Report by the Migration Council Migration Council for Austria

REPORT BY THE MIGRATION COUNCIL MIGRATION COUNCIL FOR AUSTRIA

UNDERSTANDING MIGRATION – MANAGING MIGRATION

REPORT BY THE MIGRATION COUNCIL MIGRATION COUNCIL FOR AUSTRIA

UNDERSTANDING MIGRATION – MANAGING MIGRATION IMPRINT

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2 TABLE OF CONTENTS

4 FOREWORD

7 INTRODUCTION 7 Understanding migration 10 Current Situation

13 KEY MESSAGES OF THE REPORT 13 Managing migration – Migration policy guidelines

17 MIGRATION FACTS AND FIGURES 17 Components of immigration 20 Structural characteristics of the immigrant population

25 FUTURE SCENARIOS 2030 27 Scenario 1: Austria with a restrictive migration policy in a Europe of nation states 27 Scenario 2: Austria with a proactive migration policy in a two-speed Europe 28 Scenario 3: Austria with a tentative migration policy in an ageing Europe

29 THE 10 PARTS OF THE REPORT

77 THE MEMBERS OF THE MIGRATION COUNCIL

87 GLOSSARY 91 ACKNOWLEDGEMENTS

3 FOREWORD

Acceptance by the population is the prerequisite strength of industry and research is to be main- for a successful national migration policy. This tained and if the demand for skilled labour in democratic approach to migration has deter- Austria is to be adequately met, incentives have mined the agenda of the Migration Council from to be created for quality-based and qualification- the beginning of its activity. The developments in oriented migration. With this goal in mind, the the field of migration at national, European and Migration Council has devised a range of possible international level have been found to be of strategic approaches. On the other hand, it must crucial importance for the future of Austria. It is be recognised that migration represents a burden therefore not surprising that the further develop- for the systems of the state and can even present ment of the national migration strategy was a risk for security, stability and prosperity. The incorporated into the current programme of work Migration Council has drafted recommendations, of the Federal Government. In April 2014 – at a especially targeting the political system, the time when the refugee crisis had not yet reached media, public security and state-run institutions, a level of visibility that would have caught the showing how to shoulder the burden and coun- public’s attention – Johanna Mikl-Leitner, then teract the risks. Minister of the Interior, established the “Migra tion Council for Austria” as an independent body In a time of global challenges and global respon- not bound by instructions. The mandate given to sibility, these seemingly conflicting positions for the Council was to elaborate substantive founda- and against migration represent an inseparable tions for a national migration strategy. As a first complementarity. To preserve the economic step, the Migration Council for Austria defined strength of the democratic state under the rule of the target that was to serve as the basis and the law and to safeguard its resilience in the event of focal point of its entire work: Austria should re- a crisis, qualification-oriented migration, as a main a secure and stable state in which people valuable input factor for the economy, has to be can live in prosperity. increased. It takes a strong and stable political structure to assume global responsibility and This objective clearly reflects the intention of the provide humanitarian assistance for those most Migration Council for Austria: Austrian migration in need of protection and to do so on a long-term policy has to focus clearly on Austria’s interests, basis. though not without safeguarding the interests of the regions of origin. In the elaboration of for- This concluding report is structured as follows: ward-looking recommendations, the Council was The introduction and the summary of the study confronted with the task of summarising the on “Future Migration Scenarios for 2030” by the positions in favour and against migration in a Centre for Future Studies of the Salzburg Univer- meaningful way and developing a reasonable sity of Applied Sciences, which the Migration approach well suited to mediate between con Council used as a basis for the discussion of its flicting interests. On the one hand, migration recommendations, is followed by a presentation contributes substantially to the preservation of of facts. These illustrate the contribution that security, stability and prosperity. If the innovative migration can and should make to the economy,

4 the labour market, education and research, and unpopular, as they do not promise instant suc- – especially in view of demographic develop- cess that can be achieved overnight, taking a ments – to health care and the social sector. The long-term view of migration is the only way to subsequent section of the report describes the set the course for achieving the long-term target: conditions under which political and state-run preserving Austria as a secure and stable state institutions operate and highlights the need for where people can live in prosperity. migration to be governed by a clear regulatory regime, which also needs to be implemented in The mandate of the Migration Council for Austria practice. Next, the interests of the regions of ends with the presentation of this concluding origin and possible perspectives for a migration report to Wolfgang Sobotka, the Federal Minister policy aimed at strengthening these regions in a of the Interior. The authors hope that the Ministry sustainable way are outlined. Finally, on the basis of the Interior will develop a national migration of these findings, conclusions are drawn regar- strategy for the Federal Government on the basis ding the design of a future migration system. of the recommendations of this report. As far as I am concerned, the productive work of the Migra- From the very beginning, the Migration Council tion Council in recent years has shown that an attempted to take a comprehensive and interdis- institutionalised body of experts, set up to advise ciplinary approach, and set itself the goal of the Federal Minister of the Interior on migration taking all forms of migration – legal and irregular issues, is a meaningful option for the future. migration as well as asylum – adequately into account. The refugee crisis, which hit Europe towards the end of 2014 and reached a peak in the autumn of 2015, was included in the consid erations of the Council, whose work had started long before that time. However, it was the Coun- cil’s conscious decision not to focus primarily on PROF. PAUL LENDVAI the refugee crisis. Its mandate was not to present Chairman of the Migration Council for Austria an asylum report that marginally covers other Vienna, December 2016 forms of migration as well, but to elaborate a comprehensive migration report.

Nor was the Migration Council called upon to comment on current affairs or to get involved in such discussions. Based on the status quo, it was expected to issue well-founded recommendations with a special focus on the long-term perspective – particularly with regard to the country’s responsibility vis-à-vis the regions of origin. Although long-term targets tend to be

5 6 INTRODUCTION

UNDERSTANDING The causes of migration are varied. They range MIGRATION from war and persecution in the country of origin to the absence of prospects of education and FUNDAMENTAL REFLECTIONS employment or the desire for better living conditions. The criteria for migration decisions include The Migration Council deals with cross-border risks and opportunities for the family, language migration of persons living or working tempo skills, an ethnic community already settled in the rarily or permanently in a state other than their country of destination, the economic situation in own. potential regions of destination, and the possibility of finding a job in the near future. Europe and Migration is a many-faceted phenomenon that Austria are confronted with mixed migration occurs in various forms, such as legal migration, flows. irregular migration and international protection (asylum, subsidiary protection). Despite these differences, there are considerable overlaps, close relations and mutual interactions between these forms of migration.

Asylum

Irregular migration Legal migration

7 Introduction

REASONS FOR MIGRATION CONSIDERATIONS CHOICE OF DESTINATION COUNTRY

– Precarious safety – Family / friends in – Persecution – Possibility of destination country – No labour market residence permit – Job prospects perspective – Labour market – Image of destination – Better living conditions perspectives country – Training – Chance of asylum – Identification with – Social marginalisation – Possibilities of destination country – Adventure / Travel irregular migration – Language skills

The individual stages of the migration have already gone through the process of cross- process include border migration and are in the first phase of a • the decision to emigrate taken longer stay in their destination country are also in the country of origin, regarded as migrants. The definition of migrant • the migration, and only applies to people who emigrated from • the phase of arrival and the initial abroad (“first generation”), but not the children period spent in the country of destination. of immigrants born in Austria (“second genera tion”). By no means are people who have been This definition of the migration process illus granted Austrian citizenship to be regarded as trates the Migration Council’s interpretation of migrants, although they still have migration the term “migrant”. A migrant is a person going background. through the aforementioned three-stage cross- border migration process or whose stay in the country of destination is temporally connected with the already completed migration process. Migrants are not only people “on the move”, but also people who are planning and preparing for migration in their countries of origin. Those who

8 MIGRATION INTEGRATION

First Phase: Second Phase: Third Phase: Integration process:

Planning and preparation Migration to Initial period of stay Integration process in in the country of origin receiving country in receiving country receiving country Possibly: Learning German Possibly: Integration Possibly: Circularity, return agreement

Migration Integration

Migration is to be distinguished from integration. country, as provided for by the Austrian Settle- The latter refers to the participation in societal, ment and Residence Act as a prerequisite for economic and cultural life in Austria by persons residence permits that allow migrants to settle who have been granted a right of stay for longer in the country, this can be taken as an example periods and who have either completed the mi- of “integration right from the start”. However, gration process or were born in Austria (“second” integration does not necessarily follow a com or “third generation” migrants). pleted migration process, given that migrants may want to either return to their home countries There are considerable overlaps and interactions or move on to another country. In times of dyna- between migration and integration. As the situa- mic developments, mobility, circular movements tion in the field of education shows, today’s mi- and return migration are gaining in importance in gration policy has an influence on the success an increasingly globalised world, breaking up of integration tomorrow. earlier models of migration and overcoming the traditional patterns of migration and integration. Overlaps and interactions can be observed in all phases of migration. Although there is no sys tematic interconnection between migration and integration, the processes are related at certain points. Individual steps towards integration are taken even before the actual migration process occurs, i.e. during the planning and preparation phase. When (future) migrants acquire a basic knowledge of the language of the destination

