CALL for SOLIDARITY Asylum, Migration, and Integration Policies in Europe

QueriesAutumn 2014 / Issue 5 / €5.90 THE EUROPEAN PROGRESSIVE MAGAZINE

CALL FOR SOLIDARITY Asylum, migration, and integration policies in Europe

MY EUROPE Khalifa Sall, Mayor of Dakar

DISCOVERY The Anselm Kiefer retrospective

OPINION Benjamin Stora on immigration About Queries Isaac Newton’s famous book “Opticks” concludes with a set of “Queries.” These “Queries” are not questions in the ordinary sense, but rather rhetorical questions intended to stimulate thinking. This was Newton’s mode of explaining “by query.”

Made with the financial support of the European Parliament

No 5 / Autumn 2014 / CPPAP 0416 U 92285 – ISSN 2032-9113 – Queries is the scientific magazine of the Foundation for European Progressive Studies. The Foundation for European Progressive Studies (FEPS) is the first progressive political foundation established at the European level. Created in 2007 and co-financed by the European Parliament, it aims at establishing an intellectual crossroad between social democracy and the European project Publisher: FEPS – Foundation for European Progressive Studies. First published in Belgium 2012/2013 Magazine Editor of Queries: Dr. Ernst Stetter (Secretary General – FEPS) Editor-in-Chief: Alain Bloëdt Associate Editor-in-Chief: Olivier Breton Editorial Committee: Maari Põim, Ania Skrzypek, Giovanni Cozzi, Charlotte Billingham, David Kitching Editorial Consultant: Zakeera Suffee Journalists: Mariam Belkhir, Lorenzo Consoli, Sam Davies, Jacques Docquiert, Nicolas Gros-Verheyde, Trevor Huggins, Tony Lawrence, Loreline Merelle, Griselda Pastor, Moritz Pfeifer, Kim Rahir, Charlotte Saliou, Ian Willoughby Cover Illustration: Antoine Corbineau Design & Production: All Contents, France Translation: Semantis Photo Credits (Pages 4-7): DR, Frontex, Evan Barry, MPI, Jungeun Suzie Lee, Ivan Maly, Franck Düvell, VoteWatch Europe, Jean-Marc Germain, CIRÉ, Suzanne Schols – 2014 – Brussels, Kevin Braim, Jan Rasch, CC-BY, Randstad, Andujar1943, European Union – 2014, Khalifa Sall / Serife Diagne, SPÖ, Chonnam National University, Benedict Johnson, FEPS, Musée de l’Histoire de l’Immigration, Charlie Wand, Pascale Uebersax – 2014, Sébastien Niess, Institut Jacques Delors, Bundesregierung/Jesco Denzel, Antoine Corbineau, Courtesy Royal Academy of Arts – Howard Sooley / Anselm Kiefer, Leave to Remain / Indefinite Films, United States Navy – Copyright © FEPS – Foundation for European Progressive Studies.

2 QUERIES — Autumn 2014 ASYLUM POLICIES European values at stake?

by Massimo D’Alema, FEPS President, former Prime Minister of Italy

oth the UNHCR and Amnesty internation- peripheral member states. Moreover, when faced with a huge al have deplored the thousands of deaths emergency, the burden of offering asylum to refugees should of people desperately trying to escape not weigh only on the shoulders of the usual few countries, but war and poverty (it is estimated that should be shared among all member states. Since last January, about 2,500 people have died since the Germany has received about 82,000 asylum applications; B beginning of 2014). Sweden 45,000; France almost 30,000; and Italy almost 25,000. Of course, a common asylum policy also requires the harmoni- As this figure shows, we are facing an enormous tragedy that sation of the member states’ asylum policies. concerns us all. The Right has tried to exploit this tragedy, saying that it is merely an issue of illegal immigration. We know that this Migration is one of the issues that will test the European is far from being the case; it is in fact the migration of people Union’s solidity as well as its respect for the values on fleeing from bloody conflicts and wars, from cruel and violent which it was built, those which form its heritage. Europe authoritarian regimes. The most striking example is that of the cannot give up on its role as one of the main actors on the inter- crises occurring in Syria, Iraq and Libya. This region is one of the national scene, particularly in a region that is just beyond our most tormented on the planet, a situation that the Islamic State’s common borders. The issues of the conflicts occurring close to ruthless attacks are exposing and making worse each day. our frontiers (which are a matter of EU foreign policy), security The instability of this region has inevitable repercussions on our and the management of immigration are closely interconnected. countries, in terms of both humanitarian and security concerns. The European Union and its member states should face them This is why it would be a most serious mistake to neglect the organically. complexity of what is going on in the European Union’s southern neighbourhood. The way in which the EU will face these challenges will impact, on the one hand, the very process of European Against this backdrop, it is a shame that the European Union lacks integration, and, on the other hand, its projection and a truly common asylum policy. Why do we need a genuinely com- credibility on the global scene. Last but not least, it will affect mon asylum policy? Because we cannot keep leaving the respon- its capability to uphold and promote its principles of tolerance, sibility for humanitarian rescues and aid—as well as security—to solidarity, inclusion, and respect for human and civil rights.

QUERIES — Autumn 2014 3 #05 Call for solidarity. Asylum, migration, Contents and integration policies in Europe Page 38

INPUT FOCUS

P. 10 MY VIEW P. 40 FOREWORD Ivan Klíma Zakeera Suffee

P. 12 ONES TO WATCH P. 42 IN NUMBERS Micaela Navarro Immigration and asylum in the EU Ed Miliband Decoding by Gianni Pittella

P. 20 ANALYSIS P. 48 OPINION Andrew Watt on the German lead Benjamin Stora on immigration Comments by Andreas Schieder as a pride for Europe and Jean-Marc Germain P. 54 ESSAY P. 26 COLUMN Michael Diedring Ursula Barry and Conor McCabe on the Common European Asylum Policy on Jean-Claude Juncker’s agenda P. 60 INQUIRY Europe’s resources against illegal migration

P. 70 ESSAY Luis Miguel Pariza Castaños on closing the borders

P. 76 JOINT INTERVIEW Elizabeth Collett & Juan Fernando López Aguilar P. 28 VISION The fight against energy poverty P. 80 ESSAY Yves Pascouau on integration P. 34 INSIGHT and migration policies Christopher Cramer and Deborah Johnston on the other side of Fairtrade

4 QUERIES — Autumn 2014 INSPIRATION

P. 84 INTERVIEW P. 112 MY EUROPE P. 128 PUBLICATIONS Annemarie Muntz on migrants What does Europe from the FEPS and labour shortages mean to Khalifa Sall? network

P. 87 ESSAY P. 115 DISCOVERY P. 131 ZOOM Sarah Walker on integration Anselm Kiefer’s Fabian Society and the role of schools retrospective in London P. 132 BOOK REVIEWS P. 92 EUROPE WATCH Interview Dave Eggers, Aslyum and immigration policies with curator David Van in the European Parliament Kathleen Soriano Reybrouck, Naomi Klein, P. 96 BEYOND EUROPE John Weeks How immigration flows are handled in Switzerland, Australia and South Korea P. 135 CARTOON by Plantu P. 100 PORTFOLIO Bruce Goodison’s “Leave to Remain”

P. 120 MEET THE PRESS A broad alliance against the Islamic State

P. 124 REPORT Beyond austerity, towards employment: a gender-aware framework

QUERIES — Autumn 2014 5 CONTRIBUTORS

CONTRIBUTORS They have contributed to the Queries debates and thinking.

Inmaculada Arnaez Ursula Barry Elizabeth Collett Michael Cooney Christopher Cramer Fernandez Deputy Head, UCD’s Director, MPI Europe Executive Director, Professor, SOAS Fundamental Rights Officer, School of Social Justice Chifley Research FRONTEX Centre

Michael Diedring Massimo D’Alema Franck Düvell Doru Frantescu Jean-Marc Secretary General, FEPS President Associate Professor, Director, VoteWatch Germain ECRE & former Prime COMPAS, University Europe Member of the French Minister of Italy of Oxford Parliament

Ana Gomes Caroline Intrand Elisa Irlandese Deborah Johnston Ivan Klíma Member of the European Affairs Policy Assistant, Reader, SOAS Novelist European Parliament Advisor, CIRÉ VoteWatch Europe

Juan Fernando Conor McCabe Ed Miliband Annemarie Muntz Micaela Navarro López Aguilar Research Fellow, UCD’s Leader of the President, Ciett President, PSOE Member of the School of Social Justice Labour Party (UK) & Eurociett Director (Spain) European Parliament Group Public Affairs, Randstad Holding

6 QUERIES — Autumn 2014 CONTRIBUTORS

Luis Miguel Pariza Yves Pascouau Gianni Pittella Jean Plantu Khalifa Sall Castaños Director of Migration MEP & President, Cartoonist Mayor of Dakar International Policy and Mobility Policies, S&D Group Secretary, CCOO EPC

Andreas Schieder Christophe Sente Julia Shin Kathleen Soriano Ernst Stetter Member of the Political Scientist, Free Assistant Professor, Independent Curator Secretary General, Austrian Parliament & University of Brussels Chonnam National FEPS President, SPÖ Group University

Benjamin Stora Zakeera Suffee Harriet Thomson Peter Uebersax Kathleen Van Historian Independent researcher Founder, EU Fuel Honorary Professor, Brempt on migration Poverty Network University of Basel MEP & Vice-President, S&D Group

Gilles Vermot- António Vitorino Sarah Walker Andrew Watt Sarah Wolff Desroches Former European Research Assistant, Head of research, IMK, Lecturer, Queen Mary Sustainability & BOP Commissioner, Justice COMPAS, University Hans Böckler Stiftung University of London Senior Vice-President, & Home Affairs of Oxford Schneider Electric

QUERIES — Autumn 2014 7

INPUT

MY VIEW ONES TO WATCH ANALYSIS Ivan Klíma Micaela Navarro Andrew Watt on the German lead P. 10 Ed Miliband Comments by Andreas Schieder P. 12 & Jean-Marc Germain P. 20

COLUMN VISION INSIGHT Ursula Barry & Conor The fight against Christopher Cramer McCabe on Jean-Claude energy poverty & Deborah Johnston Juncker’s agenda P. 28 on the other side of Fairtrade P. 26 P. 34

QUERIES — Autumn 2014 9 MY VIEW

COEXISTENCE OF MANY DIFFERENT CULTURES DEFINES EUROPE © Jan© Rasch

After the trauma of war, Europe has delivered unprecedented peace. It has also brought prosperity – and freedoms that Czechs and others in Eastern Europe could little have imagined only 25 years ago.

by Ivan Klíma

10 QUERIES — Autumn 2014 MY VIEW

y recently published autobiography is membership is at an all-time low of around a third of voters. But entitled “My Crazy Century” and Eu- I feel that Czech intellectuals are glad that we’re EU members. rope, too, had a really crazy 20th cen- Maybe some people are more interested in football results and tury, particularly the first half. The two sitting in the pub and complaining – but they simply don’t under- World Wars were a terrible experience, but stand what Europe is all about. M I believe that experience gave birth to the vision of Europe that we have today: peaceful, working together UNPRECEDENTED PEACE economically and reconciled to ideological differences. Among the European Union’s most important achievements has Europe was divided into East and West after World War II but even been delivering peace. Previously Europe was characterised by though I joined the Communist Party in the 1950s, that split wasn’t war, territorial disputes and ideological conflicts. But now we are something I welcomed. Not at all. Czechoslovak writers always living through the longest period of peace in the history of the admired Western democracy. Our subsequent battle with Com- continent. Countries are now working closely together that stood munism – I was expelled from the Party in 1967 – was actually against one another in World War II, like the Czechs and the a struggle to bring about a revival of democracy in our country. Germans. Or look at the long history of conflict between the After all, Czechoslovakia was the only state in the Soviet Bloc that English and the French. That’s now a thing of the past. had had a genuine democratic tradition. The EU has also been extremely important from the economic However, in all those years we never felt entirely cut off from the point of view. And for culture, of course. When it comes to litera- West. We listened to Western radio stations every day and brave ture, the European tradition of translation is extraordinarily rich, individuals, such as the West German attaché to Prague, would even though it seems to me that a lot more European authors are help us dissidents in various ways, such as delivering books from translated into Czech than the other way around. the West to us and carrying our samizdat writing out of the coun- My own work has been translated into nearly three dozen lan- try. British and Swedish diplomats also helped us. guages, which is extremely gratifying for any writer. But there’s also an important material side to it. I wouldn’t be able to make a DREAM BECOMES REALITY living purely as a novelist on the royalties from my Czech sales. Things started changing elsewhere in the Eastern Bloc in 1989. Frankly, the income from one book here would last me just three In Poland, they had their first semi-free elections in June and then months. of course there was the fall of the Berlin Wall later in the year. But Despite what many might expect, my writing hasn’t been greatly the idea of a similar transformation in Czechoslovakia still seemed affected by the fall of communism. For me, literature is about to us dissidents more like a dream than reality. The fact the regime human relationships. Whether under communism or democracy, collapsed so fast with the Velvet Revolution was an enormous individuals are only influenced to a certain degree by the political surprise. In my view, Mikhail Gorbachev was the gravedigger of reality around them. communism, thanks to his belief in “democratic communism”, I have to say I ultimately feel more Czech than European. It’s which I consider a nonsense and unrealizable. connected to the fact that I’m a novelist and for the most part A huge ideological domain fell apart within a few years and we novelists write in their national language and therefore feel a kind saw a return to the democratic tradition in Europe. It has been a of national solidarity. Without that national language, a writer would great period in European history. Just 25 years ago, we couldn’t be lost. But I think that the co-existence of many different cultures have imagined the freedoms we have today, such as being able is what defines Europe and sets it apart. And it’s really enriching to simply drive across borders without a passport. It was unthink- to have that variety of sources of inspiration. able. It’s the first time in its history that Europe is practically without borders. To me this has been an extremely appealing development. I’m in favour of further European integration, if it Ivan Klíma, 82, is among the Czech Republic’s best- continues to respect the national identity of individual states. known novelists and has been translated into over Today, a decade after the Czech Republic joined the European 30 languages. A Holocaust survivor, he joined the Union, there have been opinion polls suggesting that support for Communist Party before later becoming a dissident.

QUERIES — Autumn 2014 11 ONES TO WATCH PSOE ©

MICAELA NAVARRO READY TO RETAKE THE REINS

12 QUERIES — Autumn 2014 ONES TO WATCH

Eleven million people backed them at the ballot box in 2008. Six years later, on the night of 25 May 2014, they lost nearly seven million voters. The economic crisis took a heavy toll on those who, along with Zapatero, once inspired Spain. She was part of his executive committee. Today, she is back as party president to remind people that it is the Spanish Socialist Workers’ Party (PSOE) that made gender equality a reality in the country— as well as the law against «macho» violence, a symbol of progress in the face of the new right-wing conservatism..

by Griselda Pastor

hen I believe in constructed a policy and amended five laws!” Key Points “ what I’m doing, explains one of her colleagues at the party. I find it hard to → Micaela Navarro has hold back. I am REIGNITING PUBLIC DEBATE TO REGAIN made gender equality an intense per- LOST CONFIDENCE the main thrust of her son and I’m not Now, she says she is ready to again seek the W political career. afraid of debate.” Micaela Navarro is 57 and trust of those who felt betrayed: “To those who has successfully put domestic violence on the have been disappointed in these last few years, → She regrets the map as a serious political issue. The law against we need to explain why we failed to do as we stance taken by the “gender violence” became Organic Law 1/2004 had promised and why we did some things that PSOE during the crisis, (otherwise known as the “Integrated Protection were unexpected.” which appeared to make Measures against Gender Violence”) and won Spain subject to the unanimous support in the Spanish congress. The The “fast-track” amendment to the Spanish con- willingness of Germany. law makes such attacks punishable by imprison- stitution in summer 2011 to introduce Germany’s → Even though the ment and ensures swift legal and administrative “golden rule”, making debt reduction a priority, position of party responses to threats while advocating a policy of is the most salient example of one of the things president is purely prevention and monitoring. It was the first law she would rather not have seen occur: “I believe symbolic, she hopes to introduced under the new Zapatero government. we should have organised early elections.” How- make her voice heard Navarro was not part of the government at the ever, things did not turn out that way. “I know this and to draw on her time but had worked as Secretary for Equality for reform was one of the least popular decisions experience in helping the executive committee of the socialist party. made by my party and that many of our followers, the PSOE regain power. “We changed the semantics, added new wording, as well as voices elsewhere on the left, still

QUERIES — Autumn 2014 13 ONES TO WATCH

criticise the move,” wrote Zapatero in his memoir, El Dilema (The Dilemma). “I believed that a ma- “WHEN RAJOY WITHDREW THE jor agreement between the country’s two main ANTI-ABORTION BILL, SHE parties—on an issue so transcendent and in such a delicate situation—would give Spain greater TWEETED ‘CONGRATULATIONS credibility,” adds the former prime minister as justification for the decision. The pact between LADIES!’, YET ALSO WARNED the PSOE and the conservative People’s Party THAT THIS IS NOT OVER.” (PP) prevented a referendum on the reform and exacerbated the feeling of having capitulated to Merkel’s Germany. declares in forthright fashion, echoing Felipe González, who was in his third term in office when NO TO A GERMAN EUROPE she was elected to the municipal council of An- “Everybody knows that German opinion has an dugar, in the province of Jaén, in 1991. The great enormous influence on European policy. We have patriarch had already passed the torch by the always been aware of the fact but Germany did time she arrived in Madrid as a senator for her not use to make such a display of the matter; a region, in 1996. After becoming a national dep- display that has ended up humiliating others. By uty in 2000 and heading the list for her province humiliating us,” says Ms. Navarro. She fears in 2004, she became Councillor for Equality and things have come to a point she would have pre- Social Welfare in the regional government of ferred never to reach: “I would rather have a Andalusia. She is currently a member of the An- European Germany than a German Europe,” she dalusian Parliament. PSOE ©

14 QUERIES — Autumn 2014 ONES TO WATCH

Andalusia is the only Spanish region in which The presidency of the Spanish Socialist Workers’ the socialists have retained power since 1982. Party, held for 30 years by Ramón Rubial, is a And despite an endless legal investigation into symbolic post. Ms. Navarro has now been hon- allegations of fraud, the party has weathered the oured with that position. She knows the real storm and the new regional president, Susana executive power lies with the secretary general, Díaz, has come to carry the hopes of the social- Pedro Sánchez, whom the PSOE elected through ists in their tussle with the PP. On 25 May, the an internal process on 13 July 2014. Mr. Sánchez day of the European elections, the Andalusian is 42 years old and has a party to rebuild. Micae- socialists once again beat Mr Rajoy’s party, la Navarro, at 57, has the credibility that comes though they did lose their absolute majority. with having pushed through a change that very few women are ready to relinquish. She is count- CONGRATULATIONS, LADIES! ing on that strength in her bid to seek forgiveness We caught up with Micaela Navarro in Andalu- for the poor decisions made by the socialists sia. Mobile phone in hand, she tells us about during these years of crisis. another memorable day: 23 September 2014, when Mariano Rajoy withdrew the anti-abortion bill and his justice minister resigned: “Congrat- ulations ladies!” she tweeted at the time. Yet she also had a word of warning: “Even if the battle is won, this is not over.” She is waiting until the PP withdraws the appeal against the law from the Spanish constitution. “They have no right to threaten women on a daily basis. They count their votes and every day one minister contradicts another in a bid to keep the rank and ﬁle together.”

Ms. Navarro has a way with words. “She’s an energetic speaker and has more experience than you might think,” says Juan Fernando López Aguilar, currently an MEP and a former colleague on the executive committee. She had found her- PSOE self centre stage when Joaquín Almunia took © over from Felipe González. “We needed a wom- ABOUT an”, they say. Since then, a lot has changed. From the initial “quotas” of 25% representation on Micaela Navarro was born in 1956 in Andalusia. electoral lists, the ﬁgures rose to 30%, then She received her first wages at the age of 11 and harvested 33%, before ﬁnally achieving full parity. “Be- olives for 30 years. Once a child care worker, she became tween 1999/2000 and 2004, everything moved a member of the PSOE in 1991, before joining the municipal very quickly,” he says. She was not a “female council of Andujar in the province of Jaén the same year. Zapatero”; she was a symbol of integration be- Since then, she has been a deputy, senator and president tween the sectors. And she still is. Her name of the party at both regional and federal level. was even put forward as a possible alternative to Susana Díaz.

QUERIES — Autumn 2014 15 ONES TO WATCH © Labour© Party ED MILIBAND THE UNITED KINGDOM’S HOPE FOR CHANGE

16 QUERIES — Autumn 2014 ONES TO WATCH

Ed Miliband’s political outlook is driven by classic social democratic values – equality, social justice, and social cohesion as a means to tackle the country’s inner divisions. He hopes citizens will realise that he is in politics for the right reasons: to change things, not just run things.

by Moritz Pfeifer

Ed Miliband grew up in a family she remained in the Labour Party, and has per- whose lives were profoundly al- haps been the greater influence on her sons’ tered by the failure of politics in political development. “From my mother I learned Europe. Both his parents arrived the importance of not accepting the world as it in Britain as Jewish refugees is, but getting engaged and fighting for change”, E from the Holocaust. His father, he affirms. Marc Stears, a politics fellow at the Ralph Miliband, became a prominent Marxist pro- University of Oxford remarks: “There’s no doubt fessor and was active in the New Left movement that Ed got a lot of his drive from Marion and a of the 1960s. In his first book, Parliamentary lot of his feel for nitty-gritty grassroots politics Socialism, he argued that socialism could never from her too.” David and Ed’s background ac- be achieved through Parliamentary means. Ralph celerated their engagement with Labour politics. Key Points abandoned the Labour Party before his sons As a teenager, Ed spent a summer doing work were born. He died in 1994, shortly before Tony experience for Tony Benn, then a senior Labour → Ed Miliband comes Blair became Labour leader, and was sceptical left-winger. Benn would later thank him by back- from an academic and about his sons’ part in shaping what would being his leadership campaign. politically active Jewish come known as New Labour. The same year, family who emigrated to Ed’s older brother David became Tony Blair’s STRIVING FOR CHANGE the UK as refugees from Head of Policy. Although Ed knew that his father Margaret Thatcher sparked Miliband’s interest the Holocaust. would strongly disagree with some of Labour’s in politics. He was only 9 years old when she policies, he recalls that he encouraged him to was elected in 1979, but he remembers how → He was the first draw his own conclusions. “My father taught me the elections were greeted with dismay by his Labour Leader to have always to be true to myself and stand up for what parents and many of their friends. “It was during the authority to pick his I believe”, he says. Thatcher’s government that I became aware own Shadow Cabinet. of the big issues at stake in 1980s Britain – → Milliband is Born in 1969, Miliband grew up in the midst of the role of government and markets, rising determined that Britain the European-wide student protest movements. unemployment and widening inequality. I have not only remains His mother Marion was an early activist in the radically different values and convictions but part of Europe but Campaign for Nuclear Disarmament (CND) and we did share this belief: politics at its best can takes a leading role is still a leading member of the Jews for Justice change countries and the world in important in reforming it. for Palestinians group. Unlike her husband Ralph, and lasting ways.”

QUERIES — Autumn 2014 17 ONES TO WATCH

The drive to change his country would become Kingdom, Miliband got elected as an MP for a decisive incentive for Miliband’s political en- Doncaster North before becoming a minister gagement. After studying Philosophy, Politics and ultimately leader of the Labour Party. and Economics at Corpus Christi College, Oxford, and graduating in Economics from FROM MAN OF LETTERS TO MAN the LSE, Miliband left academia for a brief OF THE PEOPLE career in the media. He worked as research Miliband often states that he was not particularly assistant on Channel 4, which is known for bookish when talking about his past, and prefers attracting left-wing audiences. But he wanted to emphasize that activism and mobilising people to be more than a spectator and commenta- got him into politics more than academia. Never- tor on the events of his era. “I wanted to be theless, his participation in civic organizations or involved in shaping them in whatever way I community activism does not quite yet match the could.” In 1993, Harriet Harman, who then was amount of time he spent cultivating intellectual the Shadow Chief Secretary to the Treasury, skills and analytical expertise. His story parallels called Andrew Rawnsley to ask if he would that of many political leaders of his generation. recommend the bright, young, left-wing man Like David Cameron, who is only 4 years older, who had worked with him at Channel 4. Milib- Miliband gained work experience primarily in and joined the Labour’s frontbench Treasury reading rooms, first as a student and research- team as an economic researcher the same er, then as an adviser and professional scholar. year. The only time Miliband left politics since then was for a year when he taught economics Today, however, Miliband considers it his most at Harvard University’s Centre for European important privilege to meet people and hear their Studies. “I loved doing it but, again, I felt the stories. “Most people in Britain are treading wa- pull of politics and the chance of bringing real ter, working harder and harder just to stay afloat, change to people’s lives was too great to re- less secure about their future. People have made sist.” Two years later, back home in the United huge sacrifices, but only the wealthiest seem to © Labour© Party

18 QUERIES — Autumn 2014 ONES TO WATCH

“LABOUR HAS A PLAN TO MAKE A FUTURE THAT WORKS FOR EVERYDAY PEOPLE AND TURN DECISIVELY AWAY FROM A TORY GOVERNMENT FOR THE PRIVILEGED FEW.” be doing well”, he acknowledges. He believes Miliband is determined that Britain not only re- that the fundamental Labour values of social mains part of Europe but takes a leading role in justice are crucial for overcoming widening so- reforming it. “There needs to be serious changes cial inequalities. But since the 2008 ﬁnancial to its budget, to the balance of power between crash, the Labour Party has had to rethink what Brussels and the member states, and to the it means to be a progressive party and how to rules by which it operates”, he says. The path achieve its goals. “Labour has a plan to make a David Cameron has chosen to achieve change future that works for everyday people and turn cannot work according to Miliband. He suggests decisively away from a Tory government for the that Cameron is running scared of UKIP and privileged few by creating an economy which the ‘withdrawalists’ in his own party, threaten- rewards hard work not just wealth, privilege and ing the EU with an exit to get what he wants. power, investing in the National Health Service To counter Cameron’s Euroscepticism, Miliband not running it down and privatizing it”, Miliband has appointed Pat McFadden as Labour’s new says. He already managed to unite his party shadow minister for Europe on October 20. “I and clear up the internal disagreements of its wan to make a hard-headed, patriotic case for members when he became its Leader in 2010, both Britain in Europe and for change in Europe defeating his brother by 1.3%. Now he wants so that it works for working people”, McFadden to reunite his divided country. “I want to build a said upon his appointment. In a speech Miliband country that brings people together rather than gave to Labour’s annual conference in Septem- divides people”, he says. ber 2014, he underlined his commitment to the EU: “Our future lies inside not outside the Eu- A STRONG BRITAIN FOR ropean Union.” A STRONG EUROPE After doubling its number of MEPs in London as a result of the European election in May 2014, and making capital gains during the local elections the same month, Labour is conﬁdent for the general elections which will be held in May 2015. “There is further to go but I believe we are in a position where we can win the general election,” Searle Amanda © Miliband said shortly after the local elections. ABOUT While he sees the big campaign issues concentrating around its domestic concerns, Europe Edward Samuel «Ed» Miliband was born in London on and the European Union may also play a role, 24 December, 1969. Miliband entered politics as a Labour Party especially with the UK’s possible referendum on researcher, before rising to become one of Gordon Brown’s EU membership and the UKIP scapegoating the confidants. From 2008 to 2010 Miliband held a position as the EU for the country’s problems. new post of Secretary of State for Energy and Climate Change. Later in 2010, he was elected Leader of the Labour Party.

