance of the Holocaust)
See 2.
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6 New teaching material on the history of the 20th century, Office of Education taking particular account of the connections between Liechtenstein and Nazi Germany and the social, economic, and legal circumstances leading to these connections.
Appointment of a working group pursuant to Government Resolution RA 2005/2807 of 18 January 2006: Development of a concept for a workbook/textbook on the history of Liechtenstein from 1900 to the present, and a source volume on the history of Liechtenstein in the 20th and 21st centuries, by the end of 2006. Composition: historians (Dr. Rupert Quaderer, Dr. Peter Geiger, Donat Büchel), one representative each of continuing schools (Oberschule, Realschule, and Gymnasium). Spending cap of CHF 20,000 approved.
Approval of the concept in the Government meeting of 29 August 2006. Based on the presentation of the concept, new teaching materials will be developed to discuss the period following the textbook “Bridges to the Past”. The goal is to achieve a comprehensive overview of political, economic, social, cultural, and constitutional history from 1914 to the present. The first half of the 20th century will be discussed in appropriate depth. The objective of the teaching materials is to show what the situation of Liechtenstein and its population was at that time, in a scientifically solid, balanced, and objective manner, using a wide range of illustrative texts and images, and to show what historical events, developments, and processes contributed to the situation in the 1930’s and 1940’s and what consequences arose against the background of the occurrences in Liechtenstein and abroad.
On 21 June 2007, Parliament agreed to funding for the implementation of the textbook “Bridges to the Past” covering the 20th century. 7 Measures for the publication of a source volume on the history Ministry of of the 1930’s and 1940’s. Education
With Government Resolution RA 2006/1790-4584 of 29 August 2006, the course was set for the development of a source volume drawing from Liechtenstein archives on the 20th century with a focus on the 1930’s and 1940’s and the development of criteria for awarding research grants. Concepts for possible research work were concretized.
Upon submission of the concept by the National Archives, Parliament agreed to funding for the development of the envisaged source volume on 21 June 2007. This source volume will appear both as a book and as an Internet publication.
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8 Research projects pertaining to the Holocaust and anti- Ministry of Semitism Education
Identification of research topics to be investigated in depth, taking into special account the connections between Liechtenstein and Nazi Germany and the social, economic, and legal circumstances leading to these connections. Inquiries to institutions conducting scientific research in Liechtenstein on the topic of Liechtenstein history (e.g. Liechtenstein Institute, Historical Society, Historical Encyclopedia) concerning further research projects dealing with the Holocaust and/or Liechtenstein’s role in the Second World War. Application to the Government for funding and implementation of the projects for purposes of a research mandate on the basis of the responses to the inquiries. Insufficiently researched topics in the assessment of Arthur Brunhart, Vice President of the Independent Commission of Historians: areas of social history, cultural history, everyday history, history of mentality, and oral history. On 21 June 2007, Parliament approved the resources for research projects conducted by the Liechtenstein Institute (jurisprudence under the influence of German and Swiss judges, 1938 to 1945) and by the Liechtenstein Historical Society (naturalizations – naturalization practice in Liechtenstein, including integration, from the 19th to the 21st century).
Projects (abroad) Responsible 9 One-time contribution to the Yad Vashem remembrance authority Former Advisory in Jerusalem in the amount of CHF 100,000 and Coordination Committee of the Commission of Historians 10 Contribution to the Jerusalem Foundation for the construction of Former Advisory an autonomous unit at the Center for Jewish-Arab Education in and Coordination Jerusalem in the amount of USD 600,000 Committee of the Commission of Historians
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ANNEX VII: Naturalization votes
Example of clearly rejected naturalization applications in Balzers, 27 June 2005.
Liechtensteiner Vaterland, 28 June 2005
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In naturalization votes carried out in several municipalities on 5 November 2006, the naturalization application of an athlete was approved, while the application of a Turkish family was rejected. The open letter written by these applicants prior to the vote did not prevent the negative decision by the municipal voters.
Liechtensteiner Vaterland, 31 October 2006
Liechtensteiner Vaterland, 3 November 2006
Liechtensteiner Volksblatt, 6 November 2006
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ANNEX VIII: Compilation of the existing statistical gaps
The following compilation does not claim to be complete. Some data listed as required has already been gathered internally by Offices of the National Administration but not published, or has appeared in the official statistics but not disaggregated sufficiently by citizenship.
Which data can and should actually reasonably be gathered by which authorities and disaggregated in what way remains to be discussed. The following compilation provides a basis for such discussion.