9 Introduction

CURRENT SITUATION Although Austria has been continually adjusting its political, legal and institutional systems with Migration is not a new phenomenon. On the a view to promoting integration in recent years, contrary, migration has been part of human life the refugee crisis, since the end of 2014, has since its origin. However, in an increasingly confronted Austria with extraordinary additional globalised world, migration has become easier challenges regarding the maintenance of public and more convenient. People migrate more security and the essential functioning of state- frequently and faster in order to improve their run institutions. personal living conditions or because they expect better job opportunities in the country of destina- Based on a simplified classification, cross-border tion. Modern technology and digitisation as well migration can be broken down into three cate as progressive globalisation have made mobility gories: refugee migration, family migration, and and communication possible to an unprecedented labour migration, each of them subject to differ extent. Today, people can travel to almost all ent rules and regulations. Migration is regarded countries of the world within a few hours and as “legal” if it meets the prerequisites laid down return to their countries of origin just as quickly. by law. If the legal criteria are not met, migration Technology has become the great mobility en is “irregular”. A new form of (poverty-related) abler for humankind. Thus, the notion of migra migration in previously unheard-of dimensions tion applies not only to people who want to settle might emerge in the future, if people lose their permanently in a country, but also to those who, homes as a result of climate change and / or after a temporary stay, either move on or return ruthless and exploitative capitalism. to their regions of origin. Migration is influenced by certain push factors For decades, Austria has been a “country of in the regions of origin and by certain pull factors immigration”, given that the annual balance of in the regions of destination. In this context, it immigration and emigration regularly shows that should be kept in mind that push and pull factors the net migration rate is positive. Nevertheless, can overlap or even interact to a significant ex- immigration is not inherent in the state’s percep- tent and are therefore not to be considered in tion of itself, as it is in the United States, Canada isolation. Flight as the central push factor and or Australia. Unlike Austria, these countries look the family as the central pull factor are largely back on a history that was, from the very begin- beyond a state’s flexible control. The rightful ning, strongly impacted by immigration for the claims of migrants in these contexts are laid purpose of intra-continental expansion and down in international and national law. The development. situation is different in the field of labour migra tion, where the law allows receiving societies to control the inflow of migrants.

10 Refugee migration from the Middle East and left alone in coping with the refugee crisis by Northern Africa to Central and Northern Europe, national means. A community of solidarity, like which can hardly be controlled by the provisions the European Union, is particularly dependent on of asylum and foreign nationals law, puts the the solidarity of all its members. In the absence institutions of the state to the test and challenges of such solidarity, the cohesion of this community their ability to function under stressed conditions. is at stake; an increasing focus on individual However, if we approach the issue from a broader interests may lead to its disintegration. point of view, upstream factors of security and development policy (societal causes of migra- SAFEGUARDING STABILITY tions) as well as downstream factors of integra tion and social policy (the ability of a society to The central question for the Migration Council is cope with migration) must, at least, be addres- how to ensure that Austria remains a secure and sed. A reasonable and responsible migration stable state where people can live in prosperity. policy needs to look into the social causes as well This requires a comprehensive approach. Migra- as the social consequences of migration. The tion cannot be dealt with in isolation from other intensive pressure placed on the European spheres of the state and society. Any policy institutions by refugee migration has brought measure taken by the state can have consequen- their structural deficits to light. In the area of ces that are relevant to migration. A comprehen- public security, Europe lacks sturdy and resilient sive migration policy needs direct and indirect structures. The reasons are varied and cannot all actors who agree on the objectives of migration be attributed to state actors. Social media, for policy and act accordingly. The continued func instance, have a strong impact on the behaviour tioning of the state in its current configuration of state actors. Social media have the potential can only be guaranteed if all its systems – such to influence moods and attitudes and can even as education, the economy, the labour market, disseminate a distorted view of reality. Thus, health care, the political system and public secu- deficits of the kind seen in certain areas of rity – take into account the implications that their European security and order can occur. While actions have for migration policy and continue to national sovereignty in the field of public security function at a high level of effectiveness. As our was cut back step by step in connection with society is going through a process of change, the internal border crossings, the EU failed to effec state, too, has to acknowledge these changes and tively protect its external borders. In accordance develop appropriate solutions for society. Stability with the principle of subsidiarity, action at EU necessitates change. For a state to be stable, it level is needed, as the challenges cannot be dealt needs to commit permanently and clearly to this with effectively by the Member States alone. process of change. This challenge is clearly Legal overregulation, a shortage of resources reflected in the guidelines and fields of work of and insufficient reserves have proved to be a the Migration Council. heavy burden on the Member States, which were

11 12 KEY MESSAGES OF THE REPORT

MANAGING MIGRATION – • A comprehensive migration-policy strategy MIGRATION POLICY must be oriented on Austria’s interests. This is GUIDELINES a national task that demands a national effort. Developing a comprehensive migration policy • Austria must remain a secure and stable state that considers all policy areas is the shared where people can live in prosperity. The fun- responsibility of all political decision makers damental prerequisite for keeping Austria’s in Austria. All actors exercising a direct or systems in balance is social peace. The quan- indirect influence in the field of migration (the tity of unforeseen burdens imposed on the business community, foreign trade, the social systems of the state has an impact on their partners, political office holders, NGOs) quality. should be involved in this effort. The macro- • To keep the Austrian population figure con economic interest of the country is as impor stant, the country needs annual net immigra tant as the balance of the interests pursued by tion of 21,600 persons. However, state-run these actors. systems can only cope with the challenges of • Migration policy must be supported by the immigration if they have a certain lead time to population. In a democracy, acceptance by the prepare for it. A massive population increase population is indispensable. Every political within a short period of time puts the stability measure requires the support of the popula of Austria at risk. tion. The fears and anxieties of all groups of • To stabilise the working-age population (age the population have to be taken seriously, group 15 to 64), net immigration would have to addressed and discussed. amount to +49,000 persons per year. However, • Modelled on the principle that requires im- immigration does not have to offset the entire migrants to learn German before they come to reduction in the supply of labour. A lower Austria, the principle of value guidance prior supply of labour should also be perceived as to immigration should be introduced. People an opportunity for innovation and can be who migrate to Austria or are granted protec- compensated through higher productivity or tion via a resettlement programme should be through digitisation. obliged to attend courses that teach these • Demographic imbalances can cause security values. However, intensified efforts to commu- risks. A balanced distribution of the population nicate values and fundamental rules should in terms of gender, social background and target all members of society. geographic origin is an important factor of stability.

13 Key Messages of the Report

• Particularly in a service and knowledge soci • The potential of international students should ety, there should be a primary focus on the be utilised. Austria should derive a long-term qualifications and education of immigrants benefit from its investments in the education in order to boost the country’s innovative and training of foreign students. Many third- strength and productivity and to ensure that country graduates want to stay in Austria upon immigrants do not become dependent on completion of their studies to gain some work transfer payments. Tax relief measures, experience. This potential could be utilised to the accelerated recognition of qualifications a greater extent if extended residence rights acquired abroad, and the elimination of were granted to university graduates. bureaucratic hurdles regarding residence • Austria should advocate the correction of rights serve the goal of attracting more qual asymmetries in the fields of education, social ified and well-educated immigrants. services and health care within the European • Labour market demand should be met pri Union. marily from the available supply of domestic • By broadening the scope of the “Red-White- labour. A shortage of labour can only be partly Red Card” regime, the demand for skilled offset through migration. If foreign labour is labour could be met more accurately. Stronger needed to meet demand, intensified efforts incentives should be provided for researchers should be made to attract EU citizens from and highly qualified workers to come to Aus all fields of qualification to the Austrian labour tria. market within the framework of internal • People in need of protection should also migration in the EU. benefit from the principle of mutual obligation: • Based on the premise that the majority of Asylum seekers and recognised refugees not immigrants coming to Austria will participate yet integrated into the labour market should in the labour market, immigration may con be given a structured set of meaningful daily tribute towards safeguarding the welfare activities. Work and training incentives should state. Special incentives for the integration be provided. However, facilitating access to of migrants into the labour market (e.g. by the labour market for asylum seekers is not facilitating the reconciliation of work and recommended, as this would act as a consid family responsibilities) should be created; erable “pull factor”. the possibility of introducing a system of family taxation should be considered. Any additional contribution to society by immigrants (e.g. through voluntary activities) is desirable and worthy of support.