QUERIES — Autumn 2014 19 ANALYSIS

LEARN FROM GERMANY? Not the way you probably think…

In its early years, Communist East Germany had a guiding motto: Von der Sowjetunion lernen heißt siegen lernen. Literally: to learn from the Soviet Union is to learn to be a victor, or, more colloquially perhaps, learning from the Soviet Union will put us on the winning track. Well, we all know how that turned out.

by Andrew Watt Bundesregierung/Jesco Denzel Bundesregierung/Jesco ©

20 QUERIES — Autumn 2014 ANALYSIS

“IN HISTORICAL TERMS AND COMPARED WITH COUNTRIES OUTSIDE THE SINGLE CURRENCY AREA, GERMANY’S PERFORMANCE IS RATHER MEDIOCRE.”

n recent years there has ing and follow the same liberal reform path been a clamour of voic- if they, too, want to get back on the winning es telling Europe that track. It may be popular, but this story is “learning from Germa- wrong, incomplete and misleading on a ny” will put it on a win- number of different levels. I ning track. And it is easy to see why the country is currently so often ALL THAT GLITTERS IS NOT GOLD seen as a model. The European economy Germany’s current labour market and eco- as a whole – particularly the southern pe- nomic performance is impressive, but the riphery, but increasingly also France and improvement is recent and holds primarily Key Points Italy – are locked in crisis or stagnation. in comparison with the disaster happening Meanwhile, Germany has, at 4.9%, the in the rest of the euro area. In historical → The good performance of second-lowest unemployment rate in the terms and compared with countries outside Germany must be taken with EU, employment is at record levels, the the single currency area, its performance a grain of salt, and not only public budget is balanced, its economy is rather mediocre. be observed in the current seen as highly competitive (as evidenced European context. by substantial export surpluses), and Ger- Weaknesses also quickly emerge once you mans enjoy rising living standards. look below the surface. Many of the newly → Part of Germany’s performance created jobs have been part-time and poor- is due to the expansion of what Indeed, politicians and many economists ly paid – hardly surprising given that the has become one of the largest from all parts of the continent have repeat- opening up of a low-wage labour market low-wage markets in Europe. ed a story like a mantra, and it goes like was an explicit goal of the Hartz reforms → However, other European this: Germany had become complacent, of the early 2000s. As a result, Germany’s countries should be inspired by sclerotic and expensive in the years follow- low-wage sector has become one of the Germany’s high levels of regional ing unification. But it did not seek EU hand- largest in Europe, the performance in terms cohesion, common labour market outs like the southern Europeans have of working hours has been much less im- rules bans on tax and regulatory recently done. Instead, it shook up its la- pressive than the increase in the number competition, centralised banking bour markets and welfare state with “tough of jobs (in fact total hours have fallen), and supervision and deposit insurance, love” structural reforms, kept a tight hold Germany has seen one of the most pro- as well as its country-wide welfare on public finances, regained competitive- nounced rises in inequality of all the OECD state and substantial inter- ness, and is now reaping the fruits of its countries. Average real wages declined regional fiscal transfers. labours. Deficit countries should stop whin- over a sustained period, depressing living

QUERIES — Autumn 2014 21 ANALYSIS © Sean© Gallup/ GettyImages

standards. Last but not least, net public social benefit and complete loss of social vestment and consumer boom in emerging investment was persistently negative, cre- status hung over workers, weakening the markets that followed the crisis of the late ating a substantial capital-spending back- wage-setting hand of unions even in firms 1990s. Simultaneously, countries in south- log, leading to increasing problems with and sectors making large profits. But un- ern Europe were feeling heightened com- public infrastructure and in the delivery of ions and employers – faced with high un- petitive pressure in their preferred seg- public services, and weakening potential employment and with little scope under EU ments (less sophisticated manufactured output. In all these important regards, Ger- rules for demand stimulus – had already consumer goods), as countries like China, many is not to be considered a model at all. embarked on a policy of wage moderation India, Brazil – not least thanks to the import prior to those reforms. They intensified an of German capital goods – moved up the REASONS FOR (RELATIVE) SUCCESS already present trend – and arguably value-chain. MISPERCEIVED caused it to overshoot. To the extent that Germany can neverthe- Third, the standard “learn from Germany!” less be considered a (relative) success, the Secondly, the structural reforms story ig- admonition implies that Germany reformed next question is whether it were really ne- nores or downplays other explanations. The its labour markets while other countries oliberal structural reforms that did the trick. most obvious is that Germany, with its well- sat on their hands. What is the evidence Wage moderation was certainly exacer- known production specialisation in sophis- for this? A look at the European Commis- bated by the Hartz reforms, as the Damo- ticated capital goods and high-end con- sion’s labour market reforms database, for cles’ sword of a rapid fall from a high- sumer durables such as automobiles, was instance, shows that Germany conducted skilled, well-paying job to means-tested in a prime position to benefit from the in- 98 labour market reforms between 1999

22 QUERIES — Autumn 2014 ANALYSIS

“GERMANY’S LOW-WAGE SECTOR HAS BECOME ONE OF THE LARGEST IN EUROPE.”

investment in capital and skills associated tries as much as the Deutschemark would with it – that were the institutional drivers have done. As a result, German exports of success, not the ease of hiring and firing rose from around one third to fully half of or contractual flexibility. Indeed, in the cri- GDP. For years, German domestic demand sis, it was the exact opposite of rapid hire contracted or stagnated; the increase in and, especially, fire that was a key ingre- output recorded by the country came ex- dient for the relatively successful adjust- clusively via rising net exports. The current ment of the German labour market: work- account surplus accordingly widened dra- ing time flexibility – in annualised matically, reaching more than 7% of GDP company accounts and also via the statu- prior to the crisis. tory short-time working scheme, substan- tially enhanced in the face of the crisis – This development path and the (limited) absorbed much of the labour market shock, employment-policy success it generated and permitted a swift return to production after years of “relative disinflation” was only once global demand picked up in 2010. possible because other euro area countries (and some other trading partners) were, IF ONLY WE COULD RUN A TRADE for a time, willing and able to run corre- and 2008. Impressive! But then Greece SURPLUS WITH MARS sponding trade deficits and take on the managed 65, Portugal 67. France matched There is another, much more fundamental debt that this implies. It would have been the German figure, while Italy (105) and reason why Germany cannot serve as a logically impossible for the other countries Spain (132) comfortably exceeded it. role model for other European countries: to have pursued the same strategy as Ger- Clearly, these numbers do not tell us much such a recommendation suffers from a many when it was busy regaining domes- about the qualitative importance of the logical error, a fallacy of composition. Ger- tic equilibrium while becoming increasing- reforms conducted in different countries, many achieved a historically unprecedent- ly unbalanced in foreign trade terms. Which which requires further study, but the idea ed degree of nominal wage moderation country outside the euro area would have that Germany reformed labour markets during the 2000s (in which, as we have accepted the implied massive trade deficits while others simply did not is an ideological seen, neoliberal reforms played a certain implied by the whole euro area pursuing claim that does not stand up to even per- role). Thanks to the creation of the euro such a strategy (especially given that Chi- functory scrutiny. this competitive advantage was not wiped na was on a similar course, and the USA out by currency revaluation as would have were playing the role of “consumer of last Lastly, in the export-oriented industrial happened under the Deutschemark: the resort” and running up ultimately unsus- companies that drove the German recovery, effect was directed against Germany’s tainable current account deficits)? In any it was if anything the traditions of corpo- euro area trading partners, but there was case, given area-wide wage moderation ratism and social partnership – especially also an indirect competitive effect vis-à-vis the euro would have appreciated against Mitbestimmung (worker codetermination) overseas trading partners in that the euro world currencies snuffing out any ex- and the longer-term orientation in terms of did not revalue against these other coun- port-led expansion. Short of running a

QUERIES — Autumn 2014 23 ANALYSIS

trade surplus with Mars this can never be “THE IDEA THAT GERMANY REFORMED a viable option. LABOUR MARKETS WHILE OTHERS SIMPLY Maybe so, the critics insist, but now Ger- many can act as a locomotive, and if the DID NOT IS AN IDEOLOGICAL CLAIM.” crisis countries unflinchingly reform their economies, drive down costs and wages Germany? No. Firstly, as indicated above, a common currency and monetary policy, and deflate domestic demand, they can there are a number of corporatist institu- it lacks even rudimentary versions of these play the German game and, some day, will tions that, in Germany but with variations mechanisms in order to ensure balanced reap the benefits. This is not entirely un- also in some other EU countries, increase growth with social cohesion. reasonable; at least it does not suffer from efficiency and productivity, stabilise expec- a logical fallacy. However, it ignores the tations and demand and thus contribute to If Germany can serve as a role model at fact that Germany is not playing – and, better performance. Individual countries all, then it should primarily be in establish- more importantly, apparently refuses to should consider whether some elements ing missing features of this type, rather play – the counterpart role: to deliver high could be usefully imported (although care than passing neoliberal labour market re- domestic-demand-driven growth, and unit is needed in such endeavours given the forms of dubious efficacy. labour cost and price growth above the vital role of institutional complementarities ECB target inflation rate, enabling the cri- in national systems). sis countries to boost their economies through the trade channel by gaining rel- More important, however, is to change the ative competitiveness, without engaging in analytical focus. The point is much less actual brutal and costly deflation. Put an- that individual countries might have some- other way, Germany pursued a relative thing to learn from Germany, than that the disinflation in the context of booming ex- euro area as a whole might do so. Let me ternal demand and average inflation that just mention just the most obvious points. was if anything somewhat above the ECB Germany manages relatively high levels target. Disingenuous voices are now calling of regional cohesion and (currently) low on crisis countries to follow the same strat- overall unemployment despite having, like egy in an environment in which sales mar- the euro area, a regionally specialised kets are sluggish if not actually stagnating, production structure: for instance Frank- the financial sector is impaired and aggre- furt in financial services, Baden-Württem- gate inflation is less than half the ECB berg in engineering, the Rhineland in target (core inflation) and even perilously chemicals, and Hamburg in publishing and close to actual deflation (the headline rate). shipping. But Germany has, amongst At best, this is like a general seeking to many other elements, common labour avoid the mistakes of the last war, and market rules, bans on tax and regulatory adopting a tactic that leads to another dis- competition, centralised banking super-

aster because the world has since changed. vision and deposit insurance, a coun- DR© At worst, it is a cynical ploy to bring about try-wide welfare state and substantial ABOUT liberal “reforms” that commentators desire inter-regional ﬁscal transfers. The real for other reasons. problems facing the euro area, which Andrew Watt is the Head of research manifest themselves in a particularly pro- of the Institut für Makroökonomie und Does this mean, then, that the crisis coun- nounced way now in the current crisis Konjunkturforschung of the Hans tries and Europe have nothing to learn from countries, stem from the fact that, despite Böckler Stiftung.

24 QUERIES — Autumn 2014 COMMENTS - ANALYSIS REACTIONS

MADE IN AN UNCOOPERATIVE GERMANY STRATEGY

by Andreas Schieder by Jean-Marc Germain

In his analysis of Germany’s relative economic success I couldn’t agree more with Andrew Watt’s analysis, I could and the real reason for it, Andrew Watt lines out that the actually have written it myself. I might have stressed the so-called structural story is not (or not the only) reason growingly obvious limitations of Germany’s success that we are for the relative economic success of Germany. This is im- seeing right now: there will doubtless be another drop in GDP in portant if we want to draw lessons for the entire European Union. the next quarter which means that Germany is in recession and Other explanations include the investments and consumer booms was probably not in such good shape to begin with. The German in emerging markets, which have been used by Germany’s spe- strategy to overcome the crisis was actually a strategy of leveling cialized manufacturing economy. Also the German tradition of down: lowering wages, stealing market shares from its neighbours corporatism and social partnership in combination with its long-term and under-investing to get its budget in order. orientation in education are important drivers of success. Main- stream economists forget this quite often. Lastly, Watt points out I would add two elements to this analysis: an important part of Ger- that “relative disinflation and the integration into the euro zone was many’s policy was the reduction of working hours, the massive use of also one reason of Germany’s economic situation.” Trade surplus short-time work. Weekly working hours dropped by one hour and a also needs corresponding trade deficits (and budget deficits) in half, on average. Women’s employment also went down in the crisis. other European countries. If we want to learn from Germany, we have to underline that economic success was to a certain extent But there is another important point that is not mentioned and that only possible at the cost of the other European nations. is paramount to Germany’s economic development: investment in research and development. While they didn’t invest in their infrastruc- What to do now? Europe, with a population of 500 million people, ture, Germans have increased their R&D budgets from 2.2 percent is the largest and strongest economy in the world. We have to of GDP to 2.8 or 2.9 percent over the last ten years. France, in understand this fact and use it as a global role model for labor comparison, went from 2.2 to 2.1 percent. Germany invested in in- rights, social security and ecological progress. Therefore, Europe- novation while France did the opposite. Germany’s federal structure, an disparities and global trade challenges can only be met by a the function of their regional banks, their capacity to support medi- policy that puts education, labor market security and strong middle um-sized companies and their cooperation model of Mitbestimmung and working class into the center. Fair income and wealth distri- could really be something to learn from – like the author says. bution are therefore at the top of the agenda. In my opinion, there are two important messages to take home: If Europe wants to become a real integrated economy, we need to first, Germany’s crisis exit strategy was implemented at the expense abolish all the loopholes in taxes and common market policy. We of its partners. Take the example of Agribusiness where the German need efficient mechanisms of regional redistribution and a new low-wage sector that was created by the Hartz reforms helped industry policy. Facing the current growth problem of Europe and push French companies out of business. Second, Germany should Germany, the most important step is more about (public and private) try to participate in a recovery on the European level, a strategy investment and (consumer) demand. This is the lesson that Ger- that aims at creating win-win situations instead of telling the other many and German mainstream austerity economists have to learn. countries that they haven’t done their homework.

Andreas Schieder is the Chairman of the SPÖ group in Jean-Marc Germain is a French Member of Parliament the Austrian Parliament and Socialist Party official.

QUERIES — Autumn 2014 25 COLUMN

END OF AUSTERITY? A flawed EU discourse by Ursula Barry & Conor McCabe © Council© of the European Union

n 15 July 2014 the tion, youth guarantee and energy fields, er has been in the institutional financial then-candidate references to wind turbines and on-line system and few resources have been put for President of purchasing rules. in place to address the damaging impact the European of austerity across the EU. No financial C o m m i s s i o n , Juncker himself has stated that ‘democrat- transaction tax has been introduced as a O Jean-Claude ic legitimacy’ suffered under the present means to begin to generate resources that Juncker, set out his agenda for crisis, as many new financial instruments are urgently needed. Gender equality and Europe. It included a renewed focus on had to be created outside the legal frame- social inclusion, which were partially on the jobs, growth and investment which would work of the European Union. There is no EU agenda in the early 2000s, have been be funded by up to €300 billion in private effective attempt to address this lack of displaced and important equality infra- and public investment. His ideas included ‘democratic legitimacy’ under the proposed structure has been dismantled or disem- more broadband for Europe, more educa- plan. In practice, the concentration of pow- powered in different countries.

26 QUERIES — Autumn 2014 COLUMN

“THERE IS A DEMOCRATIC DEFICIT AT THE HEART OF EUROPE, AND BETTER BROADBAND IS NOT GOING TO SOLVE IT.”

The discourse that lies at the heart of – 124 countries voted in favour – most proposal for a ﬁnancial transactions tax, Juncker’s vision for the EU is that we are other EU countries abstained. This, by a for a maximum income policy, for legalising at the end of the austerity era. Few things country whose debt levels rose by nearly the undocumented, for a social housing are further from the truth. We are in an era 300% over the crisis years, compared to programme, for prioritising care and ad- shaped by the consequences of austerity, 75% in Greece and 59% in Spain. dressing disadvantage? Are these so- and nothing in Juncker’s thinking confronts called new investments funds to be ac- this reality. The crisis years, under pressure There is nothing of a social Europe in companied by contract compliance from corporate ﬁnance and industrial cap- Juncker’s thinking. Where are the initiatives agreements that put gender representation ital, have been used by different States to to prevent the growing use of zero-hours and equality of access at their centre? systematically weaken systems of social contracts across the EU? Where is the Nothing is more unlikely. protection, labour laws, equality infrastructure and anti-poverty programmes and, by the ECB, to impose mounting levels of unsustainable debt on ‘bail-out’ countries.

In Ireland, just last week we have witnessed the embarrassing spectacle of our prime minister begging the IMF to do us a great favour - to allow us to repay our debt earlier than originally planned. The IMF kind- ly agreed to that - so the Irish government was then able to borrow at less than half the penalising interest rate of nearly 5% Evan© Barry Evan© Barry charged by the IMF. In an even more shameful development, Ireland was one of only 11 countries to vote last month against ABOUT a UN motion to regulate opportunistic debt purchasing vulture funds and for debt can- Ursula Barry and Conor McCabe are respectively Deputy Head of School cellation for countries in debt crisis and Research Fellow at University College Dublin’s School of Social Justice.

QUERIES — Autumn 2014 27 © Michael© Bodmann Getty/ Images

DOES EUROPE HAVE THE ENERGY to address its fuel poverty challenges?

Although there is no clear and common European definition of energy poverty, the issue and its severe health consequences are largely recognised by the EU. Between 50 and 125 million European citizens are in energy poverty, while energy prices for households and businesses continue to increase. Queries asked representatives of the EU Fuel Poverty Network, the European Parliament, and Schneider Electric to share their perspectives on the issue.

Interviews by Sam Davies

28 QUERIES — Autumn 2014 VISION

The point of view of an NGO markets, it excludes alternative fuels, such as ﬁrewood, as widely used in Hungary, THE DATA PROBLEM BEHIND heating oil, and district heating.

ENERGY POVERTY Responsibility gets passed around govern-

© Charlie Wand ment. Ideally you’d have coordinated action between health, housing and energy policy. by Harriet Thomson, EU Fuel Poverty Network But in policy terms this is very difficult. You can target the pricing, but that’s only a short- term solution. If you give a subsidy or a nergy costs are a pov- In the UK we have a rough idea of the cheaper tariff, that doesn’t address the issue erty trap. If you’re a characteristics of the fuel poor. It’s espe- that they are living in a poorly insulated lower-income house- cially a problem in the private rented sec- house, and/or using inefficient appliances. hold in poor quality tor. There’s no motivation for a landlord to housing then it’s really improve the house, and the tenant wouldn’t I think community-based renewable ener- E expensive to heat your have the capital. There is a lot of stigma gy is going to be an important element in house and you don’t have the capital attached to it, with people not wanting to the future, such as biomass community to renovate. You can’t escape those admit they are having trouble. heating systems, and other localised forms energy bills because they keep rising. of generating electricity. This is happening As a researcher, it’s frustrating the data around Europe. Austria, Germany and Bel- On a basic level energy poverty means just isn’t available on who is fuel poor and gium are all good at district heating sys- people not being able to afford basic en- suffering. We are relying on very weak data tems that use biomass. ergy services, for heating, lighting and such as self-recorded surveys. I would re- basic appliances. ally like to see an expansion of existing But really, the most long-term effective surveys to get a better understand of what route is to retrofit house stock. In France England has adopted a new, more complicat- is happening. they have a cheap loans system, eco-PTZ, ed two-step definition, whereby fuel poverty a subsidised loan scheme to improve the occurs when households are required to There have been calls for a pan-European energy efficiency of their home, and there spend more than the national median on fuel definition but the EC has just ruled it out, is a similar scheme in Germany. However, bills, and after this expenditure, their residual saying it’s a national competence issue. there is still a significant jump needing to income is lower than the 60% poverty line. They don’t want to even define the problem. be made that will require support. Anecdotal evidence suggests some mem- Outside of the UK, in Ireland it is the inabili- ber states are reluctant to admit energy ty to achieve adequate warmth due to ener- poverty exists in their country. gy inefficiency in the house, while in France it means you encounter difficulties in relation EU NEEDS COORDINATED APPROACH to energy supplies, due to inadequate finan- EU Directives concerning the internal gas cial resources or housing conditions. and electricity markets have acknowl- ABOUT edged that energy poverty is a problem THREE AREAS THAT NEED ACTION and have said nation-states should come Harriet Thomson is a PhD student My three points to address energy pover- up with an action plan, but haven’t provid- at the University of York, where she ty would be to improve data, come up with ed guidance on how to identify which conducts research in collaboration with a broad definition at an EU-level, and im- households are affected by it. As it has National Energy Action, and founder prove energy efficiency. just concentrated on gas and electricity of the EU Fuel Poverty Network.

QUERIES — Autumn 2014 29 VISION

The point of view of the S&D group gave people access to an energy ombuds- in the European Parliament man, and said energy providers could no longer cut access to vulnerable people. THE ISSUE OF ENERGY There is still a lot of work to be done on POVERTY CANNOT BE energy labelling and also eco-design, but what’s had a huge effect is that customers © DR ADDRESSED IN ISOLATION can now switch very easily between energy suppliers. In Belgium we used to have very high prices compared to other states, by Kathleen Van Brempt, Belgian MEP because it was a monopoly. This has changed radically over the last few years and the price has dropped, which has had he starting point is the A STRONGER VOICE FOR ACTION an effect on energy poverty. word itself, the ‘pov- The European level offers a stronger voice erty’ of energy. It’s with which to address these issues, but Renovation and retrofitting are crucial. It when households and also a more efficient way forward. would be a great driver of jobs, and jobs individuals don’t have that cannot be delocalised. Jean-Claude T decent, affordable It’s important to get a decent definition of Juncker has said he will make sure there access to energy. energy poverty policy at an EU level, be- is 300 billion euros in investment money cause it’s very difficult to make policy in- in coming years, and maybe a portion of For the IEA, energy poverty is a lack of vestment measures if you don’t even know that could go towards renovations and ret- access to modern energy services. This the magnitude and intensity of the problem. rofitting of housing in Europe. Such an definition points to access, as well as to investment would combine so many goals modernity, meaning energy that is sustain- There were so many good things in the EU at the European level, from addressing able and clean. Energy Roadmap 2050, and if you ask me climate change to creating jobs. what the EU should do, I would say imple- Indeed, energy poverty is very much ment the basic ideas from the roadmap. If you opt for a maximum of renewable en- connected with energy efficiency, and The roadmap investigated different options ergy and energy efficiency measures and clean fuel and sustainable energy. There such as more nuclear, or lower carbon. minimise emissions, then you can do what’s used to be a contradiction of sorts, These were called “no regrets” options, needed to meet climate goals, and also will where climate change was in contradic- because if you did these it would be the have affordable energy. Then you can start tion with economic policy, but it’s no cheapest, the cleanest way forward. financing huge EU programs to renovate longer the case. These are common and retrofit buildings. goals, and all need to be considered as But the energy roadmap is only on paper. being interlinked. It’s a nice study with an awful lot of options. The EU has never taken a decision on this, A second point is that people are fed up there is no clear view on it. they must pay for renewable energy that ABOUT is not affordable. However, the real prob- RENOVATE AND RETROFIT lem is that coal and nuclear are subsidised In the energy package, implemented Belgian MEP Kathleen Van Brempt so much. So don’t tell people the reason in 2011, we included some issues on en- (S&D) is vice chair and is a member of they have trouble paying their bills is be- ergy poverty, so it has not been neglected the Committee on Industry, Research cause of renewable energy. at the European level. These measures and Energy

30 QUERIES — Autumn 2014 VISION © Michaela Begsteiger Michaela ©

The point of view of an energy company PROGRAMS TO ADDRESS ACCESS AND POVERTY TECHNOLOGY AND TRAINING Over the last ten years, Schneider Electric has become recognised for sustainability ARE PART OF THE SOLUTION in different areas. Indeed, understanding poverty and how we provide access to © Sébastien Niess electricity is a key pillar of our sustainable by Gilles Vermot-Desroches, Schneider Electric development strategy.

When we speak of access to energy we f you’d asked me about ing a lot more capacity. In this case, it’s have two different situations in developing energy poverty 10 years easier to solve the question. and developed countries. ago, I, and others, would have expressed that by It’s a question of life, and state organisa- We provide a program of access to elec- now we would have tion. In fact, the question of fuel poverty is tricity in developing countries in Africa I found some ways to re- not the same country by country. Energy and Asia. There, we partner with people duce it. But ten years later, the num- is very close to culture. In France (where who have no access to electricity. One ber of people suffering in Europe is there is one main electricity provider), the project, the ‘BipBop’ programme (Busi- growing. It’s very far from the vision people’s vision of equality means they have ness, Innovation & People at the Base of we had of the future. to have the same price for energy any- the Pyramid), aims to provide training, Today we talk of two contradictory models where in the country, whether in the middle investment, and specific solutions and of the future. The first model is that year of big cities or in the countryside. business models. after year the price of energy will increase, and the number of people who can afford In the meantime, there are more than Through this programme, we have trained to pay will reduce. 1 000 energy companies in Germany, and more than 30,000 people each year in it would be very difficult to imagine trans- electricity skills for them to be able to in- But under the Jeremy Rifkin model, year posing the two systems between these stall, develop, design, and repair energy after year the price will reduce due to hav- two countries. management solutions. The programme

QUERIES — Autumn 2014 31 VISION

We are working very closely with NGOs and social entrepreneurs through part- nerships on fuel poverty. With the Sch- neider Electric Foundation and La Vara- ppe Group, we launched the ‘Emergency housing for all’ project, reusing shipping containers as energy efﬁcient housing. The ‘Habitat et Humanisme’ group will install these around Lyon to house families in need.

In terms of working with the EU, we have a team in Brussels who shares the vision of Schneider Electric with regards to solutions. These solutions we implement pro- www.habitat-humanisme.org vide a way to reduce energy consumption. We think people will be more able to reduce consumption when they have the tools to measure it.

We want to build a bridge between technology and involvement. We have never thought that technology will replace people, but it’s a tool to give opportunity. It’s funds investments in local companies to not possible to think about energy transi- “WE HAVE TRAINED give access to electricity, and thirdly, pro- tion without considering the will of the MORE THAN vides speciﬁc solutions, such as for solar people. With technology we have a part of lighting systems and mobile charging. the answer, which is to involve people and 30,000 PEOPLE give them the means to be more involved. TECHNOLOGY IS ONLY EACH YEAR IN PART OF THE ANSWER For example, this means implementing ELECTRICITY The challenge in developed countries is speciﬁc solutions to pilot energy con- that people have access to electricity but sumption in new homes, which will make SKILLS FOR THEM they still need to pay. We would like to pro- you more agile and able to reduce over- vide our own technology to support these all consumption. TO BE ABLE TO, people and design our own programs and INSTALL, DEVELOP, technological solutions to reduce and control household energy consumption. ABOUT DESIGN, AND/OR For example, with ‘Wiser’, our energy man- Gilles Vermot-Desroches is the REPAIR ENERGY agement solution, you can control energy Sustainability Senior Vice President for MANAGEMENT consumption with your mobile phone – it’s Schneider Electric, and business all about digitisation. When you can reduce representative for the National Council SOLUTIONS.” your costs up to 30%, it adds up. on Energy Transition in France.

32 QUERIES — Autumn 2014 EDF SA au capital de 930 004 234 € – 552 081 317 RCS PARIS – Siège social : 22-30, avenue de Wagram, 75008 Paris – Photo : Rob Payne – 3D : Illusion : Rob 75008 Paris – Photo avenue de Wagram, social : 22-30, – Siège RCS PARIS 552 081 317 234 € – de 930 004 EDF SA au capital

EDF INVESTIT DANS UNE NOUVELLE FILIÈRE INDUSTRIELLE Au large des côtes anglaises, à Teesside, 27 éoliennes offshore produisent l’équivalent de la consommation électrique de 40 000 foyers. En France, nos projets en développement permettront la création de 7 000 emplois dans les prochaines années. pulse.edf.com

L’énergie est notre avenir, économisons-la ! INSIGHT

A FAIR DEAL from Fairtrade?

A popular vision of Fairtrade is of smiling people in emerging countries earning a good living from a democratically-run cooperative. The only problem with this vision is that it is pure fantasy…

by Christopher Cramer & Deborah Johnson

nce a niche mar- wageworkers who are actually the poorest Fairtrade certified producer organisations) ket, Fairtrade has people in Uganda (coffee and tea cooper- are the poorest people in these areas; and, become one of atives) and Ethiopia (coffee coops and most significantly of all, that the wages on the most recog- flower firms). farms and processing stations in Fairtrade nisable labels on producer organisations are actually lower O our supermarket Our research looked at Fairtrade producer than the average – in some cases 60% shelves. Promising a fair price to the farm- organizations, at smallholder farming that below the median. er for a commodity – such as coffee, tea, is not certified, and at larger scale produc- How did this situation come about? Equal- fruit or flowers – and an additional social ers – and our three main findings were as ly importantly, what should consumers and premium for investment in local facilities, disturbing as they were unexpected: that authorities – at national and at EU level it has become a persuasive argument. wage employment is far more widespread – be doing? From students to pensioners, many people than has previously been acknowledged; buy Fairtrade products in the belief they that wageworkers (whether working for A TRICKLE OF HELP are giving the poorest and most marginal- successful Fairtrade ‘smallholders’, for the A starting point is to consider the inher- ised in developing countries a better life. smallholder farmers supplying certified ent limitations of Fairtrade. In a devel- However, our SOAS report earlier this year cooperatives but barely benefiting at all, or oping economy, farms and plantations documents the true conditions of the for other farmers who are not members of often come together in cooperatives with

34 QUERIES — Autumn 2014 INSIGHT

“THE INTERESTS MOST STRONGLY REPRESENTED IN FAIRTRADE ARE PRODUCERS, NOT WORKERS.” © Jonathan Wilkins ©

thousands of members. Hundreds of these strongly represented in Fairtrade are pro- farmers receiving the same price for their primary cooperatives are typically affiliat- ducers, not workers. And championing crops were paying different wages – and ed to a regional cooperative union - which workers’ rights may not be on their agen- some who were perfectly able to pay bet- in some cases has Fairtrade certification. da. Fairtrade may well help to make a ter wages were simply not doing so. However, it is common for only a small per- contribution to poverty reduction; but it What’s more, there is no regulation in this centage of a union’s total production to be does so as an unintended consequence area, either by Fairtrade or the local au- distributed through the Fairtrade channel of its promotion of a class of emerging thorities. In theory, Fairtrade has an audit (5% in the case of tea), since that is all rural capitalists. There may not be any- process for farms – but in practice the the market can absorb. The ‘trickle down’ thing intrinsically wrong with promoting audit checklist does not cover wages very effect of Fairtrade prices at farm and rural capitalism – though Fairtrade may effectively. It is also worth noting that, in plantation level is therefore very small. In be an inefficient way of doing this – but our experience, 99.9% of workers (or in- short, any improvements in price of a tiny it is certainly not the message that ap- deed many of the producers) had never percentage of world commodity trade is pears on a Fairtrade label. Two other facts heard of Fairtrade – despite working in spread very diffusely. are also relevant. First, as commodity Fairtrade fields. Such people are also prices rose over a one or two-year period, largely unaware of having any workers There are two further layers to consider, the increases were not reflected in high- rights in the first place - and have very the first being that the interests most er wages for workers. Second, different limited opportunities to enforce them.