Topic Required data Criteria Responsible authority Overview data on the foreign Number of immigrating/emigrating - Citizenship Immigration and Passport Office population persons - Sex - Age group - Reason Asylum Number of asylum applications - Citizenship of applicants Immigration and Passport Office - Consideration/non- consideration of application and grounds - Decision (expulsion, granting of asylum, provisional admission, granting of protection)
Population of asylum seekers, - Citizenship Immigration and Passport Office refugees, persons in need of - Sex protection, and provisionally - Age group admitted persons
Asylum seekers, refugees, persons - Citizenship Immigration and Passport Office, in need of protection, and - German skills Liechtenstein Refugee Assistance
116 Integration in Liechtenstein provisionally admitted persons - Highest level of education completed - Health / sicknesses - Work according to line of business
Number of departures - Type of departures Immigration and Passport Office - Citizenship
Number of children of asylum - Citizenship Immigration and Passport Office, seekers/provisionally admitted - Sex Office of Education persons/persons in need of - Secondary school type protection attending school and GSL classes
Number/share of young asylum - Citizenship Immigration and Passport Office, applicants/provisionally admitted - Sex Office of Vocational Training and persons/persons in need of Counseling protection who have an apprenticeship/job
Number of applications for family - Citizenship of the Immigration and Passport Office reunification applicant/person to be brought in - Approval/rejection and justification - Sex of the applicant - Sex of the person to be brought in
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Discrimination and xenophobia Number of racist and in particular - Nature of incident Municipalities/Municipal Police, right-wing extremist incidents - Nature of intervention Violence Protection Commission
Number of reports of discrimination - Citizenship of affected Office of Equal Opportunity, persons Association for Intercultural - Nature of incident Education, Liechtenstein Employees Association, Information and Contact Center for Women, Day Care Association, Parent-Child Forum, Association for the Protection of Abused Women and Their Children
Complaints of racial discrimination - Nature of offense Administrative Court in administrative complaint - Judgment proceedings (conviction/acquittal) - Penalty
Number of cases/judgments relating - Reports to National Police National Police to racial discrimination, especially - Charges filed with Office National Police number of cases under § 283 (racial of the Public Prosecutor discrimination) and § 321 - Proceedings initiated Office of the Public Prosecutor (genocide) of the Criminal Code - Judgment Court of Justice (conviction/acquittal) - Penalty Court of Justice - Existence and amount of Court of Justice restitution - Nature of offense Court of Justice
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Schooling Number of foreign children - Citizenship Day care centers attending day care facilities - Sex
Number of foreign students in - Citizenship Office of Education, Office of Liechtenstein schools - School level/type Economic Affairs (Education - Place of birth Statistics) - Native language - Begin of education abroad
Number of students attending GSL - Citizenship Office of Education, Office of courses - Native language Economic Affairs (Education - School level Statistics)
Number of foreign students in - Citizenship Office of Education, Office of remedial classes - Sex Economic Affairs (Education - Native language Statistics) - Subject
Number of students in special - Citizenship Therapeutic-Educational Center schooling - Sex Schaan
Highest level of education - Citizenship Office of Economic Affairs completed - Sex (Census) - Age group Vocational training Age upon leaving the education - Citizenship Office of Education, Office of system and entering the workforce - Sex Vocational Training and Counseling
Number of young people attending - Citizenship Office of Education, Office of - Pre-apprenticeship year - Sex Vocational Training and - Integration year Counseling - 10th school year
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Number of young people without an - Citizenship Office of Vocational Training and apprenticeship - Sex Counseling - School type and grade point average Office of Vocational Training and Number of cancelled apprenticeship - Citizenship Counseling contracts - Sex - Reason for cancellation Labor market Number of unemployed - Citizenship Office of Economic Affairs - Place of birth (Unemployment Statistics) - Sex - Age group - Duration of unemployment - Line of business - Professional qualifications
Number of cases in which loss of - Citizenship Immigration and Passport Office employment leads to loss of residence permit
Employment rate - Citizenship Office of Economic Affairs - Sex (Census) - Age group - Number and age of children
Socio-professional categories - Citizenship Office of Economic Affairs - Sex (Census) - Age group - Line of business - Professional qualifications
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- Number of years of education in Liechtenstein
Line of business - Citizenship Office of Economic Affairs - Sex (Population Statistics) - Age group
Wages/income - Citizenship Office of Economic Affairs (Wage - Sex Statistics) - Age group - Residence status - Line of business - Professional qualifications - Number of years of education in Liechtenstein Social security Poverty risk: Number of poor - Citizenship Office of Social Affairs, Office of persons (threshold for poverty?) - Sex Economic Affairs (Census) - Age group
Working poor - Citizenship Office of Social Affairs - Sex - Age group - Line of business