14 • Migration policy must be taken into considera- • At national level, the legal framework needs tion in all contacts and forms of cooperation to be simplified, clarified and systematised, with regions of origin and transit regions. the object being an Austrian code of migration Relations that are in the interest of Austria, law that regulates all areas of immigration the countries of origin and the immigrants and asylum law (asylum, basic welfare sup- themselves should be maintained. On this port, foreign nationals police, settlement and basis, “triple-win” situations can arise. residence legislation, legislation on the em- Against this background, programmes of ployment of foreign nationals, the granting of temporary and circular migration should be citizenship, and procedural law provisions). discussed. In the field of development coop • The right to asylum is an essential character eration and when entering into mobility part- istic of a liberal, democratic society under the nerships, preference should be given to rule of law. However, the instruments of pro- countries of origin with long-standing political tection have to be viewed in the context of or historical ties with Austria that contribute globalised migration. to security and stability in Europe. Austria • The transcontinental flow of refugees and the should step up its support for the establish- associated dangers to people’s lives should be ment of functioning systems of public admin contained; the protection of particularly vul- istration in the regions concerned. nerable groups, such as women and children, • Each and every one of us can make a contribu- and the implementation of protective mea tion: The global consequences of our patterns sures on site in the regions of origin should be of consumption and mobility and their impact given special priority. A new European / multi- on migration should always be borne in mind. lateral system of protection should be devised Consumers can set in motion a great deal in in order to protect people on the periphery of terms of fair trade and environmentally safe the conflict regions, either in safety zones or mobility. Incentives for assuming more re in existing refugee facilities. On-site protection sponsibility in this respect are needed. systems have to be established. In cooperation • The inherent logic of the “Schengen system” with mobile authorities, persons likely to be tells us that open internal borders necessitate granted asylum should be brought to Europe secure external borders. Therefore, external by safe and legal means, subject to predefined border protection must be ensured at supra- numerical limits and a time limit on the asy- national level. In the long term, this can only lum status granted. Ideally, such solutions be guaranteed if the task of border protection should be jointly developed and implemented is assumed by the EU. by the European Union or, at least, by a group • At European level, it is necessary to end the of Member States. current fragmentation of EU law by introduc ing a package of Directives and Regulations (EU Migration Codex). Asylum and migration law have to be harmonised.

15 Key Messages of the Report

Requirements for effectively meeting the chal lenges of global migration and the associated mixed migration flows include:

– a workable system that allows persons in need of special protection to migrate to other countries; – intensified measures for the resettlement of refugees; – effective and efficient protection of the borders of the Schengen area.

• An effective and credible asylum policy re quires a new European / multilateral return policy. Persons who are not eligible for pro tection have to be returned quickly to their countries of origin or to protected facilities. Uncooperative countries of origin should have to expect certain consequences of their atti tude.

16 MIGRATION FACTS AND FIGURES

Migration is a many-faceted and complex phe LABOUR MIGRATION AND nomenon in a process of continuous change. This FAMILY REUNIFICATION chapter provides a statistical overview of migra tion in Austria during the past decade (2006- In 2015, 92,000 persons (including an estimated 2015). More detailed data, e.g. on the importance number of family members) from EU Members of migration for demographic developments or States and approx. 32,000 persons from third migration in the context of education, are con countries (including quota-based and quota-free tained in the chapters of the report dealing with immigration of family members) came to Austria the individual fields of work. for the purpose of work. Thus, of a total of 214,000 immigrants, almost 60%, i.e. 124,000 persons, came to Austria as labour migrants or for family reunification. COMPONENTS OF IMMIGRATION MIGRATION OF ASYLUM SEEKERS

For a statistical approach to immigration into In 2015, approx. 88,300 persons came to Austria Austria, the nationality of the immigrants pro to apply for asylum, i.e. as many as during the vides a logical starting point. Roughly speaking, five previous years in total (2010-2014). In a immigrants can be broken down into two groups, historical comparison, such a high number in a i.e. EU / EEA citizens and third-country nationals; single year represents an event of the type last for each group, a stay in Austria is governed by seen in 1956, when massive numbers of refugees different legal provisions. Third-country nationals from Hungary came to Austria. During the past require a residence permit that is specific to the decade (2006-2015), a total of 230,680 applica- purpose of their stay, which allows a further tions for asylum were filed in Austria. Relative to breakdown, though with certain limitations, the number of non-Austrian nationals registered by motivation for migration. as immigrants during that period (1,181,041), asylum seekers accounted for 19%; however, in 2015 asylum seekers alone accounted for 41% of all immigrants.

17 Migration Facts and Figures

FIGURE 1

88,340 90,000

80,000

70,000

60,000

50,000

40,000 28,064 30,000

20,000 15,821 17,413 17,503 13,349 14,416 11,921 12,841 11,012 10,000

0 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015

FIGURE 1: AUSTRIAN RETURNEES Asylum applications 2006 – 2015 (Source: Austrian Federal Ministry of the Interior, asylum statistics) There are two groups of Austrian returnees: genuine “returnees” returning to Austria after During this period, the largest numbers of their stay abroad, and Austrian citizens born asylum seekers came from Afghanistan, Syria, abroad and moving to Austria for the first time. Russia (especially Chechnya) and Iraq. Taken Over the past ten years, the number of returnees together, these four countries accounted for remained more or less constant at about 15,000 about 56% of all asylum applications filed be per year, accounting for approx. 12% of immigra- tween 2006 and 2015. tion during the decade under consideration.

MIGRATION FOR EDUCATION (UNIVERSITY STUDENTS, PUPILS, AU-PAIRS)

Immigration for education has increased steeply in recent years. It includes students and pupils from EU Member States as well as from third countries. In 2013, 14,000 students from the EU, mainly from Germany, and 11,000 students from third countries came to Austria as first-time immigrants. Thus, immigration for education accounted for 18% of total immigration.

18 FIGURE 2

27,500 Afghanistan Syria 25,000 Russian Federation Iraq 22,500 Kosovo 20,000 Pakistan Iran 17,500

15,000

12,500

10,000

7,500

5,000

2,500

0 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015

FIGURE 2: FIGURE 3 Selected countries of origin of asylum seekers, 2006 – 2015 (Source: Austrian Federal Ministry of the Interior, asylum statistics)

FIRST-TIME RESIDENCE RIGHTS GRANTED Other 15% TO THIRD-COUNTRY NATIONALS Asylum seekers Highly 45% qualified During the past decade (2006-2015), asylum workers 2% seekers accounted for the largest group of third-country immigrants (45%). The second Seasonal workers largest group was family members (24%) granted 14% residence rights within the framework of family reunification. Short-term seasonal workers accounted for 12% of immigration; 15% of all immigrants were persons in education and train- Family ing, researchers, au-pairs and private individuals. reunification No more than 2% of the newly granted res- 24% idence rights were accounted for by key workers (Red-White-Red Card and / or EU Blue Card).

FIGURE 3: First-time residence rights granted to third-country nationals on average between 2006 and 2015 (Source: Austrian Federal Ministry of the Interior, asylum statis tics, settlement and residence statistics)

19 Migration Facts and Figures

IRREGULAR IMMIGRATION FIGURE 4

As there are strong incentives for immigrants to register in Austria (e.g. certificate of registration 60 years 45 – 59 as a prerequisite for application for state bene- and older 0 – 14 years of age 3,5% years of age fits), the majority of immigrants are on record at 10,7% 11,3% the registration offices. In contrast, very little information is available about irregular immigration. Crime statistics compiled by the police include a separate category of suspects recorded 30 – 44 as “illegal residents”, which allows conclusions years of age to be drawn with regard to the number of illegal 28,7% foreign nationals in Austria at a particular point in time. For 2015, the numbers of illegal foreign nationals in Austria were calculated to range 15 – 29 between a maximum of 254,000 and a minimum years of age of 95,000. Thus, irregular residents account for 45,8% between 2.9% and 1.1% of the total population.

STRUCTURAL CHARAC FIGURE 4: TERISTICS OF THE IM Age structure of immigrants MIGRANT POPULATION (Source: Statistics Austria, migration statistics) A correlation exists between the reasons for immigration and the structure of the immigrant GENDER RATIO population in terms of age, gender and geo graphic origin. During the past decade, slightly more men than women immigrated into Austria. Between 2006 AGE STRUCTURE and 2014, the percentage of men among non- Austrian immigrants increased from 53% to On average, 46% of all immigrants who arrived in 56%; in 2015, owing to the high number of asy- Austria between 2006 and 2015 were between 15 lum seekers arriving in Austria, the percentage and 29 years of age. 29% were between 30 and 44 rose to 59%. years of age, 11% were younger than 15, 11% were between 45 and 59, and 4% were older than 60. Over the past ten years, the age structure of non-Austrian nationals coming to Austria remained almost unchanged.

20 FIGURE 5

Women Men

100%

90%

80%

70%

60% 52.9% 52.4% 51.9% 53.1% 53.0% 54.3% 54.6% 54.2% 55.7% 58.8% 50%

40%

30%

20% 47.1% 47.6% 48.1% 46.9% 47.0% 45.7% 45.4% 45.8% 44.3% 41.2% 10%

0% 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015

CHANGING REGIONS OF ORIGIN FIGURE 5: Gender ratio of non-Austrian immigrants 2006 – 2015 The growing importance of the EU has resulted (Source: Statistics Austria, migration statistics) in significant changes regarding the regions of origin. This development is closely associated not only with Austria’s accession to the EU, but also with the accession of Austria’s neighbours in Eastern and South-Eastern Europe in 2004, 2007 and 2013. In particular, immigration from other EU Member States increased significantly when the restrictions on access to the Austrian labour market were lifted. In contrast, the number of third-country immigrants increased far less strongly. Migrants from Eastern and South- Eastern European EU Member States have taken the place of migrants from the “traditional” countries of origin of “guest workers”. It was only through the refugee movements in 2015 that the immigration of third-country nationals began to rise again.