QUERIES — Autumn 2014 35 INSIGHT © European© Union, 2014

SHOULD CONSUMERS BE WORRIED? many SPOs today, this is simply not the case. of the poor. Consumers should know that The third layer to consider is that coopera- Yet the pictures on Fairtrade labels still nur- only a percentage of the extra they pay tives are not the equitable organisations of ture an image of the farming family rather will go back to a country and, within that popular imagination. Little has changed since than wageworkers. country, only a very few people will ben- Lenin described the rose-tinted vision of the All of this begs a question: Should con- efit. So, what can be done? Left regarding the tough, exploitative rural sumers have confidence in Fairtrade – or cooperatives of late 19th century Russia as: should they be wary? We believe they BETTER CERTIFICATION “A tale invented by kind-hearted people, but should be wary. We looked into what hap- Clearly, there are important steps to be tak- a tale nonetheless.” Even today, the benefits pens to the ‘social premium’ money given en by Fairtrade itself. Certification should be of a rural cooperative are a populist liber- to a number of cooperatives and found, reworked to include the provision of wages al-left fantasy. We found that Fairtrade (and for example, that new toilet facilities had and working conditions at least equivalent other) cooperatives are typically highly une- been built – for the exclusive use of the to the best pay and conditions on similar qual and hierarchical and that the benefits managers. Similarly, a contribution would farms in these producing areas. Consumers of Fairtrade flow to a minority of larger scale be made for electrification along a road also need clearer product information about farmer-members. The original standards for – where senior executives of a coopera- what buying Fairtrade actually does, and Fairtrade’s Small Producer Organisations tive lived; funds would go toward the cost there has to be better monitoring of farms carried the explicit assumption that they were of a new school building – where the and plantations. There is also a challenge for coffee farmers with a small plot of land rely- school either charged fees or where par- local authorities, although it is hard for Afri- ing almost exclusively on family labour, where ents had to pay for uniforms and/or books, can governments to enforce labour legisla- the question of wage labour never arose. For which effectively put it beyond the reach tion, while trade unions tend to be weak and

36 QUERIES — Autumn 2014 INSIGHT

fragmented, which makes direct intervention difﬁcult. It would be easier to take indirect “99.9% OF WORKERS HAD action, for example, by trying to increase NEVER HEARD OF FAIRTRADE demand for labour and so making it in employers’ interests to treat workers better. That – DESPITE WORKING IN tightening of demand could be achieved in several ways: by lifting productivity through FAIRTRADE FIELDS.” infrastructure investments or making education compulsory and accessible, thereby taking many young people – girls in particular - out of the labour market. For consumers, the challenge is to ask more questions of Fairtrade and similar certifying bodies. As ‘ethical trade’ has expanded and become more sophisticated, so consumers hoping to do the right thing need to ask more challenging questions. They might also want to consider an alternative – to spend as much as they can on the best quality. We do not know enough yet about the mecha- nism, but it is possible that to produce the very best quality coffee, for example, farmers need to look after the bushes better and try to raise productivity. Both those requirements, we suspect, seem to lead to more days of labour – which is what wageworkers depend upon for survival – and better rates of pay. As for governments, and the European Commission, conditions should be placed on the taxpayers’ money they donate to the likes of Fairtrade. In the same way that incentives are used to steer industrial policy,

so the donations, tax exemptions and NGO Jungeun© Suzie Lee Kevin© Braim support that Fairtrade organisations receive should come with conditions about produc- ABOUT tivity improvements and the treatment of Christopher Cramer is Deborah Johnston is a Reader in workers and at an absolute minimum about Professor of Political Economy at Development Economics at SOAS, the provision of much more, and more ac- SOAS, University of London. He has specialising in African affairs and curate, information on wage employment, taught widely in Africa and acted in the political economy of agriculture payments, and conditions. Currently, these a consultancy role for UN and food. rural cooperatives are asked to do very little, programmes, the World Bank and and the result is the egalitarian fantasy the ILO. world we have today.

QUERIES — Autumn 2014 37 CALL FOR SOLIDARITY Asylum, migration, and integration policies in Europe

38 QUERIES — Autumn 2014 FOCUS

FOREWORD IN NUMBERS OPINION Zakeera Suffee Immigration & asylum in the EU Benjamin Stora on immigration P. 40 Decoding by Gianni Pittella as a pride for Europe P. 42 P. 48

ESSAY INQUIRY ESSAY Michael Diedring Europe’s resources Luis Miguel Pariza Castaños on the Common European against illegal migration on closing the borders Asylum Policy P. 60 P. 70 P. 54

JOINT INTERVIEW ESSAY INTERVIEW Elizabeth Collett Yves Pascouau on integration Annemarie Muntz on migrants & Juan Fernando López and migration policies and labour shortages Aguilar P. 80 P. 84 P. 76

ESSAY EUROPE WATCH BEYOND EUROPE Sarah Walker on integration Aslyum and immigration How immigration flows are and the role of schools policies in the European handled in Switzerland, P. 87 Parliament Australia and South Korea P. 92 P. 96

PORTFOLIO Bruce Goodison’s “Leave to Remain” P. 100

QUERIES — Autumn 2014 39 FOREWORD

FIXING FICTION The truth about migration to Europe

Throughout history, the ability for people to migrate has been a catalyst for societal transformation, reinvention, innovation. Migration has been a constant in the building of Europe. From trade, to music, to food, European culture has been moulded by neighbours near and far. How then with such a rich history, has solidarity for migration been broken down?

by Zakeera Suffee

ong before the global perspectives. The type of migration or move- issue? The first inquiry in this edition looks financial crisis, atti- ment undertaken will often dictate how at the history of modern European migration, tudes towards migra- states react, and will have a clear conse- the role of European colonialism and the tion had turned sour, quence on the economic socio-political current relations with Europe’s neighbours. with the spotlight par- make-up of the host country, as well as Benjamin Stora, the Director of the Cité de L ticularly on those seek- access to rights for the migrants them- l’Immigration in Paris, frames the modern ing protection. What once was the lan- selves. Understanding the differences with- European history of migration, and highlights guage of the far right has now become the in migration will allow us to explore why the through this perspective the need to reverse mainstream, despite the pressing need for a prevailing attitudes towards migration have the negative trend set by fringe anti-immi- younger labour force undeniably made up influenced policy, and allow us to question gration parties. from migrants. This issue of Queries seeks why such a complex issue is treated with to understand whether solidarity for migra- simple and inaccurate disdain. WHY MIGRATION AT ALL? tion has been extinguished or whether Eu- In a joint interview with Elizabeth Collett, rope can reignite the flame. There is a political crisis in Europe. Many Director of MPI Europe and MEP Juan Fer- people have become disillusioned with the nando Lopez-Aguilar, we see what processes Migration is as broad as Europe itself. Not mainstream parties, leading the way for more have allowed migration towards Europe, and only do issues associated with migration fringe parties to gain momentum. This has whether it remains a viable alternative to the vary from country to country, but the topic resulted in an attack on immigration, on a ‘American Dream’, despite the impact of the is as complex as the human body. Where foreign workforce and those seeking protec- global financial crisis. the human body is made of different organs tion. Migrants are seen as a threat, not just with different needs, migration too is made to security, but to the European way of life, Undeniably, Europe’s ability to attract work- of different elements that require different but why now has immigration become an ers will depend on how it responds to the

40 QUERIES — Autumn 2014 FOREWORD

latest wave of anti-immigration sentiment. that they are, at least on paper entitled to ac- pean citizens themselves. Yves Pascouau, Disregarding the need for a younger labour cess essential services, but massive variances Director of Migration and Mobility Policies at force, this discourse begins with a curb to between countries remain. For asylum seek- the European Policy Centre explores the EU immigration, then with a view to stop the ers, there is no international protection instru- competence in the field of integration and process completely. These perspectives are ment. The European Union has attempted to the non-legislative bodies which foster the not rare, and are found in some major Euro- harmonise the legal response between coun- coordination of EU Member State policies. pean Union countries that question the need tries but still has a long way to go. Providing a more local perspective Sarah to offer protection to the vulnerable amid an Walker, researcher at the Centre on Migra- overarching focus on “security”. What tools Michael Diedring, Director of European Coun- tion, Policy and Society looks at how these have been available to the EU to handle mi- cil on Refugees and Exiles, describes the policies interplay within a school learning gration flows? Have they suffered from the problems in gaining access to the asylum environment and how different schools prevailing anti-immigration perspective? Do procedure, the difficulties in receiving quality across the European Union have prioritised they respond to the needs and rights of work- legal assistance and the possibility of deten- integration at an early age. ers, or just emphasise this restrictive agenda? tion in many EU countries while the application In our inquiry and the essay by Luiz Miguel process is underway. These obstacles are also Whilst analysing European policy, we can learn Pariza Castaños, we will explore whether this beautifully portrayed in Bruce Goodison’s film much from those outside Europe too. The lack of solidarity has led to European doors Leave to Remain, which follows the life of a world is not flocking to Europe alone; there is closing to migrants, and what impact this will young boy seeking asylum in the UK, and his a rich mix of migrationary paths forming from have for the future. response to the situation. which lessons can be drawn. The Beyond Europe section offers three unique perspec- This inward looking perspective has inspired By exploring the Common European Asylum tives on migration from countries with similar not only restrictive migration policies, but has System, and highlighting the gaps where and very different challenges; those countries suddenly devalued one of four freedoms countries need to focus attention, we can see are South Korea, Australia, and Switzerland. which underpin the European Union, freedom where Europe has attempted to respond to of movement. In an interview, Annemarie the problems. Ultimately, the lack of political Whatever will be the political makeup of the Muntz, Director Group Public Affairs at Rand- will in the varying EU Member States means European Institutions, or the political rhetoric stad Holdings explores the need for labour that this response can be diluted, and again in the European Member States, what is migration, the ability for workers to move shifts towards security. Is there a pandering known is that migration will not go away. throughout the European Union and wheth- towards the fringe anti-immigrant parties and Whether responding to a demand for labour, er hostility towards mobility has affected the their policy recommendations? Is the rhetoric or answering the call to a friend in need, Eu- rights of foreign workers. genuinely impactful on decisions at the polit- rope will be changing. Embracing this change ical level? What can this mean for migrants will not be easy, but it is certain that without BORDERING UP SOLIDARITY themselves? The EuropeWatch section exit, life would be much harder. Europe’s need for labour migration is evident; plores exactly this, and asks how solidarity the need to offer protection is not. Can Europe towards immigrants, in particular asylum seek- reconcile the negative attitudes towards those ers’ rights have been discussed and voted on ABOUT who have no choice to migrate, with the rein the European Parliament since the new Zakeera Suffee holds an sponsibility to have their fundamental right be MEPs have taken office. MSc in Migration, Mobility protected? Looking at forced migration, it is and Development from the School clear that Europe’s response to refugees is INTERNAL REFLECTION, EXTERNAL of Oriental and African Studies, very different to its response to asylum seek- WISDOM University of London. She has since ers, yet often the European public are unaware Looking from the European level at integra- worked for the European Council of these differences. The rights accorded to tion presents a variety of complex issues, on Refugees and Exiles, and refugees, protected by international law, mean which ultimately affect migrants, and Euro- the Norwegian Refugee Council.

QUERIES — Autumn 2014 41 IN NUMBERS

THE NUMBERS ARE IN Immigration and asylum in the EU

IMMIGRATION OF NON-EU NATIONALS

1,360,422 2009

1,455,953 2010 51% 49% 85%

1,399,934 2011 Males Females Working age 1,170,665 2012 population (15-64 years) Source: Eurostat (2014)

ASYLUM APPLICATIONS IN 2013 DECISIONS ON ASYLUM APPLICATIONS

IN 2013

Total number of first instance decisions 450,000 taken in 2013: 328,950

Negative decisions: 216,005 (65.66%) Total number of asylum applications in 2013: Positive decisions: Refugee status: 49,725 (44.03%) 436,715 Subsidiary protection: 45,550 (40.33%) 0 1998 2013 Authorisation to stay for humanitarian reasons: 17,670 (15.64%)

Source: Eurostat (2014) Source: Eurostat (2014)

42 QUERIES — Autumn 2014 IN NUMBERS

TOP 10 COUNTRIES OF ORIGIN OF NEWLY ARRIVED NON-EU NATIONALS TO THE EU

92,575 2009 2012 87,889 78,729 65,367 64,416 53,121 47,747 43,108 38,587 35,969 32,072 29,800 28,807 28,153 26,068 25,611 24,740 21,130 19,331 18,307 Peru India India Brazil China China Russia Nigeria Albania Ukraine Ukraine Morocco Morocco Pakistan Pakistan Australia Philippines Bangladesh United States United United States United

TOP 10 COUNTRIES OF ORIGIN OF NON-EU NATIONALS RESIDING IN THE EU

1 Turkey 1,983,240

2 Morocco 1,384,935

3 China 724,428

4 India 650,710

5 Ukraine 634,851

6 Russia 589,634

7 Albania 464,149

8 Serbia 408,491

9 Pakistan 407,133

10 United States 406,266 Source: Eurostat (2014)

QUERIES — Autumn 2014 43 IN NUMBERS

TOP 5 COUNTRIES OF DESTINATION OF NON-EU NATIONALS IN 2013

15.3% 14.3% 6.8% 6.6% 6.4%

% of the total number of non-EU nationals residing in the EU

Latvia Estonia Austria Cyprus Spain

22.9% 15.2% 14.7% 13.1% 12.3%

% of the country’s total population

Germany Italy Spain France United Kingdom

RESIDENCE PERMITS ISSUED TO NON-EU NATIONALS

2008 2,534,682

2009 2,344,805

2010 2,482,279

2 011 2,073,547

2012 2,106,144

In 2012, these permits were issued:

32% 23% 22% 23% For family reasons For work For education For other reasons

44 QUERIES — Autumn 2014 IN NUMBERS

CITIZENSHIP ACQUIRED BY NON-EU NATIONALS IN AN EU STATE

In 2012, 695,810 non-EU nationals acquired the citizenship of an EU State, with the countries of origin with the most non-EU nationals receiving citizenship being:

Morocco 59,282

Turkey 53,670

India 36,922

Ecuador 28,942

Iraq 26,613

Albania 25,435

Pakistan 25,248

Colombia 19,398

Russia 18,244

Nigeria 17,934 Source: Eurostat (2014)

POPULATION PROJECTIONS IN THE EU

530 520 510 500 490 480 470 460 450 440 430 420 410 400 2015 2020 2025 2030 2035 2040 2045 2050 2055 2060

Population change with migration Natural change in population without migration

QUERIES — Autumn 2014 45 IN NUMBERS

EMPLOYMENT TRENDS IN THE EU

Top occupations with labour shortages

Health IT Engineering Sales Finance

Source: European Vacancy & Recruitment Report (2012)

EU ACTION

Evolution of the total amount of the EIF Top 5 countries that received the largest (European Fund for the Integration part of the EIF in 2013 of non-EU immigrants)

20.07%

184,099,427 16.21% € 163,001,829

€ 12.79%

9.37% 8.28% 131,500,000 € 110,500,000 € 97,500,000 € 77,500,000 €

64,900,000 Italy United Spain Germany France € Kingdom 2 011 2012 2013 2010 Source: DG Home Affairs (2013) 2007 2008 2009

46 QUERIES — Autumn 2014 DECODING

IMMIGRATION: THE NEED FOR A COMBINED APPROACH EU Member States need to agree a clear policy on immigration and asylum – a policy that includes the resources needed for its deployment. The tragedy of migrants who lose their lives during perilous journeys across the Mediterranean must be brought to an end. Controlled immigration is a resource, not a threat to the EU.

by Gianni Pittella

he Eurostat report understand why European citizens develop non, and be equally tough in dealing with show that immigration a strong sense of resentment towards Eu- people-traffickers. to the EU fell during ropean institutions and a distorted, vastly 2010-12 and that 65% out-sized perception of the immigration Eurostat also shows the extent to which of asylum requests in phenomenon. As Socialists and Democrats, Europe needs immigration. However, we T 2013 were refused. Yet we will continue to fight for a sharing of must not repeat previous mistakes, dealing the perception among responsibility for population flows between with this issue as mere do-gooders causes many EU citizens is that immigration is not EU states, an EU frontier control force, bi- more damage than immigration itself. We effectively controlled. Immigration is a com- lateral agreements with coastal countries must be careful. If it’s controlled, immigration plex phenomenon and, like all complex phe- on the southern side of the Mediterranean, is a resource. But a policy without controls nomena, it requires different actions to be assistance centres, and the possibility of or limits inevitably causes problems, conflicts carried out at different levels. To start with, applying for asylum in countries of origin. and rejection by sections of society – often there is an underlying perception – both the poor and most exposed to the effects of widely shared and understandable – that Another finding of the Eurostat report is the immigration. It also plays into the hands of Member States with a Mediterranean coast extent to which two countries in particular, extremist and xenophobic parties. Good im- have been abandoned by the EU to face this Turkey and Morocco, are a major source of migration allows the economy to grow, immigration emergency alone. Tragedies like migrants to the EU. Immigration is a phenom- doesn’t run the risk of rejection and is based that of Lampedusa, when over 360 migrants enon that has to be controlled. Where there on EU policy that combines solidarity, con- lost their lives in 2013 after their boat sank are emergencies, as with the borders of Tur- trols and security. on its way from Libya, are simply unaccept- key and Morocco, structures need to be able. And yet, every day, desperate people strengthened – both in terms of policies and are dying in their attempts to cross the Med- manpower. Brussels and certain Member iterranean to reach Europe. States in particular need to understand that ABOUT Europe’s southern sea and land borders are Gianni Pittella is the president The problem is that the egoism of certain just as important as its eastern frontier. Today, of the S&D group in the European Member States has made it difficult to agree the flow of migrants is no longer from East Parliament. He entered politics in a common policy on immigration. These to West, but from South to North. The EU 1979 as a municipal councillor for tragedies on the high seas are, in part, the needs to be in a position where it can show the Italian Socialist Party in the result of that egoism. So it’s not hard to real solidarity in facing up to this phenome- southern town of Lauria.

QUERIES — Autumn 2014 474747 OPINION

48 QUERIES — Autumn 2014 OPINION

Benjamin Stora is an eminent French historian who seeks to change the way many people think about immigrants, to encourage people to no longer see immigration as a threat but as a source of pride. He was recently appointed to head the museum of immigration history in Paris, the Cité de l’Immigration.

by Benjamin Stora

uropean progressives one hand, and that of liberalism, on the oth- should make it clear er. They are two lines of discourse that suf- that multiculturalism focate other, more complex, intermediate and the flow of ideas areas of debate. The notion that we should have always been a say “yes” to the universalist republican prin- E source of enrichment: ciple while also saying “yes” to the recogni- if we shut ourselves off from the out- tion of origins—which was previously an idea side world, we will lose our vitality and promoted by the political left—no longer fade away. France’s cultural influence in finds voice in the public arena, where it is Key Points the world, for instance, stems largely from met by accusations of communitarianism. the fact that a number of its authors—at → EU member states only regard times unknown in their home country Nowadays, globalisation and a united Eu- immigration as an economic and but taught in the United States, such as rope have shifted the goalposts. We can no security issue, and thus fail at Edouard Glissant, Kateb Yacine and Tahar longer pretend to be alone in the world, to proposing a joint strategy on Ben Jelloun—were not born on the main- say we all have the same history or to re- immigration land and are not necessarily “French” in the nounce our roots. People no longer live that conventional sense of the word. Our people way: cultural globalisation is a reality. Com- → There has been a shift in the need to understand this, to grow through munitarianism then appears as a re- elites’ dominant lines of discourse, this diversity: if we do not, we mutilate our- action to assimilation—a way of hiding which now promote a fear of selves; we deprive ourselves; we diminish behind a single identity, which is in- immigration, cultural assimilation ourselves. These exchanges are a source evitably simplistic. The dominant line of and the refusal of reciprocity of enrichment. This is something we must discourse espoused by today’s elites is → Schengen has been seen as reassert, loud and clear, in the face of those fuelled by fear of immigration, cultural as- a step backward by both extra- who claim that immigration and foreigners similation and refusal of reciprocity. European bordering countries and are a threat, something to be feared or a Eurosceptics, the former because source of destruction. IMMIGRATION: THE HOUSE it closes European external THAT EUROPE BUILT borders, the latter because it Today, the two dominant lines of discussion The history of Europe is criss-crossed with opens up the internal ones. are split between talk of assimilation, on the migratory flows, beginning in the late

QUERIES — Autumn 2014 49 OPINION

“SCHENGEN WAS SEEN AS A STEP BACKWARD, AKIN TO BUILDING A LONG BARBED-WIRE FENCE MAKING IT MUCH MORE DIFFICULT TO ENTER EUROPE.” © Musée de l’Histoire de l’immigration de l’Histoire de Musée ©

19 th century and continuing throughout the struction. To offset the problem, the powers Europe had tripled from that of 1950, totalling 20th century. People had of course moved that be in the countries concerned joined 15 million people. In 1985, European coun- around before then but never on such a scale. hands with business and industry to hire im- tries signed the Schengen Agreement, which The history of the 20th century is written migrant workers, who contributed to the came into effect ten years later. This gave in the ink of immigration. That immigra- economic growth and development of Eu- people the freedom to move between sig- tion goes back a long way and has shaped rope in the “glorious thirty” years between natory countries but at the same time closed our history deeply and productively. The im- 1945 and 1975. This led to migration both the door to those from poorer, non-EC na- mediate post-war period saw a number of within Europe and from less-developed nations. In Africa and, more speciﬁcally, ethnic minorities and other displaced persons tions. Between the early 1960s and the the Maghreb, Schengen was seen as return to their country of origin. Despite these early 1970s, more than 30 million foreign a step backward, akin to building a great migratory movements across the con- workers entered the European Economic long barbed-wire fence making it much tinent, there was an apparent shortage of Community (EEC). By the early 1980s, the more difﬁcult to enter Europe. Mean- manpower when it came to post-war recon- number of foreign citizens living in Western while, the citizens of poorer EU countries

50 QUERIES — Autumn 2014 OPINION

found it easier to move across the continent, fostering a new type of attitude towards “Eu- ropean foreigners” such as the Roma and Bulgarians, whom some saw as a threat to prosperity, security and national sovereignty.

Schengen was based on the simple principle of building a united Europe. It was designed to promote agglomeration. Schen- gen and the common currency were key milestones in shaping a united Europe within which European citizens were free to move around, along with assets, capital and commodities. It was an undeniable step forward. Yet some—such as the intransigent nationalists who seek to close every border—do not see it that way. Among them are the leaders of the National Front in France, who are against Schengen on the basis that it opens up France’s borders to other EU countries.

OPENING UP MINDS This swing, this turnaround in attitudes towards immigration dates back to the early 1990s. And in France, the situation is somewhat unique, as a result of the Alge- rian War. Millions of French people felt affected by this chapter of history when, in

the early 1990s, they watched on television Kimsooja-Bottari © Migrateur Truck as terrorism, war and violence returned to Algerian soil. Many felt they were witness- FOCUS ing a horrible remake of what they had seen or experienced between 1954 and 1962. The Cité de l’Immigration aims to show that, for the past century, France has In this respect, France is a very unique case. been built by and backed by immigrants, including foreigners such as Chagall, Europe has steadily become mired in a fear Picasso and Modigliani. Not to mention all of those hard-working people who—for of people arriving from poorer countries, the past 30 or 40 years—have helped our country grow. It is time to reconstruct less well-off than the UK or Germany. An- their journey, their path and their memories. This museum seeks to bring these other typically French fantasy is fuelled by stories into the public arena. My priority will be to give new impetus to this the movement of people within EU borders. initiative and to make the museum a forum for discussion and exhibition. To this By way of comparison, it is worth noting end, I hope to involve the national education system, by encouraging schools to that since the start of the crisis in Syria visit. And in addition to these activities, the Cité will also focus on the present: in in 2011, more than 500,000 Syrians have November, it will host an exhibition on immigrants and haute couture, featuring sought asylum in Turkey, according to Azzedine Alaïa, Cristobal Balenciaga and Karl Lagerfeld.

QUERIES — Autumn 2014 51 OPINION

“NATIONALISM IS THE LAST SECRET BASTION OF NATIONAL IDENTITY, WHICH WE SEEK TO KEEP FOR OURSELVES, WITH ALL THE SHAME AND GUILT THAT ENTAILS.”

French government estimates. By year- ing parts of East Africa (Tanganyika, now the tionalism and populism, reﬂected in anti-Eu- end 2013, one million Syrians were thought continental part of Tanzania) and Rwan- ropean sentiment. These forces must not to have arrived in Turkey, including da-Urundi were not huge territories. The UK, be underestimated. We may feel European around 300,000 in refugee camps and on the other hand, which had the world’s when we are outside the EU, but the over- 700,000 elsewhere. That is a phenomenal largest colonial empire, espoused a policy whelming feeling is one of national identity surge! Yet when 150 migrants appear in very different from that of France, and always since any European identity—while vital— Calais, France is capable of whipping itself sought to prevent “integration”, which it has yet to take shape. up into a national frenzy… achieved through a widespread system of protectorates that gave power to local elites. The paradox is that we actually need This was no Jacobin assimilation in which more immigrants. We have yet to come everyone had to learn the same language. to terms with the mass immigration that oc- That was the main difference between our curred in the sixties and seventies from our colonial empires. The second outstanding former colonies and particularly North Africa. difference lies in the fact that the British The children of these immigrants joined never came to terms with their colonial past. French schools and entered the French job They avoided it. They never really dealt with market in the eighties and nineties. Yet pol- the issue, as if it had never existed. The Brit- iticians and the elite remain silent on the ish term “postcolonial” is a reference subject of this southern source of manpow- to literature. Postcolonial studies in the er: we do not talk about it. Nowadays, it is not English-speaking world cover literature, lan- European immigration that is the main “prob- guage, poetry, philosophy and authors. In lem”; it is immigration from the Maghreb and France, “postcolonial” refers to the ABOUT sub-Saharan Africa. With this in mind, I would traces of a traumatic past, traces that like to ensure that these particular aspects never fade and invariably leave us attempting Benjamin Stora is a French of history are better known in France in the to look into the past yet never succeeding. historian. He teaches at the University broadest sense and that they permeate our of Paris 13 (UP13) and the National national history rather than being detached Within the EU, migration policy therefore Institute of Oriental Languages and from it. This is what I have been calling the deals only with economic and security con- Civilisations (INALCO), specialising need to “open up minds” for the past 30 years. cerns—there is no long-term outlook, no joint in modern North African history, wars It is a goal we can achieve through exhibi- strategy on migration. That is probably be- of decolonialisation and the history of tions, ﬁlms and documentaries, for instance. cause nationalism is the last secret North African immigration in Europe. There is much groundwork to be done, which bastion of national identity, which we On 1 August 2014, he was appointed to is where the Cité comes in. seek to keep for ourselves, with all chair the advisory board of the Palais the shame and guilt that entails… From de la Porte Dorée and became director Germany also has colonies, though a lot England to France, via Hungary and Austria of the Cité Nationale de l’Histoire de smaller. Togo and Cameroon, German-speak- along the way, there is a rising tide of na- l’Immigration in Paris.

52 QUERIES — Autumn 2014

ESSAY

THE LONG PATH TOWARD a common European asylum system

In 1999 the European Council set out the goal of establishing a Common European Asylum System. Despite much progress, that system today is neither common, fair nor efficient. It is time for all Member States to step up in ensuring that those fleeing conflict and persecution are offered protection and dignity, in line with Europe’s fundamental values.

by Michael Diedring

hen the European pertise and people, to ensure the CEAS operates Council set out a fairly and effectively. timetable for the In Tampere in 1999, the political message had creation of a Com- been straightforward: “The European Council Key Points mon European Asy- reaffirms the importance the Union and Member W lum System (CEAS) States attach to absolute respect of the right to → The Common European in Tampere, it drew widespread praise for seek asylum […] and offers […] guarantees to Asylum System still its ambition and its vision. those who seek protection in or access to the faces major challenges Fifteen years on, however, the applause has been European Union.” before it can claim to replaced by concerns that the CEAS is in danger This is fully consistent with Article 18 of the Eu- be common, fair and of becoming a contradiction in terms, with wide ropean Charter of Fundamental Rights, which efficient. disparities emerging in the way individual Mem- guarantees the right to asylum in the EU. The → Member States must ber States treat asylum seekers. Charter, more generally, also stipulates that the commit to removing the Even though the legislative instruments for a fundamental rights of all people on European wide disparities in asylum CEAS were completed in 2013, our recent re- soil must be respected, regardless of their status. applicants recognition search – carried out through our Asylum Infor- rates. mation Database (AIDA), a review of Member COMMON RESPONSES TO COMMON State asylum decisions, through our study of the CHALLENGES → They must also share treatment of unaccompanied children seeking Decisions on who should be granted asylum in best practice and seek asylum and the application of key provisions in the EU are made at national level by Member new solutions where the EU Qualification Directive – shows that many States. Common external borders and European current measures, such significant challenges remain. responsibilities under international human rights as the Dublin Regulation, The EU and Member States simply must do more, law and EU law, however, have led to the need fall short. acting closely together and sharing money, ex- for common responses via a CEAS.

54 QUERIES — Autumn 2014 ESSAY

“THE 28 EU MEMBER STATES PLUS ICELAND, LIECHTENSTEIN, NORWAY AND SWITZERLAND HOST ONLY 6% OF THE WORLD’S REFUGEES.” © Studio Kominis Studio © Asylum seekers in Petrou Ralli detention center.