Number of social welfare recipients - Citizenship Office of Social Affairs - Sex - Age group
Number of AHV pensioners - Citizenship AHV/IV/FAK - Former line of business - Residence
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Number of IV recipients - Citizenship AHV/IV/FAK - Sex - Age group - (Former) line of business - Residence - Reason for disability claim Health Number of days with temporary - Citizenship Office of Economic Affairs inability to work - Sex (Census) - Age group - Line of business
Mental well-being - Citizenship Office of Economic Affairs - Sex (Census) - Age group - Line of business
Number of doctor’s visits - Citizenship Medical Association - Sex - Age group
Utilization of preventive check-ups - Citizenship Medical Association - Sex - Age group
Diagnosed sicknesses - Nature of sickness Medical Association - Citizenship - Sex - Age group
Narcotics, alcohol, tobacco abuse - Number of consumers Office of Social Affairs - Citizenship - Sex
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- Age - Type of narcotic - Consumption frequency Language Extent of knowledge of Standard - Citizenship Office of Economic Affairs German and Liechtenstein dialect - Original citizenship if (Census) naturalized - Native language - First/second immigrant generation Housing Average living space per person - Citizenship Housing Office, Office of Social Affairs
Average rent per square meter - Citizenship Housing Office, Office of Social Affairs Number of persons receiving rental allowances - Citizenship Housing Office Number of persons receiving home construction subsidies - Citizenship Housing Office Participation in social life and the Number of public employees - Citizenship Office of Human and political process, naturalization - Sex Administrative Resources
Representation in political bodies or - Citizenship Municipalities consultative and participatory bodies - Sex
Reasons for non-acquisition of - Citizenship Separate survey Liechtenstein citizenship where - Sex option of facilitated naturalization is - Age group available - Reasons
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Religion and culture Number of persons with religious - Religious affiliation Office of Economic Affairs affiliation - Citizenship (Census)
Number of students in different - Primary school: Catholic, Office of Education types of religious instruction Protestant, Muslim, no religious instruction Crime and security Number of charges filed for offenses - Citizenship National Police - Age group - Sex - Residence - Level of education - Social stratum
Foreigners as victims of violence - Citizenship National Police, Victim Assistance - Age group Office, Office of Social Affairs - Sex
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ANNEX IX: Tables
For 4.1 Share of foreigners b) Share of foreigners Number and share of foreigners in Liechtenstein, 1880 to 2006 Year Inhabitants of which of which Share of Liechtenstein citizens foreigners foreigners 1880 8,095 7,389 706 8.7% 1891 7,864 7,003 861 10.9% 1901 7,531 6,419 1,112 14.8% 1911 8,693 7,343 1,350 15.5% 1921 8,841 7,845 996 11.3% 1930 9,948 8,257 1,691 17.0% 1941 11,094 9,309 1,785 16.1% 1950 13,757 11,006 2,751 20.0% 1960 16,628 12,494 4,134 24.9% 1970 21,350 14,304 7,046 33.0% 1980 25,215 15,913 9,302 36.9% 1990 29,032 18,123 10,909 37.6% 2000 32,863 21,543 11,320 34.4% 2001 33,525 22,030 11,495 34.3% 2002 33,863 22,297 11,566 34.2% 2003 34,294 22,508 11,786 34.4% 2004 34,600 22,732 11,868 34.3% 2005 34,905 22,988 11,917 34.1% 2006 35,174 23,254 11,920 33.9% Source: Office of Economic Affairs: Online at http://www.llv.li/amtsstellen/llv-avw-statistik.htm [as of 16 October 2006] and Office of Economic Affairs, Statistics Division (2007a): 3 et seq.
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For 4.2 Demographic characteristics
Classification into country groups for statistical evaluation, following Marxer Country group Resident population, end of 2003 Comments Liechtenstein 22,508 Liechtenstein citizenship Western/Northern Europe/North 7,143 mainly Switzerland, Austria, America Germany Southern Europe 2,260 mainly Italy, Spain, Portugal, Greece Eastern/Southeastern Europe 1,219 mainly Balkans, also former Eastern Bloc including Russia Turkey/Middle East/North Africa 904 Almost exclusively Turkey Sub-Saharan Africa/Latin 260 Few cases, distributed among America/Asia/Oceania approx. 40 countries around the world. Largest group: People’s Republic of China (43, mainly refugees from Tibet) Total 34,294 Source: Marxer (2005): 43 et seq.
Births according to citizenship of the mother (average 2001-2005) and residents as of 30 June 2006 Citizenship of the Births Residents Birth rate mother Liechtenstein 186 23,106 0.8% Switzerland 44 3,593 1.2% EU/EEA countries 92 5,876 1.6% Third countries 58 2,435 2.4% Total 380 35,010 1.1%
Source: Office of Economic Affairs, Statistics Division (2006a): 16. Office of Economic Affairs, Statistics Division (2007b): 5, 44. Own calculation.
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For 4.3 Length and status of stay
Permanent and temporary residents by country of origin as of 30 June 2006 (only countries with 50 residents or more) Origin Permanent residents Temporary residents Total Switzerland 75.5% 24.5% 100.0% EEA countries 54.6% 45.4% 100.0% (incl. countries < 50 persons) Greece 91.3% 10.0% 100.0% Austria 66.7% 30.4% 100.0% Italy 54.5% 44.7% 100.0% Germany 49.3% 50.6% 100.0% Portugal 47.9% 63.2% 100.0% Spain 25.8% 73.2% 100.0% Third countries 61.4% 38.6% 100.0% (incl. countries < 50 persons) Turkey 91.5% 8.5% 100.0% Croatia 76.6% 26.1% 100.0% Macedonia 69.2% 44.2% 100.0% Bosnia and Herzegovina 47.3% 54.2% 100.0% Serbia and Montenegro 42.4% 63.7% 100.0% Others 27.4% 72.9% 100.0% Total 62.3% 37.7% 100.0% Source: Office of Economic Affairs, Statistics Division (2007b): 20 et seq. Own calculation.