21 Migration Facts and Figures

FIGURE 6 Immigration of third-country nationals Immigration from newly acceded EU Member States from 2004 Immigration from EU and EFTA Member States before 2004 200,000

180,000

160,000

140,000 107,042

120,000 58,134 48,604 100,000 46,419 40,052 80,000 36,538 36,293 36,292 36,078 36,488 60,000 55,116 66,123 60,441 49,543 42,688 40,000 29,436 30,657 30,021 33,351 23,158 20,000 23,253 25,817 27,419 25,561 27,007 27,181 29,643 31,508 30,003 31,175 0 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015

FIGURE 6: Immigration from third countries is largely Immigrants by regions of origin, 2006 – 2015 accounted for by the non-EU successor states (Source: Statistics Austria, migration statistics) of the former Yugoslavia. Compared with other countries of origin, the importance of Turkey A similar trend can be seen in the development has declined during the past decade. Among the of immigration by nationality. From 2006, German non-European regions of origin, immigration to nationals accounted for the largest group of Austria from Asia, especially Western Asia, was immigrants; in 2013, the number of immigrants highest. This is where most of the asylum seek from Romania and Hungary began to increase ers currently in Austria come from (Afghanistan, steeply. According to the documents available, Iraq, Syria). Africa ranks second among the non- immigration from most of the “old” EU Member European regions of origin, with immigrants States did not increase significantly between coming mainly from Egypt, Nigeria and Somalia. 2006 and 2015, whereas a steep upward trend Immigration from the American continent and was seen in immigration from the Member States the “rest of the world” (Oceania, persons of that joined the EU in or after 2004, especially unknown nationality, stateless persons) plays from 2011 onwards. a minor role.

22 FIGURE 7

22,000 Germany Romania 20,000 Hungary 18,000 Poland Slovakia 16,000 Bulgaria Croatia 14,000 Rest of EU 12,000 before 2004, EFTA

10,000

8,000

6,000

4,000

2,000

2006 2007 2008 2009 2010 2011 2012 2013 2014 2015

FIGURE 7: Immigration from EU and EFTA Member States 2006 – 2015 (Source: Statistics Austria, migration statistics)

FIGURE 8

24,000 Turkey Former Yugoslavia 22,000 (non-EU) Other European 20,000 third countries Asia 18,000 Africa 16,000 America Rest of the world 14,000

12,000

10,000

8,000

6,000

4,000

2,000

0 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015

FIGURE 8: Immigration from third countries, 2006 – 2015 (Source: Statistics Austria, migration statistics)

23 24 FUTURE SCENARIOS 2030

As a basis for the work of the “Migration Council ket, with Austria belonging to the former group for Austria”, the Centre for Future Studies of the of states. The third scenario is based on the Salzburg University of Applied Sciences was assumption of a slow decrease in the number of commissioned to conduct a study entitled “Future refugees as a consequence of rapid and decisive Scenarios 2030 – The Potential Impact of De- intervention by the international community, velopments in the Field of Migration”. Coordi which would result in the European Union nated by Professor Markus Pausch, the study “muddling through” until 2030 without any major outlines possible developments in the field of reforms of its treaties. These possible develop- migration and the associated interactions with ments have different implications for the Austrian economic, social and political developments. economy, the labour market and the social cohesion of the country. In scenario 1, a policy The scenarios described in the study are based of more or less closed borders would result in on three possible developments occurring in the demographic ageing and economic problems. In period up to 2030, the assumption being that the scenario 2, Austria would cede additional powers way Europe deals with the many-faceted crisis to the EU and accept a heterogeneous society as between 2015 and approx. 2020 will have a major the price to be paid for belonging to an economi- influence on further developments up to 2030. cally strong and growing Europe. Scenario 3 The time horizon taken into consideration is shows Austria as part of an ageing continent that intended as a frame of reference only. The sce would fall behind other regions of the world in narios were chosen for the study on account of economic terms and face social tensions as a the fact that they present clearly distinguishable result of its tentative and indecisive policies. poles in a universe of possibilities. Extreme effects have not been taken into account, even On the basis of interviews with experts and an though they cannot be ruled out altogether. The analysis of recent research publications, a num- openness of the EU to immigration, on the one ber of fundamental assumptions were made: hand, and the degree of European integration and cooperation, on the other hand, were regarded GLOBAL LEVEL as the central categories of the three scenarios. Austria’s role and the options open to the country • The numbers of refugees are most likely are the focal points of the study. Scenario 1 to remain high in the coming years. presupposes an aggravation of the crises and, • Decisive and united intervention by the inter- consequently, an increase in the number of national community is the only way to ease the refugees, which in turn would fuel the mood of tension in the near future, but no such move euro-scepticism in large parts of the EU and lead is in sight. to a Europe of nation states. Scenario 2 presup- • Instability may spread to the Caucasus region poses that the number of displaced persons will and Central Asia. remain at its current level in the coming years, • Push and pull factors continue to exist. which would lead to a division of the European • At present, people rarely flee from their Union into two groups of Member States: an homes for ecological reasons (climate change, integration-friendly, federally oriented group, and etc.), but this is likely to happen more often in a group held together only by the internal mar- the future.

25 Future Scenarios 2030

• Refugee movements across several countries • The political course for the future will be set and over long distances usually only occur by 2020 (Brexit, elections in France and Ger- after several years of an ongoing conflict. many in 2017 and in many other countries in • The continued operation of existing refugee 2018, elections to the European Parliament in camps and the establishment of new ones in 2019). Turkey, Jordan, Lebanon, etc. with funds from international donors is crucial for the contain- NATIONAL LEVEL IN AUSTRIA ment and management of future refugee movements to Europe. • As regards migration, Austria is, above all, • Besides refugee migration, migration from a country of destination, but also a transit and between African and Asian countries country and, to a lesser extent, a country of (e.g. Nigeria, the Philippines, etc.) for the origin. purpose of achieving better living conditions • Refugees change the composition of the and finding jobs plays an important role. Austrian population. • By 2030, the numbers of Roman Catholics EUROPEAN LEVEL and Muslims living in Vienna will have reached similar levels. • Coping with the refugee crisis is an existential • The high number of refugees coming to issue for the EU. Austria increases the demand for housing. • If the numbers of refugees remain at their • If immigration continues at its current pace, current high level, the Dublin III Regulation about 30% of the people living in Vienna in is likely to be revised. 2030 will have no right to vote (more than • External border protection, the establishment 600,000). of registration centres, possibilities for legal • The number of pupils who do not speak immigration, and the distribution of refugees German is increasing. within Europe are absolutely necessary. • Crowding-out competition in the low-wage • If the Member States fail to agree on a com- sector is likely to occur. mon course of action, individual states will • In the long term, immigration will have a act in isolation. positive impact on Austria’s economic perfor- • Euro-scepticism will increase and anti-Euro- mance. pean parties are likely to rise to power. • Obstacles to the labour market integration of • EU enlargement and neighbourhood policies immigrants include: insufficient command of have a tangible impact on immigration, e.g. German, uncertain residence status, restric- through visa liberalisation, association agree- ted access to the labour market for asylum ments, Erasmus programmes, etc. seekers, inexistent or complicated procedures • The EU’s relations with Russia (e.g. in the field for the recognition of qualifications, discrimi- of energy policy) continue to play a central nation in job applications, de-skilling, brain role. waste. • Economic disparities result in increasing • Austria competes with other countries for transnational labour mobility. highly qualified workers.

26 • The majority of immigrants will settle in The percentage of people of non-Austrian nation urban agglomerations. ality is lower than in 2015, i.e. less than 10%. • As the number of older people increases, Faced with tax competition, Austria cannot keep demand for labour (long-term care, etc.) up with other European states. The global eco- will increase. nomy is dominated by the big players, i.e. the • Trade-off between openness for immigration USA, China, Brazil, India or South Africa, coun- and immigrants' rights (social rights, access tries that have created large free-trade zones. to citizenship, etc.). Inequality is increasing globally as well as in • Restricting immigrants’ rights only makes Europe and in Austria. Protectionist policies have sense in cases of temporary migration. endangered not only economic prosperity, but • Migration policy and integration policy also social cohesion. should be coordinated. • Poverty migration will be seen, above all, in larger cities. SCENARIO 2: AUSTRIA • Structural integration is crucial, above all in WITH A PROACTIVE MIGRA the labour market, education, housing and political participation. TION POLICY IN A TWO- SPEED EUROPE

SCENARIO 1: AUSTRIA Scenario 2 sees Austria in 2030 as being part of WITH A RESTRICTIVE a European Union that comprises two sub-organ isations: a “Federal Europe” and “EFTA New”. MIGRATION POLICY IN Federal Europe, which includes Austria and a A EUROPE OF NATION number of other countries, has taken major STATES integration steps and is pursuing an active migration policy that leads to high immigration. Based on the suppositions of the first scenario, The economic and monetary union has been Austria in 2030 is seen as a country with an old stabilised and developments towards a political population structure, a severe shortage of skilled union have been set in motion through a treaty labour, low investments and little innovation reform. However, not all EU Member States have potential. The EU has become a loose economic followed this course. Some have decided to union based on re-nationalised treaties. The re-nationalise former European powers, but as states co-exist largely in peace, but compete for EFTA New they remain closely connected with investments and cooperate only in rare cases. Federal Europe through treaties and retain the The Austrian welfare state, which is based on the contractually agreed option to return to the latter. taxation of labour, can barely be financed any The Austrian population has grown considerably more and is being cut back step by step. Unem- and continues to grow through immigration. ployment is high. Separated from its European Thanks to the country’s proactive migration neighbours by fences, Austria is an exclusive policy, highly qualified people from numerous democracy pursuing a policy of closed borders. countries are working in Austria, meeting the