The system’s stated goal is to ensure that asylum confidence in the system. Such problems are seekers enjoy the same rights in any EU country compounded by the way different Member States and have access to fair and thorough procedures operate. As a result, it is totally understandable in determining their protection needs and asylum that, say, a Syrian woman and her family should claim. Under the Stockholm Programme, the seek to have their claim considered in Germany CEAS must be based on high standards of pro- rather than Italy, given the considerable gap in tection, so that similar cases are treated alike the rate of recognition. and result in the same outcome, regardless of The figures for 2013 show that five Member where the asylum application is lodged. States – Germany, France, Sweden, Italy and the Our AIDA project, however, reveals wide dispar- UK – registered 70% of all applicants. Southern ities in asylum applicants recognition rates (i.e. Members States, meanwhile, are coming under the share of positive decisions within the total increasing pressure due to arrivals by sea. Clear- number of decisions). These rates at first in- ly, the responsibility for asylum seekers is not stance range from 4% in Greece and 8% in equally distributed across all EU Member States. Hungary to over 80% in Malta and Bulgaria. Given the high stakes - including the possible Even for Syrians, who have a refugee profile, loss of human life during dangerous sea journeys there exist divergent recognition rates across - greater co-operation in terms of shared financ- the EU - as low as 51% in Italy and 60% in ing, expertise and people is required. Greece, compared with 99% in Germany. Other problems associated with EU asylum in- OBSTACLES, DISPARITIES AND THE clude irregular transit and residence, onward DUBLIN REGULATION movements from the first Member State entered, It should not be forgotten that the new asylum delay in the asylum procedure and a lack of op- package has resulted in improvements, such as portunity to integrate, which undermines public strengthening the right of asylum seekers to be

QUERIES — Autumn 2014 55 ESSAY

heard and providing additional protection for Claims are often delayed for an extended period particularly vulnerable groups such as torture or not decided upon, individuals returned from survivors, trafficked women and unaccompanied one country to another may be detained or find children. themselves living on the street because of lack But our research also identifies other ways in of support, while families are frequently sepa- which the CEAS does not yet meet the standards rated. What is more, the system is highly expen- of Tampere and Stockholm. Asylum seekers still sive for Member States to administer. face many other obstacles and disparities between Member States, beyond differences in A MORE HUMANE SOLUTION recognition rates. There can be difficulties in Clearly, a fair, equitable and more humane solution gaining access to the asylum procedure, there is required, where the wishes of the asylum seek- are inadequate housing conditions or a lack of er are considered, as are his connections with a housing, there are problems over receiving qual- particular Member State. Such a solution would ity legal assistance and there is also the possi- also help individuals to integrate more easily. The bility of detention in many Member States while emphasis should surely be on the transfer of funds the application process is underway. in such cases, rather than the enforced transfer Another particularly striking illustration of the of people. system’s fundamental deficiencies is provided The scale of the problems surrounding European by the Dublin Regulation. Simply put, it requires asylum should not be exaggerated, however. In- that the Member State immediately responsible deed, they should be put in clear perspective. More for the asylum seeker on his or her arrival on EU than 51 million people around the globe are now (or Shengen Associated States) territory should categorised as forcibly displaced, the highest also be responsible for making the asylum de- number since the end of World War II. Yet while cision. The problems begin to mount, however, the world’s developing countries host 86% of all when an asylum seeker arrives in Italy but then refugees, and the least developed nations host travels to, say, Germany to meet up with relatives 24%, the EU’s 28 Member States (plus Iceland, there. The Regulation stipulates that Germany Liechtenstein, Norway and Switzerland) host a should physically send the individual man back mere 6%. to Italy for the case to be settled. In 2013, 435,385 people sought asylum in the EU, a region with a population of 507 million, most The Dublin Regulation, it should be added, is of them coming from Syria, Russia and Afghani- based on the flawed assumption that there is a stan. Lebanon, in comparison, has a total popu- level playing field across the EU. lation of four million people yet currently hosts There are myriad reasons why an asylum seek- more than one million refugees from Syria alone. er would choose to apply in one country rather Extrapolating those number, that would be like than another. These include migration routes, the EU hosting around 126 million refugees. the location of family or diaspora, language, integration prospects, living conditions and the likelihood of being granted international protec- “THE DUBLIN REGULATION IS BASED tion. The concentration of asylum applications in just five Member States in itself graphically ON THE FLAWED ASSUMPTION THAT illustrates the failure of the Dublin system. THERE IS A LEVEL PLAYING FIELD Worryingly, the Regulation also gives rise to other harsh consequences for asylum seekers. ACROSS THE EU.”

56 QUERIES — Autumn 2014 ESSAY

“A FAIR AND EQUITABLE SOLUTION REQUIRES THE DESIGN OF A NEW, MORE HUMANE SYSTEM THAT CONSIDERS THE PREFERENCE OF THE ASYLUM SEEKER.”

Most refugees, as the Syrian conflict illustrates, fundamental values (which include respect for remain in their immediate regions. Only four per human dignity, freedom and the respect for hu- cent of those affected in Syria have sought pro- man rights). tection in Europe. Over one weekend in mid-Sep- The role of the European Parliament in the asy- tember, 140,000 refugees were taken in by lum debate remains important, even after the Turkey after escaping from Syria. That compares adoption of the asylum package, and particularly to the 113,000 people who received some form so given the rise of some extreme right parties of protection in the EU in 2013. In considering and the increase in xenophobia across Europe. these figures, the EU’s responsibility for asylum Acting as the Commission and Council’s ‘watch- under international and EU law takes on renewed dog’, it can promote high standards by Member importance. States; support safe and legal routes of access to the EU including an increase in resettlement; THE WAY FORWARD support the efforts of civil society; and encour- Today, the ability of asylum seekers to enter the age the Commission to play a strong role in EU lies at the centre of the debate. Given the monitoring the implementation of the CEAS dramatic increase of arrivals by sea and the dan- while ensuring that fundamental rights and gerous journeys being taken by refugees over EU legislation are respected. the Mediterranean, there is an urgent need to establish safe and legal channels of entry for Finally, our research has highlighted sev- those fleeing conflicts and hardships, such as eral other important areas where improve- Syrians, Eritreans and Somalis. Europe’s policy ments to the asylum system are needed: needs to pivot toward protecting people, rather than merely maintaining its focus on controlling • Legal assistance – Access to free, high-qual- borders. ity legal assistance must be guaranteed at all Furthermore, now that the basic legislative pack- stages of the procedure, thus ensuring that asy- age for the CEAS is in place, there is an impor- lum seekers can assert their rights. It is clearly tant opportunity during its transposition and unfair to expect them to understand the demands implementation for Member States to establish and increasingly sophisticated procedures of the high protection standards in national legislation system, particularly if they are operating in a and build upon examples of good practice in language other than their own. The current prac- other Member States. There is a need for Mem- tice represents an inefficient use of resources. ber States to be ambitious and implement the Legal assistance from the outset (i.e. front-load- acquis to its fullest potential for the CEAS to ing) would allow for a fairer adjudication of asy- properly reflect fundamental rights and Europe’s lum claims and more efficient administration.

QUERIES — Autumn 2014 57 ESSAY

“EUROPE’S POLICY NEEDS TO PIVOT TOWARD PROTECTING PEOPLE, NOT MAINTAIN ITS CURRENT FOCUS ON CONTROLLING BORDERS.”

• Effective remedies – Asylum seekers must • No race to the bottom – EU Member States have an effective right and opportunity to appeal, should aim for high protection standards within with the concurrent right to remain in the territo- their asylum systems to enhance both the effi- ry until that appeal has been examined. This is a ciency and fairness of EU asylum procedures. An fundamental right under European law, and is asylum system which fails to protect the legal closely linked to the international principle of rights of refugees and asylum seekers also fails Ivan© Maly non-refoulement (i.e. forbidding the rendering of to do justice to the fundamental values of the EU. ABOUT a true victim of persecution to their persecutor). Michael Diedring is a The implementation of the Common European German-American lawyer, • Adequate access to housing and a means Asylum System gives the EU and its Member and Secretary General of of subsistence – A lack of housing or support States the opportunity to develop a system pro- the European Council on can, in some cases, amount to inhuman and de- viding protection and dignity for people fleeing Refugees and Exiles grading treatment. Moreover, ensuring that asy- war and persecution. Several aspects of the (ECRE). He was also lum seekers become self-sufficient, maintain system have improved, but on-the-ground re- Executive Director of the their dignity through employment and integrate search on how it actually operates reveals that CEELI Institute (Prague), into their host country is in the interests of both much more must be done. The future develop- Director General of the the asylum seeker and society as a whole. ment of the CEAS will add value if it improves Baltic Management asylum policies and practices in line with Eu- Institute (Vilnius), • Detention – As a general rule, asylum seekers rope’s international responsibilities, and if it puts Country Representative for should not be detained, given the adverse con- the emphasis on protecting and rebuilding the the Baltic-American sequences this can have on their physical and lives of people. Enterprise Fund (Vilnius), mental health. It can also be devastating for Deputy Director of the people who have suffered trauma. Children International Bar should never be detained - it can never be in Association (London), ABA their best interest. EU Member States should Central, and East not ‘welcome’ persons fleeing conflict and per- European Law Initiative secution by locking them in a cell. (Washington, DC).

58 QUERIES — Autumn 2014 CURRENTLY IN NEWSSTANDS NEW FORMULA

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MIGRATION Europe lacks teeth © Antoine© Corbineau

60 QUERIES — Winter 2014-2014European© Union 2014 INQUIRY

The President of the European Commission, Jean-Claude Juncker, aims to set new priorities to effectively tackle illegal immigration one year after the Lampedusa tragedy. The outgoing Commission claims to have brought all of its resources into play but confesses that it still lacks teeth. Is Europe poorly equipped to tackle the problem?

by Loreline Merelle & Nicolas Gros-Verheyde

o matter what “TECHNICAL” TOOLS we do, we can- For the past ten years, the EU has none- not prevent this theless been increasing the operational kind of tragedy,” instruments at its disposal. A number of lamented Michele agencies designed to promote coopera- N Cercone, spokes- tion—Eurojust for justice, Europol for po- person for former EU Commissioner licing, Frontex for border management for Home Affairs Cécilia Malmström, and Eurosur for surveillance—are chiefly reacting to the death of nearly five responsible for coordinating the capabil- Key Points hundred migrants off the coast of ities of member states on both land and Malta. The Commission, which exercised sea. These agencies are required to pro- → Tighter borders prompt its right of initiative as soon as the Maas- vide strictly technical support and have a immigrants to take riskier routes tricht Treaty came into effect, nonetheless limited mandate, the product of lengthy and go through trafficking claims to have brought all of its resources negotiations between European institu- networks. into play. Irregular immigration has been a tions. According to Ms Wolff, Frontex has shared competence since the ratification ended up a compromise between estab- → Frontex will most certainly of the Treaty of Lisbon in 2009 and is one lishing a central division of guards to eventually replace Mare Nostrum of the joint EU priorities in the European monitor European borders—a move but doesn’t have the logistical Pact on Immigration and Asylum signed sought by the Commission—and network- capacities to save the lives of the previous year, a document which Sa- ing between different units of border migrants in danger. rah Wolff, a researcher at Queen Mary guards—a bare-bones option backed by → When a tragedy occurs, Frontex University of London condemns as hav- the Council. As a result, Frontex is con- is an easy scapegoat for individual ing “no legal value”. Indeed, the result is trolled by the European Commission but states, whereas it depends on them a “fragmented” collective policy that has is managed internally by the 28 member for its budget only partially been implemented. states, on which it depends for its budget

QUERIES — Autumn 2014 61 INQUIRY

and resources. This decentralised structure allows the Commission to lay responsibility at the door of individual countries 1995 in the event of inaction while leaving member states free to point a ﬁnger at Schengen Agreement comes into the agency when things fail to run effect, opening Europe’s borders. smoothly, notes the London-based researcher, underscoring the agency’s role as a scapegoat (see page 64). 2004

TACKLING THE ROOT OF THE Frontex border agency established. PROBLEM IN COUNTRIES OF 2005 ORIGIN AND TRANSIT However, the work of these agencies First reported cases of migrants being extends well beyond European borders: turned back in Ceuta and Melilla. its representatives are also active in mi- Publication of the joint declaration on grants’ countries of origin and transit. The migration and mobility. Commission and the European External 2009 Action Service (EEAS) have undertaken and backed several hundred consultancy Ratification of the Lisbon Treaty. initiatives on managing borders, supplying Migration policy becomes a joint resources and sharing information, mainly initiative. in Africa. The goal is to get to the root of 2011 illegal immigration and human trafficking. Yet NGOs seeking to protect the rights of Frontex revises its mandate migrants have criticised these initiatives under pressure from as short-term measures that are “ineffec- the European Parliament. tive” and “dangerous”. As Caroline Intrand, 2013 spokeswoman for the Migreurop network, explains: “Tighter border controls prompt October: 366 people drown off the people to take riskier routes and encourage 2013 coast of Lampedusa, triggering the them to seek out trafficking networks.” launch of Italy’s Mare Nostrum rescue operation. “They are also poorly adapted,” adds So- December: Task Force Mediterrane- cialist MEP Ana Gomes. She cites the an (TFM) submits its findings and the example of the European civilian border Eurosur border surveillance system is introduced. assistance mission EUBAM Libya, which 2014 was launched in 2013 in Tripoli before being hurriedly relocated to Tunis: “How can September : Traffickers intentionally you set up a mission to manage security sink a vessel off the coast of Malta, with 500 migrants aboard. Jean-Claude and borders when there is no security at Juncker introduces a specific portfolio all?” Instead, the MEP claims, the EU would for migration, given to Dimitris do better to focus on establishing demo- Avramopoulos of Greece. cratic institutions. >>

62 QUERIES — Autumn 2014 COOPERATION WITH NON-EU COUNTRIES IS THE KEY TO AN EFFECTIVE EUROPE

António Vitorino was European Commissioner for Justice migrants. It’s a wide-ranging issue that requires better cooperation, and Home Affairs from 1999 to 2004. He has expressed especially with non-EU countries. concerns over the influx of migrants into Europe and has called for improved cooperation with non-EU countries. Q.: In what way is cooperation with non-EU countries a solution? Queries: Europe is now criticised for its lack of joint A.V.: We cannot be effective if we do not cooperate with the responsibility. Is that a result of the instruments that the countries through which migrants are travelling and from which EU has put in place? they originate. Government authority is weak in Libya and Egypt, António Vitorino: On the contrary, instruments such as Frontex for instance. There is limited cooperation, which is one of the help to promote joint responsibility. The agency is a good example problems. The number of refugees has risen by 25% as a result of how we can share the burden on an operational level. Some of the situation in Syria. We need to go to the root of conflicts and countries have maritime boundaries; some have land borders; make sure that migration policy is one of the first things on the some need only focus on managing their airspace. The agency agenda in talks with the countries that migrants are coming from. has made it possible to coordinate individual capabilities. Each It is only in this way that we can monitor our external borders more member state has become responsible for monitoring all of Eu- effectively and combat human trafficking. rope’s external borders. That is already a good start. Q.: Through Mare Nostrum or Frontex? A.V.: Initiatives undertaken by the Italian authorities such as Mare “INITIATIVES UNDERTAKEN Nostrum and Frontex help to discourage traffickers. However, deliberately sinking the boats of migrants at sea is an appalling BY THE ITALIAN AUTHORITIES crime. These people are criminals and must be arrested. A key SUCH AS MARE NOSTRUM method of effectively addressing the issue lies in tackling the root of the problem in transit countries. At the same time, it is important AND FRONTEX HELP TO that we clarify our responsibilities with regard to policing the seas, in terms of both our humanitarian obligations and our obligations DISCOURAGE TRAFFICKERS.” under treaties governing maritime law.

Q.: Yet some still have doubts over the agency’s efficiency... A.V.: I did not say the agency had a straightforward mandate. It is a very slow process. It involves sharing the experiences of border guards. Training them is already a challenge in itself. We know to what extent it can be hard to enable cooperation between NATO soldiers, even though the system has been in place for a number of years. Bringing together border guards with very different backgrounds on the same operation is a real headache. It takes time to get everyone on the same page. But things are moving forward. We have now deployed agents at the land borders between Greece and Turkey and tangible missions are being put António Vitorino is the President of the in place in the Mediterranean. Other resources have been devel- Jacques Delors - Notre Europe Institute. He oped to support Frontex, such as Eurosur, which can identify is currently a member of the Transatlantic European networks along with the vessels and ports used by Council on Migration. © Institut Jacques Delors

QUERIES — Autumn 2014 63 INQUIRY

FRONTEX An obvious scapegoat

European border agency Frontex is tasked with a number of missions both inside and outside the EU, including intercepting migrants. These missions involve high-risk operations that leave it open to criticism from every direction.

It can take months or even years to put together a European bor- IN THE FIELD der-monitoring operation. Frontex has been working on “Operation Whether working at the border between Greece and Bulgaria or Triton” [see p. 67] since October 2013 but the mission has yet to patrolling the Mediterranean coast, Frontex border guards have get off the ground, largely because of a multi-tier internal process. a strict remit to provide technical support for initiatives undertak- The scope of a Frontex operation—its operating area, budget and en by individual countries. They take part in patrols to find and host country—is determined through a yearly risk analysis con- intercept migrants and are always fewer than national operatives ducted in partnership with the European Union Satellite Centre in number. When it comes to operations at sea, explains Caroline (EUSC) and border surveillance system Eurosur, as well as through Intrand, spokesperson for the Frontexit campaign, “the agency talks between the 28 member states via the Frontex management has neither the mandate nor the resources needed to save mi- board. Only once the scope of the operation has been approved grants, since its vessels are always too small.” In contrast to the internally can representatives begin to draw up an operational Italian rescue operation, Mare Nostrum, which uses corvettes and plan comprising the type and quantity of resources needed. The frigates that can accommodate more than 1,000 people, Opera- European Commission then issues a request for participation tion Triton will not be equipped to rescue migrants. among the 28 member states. Each EU country is required to indicate whether it wishes to take part in the operation and to VAGUE RESPONSIBILITIES specify to what extent. “The participation of member states is Another bone of contention involves the responsibilities and room voluntary,” explains Frontex spokesperson Izabella Cooper: “The for manoeuvre given to Frontex agents in the field in the event of an agency is there only to coordinate resources.” Frontex co-finances incident or in dealing with migrants who are turned back at the bor- deployment of boats and patrols, along with transport for teams to der. Caroline Intrand: “Frontex agents have submitted internal reports the operating zone and field training for border guards. Member of actions that infringe human rights, especially with regard to mi- states are responsible for paying agents’ wages. grants being turned back by national border guards, while they look

64 QUERIES — Autumn 2014 INQUIRY © European© Union 2014

on, powerless to do anything. In response to its detractors, Frontex fundamental rights officer and international organisations—liaising has published a Code of Conduct that border guards are required to with Frontex through an advisory forum—are bound by a “confiden- follow: “If they fail to do so, they can be suspended from our operation, tiality clause” confirms the Migreurop network, adding that their ac- sent home and reported to their authorities,” says Frontex. However, tions are “subject to the approval of member states”. the code is not legally binding. Frontex does not have the power to conduct criminal investigations or discipline officers. PROMOTING AN INDEPENDENT AGENCY As a result, member states are closely involved in the running of the FRONTEX AND HUMAN RIGHTS agency. Too much so, according to Sarah Wolff, who deplores what In a bid to dissuade unwanted practices, Frontex appointed a funda- she describes as the “schizophrenic attitude” of EU countries. Frontex mental rights officer following the revision of its mandate in 2011. is used as “a scapegoat to offset the inconsistency of national policies”. The position has been held by Inmaculada Arnaez Fernandez of Spain Countries such as Spain, Greece and Italy, she says, “lambast Frontex for nearly three years. She reviews operational plans before they are for its lack of efficiency yet fail to provide more financial support or implemented, assists operations in the field, draws up recommen- resources”. Ms Wolff is campaigning for “an overhaul in Frontex gov- dations, suggests preventive measures and provides fundamental ernance to remove the agency’s dependency on member states”. rights training for border guards. But her resources are limited. Her team consists of only one part-time assistant and an intern. As a “FRONTEX HAS PUBLISHED Frontex representative, her goal is to work independently, as required by the regulation, with the benefit of “direct access to information.” A CODE OF CONDUCT That is a contradiction in terms, according to associations that seek THAT BORDER GUARDS to protect the interests of migrants, which note that monitoring human rights is still an internal issue that “lacks transparency”. Both the ARE REQUIRED TO FOLLOW.”

QUERIES — Autumn 2014 65 INQUIRY

>> THE GIVE WITHOUT THE TAKE From a diplomatic standpoint, cooperation with non-EU countries also requires agreements to allow re-entry of migrants and facilitate their return. The Balkans, Russia and Turkey have already signed such ac- cords. Yet Mediterranean countries—chiefly Algeria and Morocco—remain highly reluctant. Largely because they feel Eu- rope’s terms and conditions are unacceptable, Sarah Wolff explains: “According to one clause, Morocco would have to allow re-entry not only of its own nationals but also of any migrants that have travelled through the country to reach the sea.” This is something Morocco refuses to do without guarantees on facilitating visas for its citizens. Yet European member states

baulk at the idea. Talks have been bogged European© Union 2014 down for the past ten years as a result of the stand-off. However, as one source with a detailed step for anyone seeking the protection of alternatives and trafficking networks will knowledge of the case notes: “It is not up another state. “Sometimes, ‘forced mi- flourish,” the same expert predicts. Sadly, to the EU to provide more legal methods of grants’ are not considered as such and are managing legal migration is an area that migration; it is up to member states to use deported even though they are subject to has been largely overlooked. No agen- or not to use the tools at their disposal… international protection,” deplores Franck cy has yet tackled the thorny problem of Especially within EU borders.” Düvell, a researcher at the Centre On Mi- people within European borders legally gration, Policy And Society (COMPAS) at entering the EU with a short-stay Schen- THE UNCRACKABLE ASYLUM Oxford University. More than 60% of mi- gen visa and staying as undocumented CONUNDRUM grants seek asylum outside of the first EU migrants, which Mr Düvell says accounts The European Asylum Support Office country they enter, aiming to reach France, for nearly 80% of irregular immigration. In (EASO)—set up in 2010 to provide a cen- the UK or Germany. As the Dublin Regu- creating a specific portfolio on migration, tre of expertise on asylum—faces an im- lation suggests, some migrants refuse to Mr Juncker has raised hopes of a more possible conundrum. EASO is tasked with give their fingerprints when arriving at effective Europe and of greater internal contributing to the development of the ports in Italy and Malta for fear of being coordination between its departments. Common European Asylum System—which forced to remain in the initial host country. Yet to meet expectations and open up the EU has been working to create since As a result, as a former European expert legal channels for migration, the new pres- 1999—and is more in demand than ever notes: “They disappear off the radar and ident-elect of the European Commission before as a result of the strain of migration leave the first EU country they enter via will need to join battle with member states felt in member states such as Italy, Greece, networks run by traffickers.” to promote mobility, which could be seen Malta and Spain. Yet it has never been so as a threat to national security against hard for migrants to seek asylum in Europe. UNTAPPED POTENTIAL the current backdrop of terrorism. The There are no guarantees that they will be “If we fail to provide suitable legal chan- prospect of a clash of powers already recognised as asylum seekers—the first nels, then people will use underground looms large.

66 QUERIES — Autumn 2014 INQUIRY

CLANDESTINE AND IRREGULAR IMMIGRATION TO THE EU

CLANDESTINE IMMIGRANTS IRREGULAR IMMIGRANTS

Number of clandestine immigrants spotted by Frontex in 2014:

1 to 3 million undocumented migrants are currently living in Europe after arriving legally with a VISA.

120,000 on the Mediterranean 28,000 Sea at the Greco-Bulgarian border It accounts for 80% of the total immigration figures

Frontex launches operation Triton in support of Mare Nostrum

Triton is acknowledged as the largest operation ever coordinated by Frontex. The mission is due to be launched in November and will operate in Italian waters in the Central Mediterranean to provide support for Italy’s Mare Nostrum rescue operation. With three vessels, three surveillance aircraft and seven teams of border guards, the operation will be equipped only to find migrants, not to rescue them. As a result, the Commission has warned that Triton “cannot replace the Italian operation”. Its budget is limited to €3 million per month, compared with €9 million for Mare Nostrum, which Italy has threatened to wind down once the European operation is up and running.

QUERIES — Autumn 2014 67 PROMOTING AN EFFECTIVE APPROACH TO LEGAL MIGRATION

Ana Gomes is a member of the Committee on Civil Lib- erties, Justice and Home Affairs (LIBE) and a member of “EUROPE NOW CARRYING the Subcommittee on Security and Defence at the European THE COST OF ITS FAILURE Parliament. She defends the implementation of a real strategy on legal migration and questions the validity of the European TO MANAGE THIS TYPE OF Union’s security-oriented approach. REGULAR MIGRATION. AND Queries: How do we stop the influx of migrants at our THAT COST IS NOT ONLY FELT borders? Is there a solution to the problem? Ana Gomes: We cannot stop people coming into the Europe- IN HUMAN TERMS. IT IS ALSO an Union, whether they are fleeing a war zone or simply are seeking a better life. The majority are refugees towards whom ECONOMIC.” we have an obligation to provide a welcome and hospitality. It is ludicrous to think that focusing all our efforts on security Q.: What can the European Parliament do to help? might halt the influx. As long as there are wars in the world, A.G.: The LIBE Committee is constantly in contact with key migrants will continue to come. representatives from European agencies to monitor their development. For instance, we work to support improved rescue Q.: What do you think of the instruments the EU has put capabilities for Frontex. Yet it is the European Commission that in place? has the right of initiative. As a result, we put political pressure A.G.: The security-centred systems in place cannot work ef- on the Commission. However, the new European Parliament fectively. On the one hand, they don’t have the resources; on now has a majority of right-wing members who seek an ev- the other, they lack an underlying policy designed to manage er-harder line on security. And we have yet to see the full extent migration, particularly with regard to legal channels, which is of such policy. One thing is for certain: it will have an impact the only means of effectively combating human trafficking. The on future developments. first step in tackling irregular immigration is to put in place a regular migration policy. There is a joint policy on paper but 1- Ed: work permit granted under certain conditions member states do not implement it. to non-EU citizens, launched in 2007.

Q.: What kind of tools would be needed to implement such a strategy? A.V.: There is no single effective solution. We need to share costs in a more balanced fashion while better identifying the status of migrants when they arrive. We cannot confine ourselves to a «blue card»1 strategy that funnels the smartest people into a handful of European countries. We need real policies. A humanitarian visa is an obligation. We need to open up legal channels. Why would people turn to traffickers if they had a legal means of migration? Europe now carrying the cost of its failure to manage this type of regular migra- Ana Gomes of Portugal has been an MEP tion. And that cost is not only felt in human terms. It is also since 2007 for the Group of the Progressive economic. Trafficking networks open the floodgates to an Alliance of Socialists and Democrats in the influx of cheap labour. European Parliament. © DR

68 QUERIES — Autumn 2014 OBJECTIVE. RELIABLE. EUROPEAN

The leading independent, www.europolitics.info subscription-based news service on EU affairs EUROPOLITICS_SA ESSAY

SHOULD EUROPE SHUT THE DOOR on migration?

Migration is a natural human behaviour. As twenty-first-century Europeans, we should not be so foolish as to believe that we can live in an impregnable fortress, in an impossible Europe irretrievably in decline. It is disheartening to witness a rising tide of nationalism, racism and xenophobia. Such as it stands today, European policy on migration is untenable, as it lacks a common approach to the challenges this reality poses. Migration legislation must not allow discrimination and social dumping.

by Luis Miguel Pariza Castaños

t is discouraging to witness the criminalisa- people decide to pull up stakes and move elsewhere, a phenom- tion of immigrants by many European polit- enon that has occurred in every culture and region of the world ical leaders and media outlets, and the steady throughout human history. The massive scale of European emi- rise of nationalism, racism and xenophobia. gration over the past two centuries—not only within Europe, but An ominous discourse that was a part and parcel also to other parts of the world such as North and South Ameri- I of only a few minority extremist ideologies a few ca, Africa, Asia and Oceania—should have served to inoculate us years ago has since crept into the political agendas of European against intolerance and xenophobia towards those we perceive governments and, to a certain extent, the agendas of European as “different”. institutions as well. We Europeans desire to sell our goods and services in the world A number of opportunistic government and political leaders have marketplace and have our currency circulate freely. It is therefore acted extremely irresponsibly by taking advantage of the current foolish to think that twentieth-ﬁrst-century Europeans can live in an economic and social crisis to sway voter opinion with populist impregnable fortress, in an impossible Europe irretrievably in decline. pandering. The history of Europe has taught us the dangers of straying down this dubious path. Shutting the door on immigration is not consonant with the interests of Europeans, human nature, the times we live in, or the in- A NATURAL HUMAN BEHAVIOUR terdependence between Europe and the rest of the world. It is Emigration is a natural human behaviour. In given circumstances, neither viable nor intelligent.

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Nations, businesses, organisations, cities and people are individual links in networks that connect and bind them together, networks that extend beyond the administrative boundaries of individual states. With every day that passes, information technology and modern modes of transport are bringing us closer and closer together. This is a hallmark of our times.

The EU is negotiating bilateral and multilateral agreements designed to facilitate and govern the free trade of goods and ser- Key Points vices and capital mobility. The international community is also implementing collective security systems to deal with new glob- → Fragmentation of migration al risks. policies between the 28 member states prevents the creation CREATE INTERNATIONAL REGULATIONS TO FACILITATE of a clear and legal immigration MIGRATION AND MOBILITY path to EU. Why are European and other developed countries unwilling to facilitate migration and mobility? The time has come for us to → It also prevents access to labour change tack on this issue and develop international regulations markets in need of workforce based on ﬂexible, transparent procedures to make migration to extra-European migrants looking and mobility easier. The regulation of the free movement of for work. people, just like the regulation of the free movement of capital → It also leads to contradictory and goods, is an essential pillar of globalisation. The right to policies and can sometimes mobility and migration should be a fundamental tenet in a glo- endanger migrants’ human rights. balised world.

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However, this ﬂow of internal migration has come under the ﬁre of various political leaders and governments, which reject the fundamental right of all Europeans to free movement within the EU – a key building block of European citizenship. The demagogy and populism of certain irresponsible politicians who practise such foolish brinkmanship are endangering one of the very pillars upon which rests the Union.

The legal framework of the Treaty grants member states an ample margin of autonomy regarding the harmonisation of their legislation on immigration from third countries. Yet the harmonisation of other policies governed by similar legal frameworks has proved less difﬁcult.

In this light, it is deeply frustrating that the Union has yet to establish a common policy and harmonised legislation on immigra-

© European© Union 2014 tion and asylum. Although various policy initiatives and directives have been adopted during the last ten years, each member state has its own legislation and makes its own decisions, which at We Europeans like to travel freely throughout the world and expect times are contradictory and fail to adequately protect human rights. easy access to visas. How can we promote international mobility for Europeans while hindering the mobility of the rest of human- ASYLUM & PROTECTION ity? Let’s be pragmatic: Europeans should urge the international It’s worth taking a closer look at the Union’s asylum policy. Although community to develop a global governance system for mobility all member states must comply with international requirements and migration based on UN human rights treaties, International regarding asylum, each has a very different set of national laws. Labour Organisation (ILO) conventions and the International Con- The joint goal within the EU is to establish a common European vention on the Rights of All Migrant Workers and Members of asylum system and status, establishing a greater degree of soli- Their Families, which the majority of EU member states have yet darity between member states. Several basic directives and reg- to ratify. ulations have been adopted to this end.