Residence status according to country group and sex as of 30 June 2006 (row percentage) Status Male Female Total Liechtenstein 48.4% 51.6% 100.0% Permanent Total 50.9% 50.1% 100.0% residents Switzerland 50.6% 49.3% 100.0% EU/EEA countries 50.0% 50.4% 100.0% Third countries 49.6% 50.6% 100.0% Temporary Total 52.5% 47.5% 100.0% residents Switzerland 53.2% 46.8% 100.0% EU/EEA countries 54.5% 45.5% 100.0% Third countries 45.4% 54.6% 100.0% Total 49.3% 50.7% 100.0% Source: Office of Economic Affairs, Statistics Division (2007b): 10. Own calculation.
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For 5.2 Asylum seekers and provisionally admitted persons a) Number and origin Asylum applications per year by country, 2001 to 2006 Country 2001 2002 2003 2004 2005 2006 Total Afghanistan - - - - 1 - 1 Albania - 1 - - - - 1 Algeria - - - 1 - - 1 Argentina 1 - - - - - 1 Armenia - - 1 - 1 - 2 Austria - 1 - - - - 1 Azerbaijan 3 - 2 - - 5 Belarus - 2 4 12 4 4 26 Bosnia and Herzegovina 11 1 4 1 3 - 20 Bulgaria - - 4 - - 1 5 Cameroon - 1 - 2 - - 3 China - - - 2 - - 2 Croatia - 1 - - - - 1 Czech Republic - - 1 - - - 1 Ethiopia - 1 - - 1 - 2 France 1 - - - - - 1 Georgia - 1 1 - - - 2 Germany 2 1 - 3 1 7 Iran - - 1 3 - 1 5 Iraq - - 1 - - 1 2 Israel - - - 4 1 - 5 Kazakhstan - 2 4 1 4 6 17 Kenya - - - - - 1 1 Kyrgyzstan - - - - 1 4 5 Latvia - 1 - - - - 1 Macedonia 47 44 26 9 2 1 129 Moldova - - - 1 - - 1 Mongolia - 2 1 2 4 1 10 Morocco - - - - - 1 1 Netherlands - - - - 2 - 2 Nigeria - - - - 1 - 1 Poland - - 1 - - - 1 Romania - 2 - - - - 2 Russia - 5 17 9 8 10 49 Saudi Arabia - - 1 - - - 1 Serbia and Montenegro 47 20 23 14 4 7 115 Slovakia - - 1 - - - 1 Somalia - - - - 11 7 18 stateless - - - - - 1 1 Sweden - - - 1 - - 1 Switzerland - 1 - 1 - - 2 Tajikistan - - 1 - - - 1 Turkey - - - - 1 - 1 Ukraine - 9 8 8 3 - 28 Yemen - - - - 1 - 1 Total 112 96 102 74 53 47 484 Source: Immigration and Passport Office (2007b). Population of asylum seekers by country and year, 2001 to 2006 128 Integration in Liechtenstein
Country 2001 2002 2003 2004 2005 2006 Algeria 1 1 1 1 1 1 Argentina 1 1 1 - - - Armenia 8 8 8 8 8 2 Belarus - 1 1 2 - - Bosnia and Herzegovina 9 6 6 2 4 3 China - - - 1 1 1 France 1 - - - - - Georgia - 1 - - - - Iran - - - 2 2 2 Israel - - - 4 1 - Kazakhstan - 1 5 - - - Macedonia 41 39 9 4 4 - Mongolia - 1 - - - - Romania - 1 - - - - Russia - 2 12 - - 3 Saudi Arabia - - 1 - - - Serbia and Montenegro 126 73 45 43 34 4 Somalia - - - - 5 9 Tajikistan - - 1 - - - Ukraine - 2 2 1 - - Total 187 137 92 68 60 25 Source: Immigration and Passport Office (2007b).
Departures by type and year, sorted by frequency, 2001 to 2006 Type 2001 2002 2003 2004 2005 2006 Total controlled 29 93 54 18 13 12 219 voluntary absconded 16 32 42 27 14 19 150 airport delivery 4 20 34 14 4 6 82 readmissions - - - 30 27 8 65 in writing 2 1 1 6 2 12 accompanied 2 4 1 - - 7 Total 53 146 135 96 58 47 535 Source: Immigration and Passport Office (2007b). Own illustration.
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For 5.3 Admission on humanitarian grounds, persons in need of protection, and refugees
a) Admission on humanitarian grounds Admissions on humanitarian grounds and family reunifications, 2001 to 2006 Country 2001 2002 2003 2004 2005 2006 Total Armenia - - - - - 6 6 Bosnia and Herzegovina 46 1 3 1 - 1 52 Serbia and Montenegro 1 - 13 2 - 31 47 China (Tibet) 2 4 5 4 1 - 16 Total 49 5 21 7 1 38 121 Source: Immigration and Passport Office (2007b).