27 Future Scenarios 2030

demand for skilled labour. Europe has evolved CONCLUSION as a strong competitor of the USA and other major economic powers and plays a leading The three scenarios present possible develop- role in knowledge-intensive sectors. ments between now and 2030. They are not to be taken as forecasts, but as a basis for discussion for the preparation of strategies and decisions. SCENARIO 3: AUSTRIA Given the complexity of the issues, we should not WITH A TENTATIVE expect fast and simple solutions. Therefore, trade-offs between various desirable develop- MIGRATION POLICY IN ments have to be factored in and assessed. AN AGEING EUROPE

Maximum degree of EU integration In scenario 3, Austria in 2030 is part of an ageing continent that is all but paralysed by persistent Fortress disagreement among the EU Member States. The Europe EU has failed to reform its treaties and its structures. Europe cannot hold its own in the global Scenario 3: Austria with a half- Federal hearted migration competition for investments, innovations and Europe policy in an qualified labour. Security is the main concern of ageing Europe its ageing societies. The political and social climate in Austria is marked by stagnation and a high degree of polarisation. Persons with migra- Minimum Maximum openness openness tion background and low qualifications are to immigration Scenario 2: to immigration Austria with a encountering serious difficulties on the labour proactive migration policy in a market. Above all, the children of immigrants two-speed Europe who arrived in Austria in the 2010s, now adults, have poor perspectives and hardly any chance of upward mobility. EFTA new

Scenario 1: Austria with a restrictive migration policy in a Europe of nation states Open Break-up nation of the EU states

Minimum degree of EU integration

28 DEMOGRAPHIC DEVELOPMENTS AND CHANGES IN SOCIETY

PLEASE OPEN 01 | DEMOGRAPHIC DEVELOPMENTS AND CHANGES IN SOCIETY

POPULATION DEVELOPMENT 1 MARKED BY AGEING

MODEL CALCULATION 2015 POPULATION FIGURES 18.4 % 3 UNTIL 2050

+ 21,600 ZERO IMMIGRATION Financing problem Annual net immigration Without for the welfare state (until 2050) needed immigration population to keep the population will shrink figure constant POPULATION GROWTH ALMOST EXCLUSIVELY 2 THROUGH IMMIGRATION

Lead time for adjustment of state-run systems to be taken into account

Systems can only cope with plannable immigration

1 An ageing population causes serious 2 In the future, the number of deaths will 3 Model calculations show that net immi- financing problems for the welfare state. be significantly higher than the number gration would have to amount to 21,600 While fewer people contribute to the health of births. However, by 2030 Austria’s persons annually until 2050 in order to keep care and old-age pension systems, more population will have grown through Austria’s population constant. State-run people receive social benefits. immigration by approx. 9% from currently systems need a certain lead time to adjust 8.6 million to about 9.3 million. to changes and therefore can only cope with immigration if they have enough time to plan for it. MODEL CALCULATION 4 OF WORKING-AGE POPULATION

ZERO IMMIGRATION + 49,000 Without immigration Annual net the number of people in immigration needed work would go down (until 2050) to stabilise 2030 2050 working-age population 23.4 % 27.9 %

Immigration does not have to offset the entire reduction Percentage of 65+ of the labour force Total population

Need for significant social-policy adjustments Need for immigrant labour reduced through innovation, higher productivity or digitisation

2015 8.6 mn 2030 9 % MIGRATION ACCELERATES 9.3 mn AND SLOWS DOWN 5 DEMOGRAPHIC CHANGE

4 Model calculations show that in order 5 Demographic ageing is mitigated through to stabilise the working-age population, migration. At the same time, social change net immigration would have to amount is accelerated, as migration increases the to 49,000 persons per year. However, the heterogeneity of society. need for immigrant labour can be reduced through innovation, higher productivity and digitisation or the integration of additional population groups into the labour market (e.g. higher labour force participation of women or fewer people taking early retirement).

01 | DEMOGRAPHIC DEVELOPMENTS AND CHANGES IN SOCIETY

CURRENT SITUATION Model calculations show very clearly that without immigration Austria’s population would shrink: Recent forecasts predict that Austria’s population By 2050, the country would no longer have 8.6 will increase by about 9% from currently 8.6 million inhabitants, but only 7.7 million. The million to approximately 9.3 million by 2030. The decrease would be most pronounced in the projected population growth will be almost working-age population from currently 5.7 entirely due to immigration into Austria. Thus, million to 4.1 million. The ratio of people aged 65 the long-term trend will continue. Since the early and over to those in the age group of 15 to 64 1970s, population growth has been largely would increase from 1 : 3.7 in 2014 to 1 : 1.5 in accounted for by international migration gains 2050. Without immigration, the total population rather than a surplus of births over deaths. This as well as the number of working-age inhabitants trend was reinforced in 2015: with 84,381 births would go down. The accelerating process of and 83,073 deaths, the natural population growth demographic ageing would necessitate substan- (total number of births minus total number of tial adjustments in the area of social policy. deaths) was very slight. In the coming years, there will be significantly more deaths than births, resulting in a noticeable slow-down of the population growth rate.

Although the annual increase in immigration is projected to offset the shortfall of births and will result in overall population growth, the situation in Austria is marked by demographic ageing. At the end of 2015, 67.2% of the Austrian population was between 15 and 64 years old, i.e. of working age. The size of this age group as a percentage of the total population is expected to decline to 62.2% by 2030 and to 58.4% by 2050. At the same time, the segment comprising persons 65 years of age and over is projected to grow from 18.4% at the end of 2015 to 23.4% in 2030 and 27.9% in 2050. This will cause a serious financing problem for the welfare state in its current form: Fewer people will be contributing to the health-care and old-age pension systems, whereas the number of beneficiaries is expected to increase.

29 01 | Demographic Developments and Changes in Society

PROJECTED CHANGE IN POPULATION STRUCTURE 2015 – 2050

8.0 4.0 3.60 7.0 3.5

6.0 3.0 5.71 5.0 2.5 5.09 2.33 4.0 2.0 4.15 1.54 3.0 1.5

Population in mn. Population 2.68

2.0 1.0 earners Ratio of income 2.19

1.0 1.58 0.5 pension beneficiaries potential to

0.0 0.0 2015 2030 2050

Working-age population (15 – 64 y.) Potentially retired (65+) PSR (1 pension beneficiary supported by … income earners)

The model calculation also shows that, given the (potential support ratio – PSR) were to remain at projected annual shortfall of about 21,600 per- the level of 2015, Austria would, in fact, need a sons up to 2050, the Austrian population figure net immigration gain of +118,000 persons per cannot be kept constant. This target can only be year until 2020, followed by +225,000 persons per reached if the shortfall is offset by annual net year until 2030. immigration or by an increase in the number of births, and the latter can only be indirectly influ- According to this model calculation, and given the enced by political measures (higher benefits for current level of political and social acceptance of families). To stabilize the working-age population immigration, demographic ageing is unavoidable. at its 2015 level on a long-term basis, net im- If high immigration does become the measure of migration would have to amount to +49,000 choice to offset demographic ageing, the ques persons per year. An increase in the number of tion arises as to which countries the immigrants births would also contribute to the achievement should come from. Immigration from neighbour of this target, although the impact of today’s ing countries is desirable in terms of integration births on the labour market will only be felt with policy, but unlikely in demographic terms, since a considerable time lag. If the ratio of persons Austria’s neighbouring countries are faced with over 64 years of age to the 15-to-64-year-olds a similar problem of demographic ageing. Im-

30 migration from culturally remote regions of STRATEGIC OBJECTIVES origin is conceivable in demographic terms, but leads to increasing cultural heterogeneity SYSTEMS in society and, consequently, to new conflicts. To avoid such conflicts, investments in concep- • Immigration is an instrument to support the tually well-coordinated integration policies are stability of the systems of the state (e.g. the essential. In this case, the focus of public spend pension system). ing will have to shift towards integration policy, • Immigration reduces the pace of demographic which puts the added value of immigration into change and extends the period of time avail question. able for adjustments to all age-dependent social systems and infrastructures. However, immigration alone will not completely offset the demographics. • Population reproduction can also be secured by increasing the reproduction rate, e.g. by creating a child-friendly environment in all walks of life (e.g. taxation, reconciliation of work and family, child care).

PROSPERITY

• If the quantitative relationship between in come earners and pension beneficiaries is to be stabilised through immigration, the primary focus should be on qualification- oriented immigration of young people, who have the best chances of succeeding in the labour market. • Adjustments to the level of contributions paid and benefits received, e.g. in the fields of health care, social welfare or pension benefits, are another possible response to changes in the age structure of the population.

31 01 | Demographic Developments and Changes in Society

• The ratio of income earners to beneficiaries • Immigration does not have to offset the entire can also be changed through other measures, reduction in the supply of labour due to demo- such as the intensified integration of women graphic ageing. A lower supply of labour offers and immigrants from previous periods into the the opportunity for a country to focus its eco- labour market, the reduction of youth unem- nomic development policies on innovative, ployment, raising the labour force participa future-oriented sectors with high productivity tion rate of older workers, or raising the (e.g. industry 4.0) instead of labour-intensive factual retirement age. sectors.

