City of Stavanger Intercultural Profile
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City of Stavanger Intercultural Profile Background1 The city of Stavanger is located on the south‐west coast of Norway and is the third‐largest metropolitan area in the country (population 319,822) and the administrative centre of Rogaland county, whilst the local municipality itself is the fourth most populous in Norway (130,754). The city was founded in 1125 and still retains a substantial core of 18th‐ and 19th‐century wooden houses that are protected and considered part of the city's cultural heritage. Stavanger's history has been a continuous alternation between economic booms and recessions, often reliant upon the capricious bounty of the herring shoals. For many years Stavanger was one of the main ports of embarkation for Norwegian emigrants to the New World, and it is only far more recently that it has become a city of diversity. For long periods of time its most important industries have been shipping, shipbuilding, the fish canning industry and associated subcontractors. In 1969, a new boom started as oil was first discovered in the North Sea. After much discussion, Stavanger was chosen to be the on‐shore centre for the oil industry on the Norwegian sector of the North Sea, and a long period of growth has followed. Stavanger is today considered as one of Europe's energy capitals and Scandinavia's largest company, Statoil, has its headquarters in Stavanger, as well as several other international oil and gas companies. As a result, of both its past and present occupations, Stavanger’s identity is strongly bound up with international connectivity. Several domestic and international military installations are also located in Stavanger, among these is the North Atlantic Treaty Organisation's Joint Warfare Center. Other international establishments, and especially local branches of foreign oil and gas companies, contribute further to a significant foreign population in the city. Immigrants make up 21,1% of the population and comprise more than 179 nationalities. Stavanger has since the early 2000s consistently had an unemployment rate significantly lower than the Norwegian and European average, and in June 2014, it was less than 2%. Stavanger has also been ranked as the world's most expensive city by certain indexes. National Migration Context Early immigration to Norway was of an economic nature but as the society transformed itself into one of the most prosperous in the world, it took an increasing interest in international human rights. It became one of the most important recipients of asylum seekers and refugees and, for its size, perhaps the largest. As the table demonstrates, the earliest group of immigrants was refugees from Eastern European countries who settled after World War II. The next influx was of migrant workers from Pakistan, Turkey and India in the 1960s and 70s. During the 1980s and 90s most immigrants 1 This report is based upon the visit of the CoE inspection team on 12 & 13 June 2014, comprising Irena Guidikova, Marcel LaRose and Phil Wood. came as refugees and asylum seekers, or to be reunited with their families. However over recent years, the strength of the Norwegian economy has also once again made it a place of attraction for migrant labour. Significant groups of people arrived from Sri Lanka, Somalia, the former Yugoslavia, Vietnam, North Africa, Iran, Iraq and Afghanistan. More recently there has been a large rise in numbers from the EU Accession States (particularly Poland and Lithuania) and at the moment there are growing numbers of Swedes and Spaniards arriving to take up a range of skilled and non‐skilled work. Immigrants and those born in Norway to immigrant parents currently constitute 759,200 persons or 14,9 per cent of Norway's population, among which 633,100 are immigrants and 126,100 are born in Norway to immigrant parents. Local Migration Context Stavanger is an international city. The percentage of immigrants and Norwegian‐born with immigrant parents totals 21,1% of the population whilst the national average is 14,9% (SSB [Statistics Norway] 01.01.14). The population of Stavanger was 130,754 at the turn of the year, of which 27,531 are immigrants The six largest immigrant groups are): Poland 3 063 Great Britain 1 627 Turkey 1 262 Sweden 962 India 937 Somalia 930 http://statistikk.stavanger.kommune.no/befolkning_15s.html This data demonstrates two important factors about Stavanger. Firstly there is no single group of foreign nationals which stands out as much larger than the rest, or which is better established in the city. Secondly, there is a statistic mix between people who come and work in the energy and oil sector, and refugees and immigrants who work within the service and public sector. Between 2004 and 2013 the population has increased by around 18 000, due to excess of births and immigrants. Despite the growth in foreign migration, of the five largest Norwegian cities Stavanger stands out as having experienced a substantial movement of population ‐ 5 772 during