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For 7.1 Data on foreign students and their integration
Percentage of foreign students by school year, 1995/96 - 2006/07 School year Percentage of foreign students 1995/96 42.07 % 1996/97 42.88 % 1997/98 37.61 % 1998/99 34.73 % 1999/2000 33.47 % 2000/01 32.14 % 2001/02 32.73 % 2002/03 31.77 %255 2003/04 36.81 % 2004/05 31.8% 2005/06 28.2% 2006/07 21.9%
Source: Eurydice European Unit (2004): 4 through 2003/04, then Office of Economic Affairs, Statistics Division (2005c and 2006f). Own calculation.
Origin of students by school type, 2004 (column percentage) Origin Primary Oberschule Realschule Gymnasium Total school Liechtenstein 71.0% 52.0 74.1% 74.6% 70.2% Western/Northern 11.8% 10.6% 14.3% 21.2% 13.9% Europe/North America Southern Europe 7.4% 13.8% 6.1% 1.6% 6.8% Eastern/Southeastern Europe 4.0% 12.4% 3.5% 2.2% 4.5% Turkey/Middle East/North 5.3% 10.1% 1.3% 0.4% 4.2% Africa Sub-Saharan Africa/Latin 0.5% 1.1% 0.7% 0.0% 0.5% America/Asia/Oceania Total 100.0% 100.0% 100.0% 100.0% 100.0% Source: Office of Education: Separate survey 2004. Grouping and calculation by Marxer (2005): 44.
255 The drop in the number of foreign students between 1997 and 2003 is due to two legislative revisions, namely the legal equality of women with respect to passing on citizenship to their children in 1996/97 (LGBl. 1996 No. 124, corrected by the judgment of the Constitutional Court of 24 April 1997) and the introduction of facilitated naturalization for long-time residents in 2000 (LGBl. 2000 No. 141). 131 Integration in Liechtenstein
Origin of students by school type, 2004 (row percentage) Origin Oberschule Realschule Gymnasium Total Liechtenstein 17.5% 39.6% 42.9% 100.0% Western/ Northern 15.2% 32.7% 52.1% 100.0% Europe/North America Southern Europe 52.6% 36.8% 10.5% 100.0% Eastern/Southeastern Europe 57.4% 3.5% 17.0% 100.0% Turkey/Middle East/North 78.6% 25.5% 5.4% 100.0% Africa Sub-Saharan Africa/Latin 50.0% 0.0% 100.0% America/Asia/Oceania 50.0% Total 23.2% 37.0% 39.8% 100.0% Source: Office of Education: Separate survey 2004. Grouping and calculation by Marxer (2005): 45.
First languages of multilingual children and adolescents attending GSL instruction, 2006/2007 (number/ordered by total) Languages KG and PS OS RS LG Vol. IC Total PK 10th SY Turkish 49 129 31 4 2 - - 215 Italian 18 56 14 5 - - - 93 Portuguese 23 51 6 3 - - 2 85 Spanish 12 25 5 4 - 1 8 55 Albanian 14 18 12 2 - 2 1 49 Serbian/Croatian 13 26 2 3 - 1 - 45 Bilingual 19 22 - - - - - 41 Bosnian 10 20 7 - - - - 37 English 4 3 - 2 - - - 9 Thai - 4 1 2 - - 2 9 Tibetan - 1 3 3 - - - 7 French - 4 - 1 1 - - 6 Filipino 1 2 1 - - - - 4 Macedonian 2 1 - - - - - 3 Slovenian - 3 - - - - - 3 Vietnamese 2 1 - - - - - 3 Greek - 1 1 - - - - 2 Dutch - - - - 2 - - 2 Romanian 2 ------2 Russian - 1 - 1 - - - 2 Ukrainian 1 - - - - - 1 2 Aramaic - 1 - - - - - 1 Latvian - 1 - - - - - 1 Uyghur - - - - 1 - - 1 Total 170 370 83 30 6 4 14 677 Source: Office of Education (2007a). Key: KG=Kindergarten; PK=Pre-kindergarten; PS=Primary school; OS=Oberschule; RS=Realschule; LG=Liechtenstein Gymnasium; Vol.10th SY=Voluntary 10th school year; IC=Intensive course.