CHANGES IN SOCIETY

• Demographic stability facilitates long-term planning of government measures. Given the long lead times, numerous social sub-systems, such as the housing market (planning, construction), react to changes in society with a substantial time lag. A massive short-term decline in population figures has a similar destabilising effect as a short-term increase. Demographic stability is of advantage for social transfer payments and social infrastructures, public security, the ratio of supply and demand on the labour market, and the system of education. • Immigration from culturally remote regions of origin increases the degree of heterogeneity in society and sometimes puts the prevailing standards and values into question. Immigra- tion may constitute a particular challenge for social cohesion and social peace. It should therefore be accompanied by conceptually well-coordinated integration policies.

32 DIVERSITY

PLEASE OPEN 02 | DIVERSITY

Core dimensions: age, disability, MIGRATION INCREASES gender, sexual orientation, 2 DIVERSITY IN SOCIETY religious and/or cultural affiliation

Diversity as a chance to boost innovative strength

DIVERSITY AS A SOURCE OF ENRICHMENT AND A 3 CHALLENGE FOR SOCIETY

A O

I F A O L

E C AGREEMENT ON VALUES L O U Uncontrolled migration H PRIOR TO IMMIGRATION R E can lead to segregation , S Y I and radicalisation O C N A : R F C U O N M D E A D M S, EN T TA IGH L V R ALUES, HUMAN

1 However much we appreciate the value 2 Age, disability, gender, sexual orientation 3 Diversity can be both a source of enrichment of diversity, a society also needs shared and religious or cultural affiliation are the and a challenge for society. If society is to elements in order to preserve its cohesion. core dimensions of diversity. Therefore, benefit from diversity, a differentiated and Policy makers should take the fears and diversity management should focus not only critical approach to migration and its anxieties of the host society seriously. In the on ethnic diversity, but on all of diversity’s advantages and disadvantages is essential. long term, migration cannot be managed core dimensions. Migration increases without the support of the population. potential diversity in terms of all its core dimensions. DIVERSITY BASED ON SHARED VALUES GENERATES 4 ADDED VALUE FOR ALL

Stability Security Prosperity

RELIGIOUS NEUTRALITY MUST BE MAINTAINED 5 IN ALL WALKS OF LIFE

Solidarity Fundamental values

AS DIVERSITY INCREASES, 1 SOCIAL COHESION IS ESSENTIAL

Social cohesion must be

A based on commitment to O

L C shared fundamental values

I F A O L

E C AGREEMENT ON VALUES L O U H PRIOR TO IMMIGRATION Allowing people to voice their R E , concerns helps to reduce S Y I O C anxieties in the host society N A : R F C U O N M D E A D M S, EN T TA IGH L V R ALUES, HUMAN

4 Legally binding fundamental values provide 5 In view of the growing heterogeneity of a shared basis for social peace in a society. society, greater attention has to be paid to Everyone should be made aware of these religious neutrality not only in the enforce- fundamental values. Without unifying element of legislation, but in all spheres of ments, diversity can cause a fragmentation public life. This is indispensable in a secu- of society and a weakening of social cohe- lar state in which all religions are regarded sion. to be of equal value and subject to the rule of law.

02 | DIVERSITY

CURRENT SITUATION In times of massive immigration, the acceptance of diversity by the host society is put to the test. Diversity can be a source of enrichment for soci- The perception of cultural and religious diversity ety as well as a challenge. The developments of by the Austrian population is ambivalent. Migra recent months (e.g. in France, Belgium, Ger tion is associated not only with compassion (e.g. many, etc.) have shown that diversity without for refugees), but also with the fear of losing elements of shared interest exposes a society one’s own identity. Migration alone does not nec- to a risk of fragmentation and the weakening essarily increase diversity, e.g. if immigrants all of social cohesion. Migrants often adhere to come from one or only a few regions of origin or standards and values of their countries of origin are unequally distributed over Austria. Therefore, that deviate from those of a liberal society with achieving a well-balanced composition within a a neutral attitude towards religion. This holds society, e.g. in terms of gender, age or origin, is true for the importance attributed to religion, the essential. Shared fundamental values and soli relationship between men and women, and the darity are the bases for stability, security and position of men within the family and in society. prosperity in Austria and, consequently, the pillars of social peace. The concept of diversity relates to any dimension that differentiates groups and individuals from Diversity offers an opportunity to boost the inno- one another – such as age, gender, sexual orien- vative power of our knowledge society. Modern tation, religious or cultural affiliation, as well as knowledge and service societies have shown that, disability. Diversity management is aimed at provided appropriate conditions exist, they are ensuring respect for the (cultural) identity of able to accommodate diversity and, at the same others and, thus, making use of the advantages time, allow enough room for tradition. of diversity for society. Dealing with diversity is a matter of concern for society as a whole, a Under unfavourable conditions, declining natural challenge not only for institutions of the state or reproduction rates, in combination with large large companies, but also for each individual. numbers of immigrants of just a few nationali- ties, may foster the development of parallel so- However, the focus on diversity has its limits: If cieties. This may overshadow the positive aspects specific diversity features are overemphasised, of diversity and lead to polarisation between host people are at risk of being reduced to these societies and parallel societies. As a conse differences and, hence, of being stigmatised. quence, even important achievements in the Therefore, every effort must be made to manage field of fundamental rights (e.g. the equality of diversity as well as possible within the respective men and women) may be called into question. organisation and thus contribute to social cohesion.

33 02 | Diversity

STRATEGIC OBJECTIVES • Differences and disparities that may result in conflicts have to be addressed in a critical and SOCIAL POLICY differentiated manner. Differentiation provides the basis for the recognition of diversity and • Migration should not be the only option to for social cohesion, on the one hand, and a counteract demographic ageing. Immigration consistent stance against trends likely to from only a few regions of origin does not fos- prepare the ground for extremism, on the ter diversity, but increases the risk of parallel other hand. societies developing in Austria. Social cohe • In particular, any attempt to undermine the sion can only develop if society is in balance. secular state with its neutrality towards religion is to be vigorously opposed. Efforts SHARED AND CONTRARY POSITIONS undertaken by certain associations (such as the Muslim Brotherhood) to link religious • Austria has a long tradition of supporting ideas with the tasks and objectives of the state people in need. However, neither compassion are to be prevented. nor tolerance alone is a sustainable basis for people to live together in harmony on an equal DIVERSITY IN THE PUBLIC SPHERE footing in the long term. • To ensure the acceptance of migrants by the • Ethnic diversity in the public administration host society, legally binding fundamental (e.g. police officers with migration back- values are needed as a common basis for all ground) should be used to a larger extent as people in a country. Therefore, the goal to be a strategic instrument to respond adequately pursued is mutual respect by all and for all in to differences among the population and Austria. Moreover, shared social standards ensure equal treatment. Greater attention and values that positively influence the way should be paid to religious neutrality within people live together in society are to be pro- the sphere of public-service institutions. moted. • Diversity management should be implemented • Fears and anxieties in the context of migration in the public administration as well as in all must be taken seriously, and ways and means other spheres of society, in order to make should be created for people to express their dealing positively with diversity an integral concerns. Justified fears may be a warning part of everyday life. Diversity management signal that help us to find constructive solu- should address not only ethnic diversity, but tions. Any feeling of anxiety is subjectively all other issues of diversity as well. justified, but it takes objective and factual arguments to counter such anxieties.

34 A FUNCTIONING SOCIETY FOR AUSTRIA DIVERSITY FOR FUTURE GENERATIONS

• Human rights, the rule of law and democracy • Child-raising is a core task of the parents. are indispensable foundations for peaceful Nevertheless, child care, upbringing, and co-existence in Austria. At the same time, they coping with daily school requirements are all set limits to the recognition of diversity. Upon tasks that remain mostly in the hands of arrival in Austria, migrants should be required women. To increase women’s participation in to commit to the fundamental values of a the labour market, it will be necessary not European democratic state and its society only to facilitate the reconciliation of work and (submission of a signed “value statement” family duties (e.g. adjustments to the system with first application). of income-dependent child care allowance, • Going beyond these fundamental values, a improved child care facilities), but also to diverse society has to place a special empha- close the wage gap between men and women, sis on values shared by all its members. In offer more home-office options, introduce times of instability, this may help to keep the more flexible working-time models, adopt a various groups within society from drifting fair family taxation regime, and provide sup- apart. Shared values and positions have to be port for single parents. clearly communicated and strengthened. • Children must be allowed to live in diversity • Migrants should become involved in the without being exposed to constant pressure to community in Austria and assume the same keep up with their peers in terms of develop- responsibilities as members of the host so- ment and knowledge. A special focus should ciety (e.g. through military or alternative be placed on systems of individual earning. service). Voluntary social service for immi- This includes meeting the specific needs of grants (similar to the “voluntary social year”) boys and girls without differentiating on the might be a first step in the active integration of basis of traditional or new role models. new immigrants into Austrian society and • Children and adolescents should not have to could provide an important unifying element. “fit in” with what is considered “average” in • Transparency with regard to social benefits order to succeed. Rather, they should be may help to counteract a vague feeling of envy fostered and supported wherever their among the resident population. strengths lie. • Recognising and fostering diversity features may serve to boost the innovative strength of the country and increase productivity.