the period 2004‐132, moved to other municipalities than moved in from other Norwegian municipalities or abroad. The cost of housing is an issue, with Stavanger residents moving to other municipalities offering cheaper housing within the wider metropolitan area, rather than to a serious loss of popularity of the city itself. National Policy Context The main policy responsibilities for immigrants in Norway are shared between central government and the municipalities. Integration, for example through training, education, health and social work and housing is largely a municipal responsibility. The work is financed through per capita grants from central government. Since the Introduction Act of 2005, Norwegian national integration and inclusion policy aims have been to enable new arrivals to participate in the labour market and in society as quickly as possible, enjoying equal living standards and opportunities to those of native citizens. In support of this approach, the government has supported three main programmes, implemented at municipality level: The Introductory Programme for refugees, aiming to enable refugees to enter the labour market or training as soon as possible. The programme offers language and social studies and preparation for work or further education. Each participant follows an individual development plan and receives an income of around €18,000 per year, conditional on fulltime attendance. The Second Chance project (launched in 2005 as a trial programme) is aimed at people with an immigrant background who have no link to the labour market. The target groups include stay‐at‐home mothers, and young people aged 18‐25. The right and obligation to participate in Norwegian language and social studies. The great majority of employers demand mastery of the native language, which is also key to wider integration. Foreign nationals (aged 16‐55) with residence or work permits must participate in language training. However, in 2001the national government has withdrawn the right of migrants to free language 2 http://www.ssb.no/en/befolkning/statistikker/flytting/aar/2014‐04‐ 28?fane=tabell&sort=nummer&tabell=174050 tuition to migrants of EEA/EFTA origin. This has transferred costs to individuals but, as many are unable to pay, the burden falls upon employers or the municipality. Local Policy Context The City Council has adopted a Strategy for Equality and Diversity, 2013‐2020 and this represents the basis of its work on immigration, integration and interculturalism. It sets out: “To achieve a comprehensive perspective on the challenges and strategies related to equality and diversity, the following areas of discrimination are included: Ethnicity Faith and Conviction Gender Age Disability Sexual Orientation It adds that: “Fundamental for the strategy are the vision Working Together for a living city and the values being in place, leading the way, creating a future.” In specific reference to Ethnicity, the Strategy states that its main challenges are: In the course of a decade, the number of immigrants has doubled, which has contributed to economic and cultural development. Labour immigration is an important condition for continued economic growth in the Stavanger region. Most of the population projections for the region indicate continued high immigration rates. The municipality must therefore adapt to a more versatile community, in continuous change. Various studies show that immigrants to a lesser extent participate along with the majority population in voluntary organisations and clubs, leisure activities, political organisations, and at elections. Voter participation varies substantially according to the voters’ national background. The municipality will implement measures to increase participation in the community, and the election turnout. The Strategy also asserts that: “GENUINE DIVERSITY means that citizens feel confident they are not being discriminated against.” The Strategy was formulated by the Diversity Resource Network, an inter‐departmental working group of the City Council which was formed in 2011. It also coordinates delivery of the Strategy and Action Plan. This is a strategy specifically for the local authority, rather than for the city as a whole, and there was no consultation with external organisations or citizens in the course of its formulation, adoption or execution. The City Council’s overarching Municipal Plan and its Employer Strategy also describe its aspiration to create equality and diversity through its role as a provider of services and employment. The Rogaland County Council (also based in Stavanger) has also adopted an action Plan for Equality and Diversity. Local Economy In the early 1900s, Stavanger's industry was mainly related to fisheries and shipping. In the first half of the century it was known for canning, and in the 1950s there were over 50 canneries in town. The town was even called Norway "canned capital". The last of these factories were closed down in 2002. Employment by type of industry in 2013 was 0.2% in the primary sector, 27.9% in secondary and 71.9%.