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Nationalities of multilingual children and adolescents attending GSL instruction, 2006/2007 (number/ordered by total) Nationalities KG and PS OS RS IC Vol. 10th LG Total PK SY Turkey 46 126 29 4 - - 2 207 Italy 17 63 14 5 - - - 99 Portugal 26 47 5 2 1 - - 81 Liechtenstein 19 24 2 1 - - - 46 Kosovo (UNMIK) 13 16 10 2 1 2 - 44 Bosnia&Herzegovina 9 22 7 - - - - 38 Spain 9 16 4 4 - - - 33 Serbia&Montenegro 6 16 1 2 - - - 25 Croatia 5 4 1 1 - 1 - 12 Austria 4 6 - 1 - - - 11 Thailand 1 4 1 2 2 - - 10 Macedonia 4 3 2 - - - - 9 Dominican Republic - 1 1 - 5 1 - 8 Tibet - 1 3 3 - - - 7 France 1 3 - 1 - - 1 6 USA 2 3 - - - - - 5 Germany 2 2 - - - - - 4 Switzerland 1 2 - 1 - - - 4 Slovenia 2 2 - - - - - 4 Brazil 1 - 1 - 1 - - 3 Canada - 3 - - - - - 3 Russia - 2 - 1 - - - 3 Greece - 1 1 - - - - 2 Colombia - 1 - - 1 - - 2 Netherlands ------2 2 Peru - - - - 2 - - 2 Philippines - 1 1 - - - - 2 China ------1 1 Ireland 1 ------1 Latvia - 1 - - - - - 1 Ukraine - - - - 1 - - 1 Vietnam 1 ------1 Total 170 370 83 30 14 4 6 677 Source: Office of Education (2007a). Key: KG=Kindergarten; PK=Pre-kindergarten; PS=Primary school; OS=Oberschule; RS=Realschule; LG=Liechtenstein Gymnasium; Vol.10th SY=Voluntary 10th school year; IC=Intensive course.
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For 9.1 Data on the foreign population on the labor market
Workers according to residence and home country, as of 31 December 2005 Residence and home country Number of workers Share of all workers Residence in Total 15,667 51.9% Liechtenstein FL citizens 9,772 32.4% Foreign citizens 5,895 19.5% Residence Total 14,503 48.1% abroad FL citizens 363 1.2% Foreign citizens 14,140 46.9% Total 30,170 100.0% Source: Office of Economic Affairs, Statistics Division (2006b): 15. Own calculation.
Permanent population working in Liechtenstein according to economic sector and residence status, as of 30 June 2006 Economic sector Liechtenstein citizens Permanent res. Temporary res. Total Sector 1 (agriculture) 2.3% 0.8% 1.7% 1.9% Sector 2 (industry) 28.5% 41.2% 48.5% 35.5% Sector 3 (services) 69.2% 58.0% 49.8% 62.6% Total 100.0% 100.0% 100.0% 100.0% Source: Office of Economic Affairs, Statistics Division (2007b): 31. Own calculation.
Permanent population working in Liechtenstein according to service line of business, as of 30 June 2006 (row percentage) Service line of business Liechtenstein citizens Permanent res. Temporary res. Total Retail, repair 63.6% 26.6% 9.8% 100.0% Restaurant, hotel 34.1% 27.5% 38.4% 100.0% Transport, 73.9% 19.0% 7.1% 100.0% communication Banking, insurance 78.4% 14.1% 7.5% 100.0% Real estate, IT, business 62.2% 22.9% 14.9% 100.0% services (w/o legal, fiduciary) Legal and fiduciary 71.5% 20.5% 8.0% 100.0% services Public administration 87.1% 9.7% 3.2% 100.0% Education 73.3% 18.1% 8.6% 100.0% Health and social 66.8% 21.1% 12.1% 100.0% services Provision of services 63.2% 21.7% 15.1% 100.0% Private households 33.3% 40.6% 26.1% 100.0% Total 63.6% 22.0% 14.4% 100.0% Source: Office of Economic Affairs, Statistics Division (2007b): 31. Own calculation.
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Highest level of education completed, 2000 Census Highest education Resident population Liechtenstein citizens Foreign citizens No education completed* 4.6% 4.0% 5.6% Compulsory schooling 24.6% 24.0% 25.4% Diplommittelschule or 2.2% 2.2% 2.2% vocational preparatory school Apprenticeship, full-time 37.0% 40.2% 31.9% vocational school Maturität (academic 3.7% 3.1% 4.7% middle school diploma) Teachers college 2.5% 3.0% 1.7% Higher professional and 6.0% 6.3% 5.7% vocational education Higher professional 2.3% 2.3% 2.3% school University of applied 1.3% 1.0% 1.7% sciences University 5.7% 4.4% 7.8% N/A 10.1% 9.5% 11.0% Total 100.0% 100.0% 100.0% Source: Office of Economic Affairs, Statistics Division (2005c): 146. Own calculation. *including students who were still attending compulsory schooling at the time of the census.