35 02 | Diversity

• Instead of being reduced to its core dimensions, diversity should be comprehensively perceived in terms of societal diversity. A diverse society should offer a variety of development options, especially to its youngest members. While comprehensive general education is important, it should also be possible for young people to specialise, enhance their specific competencies and develop new ones. Manual ability should be recognised and promoted, and its importance for society appropriately acknowledged.

36 EDUCATION AND RESEARCH

PLEASE OPEN 03 | EDUCATION AND RESEARCH

Legal migration Refugee migration

EDUCATION AS THE CENTRAL DRIVING 1 FORCE OF INNOVATION

Focus on basic command of German

Austria needs the “best brains”, including those from abroad

Education Innovation

Reduce Increase attractiveness bureaucracy for graduates Strategic objectives

38 % 1 In a knowledge and information society, education is the central driving force of innovation. While legal migration, especially migration for purposes of work and education, tends to accelerate Almost 25% of 38% of them innovation, the immigration of refugees presents major chal- all students are are German lenges for the education system. In order to participate fully in non-Austrian nationals all spheres of society, refugees need a good education and a basic nationals command of German. Current situation Current 2 Good education needs a sound foundation and therefore has to start at the elementary level. This applies, in particular, to the socio-economically weakest members of society. Support for children in learning German at pre-school level helps to com- Social index pensate for origin-related disadvantages. Multilingual pre- determines funding school education would also benefit children with German as Strategic objectives their everyday language. In our globalised world, multilingualism provides a basis for qualifications. Percentage of pupils with non-German language of everyday communication 3 Multilingualism for all and support for non-German-speaking pupils in learning German are essential at all levels of education. 3 This would reduce the number of school dropouts whose everyday 1/4 language is not German. Increasing the number of full-day PRIMARY AND schools and extending the dual system of education and training SECONDARY LEVEL: for apprentices would not only provide room for additional At primary and SCHOOL-BASED subjects to be taught (especially foreign languages), but also secondary level EDUCATION AND facilitate the reconciliation of work and family responsibilities for TRAINING parents. The provision of resources for schools should be based

on the criteria of a school-specific social index. situation Current

4 Conditions for university graduates and skilled workers in Austria are characterised by low initial salaries and bureaucratic obstacles. As a result, more and more graduates are leaving Austria. Early language Second compulsory This development has to be counteracted. Owing to capacity learning pre-school year bottlenecks, conditions for students are less than optimal in Strategic objectives certain fields of study in Austria. Better coordination of the education policies of the individual EU Member States would Pre-school care – Language screening – help to solve this problem. Percentage of two-year-olds Support for 4.5 to 5.5-year-olds required

5 Education conveys values, and educated people know how to stand up for their values. This opens up a range of opportunities 42 % 48 % to them in terms of personality development, quality of life, future perspectives and prosperity. The fundamental prerequisite is a broad-based, many-faceted system of education that allows With migration Without migration everyone to develop according to their individual potential. background background Current situation Current 5 Values EDUCATION MEANS FUTURE, SECURITY AND SOCIAL PEACE Future perspectives Quality of life

Personality Prosperity development Education

Increase attractiveness Improve Red-White- Long-term financing Coordinate EU Facilitate for graduates Red Card system for higher education higher education recognition of policies foreign degrees

Scientific and artistic personnel 4 at Austrian universities TERTIARY LEVEL: 38% of them 19 % 5 % are German HIGHER EDUCATION Many Initial salary Bureaucratic Recognition nationals AND RESEARCH graduates too low obstacles of foreign From EU From third leave Austria too high degrees is difficult countries

Focus on Focus on dual Educational More full-day Reconciliation of Cooperation multilingualism and education and potential to schools family and work with regions general education training be fully utilised of origin

Vienna: highest percentage of pupils with non-German language of everyday communication

80 % PRIMARY AND SECONDARY LEVEL: SCHOOL-BASED In some districts More Fewer pupils More pupils EDUCATION AND of Vienna dropouts continue in repeat grades TRAINING education

Higher level of Cooperation Reconciliation of Consider diversity education for pre- between parents family and work in education school teachers and teachers

Language screening – Support for 4.5 to 5.5-year-olds required 2 58 % 10 % ELEMENTARY LEVEL: INFANT AND Non-German- German- More migrant Origin-related PRE-SCHOOL CARE speaking children speaking children children differences with low socio- in educational economic status attainment

03 | EDUCATION AND RESEARCH

CURRENT SITUATION At elementary level, the percentage of children without migration background in pre-school In a knowledge and information society, educa care (day-care centres, kindergarten, etc.) is tion is the central driving force of innovation and slightly higher (2013: 48% of two-year-olds) than an important prerequisite for the individual’s that of children with migration background participation in social, economic and cultural life. (2013: 42% of two-year-olds). However, the Enhancing the level of knowledge and education percentage of children with a mother tongue of all citizens contributes significantly towards other than German in day-care centres is very promoting personality development, quality of high, especially in Vienna (approx. 60%). A survey life, employment opportunities and future per of linguistic competence performed in 2008 spectives for the individual as well as for society among children aged 4.5 to 5.5 years showed that as a whole. Utilising the educational potential of non-German-speaking children require substan migrants is a special challenge in this context. tially more educational support (58%) than As statistical data show, the level of educational German-speaking children (10%). This type of attainment of migrants living in Austria varies language screening, as well as compulsory greatly depending on their country of origin. kindergarten attendance for all children from five Both at the lowest and the highest level of formal years of age, is therefore particularly beneficial educational attainment, the percentage of per for migrants. sons with migration background is higher than among the resident population. At primary and secondary level, slightly more than 10% of all pupils in Austria are not Austrian Migration is an important factor at all levels of nationals (school year 2013 / 2014). The percent education – from infant care and pre-school age of those with a language of everyday commu education (elementary level) to primary and nication other than German amounts to 27% at secondary education to higher education (tertiary primary level and 23% at secondary level. These level). Although, in principle, the Austrian system percentages have gone up over the years. Vienna of education is able to provide the prerequisites reports the highest percentage of pupils with for upward educational mobility of young people migration background; in certain districts of with migration background, the success rate is Vienna, over 80% of all primary school pupils and inadequate. On average, children of migrants do almost 70% of pupils attending a “new secondary not reach the educational level of resident chil school” (Neue Mittelschule, a new form of lower dren, a fact partly accounted for by the formers’ level secondary school) or a pre-vocational “poly- low socio-economic status. technical” school do not speak German as their everyday language. Fewer children with an everyday language other than German move on from primary school to a lower-level academic sec ondary school (AHS-Unterstufe) than German native speakers. The percentages of children with an everyday language other than German are significantly higher at schools for children with special needs and pre-vocational poly-technical

37 03 | Education and Research

schools and significantly lower at academic mainly from Germany, are extremely high (up to secondary schools. In the course of their educa almost 90% at the Universities of Salzburg and tional careers, they repeat grades or drop out Innsbruck). In the field of medicine, the so-called toward the end of compulsory schooling far more “safeguard clause”, according to which 75% of frequently than children with German as a native places are reserved for students of Austrian language (2011 / 2012 five times as many drop- nationality, prevents such a situation from aris outs from lower-level secondary school at eighth ing. At the same time, the percentages of Austri grade level). To a large extent, this is due to their ans studying in Germany have also increased socio-economic status. 79% of all adolescents considerably. Among students with migration aged 15 to 19 years and born in Austria are still background who have completed their educa attending school, as compared with slightly less tional career in Austria, only a small percentage than 60% among adolescents not born in Austria, come from educationally deprived strata of whose number has been increasing continuously society. Here, too, we see evidence of the phe in recent years. Generally speaking, differences nomenon of “inheritance of education”. in educational performance are largely accounted for by origin. As regards reading competencies, A whole range of measures and programmes deficiencies have been observed in 25% of all aimed at supporting international students is fifteen-to-sixteen-year-olds. Here we observe a available at tertiary level. Nevertheless, there are convergence of factors such as migration, educa numerous bureaucratic obstacles, especially for tion and prosperity. By international comparison, third-country nationals (e.g. prerequisites for Austria ranks in the upper middle range in terms being granted a residence permit), a circum of “inheritance of education”. stance that is also reflected in the relatively high number of foreign students leaving Austria upon Migrants are also well represented at institutions completion of their studies. Based on the number of higher education. Almost 25% of all students of long-term residence permits known as “Red- in Austria are non-Austrian nationals; this per- White-Red Cards” granted to third-country centage has been continuously on the increase graduates in 2014, less than 14% of foreign since 1990. A large majority of the non-Austrian graduates from third countries remained in students (approx. two thirds) are citizens of the Austria to work here. Highly qualified Austrians EU or the EEA. The percentage of German na also tend to leave the country after having ob tionals (approx. 38% of all foreign students) has tained their school-leaving certificate or upon almost quintupled since 2000. Traditionally, the completion of their academic studies. percentage of international students has always been highest at art universities, followed by scientific universities. Universities of applied sciences (Fachhochschulen) are also seeing a continuous rise in the percentage of foreign students, whereas universities of education report the lowest figure at just over 6%. In certain (highly popular) fields of study, such as psychology, the percentages of foreign students,