The first and most urgent step that the European Parliament and However, at Europe’s eastern borders, in Africa and in the Middle the Council must take is to make Schengen visa rules more flexible. East, hundreds of thousands of displaced people are fleeing from war and persecution. European countries have been involved in INTERNAL MIGRATION some of these conflicts. From a legal point of view, one must make a distinction between the labour mobility of European citizens and the immigration and Despite the fact that the number of world refugees is now at a mobility of third-country nationals. level not seen since the Second World War, European governments are wasting time engaging in hypocritical debates. Instead of The Maastricht Treaty provides a sound legal basis for the free fulfilling their commitment to protect these people and developing movement, residence and employment of all EU citizens with- an effective programme that would ensure protection and soli- in the European Union. An increasing number of European darity in collaboration with neighbouring countries and interna- citizens have been prompted to make use of their freedom of tional organisations, they have merely agreed to implement the internal mobility in the wake of imbalances in the European Dublin Regulation, which fails to foster solidarity on refugee pol- labour market. icy. European governments have decided that best way to resolve

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“EUROPEAN GOVERNMENTS HAVE DECIDED THAT BEST WAY TO RESOLVE THE PROBLEM IS PLACING THE FATE OF DISPLACED PERSONS IN THE HANDS OF CRIMINAL HUMAN TRAFFICKING NETWORKS.”

the problem is placing the fate of displaced persons in the hands ket developments, integration, the fight against discrimination, of criminal human trafficking networks and erecting new barbed- family reunification, entry legislation, irregular immigration, border wire fences and impenetrable walls along Europe’s frontiers. To control and cooperation with countries of origin and transit. be fair, the governments of Italy and Spain at least have systems in place to rescue immigrants in peril at sea. We must adopt a medium- and long-term view. Unemployment levels are currently on the rise as a consequence of the eco- The incoming Commission must take the initiative and urge the nomic crisis and austerity policies. This situation is provoking Council and the Parliament to approve an ambitious protection major asymmetry between labour markets in Europe: while plan that would ensure greater solidarity between member states companies in some countries are not in a position to provide in terms of the acceptance and resettlement of refugees. employment for much of the national labour force, companies in other countries are unable to find workers with the specific FOR AN IMMIGRATION THAT IS RESPECTFUL skills they require. OF HUMAN RIGHTS Current immigration policy falls short of the mark. It fails to provide Many European businesses need to increase their capacities, yet a joint approach to the challenges Europe faces. The common frame- many workers cannot gain access to labour markets, which are work is very weak, consisting only of basic entry legislation that is too closed. very sector-oriented. Governments continue to believe that national entry legislation is the key to preventing the arrival of new immigrants. INCREASING THE MOBILITY OF EUROPEAN WORKFORCE They resist the introduction of a more open policy respectful of human However, European legislation must be changed so as to ensure rights. They also reject the notion that EU external border manage- that intra-European labour mobility is voluntary and fair. It must ment should be the shared responsibility of all member states. put an end to the wage gaps and social discrimination that are common today. Four years ago, the Belgian presidency of the EU asked the Eco- nomic and Social Committee to prepare an opinion on the role of Obstacles that impede mobility or internal migration must be over- immigration in the context of demographic challenges. The con- come, including those related to the recognition of academic clusions reached were clear: in order to reverse the current de- qualifications, pension rights, social and labour discrimination, and mographic trends, action must be taken in a number of areas language skills. The EURES portal has the capacity to provide (including family policy, social protection and reconciliation). The the information companies and workers need to take advantage EESC also recommended the implementation of a more open of intra-European labour mobility. immigration policy. The legal entry of new immigrants is part of the solution to the demographic challenges facing Europe. We must keep in mind that economic cycles are always shorter than demographic ones. Economics and demographics have dif- EU immigration policy should take a holistic approach and take ferent timeframes and rhythms; demographics are affected by into account numerous factors such as human rights, labour mar- social trends that have profound and long-lasting consequences.

QUERIES — Autumn 2014 73 ESSAY © Myriam Thyes Myriam ©

Today we are witnessing the concurrence of a negative eco- afford third-country nationals legal and transparent procedures nomic cycle and a demographic cycle marked by a low fertility for entering Europe. This state of affairs is hindering the efﬁcien- rate and an increasingly ageing population. Experts across the cy of businesses and hiring agencies. board warn that the ageing and decline of a society’s population has an inevitable negative impact on its activity rate, labour With the present instruments, it is impossible to manage immi- market, social security system and public ﬁnances. The demo- gration well. Current national laws and policies have been contrived graphic situation in Europe will notably limit the continent’s to restrict the entry of new immigrants, but what Europe needs economic growth once the current international cycle has run now is to set more ambitious objectives and establish a more its course. proactive common immigration policy.

European political leaders must assume a role in educating The European Economic and Social Committee has warned citizens not to be easily swayed by the appeals of xenophobes European governments and institutions that they must consult and populists. They should clearly explain the European Union’s with companies that are well aware of the problems that must need for a more open, common immigration policy as well as be solved. Europe is a second-division player when it comes greater harmonisation of national immigration laws and inform to attracting international workers. European companies face the public that the current situation, in which immigration is the challenge of hiring workers in a globalised world while subject to twenty-eight distinct and contradictory policies and operating under the strictures of national labour markets and laws, is simply not sustainable. immigration laws.

The current EU immigration directives have been fragmented in Businesses and hiring agencies are telling us that many qualiﬁed their transposition into national law in the EU-28 due to their international job candidates look elsewhere for employment be- sector-based focus, creating an impenetrable maze that does not cause they perceive Europe to be xenophobic and racist.

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The EESC has also recommended that national leaders through- its Common Basic Principles for Integration as a roadmap for out Europe consult trade unions in their respective countries. European policy. These organisations are very conscious of how the use of cheap immigrant labour to force down local wages and social dumping One highlight of the Forum’s November 2013 meeting was its distorts markets and sparks social confrontation. Populism adoption of a declaration on citizenship rights for immigrants and draws strength from the ways in which European and national their involvement in the democratic life of Europe. laws allow businesses to engage in wage discrimination and social dumping. Integration is a social process that can be furthered by good political decisions; however, poor political decisions can hinder Populists often accuse immigrants of abusing social welfare sys- the achievement of this goal. Integration is a collaborative process tems. This is a myth that has no basis in reality. The EESC has that depends upon the involvement of both immigrant communi- consulted with experts and analysed the data: immigrants’ con- ties and the societies that receive them. Local communities and tributions in the form of taxes and social security payments far workplaces present the greatest challenges. outweigh the costs of the services they use, in part because immigrants constitute a relatively young age group. If irregular To achieve integration at the local level, the entire spectrum of workers were to be able to legally enter the formal economy, local social and political agents must be involved. Civil society and contributions to the system would undoubtedly rise. immigrant organisations must also be called upon to take part in forums and consultative platforms. IMMIGRANT WORKERS MUST HAVE EQUAL WAGES AND SOCIAL RIGHTS Integration in the workplace is a challenging process that social The European Confederation of Trade Unions has been taking a partners must learn to navigate. Businesses should take advantage leadership role in calling upon EU institutions to ensure that im- of the beneﬁts that diversity offers, and trade unions can draw migration laws protect immigrant workers from discrimination and upon their long history of receiving and integrating immigrant exploitation in the workplace. For the sake of proper immigration workers. management, both European directives and national laws must guarantee freedom from discrimination, equal treatment, equal For this reason, social partners at the national and European wages, equal working conditions and equal social rights to all levels should be consulted and called upon to play a new role. The immigrant workers. European Commission should create a new platform in collaboration with social partners to ensure the proper and effective The EU has a beautiful slogan that sums up its aspirations: “uni- development of the EU’s labour immigration policy. ty in diversity”. European society is becoming more diverse by the day in terms of ethnic, religious, cultural and national identity. Diversity is simultaneously a great opportunity and a great challenge for European businesses, cities, organisations and society at large. It is therefore essential to develop policies that nurture integration and immigrants’ sense of belonging. ABOUT

The EESC has been driving the European agenda on integration Luis Miguel Pariza Castaños is a member of the European for years. It collaborates with the European Commission in organ- Economic and Social Committee, President of the ising European Integration Forum meetings, events that bring Immigration and Integration Standing Group and rapporteur together more than one hundred experts on the subject as well for numerous opinions regarding immigration and asylum. as representatives of immigrant organisations and Europe’s main He is also a member of the Trade Union Confederation of NGOs. At the most recent meeting, which was held in April of this Worker’s Commissions (CCOO) of Spain and has served as a year, the Forum recommended that the Council continue to use member of the organisation’s executive committee.

QUERIES — Autumn 2014 75 JOINT INTERVIEW

MIGRANTS AND EUROPE A challenge to our values

Migrants see Europe as a haven where fundamental rights and the rule of law apply to all residents, regardless of their nationalities. In contrast, the EU must change its punitive approach and stand for its values, no matter the cost.

Joint interview by Lorenzo Consoli © European© Union, 2014 MPI©

Juan Fernando López Aguilar is a Elizabeth Collett is Director of Spanish Member of the European Migration Policy Institute Europe and Parliament, and chair of the Committee Senior Advisor to MPI’s Transatlantic on Civil Liberties, Justice and Home Council on Migration. She is based in Affairs (LIBE). He is also a former Brussels, and her work focuses in Minister of Justice in the government particular on European migration of José Luis Rodríguez Zapatero. and immigrant integration policy.

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Queries: What is the current of migrants has been worsening. Still they “WE SHOULD perception that migrants have insist on knocking at our doors, which is of Europe? What are their good because we need them. Despite the CREATE ‘SAFE motivations to emigrate? deterioration of social integration patterns What are their expectations? for migrants, which has gone on for dec- CORRIDORS’ And why is Europe still their ades, there is still a EU model for their in- FOR LEGAL destination of choice? tegration. This has much to do with the rule of law, which applies to all residents in the IMMIGRATION, Elizabeth Collett: It is hard to make EU, regardless of their nationalities. But as generalisations, as the migrant popula- the EU is becoming larger, the implemen- AND ALL MEMBER tions itself is so diverse. For those at- tation of these rights has lost momentum. STATES SHOULD tempting to escape conflict and perse- Social patterns of integration are not the cution, Europe may be seen as not just a same in the UK or in Bulgaria, in Romania BE INVOLVED, safe haven, but also a place to rebuild or in Finland. An accurate analysis often lives. For others, it may be an opportuni- shows differences according to the eco- NOT ONLY THOSE ty to receive further education, develop nomic status and social or national origin WITH EXTERNAL skills and build a career. Would-be mi- of migrants. grants receive information about Europe BORDERS.” from a variety of sources, including inter- E.C.: Integration policies and outcomes national media, or informally through vary greatly across the EU. Immigrant out- (JUAN FERNANDO networks of friends and relatives already comes still lag those of native citizens in LÓPEZ AGUILAR) residing in Europe. These sources can key areas such as employment and edu- sometimes present a distorted picture of cation, even in countries where invest- life in this continent. ments into integration have been signifi- countries, a proportion that rises significant, such as Sweden. Over the past five cantly in urban areas. Juan Fernando López Aguilar: They years, European political parties have keep coming as they still see Europe as a noisily debated the pros and cons of im- Q.: Is there a gap between beacon of social welfare and opportunities, migration, often rejecting so-called ‘mod- the perception that migrants despite evidence that this has been wors- els’ of integration, predominantly multicul- have of Europe before and ening because of austerity policies imple- turalism. This has, in countries such as after they arrive in Europe? mented and imposed on communities. the Netherlands and Spain, been accom- Their expectation is to have a better life. panied by a sharp reduction in public fi- E.C.: For many, the reality of living in Eu- They expect to be an avant-garde of na- nancing for immigration programmes, as rope can be quite different to initial expec- tional or social groups, or local clans. Once broader austerity measures have begun tations, in terms of the availability and they are here, they hope that fundamental to bite. But, at the same time, some gov- quality of employment, and the cost of rights and the rule of law will apply, includ- ernments are placing the responsibility living. ing protection of migrants, asylum seekers for immigrants, along with other disadvan- and refugees or job seekers. taged groups, within mainstream public J.F.L.A.: Their expectations about Europe service provision. This ‘mainstreaming’ are higher than for any other part of the Q.: What has integration of responds to the idea that immigrants and world, including the US, which has devel- migrants in Europe been like their children have themselves become a oped the ideology of America as the land in the past five years? diverse and significant segment of Euro- of opportunity. This is because they have pean society, forming almost a quarter of in the first instance an idea of Europe as J.F.L.A.: It is a fact that the EU perception the total population in many European a land of social welfare, aid and protection.

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However, when they are here and they ex- gressive than the Parliament plenary, as it this to be a positive development? perience difficulties, they are challenged attracts many personalities interested in In your opinion, did the former to be integrated or to react. Part of the human rights, social integration, and polit- commissioner, Cecilia Malmström, do radicalisation has to do with this shock. ical pluralism. Our committee has advocat- good work on the migration issue? ed the need for changing the negative Q.: What has the European outlook sent by the EU about migration, J.F.L.A.: The fact that Avramopoulos has Parliament done in order to make aiming at reducing migrant flows and call- been appointed with the explicit mention European citizens understand the ing for a more punitive approach. For years, of migration in its portfolio should be good importance of integration? What is the EU conservative majority has done this, news, as this was implicit in the previous being done in the LIBE committee? with a touch of populist temptation, until Commission. However, this is not enough considering migration as a threat. The LIBE to make a difference. Malmström per- E.C.: The European Parliament has played at large (with the exception of some Euro- formed correctly in her role, even with an increasingly important role in the prom- phobic and nationalist individuals) consid- some passion. We’ll see how it will be with ulgation of EU legislation on immigration ers this approach wrong, and calls for a Avramopoulos. He will need commitment, and asylum policy over the past decade, and became a co-legislator with the advent of the Lisbon Treaty. Alongside this, the “THE REALITY OF LIVING IN EUROPE LIBE Committee has undergone a learning CAN BE QUITE DIFFERENT TO INITIAL process and there are now a significant number of MEPs with expertise in the area EXPECTATIONS, IN TERMS OF THE of immigration policy. Certainly, whilst the involvement of the European Parliament AVAILABILITY AND QUALITY OF has lengthened the legislative process EMPLOYMENT, AND THE COST OF LIVING.” overall, it has had a positive effect on the quality of the resulting legislation. (ELIZABETH COLLETT)

However, one of the challenges for the more positive stance. There is now a win- energy and the political will to face the European Parliament is the fact that, in- dow of opportunity to regulate legal migra- Council, which has leaned towards rena- creasingly, the EU’s policy on immigration tion. If we insist in shutting down the chan- tionalisation of migration policies, despite and asylum is taking a non-legislative form, nels of legal migration, the only outcome the fact that with the Lisbon Treaty they and the Parliament has fewer opportunities will be more illegal immigration and traf- have became a ‘shared competence’. It to intervene. It has little say over initiatives ficking of human beings. I do believe we was disappointing that the Barroso II to enhance practical cooperation between should create ‘safe corridors’ for legal Commission was neither strong enough, EU Member States, and has a limited role immigration, and all member states should nor did it have the political will to stand with respect to efforts made to enhance be involved, not only those with external against the governments. The Commis- cooperation with third countries. borders, which are external borders of the sion was subordinated to the Council, and EU as a whole. to those governments that think they are J.F.L.A.: I have been in the LIBE for five stronger than others. years. It is one of the busiest committees, Q.: In its new structure, the with the heaviest workload in the Europe- Juncker Commission has given a E.C.: It remains to be seen whether renam- an Parliament, as it deals with citizenship, portfolio specifically dedicated to ing the Home Affairs portfolio will herald integration, free movement of persons, and Migration, besides Home affairs, to significant change in terms of the prioriti- management of external borders. Because the Greek commissioner Dimitris sation and coordination of immigration of its composition, the LIBE is more pro- Avramopoulos. Would you consider policy; certainly, very little has changed in

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close proximity to the external borders of Europe, then the European Union has a responsibility to respond. This can become quite a difﬁcult imperative for governments to accept when that vulnerability is a result of the unconscionable acts of smugglers. Operation Triton is troubling in so far as it won’t have the same scope as Mare Nos- trum, and there is a risk that this will increase mortality in the region, even as we head towards the winter months which have historically seen lower numbers of crossings.

J.F.L.A.: Regardless of criticism of the ‘pull factor’, the ﬁrst priority for Europe is to save lives. We must do it. However, we also have to be effective in preventive action, through cooperation with the countries of origin and transit of migrants, even with Libya, which is now a failed state. It is not regret- table at all that Italy saves lives in the Med- iterranean. No matter the ‘pull factor’, I praise the Italian effort. However, this

© European© Union, 2014 should be a European effort, not only Ital- Hearing of Commissioner for Migration and Home Affairs, Dimitris Avramopoulos ian, or Spanish, or Greek, or Maltese. Arti- cle 80 of the Treaty on the functioning of terms of competence within the portfolio Q.: ‘Mare Nostrum’ has been the EU states that implementation of mi- itself. The strong link that has been made criticised by the Commission and gration policies shall be governed by the with the office of the High Representative other member States as a ‘pull principle of solidarity and fair sharing of for Foreign Affairs should be seen as a factor’ for irregular migration, responsibility between the Member States, positive development, but there is a need with traffickers putting desperate but we are not there yet. This article should for far greater coordination of immigration people on boats that were not be taken seriously and implemented, which issues across the various portfolios of the seaworthy. New Frontex operation is not now the case. Commission. Malmström has been a strong ‘Triton’ will mainly be a surveillance leader in promoting the benefits of immi- operation that will only cover an Q.: Do you think the Dublin gration and highlighting the need for a area up to 30 miles from the Italian Convention should be revised, balanced policy approach. This has been coasts. To put it bluntly: will it in order to modify the rule that a difficult task at a time of recession, when mean more or less deaths at sea? refugees should lodge their the majority of EU Member States have asylum application in the first been inclined to reduce economic migra- E.C.: Mare Nostrum has saved many lives. Member State they enter? tion, and as geopolitical shifts in the Euro- Whether it is a ‘pull factor’ or not can be pean neighbourhood, beginning with the debated ad nauseam but, at root, the exist- J.F.L.A.: Yes, I do. The EU should stand Arab Spring, have created new challenges ence of a ‘pull factor’ is irrelevant. If the lives up for its values, no matter the cost. for EU policy. of vulnerable individuals are at stake in such Otherwise we are lost.

QUERIES — Autumn 2014 79 ESSAY

EU’S ACTION IN THE FIELD OF INTEGRATION A policy balancing between hard law and soft law mechanisms

Even though the EU has the competence to adopt rules in the field of immigration and asylum notably to harmonise national rules, it cannot do so when it comes to integration where it power is limited to the coordination of national laws and regulations. However, this division of competence didn’t prevent the EU from going beyond the sole scope of coordination, blurring the lines of the balance between hard and soft powers.

by Yves Pascouau

n 1999, the Amsterdam However, the orientations drawn by the ures to provide incentives and support for Treaty gave compe- Tampere conclusions, followed by The the action of Member States with a view to tence to the EU to adopt Hague (2004) and Stockholm (2009) promoting the integration of third-country rules in the field of im- programmes, the breadth of EU’s com- nationals residing legally in their territories, migration and asylum. petence and action regarding integration excluding any harmonisation of the laws and I These issues cannot be remained unclear. Put differently, did the regulations of the Member States”. dealt with properly without envisaging EU have full competence, i.e. legislative This provision means that EU Member the question of the integration of people competence, to act in this field or did States have refused to transfer their nation- admitted on the territory of a State. But the EU have minimal power? The Lisbon al competence in the field of integration to the Treaty did not devote any specific pro- Treaty (2009) gave final an answer to this the EU. As a consequence, the main com- vision to integration. This was done few question with its article 79.4 of the Treaty petence remains the remit of the States months later during the Tampere sum- on the functioning of the European Union and the EU is only able to adopt measures mit which took place in October 1999. (TFEU) which states: which aims to coordinate national policies. On that occasion, Heads of States and In other words, the EU is entrusted with governments underlined the necessity of “The European Parliament and the Coun- the lowest level of competence as it only fair treatment of third country Nationals cil, acting in accordance with the ordinary has the competence to coordinate, and not and equal rights. legislative procedure, may establish meas- harmonise, national policies.

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The EU level is therefore characterised by which have harmonised national rules. As a Treaty” (point 4). It adds further on “in order a particular situation where the EU has a consequence, the decade running from 1999 to constitute a genuine instrument for the harmonisation competence, and sometimes has been the theatre of an intricate mix of integration of long-term residents into society even an integration competence, in the fields actions between coordination and harmoni- in which they live, long-term residents should of immigration and asylum and a coordina- sation, or to put it differently between hard enjoy equality of treatment with citizens of the tion competence regarding integration is- law and soft law mechanisms. Member State in a wide range of economic sues. Such a solution goes against a basic and social matters, under the relevant con- assumption which considers that migration HARD LAW: THE HARMONISATION ditions defined by this Directive” (point 12). and integration policies should be developed OF NATIONAL RULES together and with the same level of commit- To summarise, the EU has adopted rules ment. While true in theory, this discrepancy The EU has adopted two different types of which, in their aim and content, deal with inte- in terms of competences at EU level is no rules having the effect to harmonise nation- gration issues and lead to the harmonisation coincidence. It has to do with the domains al legislations: rules which embody an inte- of national rules in the field of integration as covered and the players involved. gration purpose and rules opening access they set conditions for the exercise of these to certain rights which improves migrants’ rights. On the domain, the definition of a compre- integration into the receiving society. hensive integration policy requires taking Rules opening access to rights into account an impressive set of connect- Rules pursuing an inte- enhancing integration ed policy fields. Hence, integrating people gration purpose A wide range of EU rules adopted in the field into the receiving societies implies that the The Family Reunification Directive and the of immigration and asylum define conditions persons concerns should be granted access Long Term Resident Directive fall within the under which Member States shall or may to a large set of crucial services like health first type of rules. These two EU Directives, grant access to a series of rights, which even- care, housing, education, the labour market, while defining the conditions for the exercise tually have a positive impact on the integra- vocational training, culture, etc. But in all of of the right to family reunification and fro tion of third country nationals. This concerns these policy fields, EU’s competence is min- the granting of a long term residence status, more precisely, rules granting access to the imal where it exists. pursue an integration purpose per se. labour market; education; vocational training; health care; housing; equal treatment; Secondly, integration policies involve an im- The Family Reunification Directive makes it recognition of diplomas and qualifications; pressive number of players from different clear where it states “Family reunification is a branches of social security and tax benefits; levels: governmental, regional, sub-regional, necessary way of making family life possible. goods and services, etc. local, district and even sometimes at street It helps to create sociocultural stability facili- level. In this context, and according to the tating the integration of third country nation- However, the possibility for third country principle subsidiarity, the EU does not ap- als in the Member State, which also serves nationals to have access to these rights is pear to be the most appropriate level of in- to promote economic and social cohesion, a not similar in all of the instruments adopted tervention. fundamental Community objective stated in and depends on the field covered and status the Treaty” (Preamble point 4). concerned. This is the case whether it deals This is the background against which Article with international protection or admission of 79.4 of the Lisbon Treaty should be under- The Long Term Resident Directive follows migrants, the status of third country nationals, stood. However, from 1999 to 2009, EU’s ac- a similar line of reasoning. The Preamble temporary or permanent, the conditions to tion in the field of integration has not always states “the integration of third-country na- be fulfilled and the obligation or possibility been locked to the coordination level. Far tionals who are long-term residents in the for States to open access to these rights. from it, the EU has adopted a series of rules Member States is a key element in promoting and tools some of which have enable the economic and social cohesion, a fundamen- Where there is still a wide heterogeneity, it coordination of national policies and some of tal objective of the Community stated in the is worth noticing that the EU intervenes in

QUERIES — Autumn 2014 81 ESSAY

areas which are closely linked to integration. States in formulating integration policies by ular “rendez-vous”, the European Council has Indeed, having access to the labour market, offering a non-binding guide of basic prin- adopted in 2008, under the French Presiden- beneﬁting from equal treatment or being able ciples against which they can judge and as- cy, the European Pact on Immigration and to receive health care are all elements which sess their own efforts. Second, to serve as a asylum. Primarily devoted to immigration and participate, where open, to a better integra- basis for Member States to explore how EU, asylum, the document covered integration tion process of third country nationals in the national, regional, and local authorities can issues. While it reiterated previous engage- receiving society. In including provisions re- interact in the development and implemen- ments, the Pact marked a shift in this policy lated to these rights in its legislation, the EU tation of integration policies. Third, to assist ﬁeld in reinforcing the obligation for migrants creates the conditions of an approximation of national rules and policies. “THE EU HAS A HARMONISATION

Hence, the EU has developed rules which COMPETENCE, AND SOMETIMES EVEN directly or indirectly address integration and create the conditions for the harmonisation AN INTEGRATION COMPETENCE, IN THE of Member States rules. However, and along- FIELDS OF IMMIGRATION AND ASYLUM side harmonisation, EU institutions have also developed a wide range of tools and bodies AND A COORDINATION COMPETENCE aiming at coordinating national policies. REGARDING INTEGRATION ISSUES.” SOFT LAW: THE COORDINATION the Council to reflect upon and, over time, to show integration skills before benefiting OF NATIONAL POLICIES agree on EU-level mechanisms and policies from additional or enhanced rights. needed to support national and local-level This part aims at addressing the main integration policy efforts, particularly through On its side the European Commission has measures which have led to an enhanced EU wide learning and knowledge-sharing. also been quite active in putting Member coordination of national policies in the field States orientations into effect via appropri- of integration. They can be divided into two Secondly, Ministers in charge of Integration ate tools. It did so firstly with the adoption of main types of action: policy orientation and issues have met since 2004 on a regular and so called “Integration Agendas” published exchange of information between relevant informal basis to discuss integration issues in 2005 and 2011 which aim is to define stakeholders. (Groningen in 2004; Potsdam in 2007; Vi- the concrete steps to take following Member chy in 2008 and Zaragoza in 2010). These States orientations. Secondly, the Commis- Policy orientations conferences are designed to ease the de- sion was tasked to manage the European While this policy field remains largely within bate among ministers on integration issues. Integration Fund, running from 2007 to 2013, the remit of the States, they have adopted Each of these conferences led to the adop- and aiming at assisting Member States in several political documents defining orien- tion of conclusions which all have later been their effort to support third country nationals’ tations regarding integration policies. Three endorsed by the Justice and Home affairs integration and reach set priorities. In man- main documents or groups of documents Councils. aging the Fund, the European Commission deserve to be highlighted in this regard. is at the centre of EU policies and able to Lastly, the European Council itself played influence national developments and there- The first document, which remains a key an orientation role. It did it in 1999, 2004 fore European convergence. driver of action in this field, is the Common and 2009 while adopting the five years pro- Basic Principles of Integration. Adopted by grammes in the area of freedom, security Exchange of information the Justice and Home affairs Council in No- and justice. All of these programmes have Given the limited competence attributed to vember 2004, these 11 principles pursue defined orientations regarding integration of the EU in the field of integration, enabling three main objectives. First, to assist Member third country nationals. Alongside these reg- and enhancing the exchange of information

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between national stakeholders is a key element of the coordination of national policies. In this view, the EU has developed several types of actions which aim is to gather and share experiences and practices among Member States representatives and civil society players. This coordination process has developed on the basis of three main routes.

The ﬁrst one takes the form of the organisation of formal meetings between national

stakeholders (National Contact Points Inte- European© Union, 2014 gration) or civil society organisations (Euro- The Tampere Special European Council of October 1999 pean Integration Forum). The main objective of the National Contact Points Integration the European Web Site on Integration aiming been based on hard law and soft law mech- meetings is to create a forum for the ex- at becoming an EU-wide platform for net- anisms. This mix of actions, based on the change of information and good practice working on integration through exchange difficult division of competences between between Member States, with the purpose of about policy and practices. In this view, the the EU and its Member States, has enable improving migrants’ integration and to ensure Website provides for different types of in- the development of a so called EU integra- policy co-ordination and coherence at nation- formation including inter alia papers, good tion policy. However, addressing the right al level and with EU initiatives. On its side, the practices, country information sheets, ex- policies in the field of integration will remain European Integration Forum involves various ternal links, updates and events, etc. Finally, a key priority and a huge challenge for the stakeholders and in particular civil society the Commission has prepared European future. Indeed, the integration of migrants is organisations. Its objective is to enable these Integration Modules. They are designed to an exercise which requires to understand an key players to take part in the debate at EU become reference frameworks to contribute increasingly mobile and diverse world and level and to express their views regarding to successful integration policies and prac- to define the right answers to make social challenges and priorities on integration is- tices across Europe. Modules cover the fol- inclusion of migrants a real success. Whether sues. Such a participation should help EU lowing areas of 1) introductory courses and this has to be achieved through soft law or institutions and more precisely the Commis- language classes; 2) a strong commitment hard law mechanisms is secondary insofar sion to get feedback from “the ground” and by the receiving society; and 3) the active sound priorities and actions are defined by assess whether the policy choices meet the participation of migrants in all aspects of the EU and Member States together. needs of the integration process. So far, it collective life. is not entirely convincing as to whether civil society contributions have been taken into As a third route, the Commission started account at the appropriate level. developing a pilot project with Eurostat and the Member States for monitoring results of Second, alongside formal meetings, the integration policies, including development ABOUT Commission has developed several tools to of a set of common core indicators aimed share information. It has published a series to enhance comparability and reinforce the Yves Pascouau joined the European of integration handbooks which should act as European learning process. Policy Centre (EPC) in February 2011 a driver for the exchange of information and as Senior Policy Analyst and Head of good practice for policy-makers and practi- Neither fully competent, nor fully incompe- the European Migration and Diversity tioners. The Commission has also created tent, EU’s action in the field of integration has Programme.