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For 10.1 Data on the situation of the foreign population with respect to social security a) Poverty Working poor according to origin, 2001 and 2002 Origin 2001 2002 Liechtenstein 16 18 Turkey 14 15 Bosnia 6 5 Yugoslavia 6 3 Portugal 4 4 Austria 4 3 Italy 3 4 Switzerland 2 3 Germany 1 - France 1 1 Vietnam 1 1 Croatia 1 3 Total number of working poor 59 60 Source: Office of Social Affairs/Office of Economic Affairs/Immigration and Passport Office (2005): 6.
d) Disability
Disability insurance recipients according to country group (December 2004) Country group Disabled Workers incl. Share Resident Share cross-border disabled population disabled commuters, end of 2003 end of 2003 Liechtenstein 649 9,974 6.5 % 22,508 2.9 % Western/Northern 972 15,731 6.2 % 7,143 13.6 % Europe/North America Southern Europe 218 1,822 12.0 % 2,260 9.6 % Eastern/Southeastern 130 969 13.4 % 1,219 10.7 % Europe Turkey/Middle 117 342 34.2 % 904 12.9 % East/North Africa Sub-Saharan 5 217 (2.3 %) 260 (1.9 %) Africa/Latin America/Asia/Oceania Total 2,091 29,055 7.2 % 34,294 6.1 % Source: AHV/IV/FAK: Separate excerpt December 2004. Office of Economic Affairs, Statistics Division (2004a und 2004b). Calculation by Marxer (2005): 49. In parentheses: no interpretation due to low number of cases.
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For 14.1 Situation with respect to social and political participation, naturalization c) Naturalization
Naturalizations of persons living in Liechtenstein, by type, 1970 to 2006 Type of naturalization Number Percentage Naturalization - Former Liechtenstein citizens 445 7.2% - Women, by marriage 822 13.3% - Voting and conferral 625 10.1% Facilitated naturalization - Foreign wives of Liechtenstein men 289 4.7% - Foreign husbands of
Liechtenstein women 316 5.1% - Long-time residents 921 14.9% - Foreign children of Liechtenstein mothers* 1,853 29.9% Conferral of citizenship pursuant to Constitutional Court judgment of 24 797 12.9% April 1997** Adoption 47 0.8% Legitimation 84 1.4% Total 6,199 100%
Source: Office of Economic Affairs, Statistics Division (2007e): 46. Own calculation. * Since 1996, 859 children living abroad of Liechtenstein mothers have been naturalized. ** Since 1996, Liechtenstein citizenship has been granted to 4,241 persons living abroad pursuant to the Constitutional Court judgment of 24 April 1997.
Naturalization by voting and conferral and naturalization of long-time residents, 1970 to 2006 Period Voting and conferral Naturalization of long- Total time residents 1970-1974 122 - 122 1975-1979 80 - 80 1980-1984 181 - 181 1985-1989 93 - 93 1990-1994 45 - 45 1995-1999 46 - 46 2000-2004 46 707 753 2005-2006 12 214 226 Total 625 596 1546 Source: Office of Economic Affairs, Statistics Division (2007e): 46. Own calculation.
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Former citizenship of naturalized persons, 1988 to 2006 Former citizenship Naturalization through voting Naturalization of long-time and conferral residents Switzerland 39 266 Austria 48 257 Germany 21 140 Turkey 5 111 Italy 4 56 Bosnia and Herzegovina 4 21 Yugoslavia 5 14 Slovenia - 9 Spain 2 8 France - 4 Croatia 3 4 Serbia and Montenegro - 3 Greece - 2 Indonesia - 2 Hungary - 2 Denmark - 1 United Kingdom - 1 Japan - 1 Norway - 1 Sweden - 1 Venezuela - 1 Russia 4 - Czechoslovakia 2 - USA 1 - Laos 1 - stateless 2 - Total 170 921 Source: Office of Economic Affairs, Statistics Division (2007e): 16, 26. Own calculation.
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For 15.1 Data on the religious affiliation of the foreign population
Shares and changes of religious affiliation in Liechtenstein, 1990-2000, absolute figures and percentages, comparison of Liechtenstein and foreign citizens Religious affiliation 2000 1990 Change Persons Share Persons Share Persons in % Total 21,115 100.0% 18,123 100.0% 2,992 16.5% Roman Catholic 19,179 90.8% 17,307 95.5% 1,872 10.8% Protestant 678 3.2% 533 2.9% 145 27.2% Orthodox 34 0.2% 10 0.1% 24 240.0% Christian Other Christian 10 0.0% 1 0.0% 9 900.0% Jewish 12 0.1% 4 0.0% 8 200.0% Liechtenstein Muslim 66 0.3% 9 0.0% 57 633.3% citizens Other 19 0.1% 15 0.1% 4 26.7% No affiliation 358 1.7% 114 0.6% 244 214.0% N/A 759 3.6% 130 0.7% 629 483.8% Total 12,192 100.0% 10,909 100.0% 1,283 11.8% Roman Catholic 6,943 56.9% 7,331 67.2% -388 -5.3% Protestant 2,082 17.1% 2,201 20.2% -119 -5.4% Orthodox 331 2.7% 196 1.8% 135 68.9% Christian Other Christian 28 0.2% 7 0.1% 21 300.0% Jewish 14 0.1% 10 0.1% 4 40.0% Foreign Muslim 1,527 12.5% 680 6.2% 847 124.6% citizens Other 68 0.6% 24 0.2% 44 183.3% No affiliation 583 4.8% 324 3.0% 259 79.9% N/A 616 5.1% 136 1.2% 480 352.9% Source: Office of Economic Affairs, Statistics Division (2006d): 14. Own calculation.