QUERIES — Autumn 2014 83 INTERVIEW

CAREER MIGRATION set to be trend in globalised world

Intra-EU migrant workers are important for “Project Europe”. But demographics suggest that long-term we will need to open up to non-EU migrants in order to fill a large shortfall in the workforce. So says Annemarie Muntz, director of public affairs for Randstad and president of Ciett and Eurociett.

Interview by Ian Willoughby

Queries: Migration is obviously a big Q.: Randstad doesn’t normally deal Q.: So do politicians then need to issue in today’s world. If we look at the with non-EU workers because of the educate the public in order to make it labour market in Europe, what is the red tape involved and the difficulty of clear to them that down the line we percentage of immigrant workers? getting them work permits. Is the will have to fill this shortfall you’re Annemarie Muntz: It depends which level European Union wise to make it so talking about? you look at. If you talk about third-country hard for non-EU citizens to work A.M.: Yes. That’s one side of it, but we nationals living in Europe, there are a fair legally here? need a holistic approach. It’s about looking number of them. Because we brought in A.M.: Of course it’s not wise. But it’s un- at the future of Europe and saying, hey, we labour especially from Arab Middle Eastern derstandable if you look at the Europe of have this great position, in the world… be- and North African countries, and Turkey, in today. There’s the political tendency to cause we’re always complaining in Europe, the 1970s. But these are people with dual protect fortress Europe. And on top of that but if you look at the facts and ﬁgures we’re nationality who’ve lived in Europe for 30-odd there’s been the crisis over the last ﬁve actually doing quite well in terms of com- years and I don’t see them or their children years. So that’s the political reality. But look petitiveness, in terms of GDP and in terms as labour migrants. If we consider labour-re- at the megatrends, look at the demograph- of skilled working population. But that’s lated immigration from outside Europe, it’s ics. Even today in Germany the working today. If we want to maintain it the future, a very, very, very small portion. It’s really low population is shrinking. Other countries are we need, when we look at demographic because of the barriers that we’ve willingly also going to have labour shortages. In developments, to think about quite a few created in order to prioritise European la- recent research that Randstad produced, things and migration is absolutely one of bour. Then there’s intra-EU immigration, we calculated that we will potentially lack them. Instead of making people afraid of which really started up when the 10 Central 35 million workers in Europe by 2050. So migrants, which some of us seem to be and Eastern European countries joined the if productivity remains around today’s lev- doing these days, we should educate them EU in 2004. But still, if you look at that per- el, we will need 35 million new workers to about what’s really going to happen in a centage, it’s only about 3 percent. keep our welfare at current standards. couple of decades.

84 QUERIES — Autumn 2014 INTERVIEW

“EVEN TODAY IN GERMANY THE WORKING POPULATION IS SHRINKING.”

Q.: Could you envisage a situation Q.: But aren’t you talking about an under which temporary, “guest elite? They will surely be a relatively workers” would come to European small percentage of all migrants. countries for a limited period? A.M.: I don’t like the word ‘elite’. Because if A.M.: Well, more circular or temporary migra- you look now at India and China, the number tion is already the case today. If you look at of highly educated professionals there is al- Polish workers – now we’re talking intra-EU ready growing very much. So it will be a fair – there is a steady group of about 100,000 amount. Today it’s not so many, also because Polish workers in the Netherlands. Is it the of restrictions. But in the world of, let’s say, same group? No, of course not. It’s constant- 2030, we will see a fair amount of career ly changing. The average time that Poles stay professionals moving around the world. in the Netherlands to work is between 15 and 19 months. So what we’re seeing is more and Q.: Getting back to intra-EU labour more temporary migration. migration, we have freedom of movement, Schengen, the euro. But Q.: But if you had temporary workers still compared to people in the United coming from poorer, non-EU states States, most Europeans are relatively they might be more inclined to stay reluctant to move long distances for than Poles, who know they can come work. Do you think in the future more and go. may be willing to move to other A.M.: I don’t know. With the globalised world countries in search of employment? it’s becoming easier to travel. The Nether- A.M.: That depends very much on country Key Points lands and some European other countries and culture in Europe. Polish people – for provide easier work permits to highly skilled, economic reasons, but also because the cul- → Europe could lack as many higher earning professionals from outside the ture is like that – move easily. They moved in as 35 million workers in three and EU. These young professionals have no in- 2004 and they are still moving today, even a half decades’ time. tention of staying here. They come here for though salaries in Poland are now much high- a job, as a step in their career. Global citizen- er than they were a decade ago. If you look → Europe will need to rethink ship is becoming a kind of phenomenon at southern European countries there’s also its current restrictive policies among these highly skilled, high earning that willingness. However, there are also some concerning non-EU nationals. young people. I’m an optimist. If you look at countries where the culture is such that peo- → Increasing globalisation will India and China, you really see some upskill- ple won’t even move 20 kilometres for a job. create a trend of “career migrants” ing there. I absolutely think we will see more Hungary, for instance, is famous for that. gaining experience before temporary or circular migration. Or let me put Another issue is if you look at the number of moving on. in a new phrase: career migration. students moving in Europe, for a year at

QUERIES — Autumn 2014 85 INTERVIEW

“THE AVERAGE TIME THAT POLES STAY IN THE NETHERLANDS TO WORK IS BETWEEN 15 AND 19 MONTHS.”

university here, a year at university there – that A.M.: I’ve checked the figures for the Neth- tainly important in agriculture, construction will also lead to more mobility. Twenty years erlands, where borders opened up for Ro- and the metal industry. We simply cannot ago students hardly ever did a year away from manians and Bulgarians in January this find Dutch, Holland-based workers for these their own hometown college or university – year, and we now have a registered total kinds of jobs. It would be quite a problem if and these days in Europe look at the success of 3,500. I wouldn’t say that’s overwhelm- they weren’t filled by workers from mainly of the Erasmus programme! That’s also ed- ing. So it may still come, but I myself don’t Poland. What’s interesting is that there’s a ucating future career migrants. believe that it will be of the same order in kind of movement from the East. Polish work- terms of numbers as the Polish workers ers are still coming to the Netherlands, to the Q.: Do many companies have moving to the West. United Kingdom and to Ireland. But then as programmes in place to help Poland is getting more prosperous econom- migrants adjust to life in their new ically – and not having had the dip that we’ve country? had – they’re also in need of labour, and they A.M.: Of course we have programmes for give workers from Ukraine permits to work temporary work migrants. For instance, in in Poland. And in Ukraine there’s also a gap, the Netherlands, Randstad has a pro- which they fill with workers from Georgia. So gramme where we bring workers from Po- it’s a kind of chain. That’s interesting. There’s land, low to mid-skilled, who work mainly in also a kind of movement of work and pro- logistics, agriculture, metal and construc- duction to the East. We’ve been talking about tion. And if you bring them here, you as a people moving. At the same time, whole in- company are responsible for what I call work dustries like the automobile industry and integration, and housing. Work integration manufacturing are going East – and the means the right qualifications and language number of jobs moving East is much larger training, in so far as it’s needed. And of than the number of people moving West. course when we bring them in they are fully covered by the collective labour agree- Kevin© B. ments for temporary agency workers. Q.: Even though the percentage of ABOUT Q.: How does the impact on labour intra-EU migrant workers is small, migration of the two different waves are they an important part of the Annemarie Muntz is public affairs of EU enlargement in the 2000s European economy? director of Randstad, a Dutch human compare? In 2004, 10 states joined A.M.: You can look at it macro and micro resources consulting firm with offices and then in 2007 Romania and here. Macro, I wouldn’t call 3.1 percent im- in 39 states, and president of Ciett Bulgaria became members, even portant. However, for ‘Project Europe’, it is and Eurociett, which bring together though some EU states at first important. And if you look at the micro level, private employment agencies at restricted their workers’ movement. speaking again for the Netherlands, it’s cer- international level.

86 QUERIES — Autumn 2014 © Dotshock©

ON RISING RACISM AND INTER-ETHNIC VIOLENCE Should Europe take a lesson from its schoolchildren?

Racism is on the increase in many European countries. It was thought that globalization, diversified migration flows and EU enlargement would help eradicate the fault-lines between ethnic groups, yet instead the opposite seems to be happening. So are the same tensions rising in the region’s schools?

by Sarah Walker

QUERIES — Autumn 2014 87 ESSAY

he more people mix, the more they grow to understand each other. That, at least, is the theory. And Europe is T mixing like never before, not only due to migration flows beyond its external borders, but also owing to the di- lution of its internal national boundaries. Recent political shifts, however, paint a different picture as ‘Eurosceptic’, right- wing and even xenophobic voices have grown louder during recent election campaigns across the region. It would be logical to assume that this rise in inter-ethnic tension would be reflected throughout each strata of society, right down to its schools. Again, though, the evidence suggests otherwise. Recent case studies have revealed that while members of the younger generation within Europe’s schools are not immune to external influences, inter-ethnic conflict and violence do not necessarily represent a major problem within the education system in multi-ethnic schools. wider society’s values and climate (ethnic with above-average ethnic mix took part prejudice, stereotypes, xenophobia and from January 2011-December 2012, with A KEY AND DIRECT ROLE racism), and yet on the other to act as a a quantitative survey carried out among Indeed, the welcome conclusion from such space in which social norms are challenged, 10 to 12-year-olds and 16 to 17-year-olds, research is that education and schools and equality and inter-cultural dialogue are as well as focus groups with the children themselves - as key spaces in which chil- promoted. Additionally, even when violence and young people, school staff and experts dren interact, learn and grow – can actual- or bullying exists between children from in the field. ly play a key role in the integration of migrant different ethnic groups, these situations are The research showed that where schools children through fostering understanding not always what they seem and should not promote values of inclusivity and inter-cul- and celebrating diversity. prompt quick or simplistic judgements. tural co-existence and violence prevention, Similarly, schools, by adopting an inclusive A recent research study, ‘Children’s Voices: pupils feel respected and free to express ethos as well as involving children’s parents Studies of interethnic conflict and violence themselves. In the English schools, for ex- or guardians and the wider community, can in European Schools’ (Sedmak, Medaric ample – where the ratio of white British help alleviate wider interethnic tensions in & Walker, Routledge, 2014), co-funded students was fairly low at 20% - pupils felt a very positive and direct way. by the EU’s Fundamental Rights and Cit- able to express their culture and religion That said, schools can be complex places, izenship programme, examined inter-eth- and felt they were safe, had as sense of and diverse in character. There is clearly a nic violence in five European countries belonging and that diversity was valued ‘duality’ to the education system, in that it – England, Austria, Cyprus, Italy and – even if this was not necessarily the case has the potential on the one hand to reflect Slovenia. Primary and secondary schools outside their school gates.

88 QUERIES — Autumn 2014 ESSAY

“CLEAR RULES, ZERO TOLERANCE TOWARD DISCRIMINATION AND VIOLENCE, RESPECT FOR AND INDEED CELEBRATION OF DIVERSITY, AND THE PROMOTION OF AN INCLUSIVE ETHOS ARE KEY MECHANISMS FOR THE PREVENTION OF INTERETHNIC VIOLENCE IN SCHOOLS.” © European© Union 2014

PSYCHOLOGICAL AND VERBAL likelihood of violence incidents occuring in VIOLENCE schools. As such, it is important to recog- Psychological and verbal forms of aggres- nise the intersectional nature of violence sion, such as name-calling, were the most And outside influences still effect schools common form of violence manifested across in certain circumstances. In Cyprus, for the two age groups and across all countries example, inter-ethnic peer violence was Key Points in the study, but especially in the younger more of an issue in the other countries. children, where the prevalence of all forms Participants in the research noticed a → Schools have the potential to of violence was higher. Pupils from the growing concern about the presence of play a key role in the integration non-dominant ethnic backgrounds were migrants at the national level. Interviewees of migrant children found to experience higher levels of intereth- referred to subtle discriminatory practices nic violence. by Cypriot youngsters towards peers from → Zero-tolerance and a whole- Other causes for friction between school- other ethnic groups. Indeed, the prevalence school inclusive ethos are key children also exist, however, which must of most forms of violence was higher in to promoting integration be taken into consideration. Indeed, find- Cypriot schools. → Peer violence is not necessarily ings revealed that ethnicity was only one In Austria, Italy and Slovenia, Roma and ‘caused’ by interethnic tensions; factor in the interplay of categories, such Sinti people still represent the most mar- rather it should be understood as gender, socio-economic status, or sex- ginalised, socially vulnerable ethnic group as intersectional ual orientation, which can influence the that are habitually a target of discrimina-

QUERIES — Autumn 2014 89 ESSAY

tion and stereotyping, which also tran- scends from everyday life into the school environment. In Slovenia, the majority of the migrant population are from the former Yugoslavia and the recent history of inter-ethnic con- ﬂict in the region can sometimes be repli- cated among individuals or groups of migrant origin. The Italian case study also highlighted the impact of wider issues within the school environment. Research- ers found violence was often triggered by events outside the school community, such as when local petty crime or violent incidents were presented in the media and the ethnicity of perpetrators highlighted in a

negative, stereotyped manner. Leave© to Remain Indefinite/ Films Still from Bruce Goodison’s film Leave to Remain (see our portfolio on page 100) SCHOOLS AS PROTECTED SPACES Despite the historical and contextual differences of the five case studies, a few common points emerged - primarily, that schools training to deal effectively with these issues. learn to act in appropriate ways – then it can make a significant difference in pre- Teacher training can be taken for grant- follows that they should be fully supported venting violent behaviour as well as com- ed. Yet much research on racism within in achieving this. And not only should on- bating discrimination and segregation by schools highlights that some teachers going policies and procedures be imple- creating a safe environment for children to often deny - or are simply oblivious of - its mented in schools, they should also be communicate and express their culture. very existence. Such findings reflect the regularly monitored and re-evaluated. Clear rules, zero tolerance toward discrim- often widely-held view that racism is ob- Educators, of course, face many challeng- ination and violence, respect for and cele- vious, coming in the form of violent, phys- es in preventing violence and promoting bration of diversity, and the promotion of an ical attacks, rather than reflecting the an inclusive ethos. Lack of consistent fi- inclusive ethos are key mechanisms for the reality that many forms of racism are nancing, though, belongs at the top of the prevention of interethnic violence in schools. much more subtle, and even unintended. list, particularly in times of economic cri- Another important point is that pupils need Indeed, this ethno-centrism and insensi- sis. Without backing, programmes quick- to see themselves reflected positively in tivity to cultural differences can itself be ly become fragmented and ineffective. At the curriculum. Some critics argue that seen as a form of symbolic violence, and worst, they are simply allowed to wither certain multicultural educational policies its effect is arguably tantamount to a into irrelevance. can actually reproduce inequalities through form of exclusion. To conclude, much has been achieved in a ‘hidden’ curriculum that masks intoler- this area. During the second half of the ance and helps endorse and perpetuate CONSISTENT FINANCING 20th century in Europe, the educational current power relationships. IS CRUCIAL system has come to be seen as a key in- Yet although good practices in schools can What is clear is that there is no room for stitution with the power to promote – or, clearly make a difference, their effect is complacency. If one accepts that schools indeed, inhibit - cultural and linguistic di- ultimately dependent on the education sys- are key sites of secondary socialisation – versity, intercultural dialogue, and the in- tem receiving sufficient resources and staff where, once outside their homes, children tegration of migrants.

90 QUERIES — Autumn 2014 ESSAY

THE CONTINUING ROLE OF THE EU “EDUCATORS FACE MANY CHALLENGES IN It is widely acknowledged today that the EU can - and should - play a role in encour- PREVENTING VIOLENCE AND PROMOTING aging schools to promote inclusive policies and work to counteract negative imaging AN INCLUSIVE ETHOS. LACK OF and stereotyping of ethnic minorities. CONSISTENT FINANCING, THOUGH, In the last 20 years, we have witnessed the introduction of numerous supra-national BELONGS AT THE TOP OF THE LIST, directives from the EU to its Member States focusing on inter-cultural education PARTICULARLY IN TIMES OF ECONOMIC and inter-cultural citizenship. CRISIS.” Examples include the White Paper on ‘Inter-cultural Dialogue’ in 2008, and such recommendations as the White Paper on ‘Teaching and Learning: Towards the Learning Society’ in 1996. Additionally, in 2006, the European Commission against Racism and Intolerance (ECRI) issued Rec- ommendation No.10 on ‘combating racism and racial discrimination in and through school education’. Few would now contest that, by adopting an inclusive ethos and involving children’s parents or guardians and the wider com- ROUTLEDGE RESEARCH IN INTERNATIONAL AND COMPARATIVE EDUCATION munity, schools can play a key part in alle- viating inter-ethnic tensions. However, this can only happen with the ABOUT implementation of appropriate policies and practices promoted at national level, Sarah Walker is a Research and this requires funding and an on- Assistant at the Centre on Migration going commitment to the promotion of Policy and Society (COMPAS), diversity and the unacceptability of any Children’s Voices University of Oxford. She has worked forms of violence.Since identity-based Studies of interethnic conﬂict and for several years as a researcher and violence in European schools bullying is a social issue, preventative practitioner in the field of migration measures need to also involve the wider Edited by and young people. She is particularly Mateja Sedmak, Zorana Medaric´ and community. Schools, after all, can only Sarah Walker interested in helping to combat do so much within the particular space exclusionary practices through in which they operate. research and practice.

QUERIES — Autumn 2014 91 EUROPE WATCH

EU IMMIGRATION AND ASYLUM POLICIES What impact of the 2014 EU elections’ results?

After the European elections of May 2014, the extremes on the left, but especially on the right side of the political spectrum have increased their numerical strength in the European Parliament. Voting records of MEPs show that the new balance of powers is likely to have an impact on the positions of the newly-elected EP on issues such as immigration, protection of asylum seekers, and borders control.

by Doru Frantescu & Elisa Irlandese

he EU’s immigration policy looks set to come un- By examining the voting records of the MEPs during the 7th EP term der serious scrutiny during the new European on key questions regarding the role of the EU in these areas, we Parliament (EP) following the rise in popularity of can analyze how the new composition of the European Parliament fringe parties opposed to European integration. is likely to prompt demands for changes in policy. Indeed, centrist parties which suffered at the T hands of the ‘Eurosceptics’ during the 2014 TACKLING IRREGULAR MIGRATION VS. FUNDAMENTAL European elections will need to co-operate more closely than be- RIGHTS fore if they are to successfully ﬁght off this challenge while contin- It is striking that some votes during the last parliament, on reports uing to work towards a common approach on immigration, asylum dealing with lighter procedures for granting international protection issues and border controls. or admitting basic rights for irregular migrants, were passed by the Eurosceptic MEPs have always opposed proposals designed to narrowest of margins. These votes invariably reﬂected a tradition- create or grant basic rights for irregular migrants or asylum-seek- al left/right divide. ers, while also advocating stronger controls at both the external The increased presence of parties at the fringes of the political and internal borders of the EU and criticizing the fundamental right spectrum might play a key role in re-shaping such policies in future, of free movement. since these topics are generally crucial to them and their electorate.

92 QUERIES — Autumn 2014 EUROPE WATCH

“THE INCREASED PRESENCE OF For Against PARTIES AT THE FRINGES OF THE 17 7 POLITICAL SPECTRUM MIGHT PLAY A KEY ROLE IN SHAPING NI THE UPCOMING EUROPEAN POLICIES.” 297

299 Take, for example, the vote on the report entitled “Granting and NI withdrawing international protection”, which was drawn up to establish minimum standards of procedure among Member States for granting and withdrawing international protection, in order to be fair and accessible to both asylum-seekers and the Member States themselves. Again, the vote was very close, and, again, the resolution was adopt- A centre-left coalition (S&D + Greens/EFA + GUE/NGL) and the ed thanks to the support of the same centre-left coalition and the ALDE group struggled to push through the directive by a margin ALDE group. The main concern of the EPP and the ECR groups, of only a few votes. The EPP, ECR, EFD, and non-attached MEPs, who voted against, was that the EU, by proposing basic rights to meanwhile, opposed the law, fearing that the directive would lead irregular migrants, would end up supporting – and even rewarding to an abuse of social beneﬁts by applicants. - irregular immigration. For Against It is clear that, with the numerical make-up of the new EP, such 24 texts dealing with the legal protection of basic rights for irregular 4 migrants or asylum seekers will be more difﬁcult to push through. The advocates of such policies, the centre-left coalition plus the NI ALDE group, have lost seats while groups traditionally sceptical of such provisions have increased their political strength.

CONTROL AT EXTERNAL BORDERS Some issues, however, command greater unity among MEPs belonging to Europe’s centrist groups. The EPP and S&D groups 299 usually vote together on legislation targeting the enhanced control 303 of the European Union’s external borders, the prevention of irreg- NI ular migration and the rescue of migrants. In these cases, they seem certain to push through their common policy goals. The vote on the motion for resolution entitled “Undocumented women migrants in the European Union” provides a further exam- In October 2013, for instance, the EP voted through a report enti- ple. The resolution addressed the issue of granting basic services tled “The European Border Surveillance System (EUROSUR)” by to undocumented migrants in their host country. The text called for a large majority, based on their shared aim of improving the man- immigration policies to be separated from the fundamental rights agement of EU external borders and of harmonising systems among of healthcare, education and housing. the Member States.

QUERIES — Autumn 2014 93 EUROPE WATCH

Votes in favour of the resolution: “GROUPS AT THE CENTRE OF THE POLITICAL SPECTRUM WILL BE ABLE TO EASILY ADOPT MEASURES ON WHICH CONSENSUS CAN BE REACHED AND TO WIN AGAINST THE POSITIONS OF THE EXTREMES” ALDE/ADLE: 57

ECR: 37

EFD: 11 Votes against the paragraph: EPP: 206 ECR: 30 Greens/EFA: 1 EFD: 15 GUE-NGL: 2 EPP: 23 NI NI: 4

S&D: 153 NI NI: 16

Only the Greens and the radical left opposed the report, both Consequently, it remains highly likely that, where such broad con- groups arguing that the general focus of EUROSUR was on pre- sensus can be reached, centrist groups will be able to easily adopt venting irregular migration rather than on saving lives. such measures in this new term of the EP, whatever the challenges of fringe parties. FREE MOVEMENT Eurosceptic MEPs are extremely critical of the right of free move- Therefore, the new make-up of the EP in the wake of the 2014 ment in the EU, which they believe should be limited. On such EU elections points towards potential changes in key areas of topics, however, they always found themselves in a minority in the immigration policy, with calls for new measures to restrict migrant previous EP. The majority of MEPs believe that freedom of move- and asylum-seeker rights while also introducing tougher procedures ment is a defining principle of the European Union and one that designed to limit the illegal crossing of EU borders. brings significant benefits. The vote on paragraph 2 of the resolution “Respect for the fundamental right of free movement in the Only greater cooperation among centrist groups will see off such calls EU” demonstrated this, with an overwhelming majority supporting for change. Criticism of the EU’s fundamental right of free movement it and calling on Member States to refrain from any actions that may also increase, but the levels of consensus among supporters of could affect the right of free movement. this policy suggest that changes in this area remain far less likely.

94 QUERIES — Autumn 2014 toujours des L c NOUVELLE EXPOSITION NOUVELLE a fait immigration histoires

PERMANENTE «REPÈRES»

MIGRATION CHALLENGES OUTSIDE THE EUROPEAN UNION

Queries asked three international migration experts to answer the same question: “How does your country handle its migration flows?”

THE AMBIGUITY OF land to have independent controls on immigration, introducing a raft of measures SWITZERLAND’S POSITION designed to discourage freedom of movement, including quotas and priority for Dependent, participating and still not completely Swiss nationals. Switzerland therefore risks on board: Switzerland has a difficult relationship a power struggle with the EU that osten- with EU migration policy. sibly relates only to freedom of movement but could ultimately endanger the entire by Peter Uebersax bilateral relationship.

MIGRATORY PRESSURES When Switzerland introduced the free witzerland has a hy- is at a disadvantage. And schizophrenic, to movement of persons in 2002, most Swiss brid, ambivalent and the extent that the failure of EU migration welcomed the move with high expectations. almost schizophren- policy is regularly pilloried in domestic pol- The principal hope was that it would pre- ic relationship with itics although the country is not yet willing serve economic prosperity. The subsequent EU migration policy. to surrender the beneﬁts it gains from it. Schengen and Dublin association agree- S Hybrid, because it ments were also initially welcomed as pos- takes part in it to some extent but also main- In the meantime, this ambiguous attitude itive achievements. Since then a certain tains its own separate migration policy. has popular appeal. In February 2014, a disillusionment has set in. The economic Ambivalent, because it benefits from national referendum approved a constitu- slowdown in the EU has increased migra- EU policy but repeatedly complains that it tional amendment that requires Switzer- tory pressure within Europe to Switzerland,

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which still has a relatively robust economy. This trend has only increased as the EU “SWITZERLAND WILL NOT BE ABLE continues to expand eastward. Annual net TO TEACH THE EU ANYTHING BEFORE inward migration is projected to be approx- imately 8,000 people a year, but the actual IT SOLVES ITS OWN PROBLEMS.” figure is 10-12 times greater, placing pressure on the labour market and the social welfare system. Internal European conflicts and increasing SHARED RESPONSIBILITIES Swiss Federal Constitution, “removals” from problems at the EU borders have exacer- As a consequence, initiatives to shore up Switzerland (Wegweisungen) could in the bated the problem. These include, for ex- the EU’s borders and combat human smug- future be issued without an examination of ample, Greece’s inability to stem the tide of gling may take on increased importance. the proportionality of the process and the refugees, images of migrants on boats in We can expect further humanitarian and Federal Parliament recently raised the bar the Mediterranean and the partially ineffec- human-rights issues. As a member of for naturalisation. tive reactions on the part of the EU. Criticism FRONTEX, Switzerland shares in the re- has also been levied at Italy for its treatment sponsibility for protecting the EU’s borders. There is an increasingly dangerous tenden- of refugees. Things have reached the point In spite of this fundamental solidarity, how- cy to view the relationship of Swiss citizens where even participation in the Dublin sys- ever, the actual distribution of responsibili- and foreigners as a case of “us versus them”. tem is being openly questioned, although ties seems inadequately regulated. For the Humanitarian compassion is fading in Swit- Switzerland is one of the few states that, on time being, competing national interests are zerland, and similar trends are also showing a purely quantitative basis, benefit from the still hindering the introduction of the re- up in individual EU member states. That said, Dublin transfers. Schengen has also come quired harmonisation measures. the EU itself is at least attempting, with a under fire, among other things because of Switzerland is having a hard time with such still uncertain outcome, to consolidate the the theft rings operating across borders. shared responsibilities too. Although com- legal status of foreigners. EU citizenship The positive aspects of EU policy often go pared to other European states it has to should strengthen the internal sense of unnoticed. Open borders and freedom of handle a high proportion of refugees in community. The balancing act between do- movement are fundamentally guaranteed percentage terms, it is however used to mestic and international or European con- and represent an opportunity for the citi- dealing with such issues, albeit on a much cerns will prove difficult for Switzerland, and zens of Switzerland. That became apparent smaller scale, on account of its federalist it may also represent a challenge for the EU once again, at least to the academic com- organisation. and its member states. munity, when the EU suspended the Eras- mus programme in reaction to the Febru- The EU has a clear head start on Switzer- ary 2014 referendum. land through its European Neighbourhood Parallels can be drawn between Switzer- Policy. In this respect, it undoubtedly bene- land and the European Union’s efforts to fits from its size and geopolitical heft. Yet channel immigration from non-member overall, EU migration policy still appears too states toward individuals with technical multifarious and is certainly in need of im- qualifications and management staff. provement. For its part, Switzerland will not ABOUT Questions remain, however, as to what be able to teach the EU anything before it extent that makes sense in terms of growth solves its own problems. There is also rea- Peter Uebersax is an honorary policy and whether or not it will lead to a son to fear that sympathy for the rights of professor of public law, specialising greater burden on the asylum system and foreigners is waning. For instance, as a rein migration law at the University an increase in illegal migration. sult of another recent amendment to the of Basel in Switzerland.

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THERE IS NO in Australian public debate to many bilateral and multilateral co-operative respons- AUSTRALIAN SOLUTION es: an “East Timor Solution” in 2010, a “Malaysia Solution” in 2011, a “PNG Solu- Australian government policy toward people seeking tion” in 2013. All this implies that policy asylum has periodically dominated Australian national success lies in a complete elimination of politics for the past fifteen years. The search for a the “problem” of cross-border movement. “solution” is part of the problem This is the wrong goal altogether: it en- courages counter-productive and extreme by Michael Cooney measures and disproportionate and inef- ﬁcient allocation of resources while still remaining impossible to achieve.