139 Integration in Liechtenstein
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“Tagesstrukturen und Tagesschulen”, Press and Information Office, Liechtensteiner Vaterland/Liechtensteiner Volksblatt, 19 May 2006.
“Gegen menschenverachtende Ideologien: Unterschriftensammlung zur Verschärfung der Rassismus-Strafnorm”, St. Galler Tagblatt, 25 August 2006.
“Unterstützung für die Gruppe Colorida”, Press and Information Office, Liechtensteiner Vaterland/Liechtensteiner Volksblatt, 21 December 2006.
“Respect bitte!”, Press and Information Office, Liechtensteiner Vaterland/Liechtensteiner Volksblatt, 7 February 2007.
“Auftaktveranstaltung zum Europäischen Jahr der Chancengleichheit für alle”, Press and Information Office, Liechtensteiner Vaterland/Liechtensteiner Volksblatt, 12 February 2007.
“Gleiche Rechte für alle Religionen”, Liechtensteiner Vaterland, 20 February 2007.
“JUMP gibt stellenlosen Jugendlichen neue Hoffnung”, Press and Information Office, Liechtensteiner Vaterland/Liechtensteiner Volksblatt, 26 March 2007.
“Islamischer Religionsunterricht”, Press and Information Office, Liechtensteiner Vaterland/Liechtensteiner Volksblatt, 28 March 2007.
“Fataler Irrtum”, Liechtensteiner Volksblatt, 18 May 2007.
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“Fortsetzung von SPES I: Auftrag an die Schulen”, Press and Information Office, Liechtensteiner Vaterland/Liechtensteiner Volksblatt, 22 May 2007.
“Brücken zur Vergangenheit”, Liechtensteiner Volksblatt, 22 June 2007.
“Hilfe für fremdsprachige Patienten”, Liechtensteiner Vaterland, 17 July 2007.
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Gstöhl, Rainer (2005): Report on the European Conference on “Data to Promote Equality”, 9/10 December 2004 in Helsinki. Schaan.
Immigration and Passport Office (2007a): Permits granted in 2006. Internal survey for the Status Report. Vaduz.
Immigration and Passport Office (2007c): Asylum system. Internal survey for the Status Report. Vaduz.
Kubik-Risch, Bernadette (2006): National strategy and priorities for the European Year of Equal Opportunities for All (2007). Vaduz.
Längle, Alicia (2006a): Cases under the anti-racism penal provision 2000-2006. Vaduz.
Längle, Alicia (2006b): Investigations against members of a religious Islamic association in Liechtenstein, according to information provided by Jules Hoch, Head of the Criminal Police, 5 April 2006. Vaduz.
Längle, Alicia (2006c): Tightening of the legal provisions against racism and right-wing extremism, according to telephone conversation with Jules Hoch, Head of the Criminal Police, 5 April 2006. Vaduz.
Längle, Alicia/Malin, Marion (2006): Minutes of the 23rd meeting of the WG R, 6 September 2006. Vaduz.
Näscher, Klaus (2003): Migration and Education. Speech at the panel discussion on “Migration – Integration”, 19.9.2003. Vaduz.
Oberdorfer, Harald: Explanations on the anti-racism penal provision. Vaduz.
Office for Foreign Affairs (2006): OSCE Human Dimension Implementation Meeting, Warsaw, October 2006. Information in response to the request by Human Rights First. Vaduz.
Office for Foreign Affairs (2007): Memo concerning the recommendations of the Committee on the Elimination of Racial Discrimination pursuant to Liechtenstein’s 2nd and 3rd periodic reports. Vaduz.
Office of Economic Affairs, Statistics Division (2007c): Students at public schools in Liechtenstein – provisional figures. Vaduz.
146 Integration in Liechtenstein
Office of Education (2007a): German as a Second Language Instruction. Internal survey for the Status Report. Vaduz.
Office of Social Affairs (2003c): Analysis of the housing situation of social welfare recipients 2003. Schaan.
Office of Social Affairs (2004): Compilation of the projects of the Office of Social Affairs concerning migration, integration, conflict resolution, and violence, from the accountability reports (1996-2003). Schaan.
Office of Vocational Training and Counseling (2007): Number of apprentices in Liechtenstein in % according to nationality. As of 31 December 2006. Internal survey for the Status Report. Schaan.
Violence Protection Commission (2006): Annual Report 2005 of the Violence Protection Commission of the Government. Vaduz.
Walch, Hans Peter (2004): File note of the Immigration and Passport Offices on the occasion of the visit by Mr. Alvaro Gil-Robles, Commissioner for Human Rights of the Council of Europe. Vaduz.
Working Group against Racism, Anti-Semitism, and Xenophobia (2005a): Minutes of the round table on health. Vaduz.
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