In a promising alternative, Desmond Man- derson of the Australian National Univer- he origins of current deaths at sea and over time reduce the sity argues in the leading Australian journal Australian policies lie number of people detained in Australia. Griffith Review for a shift from “zero-toler- in two recent periods Order is the ethic. In some mouths, this ance’’ to “harm-reduction” strategies. His of boat movements to extends to hostility to outsiders and a de- analogy is with effective policy responses Australia (earlier pe- termination to protect the Australian sanc- to the harm of illicit drugs. T riods include that fol- tuary from “the other”. Can Australians be persuaded? Perhaps. lowing the Vietnam War). From 1989 The alternative – an argument usually char- Yet Tim Soutphommasane, now Australia’s to 1994, boats arrived in Australia carrying acterised as of the “left”, which can be Race Discrimination Commissioner, has 735 people (predominantly Cambodian summarised as “open borders, open arms” written of the Australian ideal of “a sanc- nationals). A Labor Government enacted – is that deterring boat movements cannot tuary of sun and surf and suburb”. Orderly “mandatory detention” requiring all who justify the measures against individuals arrival, citizenship-based migration, large arrive in or enter Australia without lawful inherent in the Australian model. Compas- refugee settlement programs, well-planned authority be detained for health, character sion is the key. As voices of resistance, suburban development and a tolerant lib- and security checks. Then between 1999 these advocates frequently deny respon- eral multiculturalism are essential to this and 2001, around 9500 people sought sibility for the human costs of this ap- sanctuary. asylum here (predominantly from the Mid- proach. The sentiment of many is any substantial dle East). A conservative Government en- My own view – hardly universally held or number of people seeking asylum by boat acted “the Pacific Solution”, transporting uncontroversial – is that on balance, the risks much that is precious, and even pro- asylum seekers directly from boats to Pa- proven risk to human life from boat move- gressive, in Australian life. cific island detention centres, not allowing ments around the remote Australian coast them to land on Australia’s mainland. The means no progressive Australian govern- Australian debate has since polarised. ment can refuse all methods of mandatory detention and offshore processing to deter ABOUT A conservative argument – which can be these boat movements over time. summarised as “cruel to be kind” – is that It is certain however that in Australia, a Michael Cooney is Executive only tough measures to prevent irregular persuasive, progressive policy response Director, Chifley Research Centre, arrivals, including detention of children and has not been found. And this shorthand of the Australian Labor Party’s think temporary protection even of some people a “Solution” has become a major barrier to tank. He was speechwriter to Prime granted status of refugees, can prevent progress. It has since 2001 been applied Minister Julia Gillard.

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MIGRATION: EU AND South Korea is one of Asia’s top destinations for foreign workers. Most of the country’s SOUTH KOREA FACE migrants, indeed, come to work. Yet it, too, is at a crucial juncture in terms of immigration. NEW CHALLENGES Its registered foreign population stands at around 562,000, about half of whom entered Some EU Member States today want tighter immigration the country through the Employment Permit and asylum controls. In South Korea, the question is: System (EPS). The system, developed to should stringent restrictions on migrant workers be meet rising labour demands in the late relaxed? How different are the problems they face? 1980s, is strictly managed and designed to attract low-skilled workers to fill 3D (Dirty, by Julian J. Shin Dangerous and Demeaning) vacancies. The migrant workforce enjoys certain rights and benefits but is restricted to such industries as manufacturing, construction and ew issues within the Eu- of origin, even while helping to fill important agriculture. Permits are time-limited and ropean Union today job vacancies in Europe – has given a lead individuals cannot change jobs or bring their cause as much heated to other countries, South Korea included. families with them. debate as migration. It is Europe, though, knows it faces problems South Korea, though, has noted how the also a big issue in South surrounding labour market shortages in the temporary, circular migration of workers in F Korea, although the circum- future. As its birth rate declines and its pop- the EU ultimately led to permanent settle- stances are very different. ulation ages, it will need to attract increasing ment and social diversification. The natural- The EU’s common immigration and asylum ization and integration of foreigners who have policy is being constantly questioned by married Koreans is already a fact of life in Member States who long to re-establish their “PEOPLE ARE the country. Now policy makers are consid- sovereignty in governing the immigration CHOOSING ering ways in which ‘temporary’ migrant flows of third country nationals. The debate, workers and their families might be integrat- in relation to temporary workers and asylum TO STAY IN THEIR ed. As repeated, as circular international seekers in particular, has been intensified by labour migration increases, all countries – the rise of ‘Eurosceptic’ groups. OWN REGIONS South Korea and EU nations included – need In this climate, it is unsurprising that Member RATHER THAN to look beyond their labour needs to develop States support a stronger system of border a holistic approach that also benefits coun- surveillance. Critics, though, argue that this TRAVEL FURTHER tries of origin as well as migrants themselves. puts the lives of refugees and asylum seekers at risk, forcing them to attempt increas- AFIELD IN SEARCH ingly perilous, clandestine journeys to reach OF WORK.” Europe. They also point out that most irregular migration is caused by people already in numbers of manual and skilled workers from the region overstaying their visas. elsewhere. Studies of contemporary global ABOUT On the face of it, the EU’s well-intentioned migration flows, though, reveal people are commitment to integrating immigrants, as choosing to stay in their own regions rather Julian J. Shin is assistant professor well as its policy of ‘migration and develop- than travel further afield in search of work. at the Department of Sociology of ment’ – which acknowledges how the ‘brain Migrants in Asia are more likely to stay today the Chonnam National University, drain’ of migrants can damage their countries rather than head for Europe. in South Korea.

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100 QUERIES — Autumn 2014 PORTFOLIO

LEAVE TO REMAIN A European story

Ironically, while migration issues have been in the spotlight with the election to the European Parliament of political parties calling for the advent of a “fortress Europe” and the tragedies of boat-people, the individuality of migrants has remained largely ignored.

This is this very individuality that Bruce Goodison’s 2013 movie Leave to Remain brought to silver screens through the story of Omar, a charismatic Afghan teenager, who is at the precarious juncture of having his refugee status decided. For him, and thousands like him, who arrive alone and scared to our shores each year, the asylum system is a cruel game of chance.

Based on real-life stories, Leave to Remain depicts a world hidden from view, brought to life by powerful performances from an ensemble cast of emerging talent, young refugees and acclaimed actor, Toby Jones.

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The character of Zizidi embodies hope. Incredibly, despite her horrific past – which the Home Office does not believe in – she somehow manages to be optimistic that things will get better. Here we see her smiling with her eyes closed; she is lost in a fleeting moment of freeing joy. She uses music and her headphones to allow her to escape.

She looks out the window which separates her from the outside world; a world where she is not allowed; a world in which she wants to belong, but must wait in limbo to be told her fate.

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Zizidi walks alone through this underpass leading to Lunar House. Lunar House is the Home Ofﬁce Building where young refugees need to register. Although the colour of the light is warm and almost golden, these walls must feel cold when touched. We are reminded of the journeys refugees take in order to escape, to get to the end of the tunnel.

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We see Nigel, played by the acclaimed actor Toby Jones, doing Omar’s tie for him, showing how helpful and caring he is, treating Omar like his own son. He ties the knot of Omar’s tie, representing how he is trying to ﬁx things for Omar and secure a better future for him. It also suggests how Nigel is entangling himself in the mess of Omar’s dark past, as we later see Nigel being put in a tricky situation by the revelation of Omar’s lie.

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His nervous, ﬁddling hands rest on the surface of a clinical table like countless others have before him. The room is small and plain; austere and grey however a little light shines through the window – hope – is his ordeal nearly over? This lost, desolate boy is anxious, confused and scared. How old is he? Will they believe him?

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This shot is from the pivotal scene where Abdul unleashes the pain he has bottled up inside of him, enmeshed with Omar’s secret past, which is ﬁnally revealed. Abdul experiences conﬂicting emotions of grief, anger, fear and confusion, revealing a side of his character we haven’t previously seen.

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The welcoming environment of the classroom. The start of a vital friendship. Zizidi looks out for newcomer Abdul. They bond, build trust, help each other along this unknown path, providing comfort and advice. As they embark on starting a new life without their family, community, familiar surroundings, language and culture, they must build a new family support network for themselves in this foreign country.

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A brief moment of fun, excitement and joviality. They are on their way for a night out to forget their many worries. We are reminded that despite the difﬁculties this disparate group face, they want to enjoy life; they are teenagers after all! Adolescent life is hard enough for most children, growing up with your parents, a roof over your head in the country you call home. These children have been unwillingly uprooted and forced to leave one hell for another. The group are dressed up in colourful clothes and playful fancy dress, with two boys ironically wearing police hats; an omen of what’s about to happen.

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RAFI IS TAKEN AWAY BY THE POLICE © Leave to Remain / Indefinite Films Leave to Remain (2013) United Kingdom – Indefinite Films Directed by Bruce Goodison Raﬁ is handcuffed and lead away by the police. Why Lit by Felix Wiedemann must they take him? What is his crime? What will Starring Toby Jones, Zarrien Masieh, they do with him? For many refugees, being sent and Yasmin Mwanza back to the country they came from puts them at risk of death. Raﬁ looks back desperately at his friends. There is nothing he, nor they, can do. They will never see him again.

CONTAINS STRONG LANGUAGE, SEX REFERENCES 15 AND BRIEF GORY IMAGES

www.Leave2RemainTheFilm.com

QUERIES — Autumn 2014 109 O Europe & Photography N 3 Français English

Inside Berlin Erik Kessels Edwy Plenel Thomas Demand 9 791092 727050 ISBN 9791092727050 EU’s borders David Bowie - AL- 20,00 F: F: 18 £ - 26 CHF - 3- H- réalité augmentée Automne-hiver 2014 L 17419L Fall-winter 2014 augmented reality © Kirill Golovchenko #3 available in newsstands & bookstores – www.theeyes.eu INSPI- RA- TION

MY EUROPE DISCOVERY MEET THE PRESS What does Europe mean Anselm Kiefer’s A broad alliance against to Khalifa Sall? retrospective in London the Islamic State P. 112 Interview with curator P. 120 Kathleen Soriano P. 115

REPORT PUBLICATIONS ZOOM Beyond austerity, from the FEPS network Fabian Society towards employment: P. 128 P. 131 a gender-aware framework P. 124

BOOK REVIEWS CARTOON Dave Eggers, David Van Reybrouck, by Plantu Naomi Klein, John Weeks P. 135 P. 132

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112 QUERIES — Autumn 2014 MY EUROPE

uropean integration ACP countries have of course had special crats in Brussels, at best only discussed began in the after- access to the European market—both in with the governments of ACP countries. math of World War II, the past and still today—through specific Neither the people of Europe nor the pop- based on values such mechanisms and conditions. Unfortunate- ulations of ACP countries have had their as peace, solidarity, ly, this special access has applied only to say; and their concerns have not been E harmonious develop- raw materials for European industry and properly taken into account. ment and a shared vision of progress products that will not compete with those In addition, the issue of migration towards for humankind. The process suffered made in Europe. In many ways, although Europe remains a difficulty over which vicissitudes resulting from mutual distrust, ACP countries have taken advantage of more suitable policies must be put in place especially between France and the United the situation, Europe has also drawn im- in the interests of all involved. From a hu- Kingdom, along with the choices between mense benefit from the arrangement. Now, manitarian standpoint, the tragedies seen a political and an economic project, and the this latest proposed partnership—by re- today in the Mediterranean and recently in debate over intergovernmental manage- moving all customs barriers—threatens to Spain are simply unacceptable. ment versus supranational management. destructure the emerging ACP economies (given the still-fledging industrial and com- A CHANGE OF TACK Having grown from the six-nation Europe- mercial development in the majority of That is why I believe the European project an Coal and Steel Community (ECSC) into these nations), which risk seeing their mar- needs a change of tack, with a focus on the European Union with its 28 member kets flooded by European products. the following areas: states, via the EEC along the way, Europe has established itself as one of the world’s most dynamic economic centres while, to “THE CRISIS AFFECTING THE WORLD a certain extent, successfully pursuing integration through a common currency, TODAY IS A CLARION CALL TO PROVIDE removal of barriers and the creation of its AN EFFECTIVE FRAMEWORK FOR own parliament. FINANCE AND FREE TRADE THAT WILL EUROPE & ACP However, there is still a lot to be done, par- MITIGATE THEIR POTENTIAL TO ticularly as regards politics, a social Europe DO HARM.” and relations with the African, Caribbean and Pacific Group of States (ACP). This THE VOICE OF THE PEOPLE • Rethinking the European project by in- last issue has given rise to the problem of Beyond the issue of economic cooperation, corporating social aspects related to un- a new economic partnership following the there is the matter of how the people of employment, social security and the role Lomé, Cotonou and Yaoundé agreements. European and ACP countries fit into the of employee representatives in companies; The partnership agreement sought by the whole process. Indeed, the interests of • Reworking decision-making mechanisms European Union is a hot topic in our country populations have very often been over- by better taking account of the interests as a result of globalisation and liberalisation looked in relations between Europe and of populations rather than tightening the of trade. It gives the impression of a strate- the ACP. Clearly, there have been meas- grip of the technocracy in Brussels when gy aimed at securing market share for ures such as the Stabex finance scheme it comes to policies and strategies; Europe in the face of growing competition and the European Development Fund • Successfully tackling the problem of in- from countries such as China, Russia, Bra- (EDF) to support the policies of ACP coun- vestment in Europe, along with competi- zil and India, along with other Asian nations tries, but these tools were and are the tiveness and the redistribution of income including Japan, South Korea and Thailand. result of strategies drawn up by techno- in the European area;

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“THERE IS STILL A LOT TO BE DONE AS REGARDS RELATIONS WITH THE AFRICAN, CARIBBEAN AND PACIFIC GROUP OF STATES.”

Here in Senegal, our battle to build a strong, stable democracy, to ensure balanced growth that can benefit our people, to promote solidarity and sharing in our society in support of this balanced growth, and to shape relevant, effective African integration to some degree ties in with the ideals that must be shared with Europe. That is why Europe—which has been Af- rica’s natural, direct partner for many a year—must work with us to forge a strong partnership based on these paradigms, which will help our respective peoples flourish. The Universal Civilisation and the Concert of Nations, so often evoked by our first president, Léopold Sédar Seng-

© Serigne DiagneSerigne © hor, are goals we can reach through peace Aerial view of Dakar, Senegal and stability, provided each member of the orchestra is allowed to play their part • Moving more effectively towards a polit- from a global political standpoint in order in harmony as we create and invent a new ical Europe that does not dismiss individ- to reduce people’s desire to migrate future together. ual national characteristics, by improving through investment strategies targeting segmentation of identities to ensure that migrants’ countries of origin. the European identity is as strong and accepted as national and regional identities; SHAPING A UNIVERSAL • Reviewing the partnership with ACP CIVILISATION countries from a less economic/free-mar- The crisis affecting the world today, espe- ket standpoint to build a partnership that cially in Europe, is a clarion call for major can ensure real development in ACP coun- changes and new regulations to provide an tries, which must not be seen solely as effective framework for ﬁnance and free consumers of European products and in- trade that will mitigate their potential to do stead as preferred partners through a win- harm. In this respect, the European left and Khalifa Ababacar Sall has been win approach to trade; progressives must rally to ensure that neo- the Mayor of Dakar since 2009. • Addressing the issue of migration towards liberal single-mindedness is no longer given Dakar is the capital city of Senegal, Europe from a humanitarian angle that free rein and to introduce a democratic and and comprises nearly half of the respects the lives of individuals as well as social alternative into the European project. country’s total population.

ANSELM KIEFER AND THE TROUBLED WATERS OF EUROPEAN HISTORY

Retrospective at the Royal Academy of Arts – London – September 27 to December 14, 2014 The Anselm Kiefer exhibition conveys the brutal trauma of the Second World War to a dizzying degree, through a blend of aesthetic emotion and the cry of a continent stripped bare. Discover a committed artist who has produced an oeuvre filled with meaning that can help to rebuild Europe’s collective memory.

by Charlotte Saliou

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AN EXTENSIVE EXHIBITION alchemy, philosophy and the poetry of Paul These images record Kiefer’s re-enactment Anselm Kiefer’s art is the product of Celan, all of which leave their mark on an of the Nazi salute in locations across Eu- 40 years’ work, and has been brought oeuvre that echoes the darker hours of rope. The pieces carry a dual meaning, both together in a magnificent showcase for Germany’s past. Such is the impact of his- provocative and symbolic, and were made this latest exhibition. The pieces are on tory that it shapes both the style and sub- in the belief that one must confront rather loan from public and private collections stance of his work. than suppress the experiences of histo- around the world, including the most re- ry. It seems his entire opus is born of the cent, a sign of the artist’s appeal on the “I FEAR need to give voice to truth, to leave nothing art market. unsaid and to never silence the pain. His Kiefer has used a wide array of media THE BEAUTY work is acknowledged for its rich meaning throughout his career to express himself and depth, and reveals a clever technical more freely, including paintings, sculptures, OF ART use of natural materials such as clay, lead, installations and photographs. The current MAY TURN ash, earth, fabric and dried flowers. These exhibition reflects the full extent of his materials add powerful symbolism that con- work, as well as the thinking that has in- TO ASH veys a sense of the natural, the living and spired him over the years. His fascination the “vestiges” of the living (ash). As such, with history comes through clearly as ONCE IT their impact on the canvas mirrors that of a something that is deeply rooted and a guid- IS PUT myth, returning to the roots to better explain ing force. As does his attachment to the the essence of things, both culturally and in work of past masters. His pieces are per- INTO WORDS.” terms of universal fundamentals. The work meated by mythology, which he reflects in is powerful, imbued with clear values, inde- a modern light, while adding symbolic and Highlights of the exhibition include paint- scribable aspects, enigmas and a range semantic scope of his own. Scientific dis- ings from the controversial Occupations of registers (the gravity of the symbols is coveries and progress are another source and Heroic Symbols (Heroische Sinnbilder) striking when one considers the author’s of inspiration, along with the Kabbalah, series from the late 1960s and early 1970s. sense of sarcasm and irony).

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“BORN IN GERMANY JUST THREE MONTHS BEFORE THE END OF THE WAR, KIEFER GREW UP BECOMING MORE AND MORE AWARE THAT THERE WAS AN IMPORTANT PART OF GERMAN HISTORY THAT WASN’T REALLY TALKED ABOUT.” © Studio Tromp, Rotterdam / Anselm Kiefer, Courtesy Museum Boijmans Van Beuningen, Rotterdam

The exhibition features a series of paint- Celan, Aschenblume) and Black Flakes to at least temporarily leave the realm of ings from Kiefer’s Attic series, including (Schwarze Flocken), 2006. His work of- art theory and explore a wholly different the 1973 pieces Father, Son and the Holy fers an unwavering, grave and solemn lexicon spanning cosmogony, universal- Ghost (Vater, Sohn, Heiliger Geist) and insight into the power of memory and the ity and constellation—an approach also Notung, based on the studio space where passage of time, set against the ravages found in the work of French author Victor the artist lived in Walldürn-Horbach in of history and its impact on the future. Hugo, whom the artist cited in his inau- south-west Germany, which he has re- Kiefer also produced a number of new gural lecture at the Collège de France ferred to as “a place to teach [himself] works for the exhibition, incorporating in 2010. From this standpoint, Kiefer’s history.” Indeed, the need to tackle subject large-scale paintings and sculptures, in- work appears profoundly poetic and can matter from Germany’s past is a driving cluding a major installation for the Royal captivate any audience. His oeuvre might force behind Kiefer’s work on rebuilding a Academy’s courtyard. be described as being ﬁlled with fervour collective identity, and through which he is for life, or perhaps “survival”. In the artist’s able to express his own. AN INSPIRED, COMMITTED ARTIST own words: “Art will survive its ruins.” The Anselm Kiefer draws inspiration from sci- hand of man may leave a trace, which time The exhibition also includes his monu- ence, literature and poetry, “muses” that and the universe will cause to evolve, and mental architectural paintings, such as buoy him in his creative process and give will protect against the emptiness of fash- the 1983 work To the Unknown Painter him reason to believe. The artist’s work is ion, trends, kitsch and the “underground”. (Dem unbekannten Maler), and shows far from pessimistic, yet it can appear dark The “hideous” then becomes that which is the artist’s engagement with the fac- and obscure. This weighty visual aspect not living and remains devoid of evolution ets of history through works such as stems perhaps from the semantic depth of or perspective, conﬁned by contingency. Palette on a Rope (Palette am Seil), the oeuvre and its many sources of inspira- In this respect, his work takes on more 1971, the ultimate symbol of his com- tion, which can at times produce pieces that meaning, seen as an eternal study that mitment to combat totalitarianism. Kief- are abstruse while brimming with emotion. comes to life between hope and hope- er’s books are also on display, including However, his work becomes clearer, re- lessness, on the path followed by the For Paul Celan, Ash Flowers (Für Paul vealing the enigmas it hides, if we are able work itself.

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Kiefer also has a strong affinity for the poet Rainier Maria Rilke. There is no denying “HIS ENTIRE OPUS IS BORN OF that in Letter to a Young Poet—a rich text THE NEED TO GIVE VOICE TO containing an abundance of candour and advice addressed to the reader and, more TRUTH, TO LEAVE NOTHING specifically, to the poet’s “student”—art appears to be defined as an animate object UNSAID AND TO NEVER SILENCE akin to an evolving human being. Anselm THE PAIN.” Kiefer does not appear to have any pre- conceived ideas in his approach to art. However, he undoubtedly draws inspiration from poetry and history, especially Euro- pean works. identity through the aforementioned univer- AN OEUVRE IMBUED sal myths, with history too heavy a burden, WITH EUROPEAN HISTORY much too grave to be made an instrument The artist and his work are haunted by the of art and literature. memory and the tale of a worldwide trag- The concepts of modern writers have clear- edy. They carry the scars of the barbarism, ly inspired the artist, pushing him to reflect. the ineffable pain and the tribulation of the There is, in his work, a willingness to interact Holocaust, which left ontological values with reality and a need to revitalise his ap- such as hope, happiness and belief in ruins. proach, to destroy past stereotypes and to The cogito itself, providing the origin of better convey what art means to us in our thought, was left floundering in absurdity. time. The struggle with a dominant ideology The fundaments of knowledge, under- and the desire to escape the language that standing and optimism barely survived the characterises it is quickly apparent, giving crisis. Europe then wrestled to emerge rise to the “crisis of Logos”, a concept that from the ashes. fuelled art in the second half of the 20th cen-

Art, permeated by these realities, offered a tury. Speaking at the Collège de France, Howard© Sooley/Anselm Kiefer means to “rebuild” our collective memory. Anselm Kiefer voiced his own view on the ABOUT Perception remained yet the values found issue: “I fear the beauty of art may turn to in elegant proportions, classical harmony, ash once it is put into words.” Anselm Kiefer was born in 1945 in and the Renaissance perspective could no Donaueschingen, Germany. After longer truly show the world as they did be- The exhibition offers a retrospective on the studying law, he began his art fore the Holocaust. Art came to embrace life and work of an artist whose engage- education in Karlsruhe and then other values; charting other troubled waters, ment and inspiration provide an amply Düsseldorf, representing Germany at exploring a new truth, full of doubt, with all fertile seedbed to rethink European histo- the 39th Venice Biennale in 1980. His its deconstruction and reconstruction, its ry and express his ideas while allowing the work is now shown at major museums intervening periods and peripateticism. The emotions to which they give rise to come throughout the world. In 2010, he was artist sought to free his imagination in his to the fore and be felt. Such feeling and appointed to the Chair of Artistic work yet found it bridled by facets of histo- reﬂection could enlighten the minds of Creation at the Collège de France, ry and “truth”. However, through different many an individual, making the collective where he delivered nine lectures media, he found a way to “rebuild” his own European identity undeniably stronger entitled “Art will survive its ruins” identity and to help recapture the collective through the power of newfound memory. (Die Kunst geht knapp nicht unter).

118 QUERIES — Autumn 2014 PLAYING WITH THE RUBBLE OF THE WAR

Interview with Kathleen Soriano, curator of the Anselm Kiefer retrospective at the Royal Academy of Arts in London The Second World War had a very important influence on the Queries: From a global point of view, what is Kiefer’s beginning of his work. What I always tell people is whilst the artistic vision? stories that are told in the paintings are often directly referencing Kathleen Soriano: I think that Kiefer is very interested in the big that war, they are as much about today and the future as they are questions in life: how did we come to be here? What are we here about the past. Underlying the precise issue of World War II, for? What are we here to do? I think that from a global point of Kiefer is also actually exploring the tension between good and view, this is what he is considering in his work. When you under- evil, between heaven and earth. And it goes up to the big questions stand that he has a very sceptical view of history rather than a rather than the simplistic analysis of these historical events. linear one, you then get a better understanding of what you are looking at on the walls. “KIEFER GREW AWARE THAT Q.: How much did Europe influence his life and work? THERE WAS AN IMPORTANT K.S.: Europe has been a fundamental influence for Kiefer’s work. He talks about the importance of being born and raised PART OF GERMAN HISTORY in Donaueschingen, in Germany, of how he was surrounded as a child by the rubble of the war and how he used to play THAT WASN’T REALLY TALKED with it. The rubble goes on to figure in some of his painting ABOUT.” later on, some of the brick paintings. That was a fundamental influence, that precise period in Europe when he was born. Q.: What messages is he trying to convey in his work? Also, his travels to Europe, and then across the world, have K.S.: I don’t think he’s trying to convey any message at all and if always influenced his work and some of the scenes one can you ask him that question he would say that he paints in order to encounter in his work. understand and work through his thinking on a subject. If people take a message from that, then that is their doing, because he Q.: It seems like he used myths to talk about history and doesn’t paint in order to communicate one. the changes inherited from World War II. Why is that? K.S.: His work began with the Second World War because that Q.: Regarding his vision of Europe, would you say it is was the period he experienced most pointedly, as a child who was pessimistic or hopeless? born just three months before its end. He grew up becoming more K.S.: I think he’s always hopeful because he thinks about time and and more aware that there was an important part of German history in a geological sense. Time is bigger than all of us, and even history that wasn’t really talked about. I guess that History lessons human history on Earth. He’s ultimately hopeful about how we will at school didn’t really deal with that topic for very long because it develop. In his work and study, when he looks at philosophy, histo- was only associated with the third Reich and the National Social- ry and religion, he’s really trying to understand how we behave and ist Party. There were a group of young artists and writers in Ger- why we behave the way we do. many at that time, in the sixties, who were concerned that there I don’t think it is as simple as whether or not he is hopeful or has was a blanket of silence over the country, with regard to that very no hope for Europe, for the world is going forward. difficult period. It was very hard to be an artist in Germany after the war because the Nazi had defined what was good and/or acceptable art. These artists were very keen to reclaim the world of art for German artists.

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BROAD ALLIANCE AGAINST THE ISLAMIC STATE

Around 40 states have joined forces under the US’s leadership to fight the Islamic State (IS). Airstrikes and support for moderate Syrian rebels are to put an end to the advance of the terrorist militia. Is this the start of a new war on terror?

14.09.2014 In cooperation THE GUARDIAN with

Cameron didn’t fall Diversity and uniformity are just as evident in Europe’s headlines as they into IS trap are in Europe itself. The euro|topics press review shows you which topics In announcing that there would be no imme- way. The UK has the material ability to are moving Europeans and reflects diate military retaliation the British prime respond to a horrific international event of the great variety of opinions, ideas and minister reacted coolheadedly to the killing this kind, but it needs the moral and political emotions on those issues. Whether of aid worker David Haines, the left-liberal ability too. Mr Cameron should only respond the topic is politics, the economy, so- daily The Guardian writes in praise: “In spite in ways that lend legitimacy to the action ciety or culture, euro|topics takes a of Mr Haines’s horrific killing, to assert a rather than put its legitimacy at risk.” daily look at the European press and unilateral UK military response at this stage cites the most important voices. Be- in the process would not just have been to cause the question that interests us do what Isis wants. It would also, in the con- is: What does Europe think? text of the evolving strategy signalled last week by President Obama, have been reck- [ ] INFO: www.eurotopics.net lessly premature. It would have reinforced the old imperial stereotype and in the wrong

120 QUERIES — Autumn 2014 MEET THE PRESS

15.09.2014 16.09.2014 LA REPUBBLICA EL PAÍS

ASSAD’S ROLE Arab states are high-risk allies

MUST BE CLARIFIED The Arab states in the coalition against against ISIS, either from political fear or the Islamic State pose a threat in the technical weaknesses; they face strong Representatives of around 20 countries will medium term, Middle East expert Rami problems with their own public opinions meet in Paris today Monday to discuss what Khouri warns in the left-liberal daily El at home that are very dubious about action to take against the IS. The partici- País: “The biggest weakness in Obama’s partnering with the American military; pants must finally decide how to behave coalition is its Arab members, all of their own mistreatment of some of their vis-à-vis Syrian ruler Bashar al-Assad, the whom are autocratic and paternalistic prisoners in their jails incubated the birth left-liberal daily La Repubblica urges: “The states that share several embarrassing of Al-Qaeda in the 1980s.” death of David Haines, whose only sin was traits: they are reluctant to use their to try to help the Syrian population, the vic- formidable military arsenals in the fight tims of the civil war, comes like a lash of the whip for the broad and confused anti-jihadist coalition that is meeting today in Paris. His decapitation should be an incentive to 22.09.2014 accelerate the intervention. [...] Many see the need and urgency to do this, but not just THE INDEPENDENT a few are hesitant about participating mili- tarily with airstrikes or ground operations. Russia will no doubt try to prevent the conflict from spreading to Syria with a veto in the UN Security Council. [...] Because as an ally of the Syrian regime Moscow would like OFFER ASYLUM INSTEAD OF BOMBING IS to see Assad recognised as a potential member of the large anti-jihadist coalition.” The terrorist IS militia is now being less than one percent of Syria’s refugees, bombarded but no one has a plan for what the UK has resettled a grand total of 51 to do with the refugees from Syria, Kate people. As I left Lebanon a government Allen, director of Amnesty International, adviser said to me ‘Don’t tell us to keep criticises in the left-liberal daily The our borders open, while you close yours’. Independent: “Syria is facing the world’s It’s a remark that ought to be reverberating biggest humanitarian crisis, and its around Downing Street as the generals neighbouring countries can’t manage on explain to David Cameron how they’re their own. Around the world, despite the going to ‘destroy’ Syria’s Isis fighters.” politicians’ promises, the response has been woeful. EU countries have taken

QUERIES — Autumn 2014 121 MEET THE PRESS

22.09.2014 ACTUALNO.COM

DEFEAT IS THROUGH RELIGIOUS TOLERANCE © United© States Navy The terrorist IS can’t be beaten with bombs alone, the news portal Actualno.com warns: “The ‘Islamic State’ is mainly viewed as a military threat and a security problem, while its ideological aspects are largely 25.09.2014 ignored. [...] The core of the terrorist militia, LIBÉRATION however, is its ideology based on an extremist interpretation of Islam. [...] Bombs are not the right means for countering this ideology. Far more efficient would be to develop a consensus on religious freedom. As long as America’s allies [in the Middle East] don’t stop using religious exclusion as a means of cementing power and con- France must not let itself trol in their own countries, and as long as they refuse to promote religious tolerance be blackmailed among their own citizens they will be part of the problem in the fight against the IS, France must not buckle after the beheading doubting our course now would be to justify rather than part of the solution.” of French tourist Hervé Gourdel, the left-lib- the barbarians’ tactics. Giving up in the midst eral daily Libération urges: “Hervé Gourdel, of this drama would mean to let weakness a lover of mountain summits, died because triumph over intelligence. The justified hor- of a war in which he played no part what- ror this crime provokes must not lead to soever. In this he resembles the French, who irrational fears.” are now suddenly aware of the risks that they are taking in opposing Islamic fanati- cism. Some will say that the military interventions were overhasty, and that we took part without being directly affected. [...] But

122 QUERIES — Autumn 2014 has been left all on its own.” own.” its on all left been has Russia position, former its from itself tanced dis has too Iran that now and terrorism, against fight the in anyone with terms to come will it that grounds the on airstrikes suddenly withdrawn opposition its to the US has regime Syrian the that Now here. loser big the be probably will Russia [...] Syria. for light green US the the given has Iran [...] the non-extremist opposition and arming it. of approaching intention its announced has US The vacuum. this fill will who secret no It’s IS. the byeliminating avacuum create to but Assad, president] of [Syrian love for not But target. US’s the is IS, the opponent, Today regime’s this regime. Syrian the attack to preparing US was the year last August “In comments: minority, Agos, Armenian of the paper weekly the IS, the weaken just not does states Arab with alliance the But Syria. in control IS’s the under stockpiles and weapons command headquarters refineries, oil bombarded have allies Arab its and US military the days three past the Over alliances partno in new Moscow has AGOS QUERIES 26.09.2014 — Autumn 2014 - Arabic media. There the idea that Turkey that idea the There media. Arabic the at looking without Syria in intervention -of aTurkish repercussions potential and - significance the understand to possible not it’s However IS. bythe hostages of its release the after part full take now can Turkey which in alliance, anti-IS of the expansion of the context the in seen are Western media Turkey’s “In explains: plans Standard Der daily left-liberal the World, Arab the in controversial is Syria Northern in zone” a“safe up setting for proposal Tayyip Recep Turkish President Erdog˘an’s CONTROVERSIAL TURKISH ZONE SAFE INSYRIA DER STANDARD 02.10.2014 the Turks lost after World War I.” World Turks after the lost -which Mossul regarding fears incites Iraq to extend also would authorisation ment’s Turkish the parlia that fact The land. Arab on attack acolonialist launching for plans neo-Ottoman media: state Syrian like the exactly sound -suddenly regime Assad of the view antagonistic an take - which states Gulf of the media the respect this In mainstream. practically is itself for Syria is cooperating with the IS to claim part of part claim to IS the with cooperating is MEETPRESS THE 123 -

AGAINST THE GENDER IMPACT OF AUSTERITY

Austerity policies have damaged Europe’s gender equality aspirations and policies. FEPS and Progressive European experts are looking for a new macro-economic framework that could help overcome the crisis without harming women’s participation in the labour market.

by Kim Rahir

124 QUERIES — Autumn 2014 REPORT

hen Europe “HE-CESSION” AND of the financial crisis and the following eco- was hit by the “SHE-AUSTERITY” nomic downturn. But the analysis went be- financial cri- But the analysis shouldn’t stop there, says yond that powerful first impression. sis in 2008 Hannah Bargawi of the School of Oriental it looked as and African Studies (SOAS). Bargawi is THE WORSENING OF MEN’S W though some- part of a project that wants to go “beyond SITUATION DOES NOT EQUAL thing unusual might be taking place: this rather simplistic binary analysis” that is A CLOSING GENDER GAP the effects of the crisis, including summed up in the words “he-cession” and At first sight one could come to the con- declining businesses, shrinking “she-austerity”. “Much of the research on the clusion that the crisis has levelled down economies and - as a consequence exact channels and dimensions of impact is gender gaps and shown changes in - unemployment, seemed to hit men only just able to inform our thinking because women’s behaviour on the labour mar- harder than women. Since the worst of of the delay in the production of national lev- ket. Massive job losses for men, and the the immediate fallout was in the financial el data”, she cautions. The project is called spread of low-value, flexible workers that sector and in male-dominated industries ‘Beyond Austerity, Towards Employment: concerned not only women but also young such as construction, many more men lost A Gender-Aware Framework’ and is a co- male workers seem to have approximated their jobs than women in the first shock- operation of the Foundation for European the situations of men and women on the wave of the global crisis. For once, women Progressive Studies (FEPS), the Think-Tank labour market. But this impression was not seemed to have an advantage over their for Action on Social Change (TASC), The confirmed when the experts took a closer male counterparts. But it was not to last. Economic Council of the Labour Movement look. In Ireland, it has become evident “that The crisis caused a credit squeeze and a (ECLM), the Open University and SOAS. An gender gaps have narrowed, that there has frenzy of reactive policies that were direct- eponymous seminar in Brussels brought been a levelling down of gender gaps in ed first at saving failing banks and then together European experts for two days of employment, unemployment, wages and at saving failing state budgets. Austerity analysis and discussion on February 11th poverty over the crisis”, Barry explained was back and it was to prove disastrous for and 12 th, 2014. Two objectives were set: during the seminar. “But what is also ap- women and gender equality. It looked as 1. Determine and discuss the channels and parent if the data is closely examined is though years of efforts to promote equal- the extent of the impact of austerity policies that this does not reflect progress towards ity, European guidelines and ambitions for on men and women in Europe, particularly greater gender equality.” gender mainstreaming were thrown over- in the labour market. This analysis is shared by Marcella Corsi board. “I think it was some kind of pan- 2. Define the characteristics of a progressive from the University of Rome La Sapienza. ic reaction”, says Ursula Barry of Dublin and gender equitable macroeconomic frame- “On the surface, the gap between men and University College. For an entire decade work for Europe. women is being bridged, but under the sur- the keyword had been “activation”: women The participants demonstrated that the im- face, things are more complex and effects were sought after as a supply source for pact of austerity policies on men and women diversified among men and women. Gender the labour market. The crisis then generat- is manifold and complex. The setbacks for gaps are closing not because women im- ed a shift of priorities. Gender mainstream- gender equality achievements, it is true, seem proved their situation but because men saw ing was no longer considered essential in to be as much the consequence of policies theirs getting comparatively worse”, Corsi policy decisions. or of a shift of priorities in those policies as says. So what looks like men and women

QUERIES — Autumn 2014 125 REPORT

“THE PROBLEM FOR WOMEN, MOREOVER, enon according to Gloria Mills, who represented the European Federation of Public IS NOT ONLY THE RISK OF Service Union (EPSU). Austerity policies and cuts in Europe have been “particular- UNEMPLOYMENT WITH JOB CUTS, IT CAN ly harmful to women who in most countries ALSO CONSIST OF HAVING TO MOVE FROM A make up the majority of those employed in the public sector”. Paola Villa of the Uni- SECURE PERMANENT JOB INTO MORE versity of Trento and Mark Smith of Lan- PRECARIOUS FORMS OF EMPLOYMENT caster University, summed up why women were hit hard and manifold by the public BECAUSE OF OUTSOURCING.” sector cuts: “Firstly, the majority of public-sector workers are women and thus subject to pay freezes, job cuts and re- becoming more equal, is actually nothing response to cuts in public expenditure”, duced pension entitlements. Secondly, else but men being worse off than before. Elson explains. “This helps people to sur- women use public services more intense- Another approximation is seen in the fact vive, but the burden generally falls une- ly than men to meet their own needs and that the crisis has shown that employment is qually, more on women than on men”. And to help manage care responsibilities. Third- no longer considered “optional” for women the story doesn’t end there: Because if the ly, women are more likely than men to pick and by women - the data reflect that with economy starts to recover, “responsibilities up the extra unpaid work resulting from the shrinking of the labour market, women for unpaid care work constrain the extent cuts in public services. Finally, women have did not simply retreat into the role of home- to which women are able to participate”. a higher dependency on benefits due to makers but insisted on being registered as After what can be considered the “first hit” their higher participation in unpaid care “unemployed”. - the crisis with rising unemployment, the work and their lower earnings.” expansion of unpaid work with the burden The problem for women, moreover, is not WOMEN TAKE ON MOST OF THE falling mainly on women - the second blow only the risk of unemployment with job cuts, EXTRA UNPAID WORK followed: austerity policies. These consist it can also consist of having to move from But women’s roles in the economy and in - among other things - in public sector cuts. a secure permanent job into more pre- society are actually quite complex. This is In Ireland, as Barry shows, the first wave carious forms of employment because of one of the reasons that crisis and auster- was the slashing of budgets of key equal- outsourcing. Bargawi points out one inter- ity policies both hit women definitely hard- ity agencies that were focused on women, esting, gender relevant finding with regards er than men. One way to understand and equality, poverty and racism. Important to jobs cuts. “Comparing the most recent analyse the role of women is to take into organisations were “closed down or denied EU data on full and part-time employment account and evaluate unpaid work, says their independence by being absorbed into in the Eurozone periphery countries (Italy, Diane Elson of the University of Essex. In government departments”. Those meas- Spain, Portugal, Greece and Ireland), economic statistics, unpaid work is often ures were followed by job losses and pay demonstrates that the availability of full- not considered. But some European coun- cuts across the public sector - a sector that time work in the public sector has declined tries studied the significance of unpaid had become “a key source of employment for both men and women since the incep- work and put a money value on it. The re- for women, combining job security with tion of austerity policies. A worrying gender sults showed that unpaid work can some- some flexibility”. dimension to this process is that men have times be equivalent to a third of GDP. Why been able to increase their part-time work is this important for the role of women PUBLIC SECTOR CUTS HARM in response to the fall in full-time jobs. For during the crisis? Because “there is evi- WOMEN IN SEVERAL WAYS women, such part-time work has, however, dence (albeit not comprehensive) that The vulnerability of women in public sector also declined.” unpaid work expands inw recession and in jobs turned out to be a European phenom- And women did not only lose their jobs or

126 QUERIES — Autumn 2014 REPORT

job security. With the slashing of budgets counts the example of a UK study in 2010 “GENDER GAPS ARE for services for disadvantaged or poor that concluded that 72 percent of govern- households, women were hit again since ment spending cuts of £ 8.1 billion would CLOSING NOT they make up a majority of single-parent hit women compared to 28 per cent for BECAUSE WOMEN and vulnerable families that get to benefit men. Equality Impact Assessments of pol- from those services. icy measures have since been largely IMPROVED THEIR abandoned, Mills laments, with the risk that SITUATION BUT AFTER YEARS OF EQUALITY the gendered impact of policy making will CAMPAIGNING WOMEN WERE be understated. BECAUSE MEN SAW CONSIDERED A RESERVE LABOUR FORCE AGAIN OFFERING CONCRETE THEIRS GETTING European women’s plight in the crisis and ALTERNATIVES TO AUSTERITY COMPARATIVELY its aftermath seem even the more surpris- Having identified the ways in which men ing as Europe does have a well formulat- and women have been impacted by aus- WORSE”. ed agenda on gender equality. Treaties, terity policies, the project puts great em- Directives, the Charter of Fundamental phasis on pointing out macro-economic Rights, the Commission’s Women’s Charter alternatives to austerity. “Unless we can and Strategy for Equality between Women also offer concrete alternatives to the and Men - the idea of achieving gender current austerity trajectory, such research equality is omnipresent in Europe’s writ- has limited use, especially for European ten guidelines. The European Commission policy-makers”, Bargawi argues. There is a had been very active to promote gender lot of work in progress, but she particularly mainstreaming for employment policies. points to the study “A gendered investment Gender mainstreaming is the integration plan” by Signe Hansen and Lars Anders- of the gender perspective into every stage en of the Economic Council of the Labour of the policy process with the goal to pro- Movement (ECLM) that shows “how invest- mote equality between men and women. ments in childcare provisioning can create It means analysing the impact of policies jobs, increase the female labour market on the lives of men and women. But this participation rate, and ensure that Europe approach to gender equality, as Gloria will have a quicker return to its historical For gender equality one cannot rely on a Mills notes, “is yet to be mainstreamed in growth path than under current policies.” general economic recovery alone, Bargawi EU economic and financial policy.” With warns. Gender equality erosions are taking the shift of priorities in the crisis, women The ‘Beyond Austerity’ project is aimed at place under the current austerity policies came again to be considered as some kind European policy makers, Bargawi explains, and will be difficult to address without a of reserve labour force. The same is true but it is destined to reach much further. “In “concerted targeted effort from policy for young people and migrants. They are some instances policies will need to makers”. drawn onto the labour market in times of change, first and foremost, at the national growth and can be let go in a contraction level. However, given the strength of the Moreover, the project “hopes to also of the economy. rhetoric around the need for austerity, es- provide European lobbyists such as the To get back on track towards the goal of pecially in Eurozone periphery countries, European Women’s Network and national gender mainstreaming and equality, one among centre-right European politicians campaigning organisations, with concrete important step, according to Mills, is “to and private sector stakeholders, there is material to build their campaigns for true formulate policy based on robust, reliable an urgent need to demonstrate the sound- gender equity within the context of eco- and transparent gender data”. Mills re- ness of economic alternatives, full stop.” nomic recovery.“

QUERIES — Autumn 2014 127 PUBLICATIONS

THINK TANKS’ PUBLICATIONS In each issue, Queries introduces the latest publications released by the foundations and think tanks that are members of the Foundation for European Progressive Studies.

VOTING FOR FRONT NATIONAL AT THE EUROPEANS BEYOND THE 19TH CENTURY? JAURÈS, ELECTIONS, A NEW ELECTORAL BASE? THE REPUBLIC AND CULTURAL PLURALISM Joël Gombin Marion Fontaine

The results of the European elections on Jaurès tried to understand the changes, 25 May 2014 show clear geographic vot- including cultural, that would determine ing patterns in favour of the National Front, the 20th century. He elaborates on issues whose political strongholds remain in the relating to plurality and unity. These Southeastern Mediterranean part and a themes permeate his journey to Argentina large quarter Northeast part of France. at the request of the Argentine Socialist Conversely, the FN gets its lowest scores Party. He went there as a representative in the Ile-de-France, in the Massif Central, of international socialism and thus and in the Western area. More specifically, responds to the will of the Argentine activ- the FN vote generally decreases with the ists to follow in the footsteps of European distance from urban centres. ideas while affirming their specificity.

[ ] www.jean-jaures.org/publications/notes/vote-fn- [ ] http://www.jean-jaures.org/Publications/Essais/ aux-europeennes-une-nouvelle-assise-electorale Au-dela-du-XIXe-siecle-Jaures-la-Republique-et-le- pluralisme-culturel

128 QUERIES — Autumn 2014 PUBLICATIONS

DECISION AND POLITICAL PROCESS. THE SOCIAL REPORT 2013. UNEMPLOYMENT, LESSON OF THE CRAXI GOVERNMENT (1983-1987) POVERTY AND INEQUALITIES IN CATALONIA Gennaro Acquaviva & Luigi Covatta (curators) Various authors Various authors

th Decisione e processo politico This is the 8 volume of the “Gli anni This book proposes a detailed diagnosis La lezione del governo Craxi (1983-1987) a cura di Gennaro Acquaviva e Luigi Covatta prefazione di Piero Craveri di Craxi” (The Years of Craxi) series, of the current situation of increasing ine- a historical and critical reconstruction quality in Catalonia, it provides solutions of the governmental 80s, when Ital- and it claims a renewed Welfare State as ian politics were strongly inﬂuenced the most powerful tool to guarantee cit-

Gli anni di Craxi by Bettino Craxi, leader of the Italian izenship rights and the promotion of equal 725 signes Socialist Party and Prime Minister of opportunities. The Social Report 2013 is Italy (1983-1987). Decision making, a joint working paper of Rafael Cam- [ ] CONTACT: Ipsam escit,democratic te ima leadership, exercise of gov- palans Foundation and the Social Area ernmental powers were then and return of the Catalan Socialist Party. We are today at the top of the political topics. currently preparing the 2014 edition. The volume focuses on Craxi’s ability to make correct decisions at the right time and obtain a vast consensus.

[ ] www.fondazionesocialismo.it/gli_anni_di_craxi.htm [ ] www.fcampalans.cat/uploads/publicacions/pdf/ informes07maquetafinal.pdf

THE GAINS FROM WORK MONDOPERAIO #9 Economic Council of the Labour Various authors Movement (ECLM)

Entering the highly tense debate on the The magazine led a campaign for pro- size of the Danish social benefits, The moting the membership of the Demo- Economic Council of the Labour Move- cratic Party to the PES. The Septem- ment (ECLM) shows that the gains from ber 2014 issue will be accompanied by work greatly exceed the ones from pub- a special report in memory of Giacomo lic transfers. The best way to reduce Matteotti, the Socialist MP killed by Mus- unemployment is not by lowering the solini’s thugs ninety years ago. A dossier social benefits. Rather, Denmark needs about the italian public debt appears in to create more jobs, enhance the quali- the September issue of the magazine. fications of the unemployed and get the economy back on its growth-track.

[ ] www.ae.dk/publikationer/danskerne-arbejder-naar- [ ] www.mondoperaio.net/ der-er-job-og-det-betaler-sig

QUERIES — Autumn 2014 129 PUBLICATIONS

REFLECTIONS ON CONSTITUTIONAL REFORMS Mario Dogliani, Alessandro Pace, Gaetano Azzariti, Massimo Luciani, Luigi Ferrajoli, Nadia Urbinati, Michele Prospero, etc.

The debate on constitutional change in governments (now number of the Italy’s most important changes to the 1948 Constitution headed by Matteo Renzi) put a stop constitutional experts – all closely has been going on in Italy for sev- to a general reform of the Consti- associated with the Centro per la eral decades. Parliamentary com- tution preferring deep changes in Riforma dello Stato – appraises the mittees were created (the last one selected areas: the powers and proposed changes, sets them headed by FEPS President Mas- composition of the Senate, the sys- against their historical precedents simo D’Alema), but only minor tem of local government (with the and attempts to draw possible alter- reforms were enacted. In 2013 signal abolition of the provinces), natives, concentrating on the reform president Napolitano appointed a the abolition of some ineffectual of the Senate and the framework presidential committee of experts constitutional bodies such as the of local autonomies in order to and based on their results the gov- National Economic and Labour make the political system more efﬁ- ernment of Enrico Letta attempted Council, and a new electoral law. cient, accountable and democratic. a new course for reforms. But the The present volume, authored by a

[ ] http://www.centroriformastato.org/crs2/spip.php?article66 4

Italianieuropei ITALIANIEUROPEI 6/2014 EUROPEAN STRATEGIC GUIDE Various authors FOR FOSTERING PARTICIPATION AND RAISING AWARENESS ON VALIDATION OF LEARNING The issue 6/2014 of Italianieuropei will offer: B Roma B OUTCOMES OF NON-FORMAL

Il caso italiano a reflection on the crisis of political parties AND INFORMAL LEARNING RISPONDERE ALLA CRISI DELLA RAPPRESENTANZA ne in A.P. D.L. 353/03 (conv. L. 46/04) Art. 1 comma 1, DC 1, comma L. 353/03 1 46/04) D.L. (conv. Art. A.P. in ne Agenda PA: SARÀ RIVOLUZIONE? and trade unions; an analysis of the reform of Various authors Focus MEDIO ORIENTE IN FIAMME Internazionale the public administration, currently being dis- rivista mensile anno XIV n. 6/2014 Poste Italiane SpA Spedizio SpA Italiane Poste 6/2014 n. XIV anno mensile rivista VENTICINQUE ANNI DOPO IL MURO 6 2014 cussed by Italy’s Parliament; a focus on the developments in the Middle East, from the democratic turn in SOLIDAR presents the publication that will serve as a useful Tunisia to the wars in Iraq and Syria; an evaluation of the impact reading for all the actors who wish to contribute to the process that the fall of the Berlin Wall had on the Italian, European and of calling on Member States to develop validation arrangements international order after twenty-five years. for non-formal and informal learning by 2018, following the Council Recommendation (2012/C/398/01). The publication [ ] www.italianieuropei.it presents the European and eight national frameworks for validation and the benefits of validation. Moreover this publication is a practical tool book guiding how to organise a campaign for the promotion of validation and is accompanied with ready- to-use campaigning materials.

[ ] www.solidar.org/IMG/pdf/pvnfil_book_final.pdf

130 QUERIES — Autumn 2014 ZOOM

This year, the Fabian Society celebrates its 130th anniversary. Founded in 1884, it takes its name from Quintus Fabius Maximus, the Roman Republican general whose attritional warfare against the invading Carthaginians earned him the sobriquet ‘the delayer’ – well-chosen for the gradualist approach espoused by the early Fabians.

The Fabian Society was one of the founders of the British Labour deliver not only growth but also fulfil social democratic aims and party in 1900 and remains an affiliated member. It is unique in ensure a fairer society where opportunity and prosperity is dis- British politics in being a membership-based think tank with 6,500 tributed more widely. Key recent publications include ‘Measure members including over 200 parliamentarians. Every Labour for Measure’ and ‘The Great Rebalancing’. Prime Minister has been a member. Today, the Fabians retain their significance in British and Euro- LABOUR’S NEXT MAJORITY pean policy making, providing vital insights to progressive politi- Our groundbreaking Labour’s Next Majority programme has cians through five key programmes: brought together innovative electoral analysis and recommendations on campaign techniques to prepare the ground for Labour’s NEXT STATE 2015 general election campaign and beyond. Key recent publi- The Next State programme aims to cations include ‘Revolt on the Left’ and ‘Forward’. bring coherence to debates on the future of the state. It ENVIRONMENT AND CITIZENSHIP seeks to bridge the ten- This programme looks at environmental policy challenges and the sions between a centralis- role of citizenship: both democratic consent and personal behav- ing tradition within social ioural change. It considers the interaction between environmental democrat politics and emerg- issues, fairness and social justice. Key recent publications include ing interest in creating local ‘A Convenient Truth’ and ‘Pride of Place’. and personal power. Key recent publications include EUROPE AND THE WORLD ‘2030 Vision’ and ‘The Shape Our final programme considers foreign policy at a time of height- of Things to Come’. ened anxiety about Britain’s place in the European Union and in

PublicDomain the world. It seeks to deﬁne how a Labour government would live NEXT ECONOMY out its progressive principles on an international stage. Key pub- Our Next Economy pro- lications include ‘Europe was the Future Once…and how it could grammes examines be once again’ and ‘One Nation in the World’. how the economy can www.fabians.org.uk

George Bernard Shaw, Irish playwright and prominent Fabian 131 BOOK REVIEWS

THE CIRCLE

Review by Ernst Stetter

ave Eggers’s The Circle was published in 2013 and has become a bestseller since then. It has also been translated and published in Germany. This captivating novel, or science-fiction parable, reminds us how far we have Dalready gone in digital living and the datafication of our daily lives. Dave Eggers delivers a brilliant novel of ideas about social construction and deconstruction of privacy. He shows us the increasing corporate ownership

of privacy and consequently the impact that such an Penguin© Random/ House ownership may have on the nature of our Western de- mocracies. In this sense the book is also a real political analysis. The story is about a young woman, called Mae, working in a gigantic techno social media company called the Circle – a company that encompasses Google, Facebook, Twitter, Amazon, and all the other big new digital corporations we so far trust or mistrust. The company is chaired by “three wise men”, it recruits “hundreds of gifted young minds” and one of the most substantial interventions of the Circle is the “TruYou”, a user interface that streamlines every Internet action and purchase. The day arriving for her job, Mae marvels at the beautiful cam- pus and the first line of the book is “My God, Mae thought. It’s heaven.” Thus the reader immediately knows that the book is not about heaven, it is about hell! The book is set in the near future: one slogan of the company is “Secrets are lies and Privacy is theft”, anonymity is banished and nothing recorded will ever be erased. The goal of The Circle is to have all aspects of human existence flow through its portal. The final scenery is more than frightening! It reminds the reader of all the developments we face currently in the real world with data protection, surveillance and data collection by state agencies like the NSA or all the European investigation offices but especially by the big real existing social media corporations. The Circle is a marvellous book telling us incredibly much about the impact of our digital age on human beings. It fas- cinates the reader. Dave Eggers shows us that thoughts behind the problems of our current time are captivating and sincerely contemporary. After reading the book and checking your daily emails you will realise that we are already living in Dave Eggers’ fiction!

The Circle // Dave Eggers (Penguin, 2013 – also available in German from Kiepenheuer & Witsch)

132 QUERIES — Autumn 2014 BOOK REVIEWS

AGAINST THIS CHANGES ELECTIONS EVERYTHING

Review by Christophe Sente Review by Christophe Sente

hile the title of nvestigative journalist the book is and war correspondent disquieting, Naomi Klein has just its sole pur- published a new work pose is to pro- on climate change that voke thought draws on the pessimis- onWI the topic of democratic reform, tic conclusions of the Copenhagen in the same vein as French political Summit held by the UN in 2009. scientist Bernard Manin. Klein is far from alone in defending ‘Against Elections’ does not es- the climate cause, but her take on

pouse an authoritarian solution to Babel© this pervasive issue is quite original. Allen© Lane Penguin/ the problem of declining voter turn- While there are no outright refer- out. Rather, the author delivers a critique of the central ences to Marxism, the underlying viewpoint is clear: global place held by elections in the political process, based on society has been reshaped by a series of upheavals caused an interpretation of the history of ideas which holds that by a capitalist minority who have profited greatly as a result. representation is by nature aristocratic—it creates a divide between the governors and the governed more charac- Tackling climate change from this perspective enables Klein teristic of a republic than a radical democratic ideal. to avoid the pitfall of environmentalist rhetoric, namely an Van Reybrouck does not mythologise direct democracy, overly irenic (and thus unsuccessful) approach to raising nor its historical Athenian version or its contemporary awareness of the consequences of global warming for incarnations of a local or activist variety. He asserts that humanity. She politicises environmental issues by placing if our deliberative procedures are not overhauled, we will them within larger efforts to re-establish various forms of “destroy our democracy by limiting it to elections, which regulation for the market economy. in fact were never designed to be an instrument of democracy”. He nonetheless avoids presenting a blithely The Canadian journalist believes that a “green” market romantic depiction of the superiority of the people’s con- economy is a realistic possibility. However, it will not come science over the abilities of the elite. about as the result of a natural convergence between the The political goal of the work is to set in motion a proce- needs of our ecosystem and the further expansion of free dural correction of our democratic institutions that incor- trade or the economic model established in Europe and porates random selection to the greatest possible extent, the US. Such a change will depend on political decisions, in order to guarantee the participation of all citizens. His- encouraging signs of which she sees in the reintroduction torical examples are used to demonstrate the effectiveness of public energy management in cities like Hamburg and in of random selection as a means to legitimisation. Van the emergence of new generations of activists. Reybrouck also reminds us that if democracy is a struggle, then citizenship is a responsibility.

Against Elections [Tegen Verkiezingen] // This Changes Everything: Capitalism vs. the Climate // David Van Reybrouck (De Bezige Bij, 2014) Naomi Klein (Allen Lane, 2014)

QUERIES — Autumn 2014 133 BOOK REVIEWS

ECONOMICS OF THE 1%

Review by Christophe Sente

ery few works seamlessly incorporate references to both the economist Thorstein Veblen and singer-songwriter Woody Guthrie. Yet John Weeks does just that in his latest book, which stands somewhere V between scientific analysis and satire. Unlike the most recent work by Vivien A. Schmidt and Mark Thatcher, Weeks’ book does not seek to uncover the social and political reasons underpinning the remarkable resilience of neo-liberalism. Instead, he confronts its hegemony head- © Anthem© Press on by disputing the neutrality of depicting the economy as a historical state dominated by the conflicting forces of supply and demand, which can only be subdued by market mechanisms. In the British economist’s view, e conomic practices are rooted in political choices, embodied today by two alternatives: Milton Friedman and Franklin D. Roosevelt. According to this line of thought, deregulation does not guarantee collective efficiency; instead, in the current economic environment, it rewards a small segment of the population, estimated at 1%.

Weeks’ elegant argument, while hardly new, is sufficiently compelling to have attracted the attention of former EU commissioner László Andor, who recently dedicated an article to the work.

The book contains at least one idea that deserves to be expanded upon: Weeks establishes a link between the primacy of consumer satisfaction and the public’s diminishing sense of community.

Economics of the 1% // John F. Weeks (Anthem Press, 2014)

134 QUERIES — Autumn 2014 CARTOON

Jean Plantureux, also known as Plantu, is one of France’s most famous cartoonists. He is known for his political satires, which have been published in French daily newspaper Le Monde since 1972. He started the initiative ‘Cartooning for Peace’ with Kofi Annan and the UN in 2006, in order to promote a better understanding and mutual respect between populations of different cultures and beliefs.

QUERIES — Autumn 2014 135 QUERIES, THE EUROPEAN PROGRESSIVE MAGAZINE Inmaculada Arnaez Fernandez, Ursula Barry, Elizabeth Collett, Michael Cooney, Christopher Cramer, Massimo D’Alema, Michael Diedring, Franck Düvell, Doru Frantescu, Ana Gomes, Caroline Intrand, Elisa Irlandese, Deborah Johnston, Ivan Klíma, Juan Fernando López Aguilar, Conor McCabe, Ed Miliband, Annemarie Muntz, Micaela Navarro, Luis Miguel Pariza Castaños, Yves Pascouau, Gianni Pittella, Jean Plantu, Khalifa Sall, Andreas Schieder, Christophe Sente, Julia Shin, Kathleen Soriano, Ernst Stetter, Benjamin Stora, Zakeera Suffee, Harriet Thomson, Peter Uebersax, Kathleen Van Brempt, Gilles Vermot-Desroches, António Vitorino, Sarah Walker, Andrew Watt, Sarah Wolff www.queries-feps.eu

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