38 Research in Austria needs the “best brains”, The impact of Austria’s migration policy is not including those from abroad. If Austria wants to limited to Austria, but extends to the educational succeed in its efforts to become an “innovation and labour market structures in the regions of leader”, it is essential for the country to position origin linked to Austria through traditional migra itself as an attractive research location. To obtain tion routes and a certain degree of economic the “brain gain” needed in both the academic interaction. The Western Balkan states are of world and the business community, international particular importance in this context, given the researchers and Austrian returnees have to be strong inflow of young people into Austria from offered incentives to choose Austria as their this region. preferred place of work and research. In recent years, the number of researchers in Austria has increased continuously in all sectors. Among the STRATEGIC OBJECTIVES scientific and artistic personnel at Austrian universities, 19% come from the European Union LANGUAGE LEARNING, SCHOOL-BASED and 5% from third countries. EDUCATION AND VOCATIONAL TRAINING

Internationalisation is supported by a broad • Migration plays an important role at all levels range of programmes. Among other measures, of education. While excellent statistics are the “Red-White-Red Card” was created to en available about learners with migration back hance the attractiveness of Austria as a location ground, similar data about teachers and other of business and research. However, the card is support personnel (teachers at all levels of problematic in certain respects (e.g. the high education, school psychologists, etc.) are initial salary level required and the exclusion of missing. Improvements of the data base would holders of bachelor degrees) and has room for therefore be desirable. improvement. Moreover, researchers, qualified • Developmental support at an early age gener workers and businesses complain about bu ates the highest return on investment. There reaucratic obstacles and the difficulties encoun fore, more resources should be made avail tered by third-country nationals in obtaining able for early language learning (especially recognition in Austria for certificates and degrees for children with mother tongues other than acquired abroad. German), and the measures taken should be evaluated for their effectiveness. A second compulsory year of kindergarten from the age of four and upgrading the level of education required for pre-school teachers would be important supporting measures. Special emphasis should be given to the need for immigrants to acquire a basic command of German before coming to Austria.

39 03 | Education and Research

• Support for children in learning German and a • Qualifications acquired in immigrants’ coun focus on multilingualism are to be strength tries of origin (at all levels of the educational ened at primary and secondary school levels. career) have to be put to better use and their The decision taken by the federal government recognition should be facilitated. The effec to increase the number of full-day schools is tiveness of the Act on the Recognition of For- an important accompanying measure which, eign Degrees adopted in the spring of 2016 apart from its added pedagogical value, also will have to be monitored. At the same time, facilitates the reconciliation of work and family people who choose to complete their educa duties. tion at a more advanced age should also • At all levels of education (elementary, primary, be given a chance to acquire certifications secondary), a higher number of educators with according to their potential. immigrant backgrounds, a stronger focus on diversity in teachers’ training (with the intro INSTITUTIONS OF HIGHER EDUCATION AND duction of “teachers’ training NEW” as an RESEARCH important first step), and intensified coopera tion between parents and teachers are re • The current international orientation of Aus quired. To enable educational institutions to tria’s institutions of higher education is to be offer the best possible support to their target maintained and promoted with a view to groups (children with mother tongues other attaining an even higher level of quality. In than German from low socio-economic and order to make Austria attractive for foreign educationally disadvantaged backgrounds students and researchers with high qualifica require maximum support, as stated above), tions and an excellent academic potential as a funding should be provided on the basis of a location of higher education and research, social index. The introduction of such an index bureaucratic obstacles have to be eliminated. is currently being planned. Labour market incentives will have to be • The dual system of vocational education and created for international researchers and for training (apprenticeship), an important ele Austrian returnees. ment in the Austrian vocational landscape, • Austria must become more attractive for should be promoted to an even greater extent, university graduates with and without migra not least with a view to migrants. Given the tion background. Therefore, the current wor- continuously changing demands of the labour king conditions for young scientists (e.g. term market, changing from one sector to another contracts only, precarious financial situation) should be made easier. Greater attention and the possibilities for third-country gradu should be paid to multilingualism and general ates to obtain a residence permit as a pre education. requisite for finding a job must be improved.

40 • The problem of capacity bottlenecks in certain • To promote and support mobility in the scien fields of study demands better coordination of tific community, English-language informa the education policies of the individual EU tion, forms and counselling services provided Member States, the objective being to coordi by public authorities, banks and insurance nate higher education policies at European companies are necessary. More bilingual level. Austria should take the initiative in this schools, as well as provisions that make it matter. easier for family members of scientists to • Securing long-term funding for institutions of stay in Austria, would be helpful. tertiary education in Austria is a matter of high priority. In a time of increased mobility, many REGIONS OF ORIGIN people leave Austria once they have completed their studies. Thus, Austria is not able to de- • Providing high-quality education and training rive the full benefit from its investments in for people from relevant regions of origin with training and qualification. This trend should lower educational standards requires long- be counteracted on a long-term basis through term intergovernmental cooperation. Such appropriate measures. cooperation should include the transfer of • In the absence of differentiated data in the parts of the dual system of vocational educa field of tertiary education and research, tion and training (Austria’s successful model especially from the business community, it of apprenticeship combined with part-time is impossible to issue targeted recommenda vocational school, as well as vocational train tions aimed at promoting brain gain and ing incorporated into higher-level secondary stimulating brain circulation. Data collection schools). Regions of historical and future in- should be improved. terest for Austria, such as the Western Bal- • Eligibility for the “Red-White-Red Card” kans, should be at the focus of such efforts. should be revised to take account of the period Austrian companies operating in these regions of transition from academic studies to a highly should be supported accordingly. qualified position in the labour market and / or • Systems of circular migration should be in research (e.g. by extending the deadline for facilitated through the adoption of appropriate finding a job and lowering the required initial provisions regarding temporary residence in salary level). Moreover, graduates of bachelor Austria. Temporary migration to Austria, courses of study should also be eligible for the based on a system providing for subsequent “Red-White-Red Card”. return to the region of origin, ensures a • The bureaucratic and administrative proce mutual transfer of know-how. dures required for the recognition of qualifica tions and degrees obtained abroad should be simplified and accelerated, while maintaining the necessary level of quality control.

41 42 ECONOMY AND INFRASTRUCTURE

PLEASE OPEN 04 | ECONOMY AND INFRASTRUCTURE

ECONOMIC GROWTH 2012 REQUIRES CONTROLLED, 1 DEMAND-ORIENTED IMMIGRATION

0.7 %

STIMULATING ECONOMIC GROWTH AND MEETING DEMAND FOR SKILLED LABOUR 2 14 %

Circular migration Demand for labour Even controlled and cooperation in top qualification migration can only in regions of origin segment by 2025 make a limited contribution in Austria to economic growth

Strengthening of internal security and preventing Reconciliation of emigration of top achievers family and work

Unforeseeable, massive immigration as a challenge for society as a whole

Adjustment of the Benefits in kind social system instead of cash benefits Migration should generate added value for the economy

INVESTMENT INCENTIVES IN TIMES OF SLUGGISH ECONOMIC ACTIVITY

Tax relief for middle More incentives Promoting investments Eliminating bureaucratic income earners for the self-employed. from abroad and obstacles for Building confidence in making Austria more foreign companies the reliability of the state attractive for immigrants

1 Economic growth in Austria was too low 2 A slowdown in the growth of the working- in recent years. A fundamental change of age population can result in an additional trend is not in sight. A rate of economic negative impact on economic growth. This growth of approx. 1.5% has been forecast will lead to intensified international compe- for 2016 and 2017. Refugee migration tition for qualified immigrants. Therefore, imposes a considerable financial burden investment incentives have to be provided on the regions of destination, and positive and measures have to be taken to stimulate effects will only be seen in the long term. entrepreneurship and enhance Austria’s attractiveness as a location of business and industry. 2013 2014 2015

Insufficient GDP growth compared with previous year. No major change in sight.

0.1 % 0.6 % 1 %

Even controlled Social benefits are Admission of and migration can only perceived as disproportionate care for asylum seekers make a limited contribution by large parts as an economic challenge to economic growth of the population

CHALLENGES FOR ENVIRONMENT, URBANISATION Unforeseeable, massive 3 AND INFRASTRUCTURE immigration as a challenge for society as a whole Transport Urban infrastructure development

Incentives for Use of settlement in resource-preserving structurally technologies MIGRATION weak regions

Communication Balanced, controlled infrastructure migration against segregation

3 The continuing trend towards urbanisation, which is being reinforced through migration, presents major challenges for Austria’s environmental policy and infrastructure. Migrants should be encouraged to settle in structurally weak regions. At the same time, urban development policies should be aimed at preventing further segregation.

04 | ECONOMY AND INFRASTRUCTURE

CURRENT SITUATION In addition to GDP per capita, real economic growth, the export ratio and the current account Economic growth in Austria was very low in re- surplus, the share of manufacturing in total cent years (2012: 0.7%; 2013: 0.1%; 2014: 0.6%: economic output and the country’s positioning 2015: 1%). A fundamental change of trend is not on the innovation scoreboard, its connectivity in sight. For 2016 and 2017, a rate of economic ranking and its IMD location ranking are referred growth of around 1.5% has been forecast. The to as indicators of economic competitiveness. slowdown of working population growth may The employment and unemployment rates, social have an additional negative impact on economic expenditure per inhabitant, and life expectancy growth and – in the absence of technological are indicators of the functioning of the Austrian progress – even cause the economy to shrink. labour market and the welfare state. The ratio In a situation of insufficient population growth, of government debt to GDP characterises the international competition for qualified migrants stability of public finance. is intensifying. The following diagram shows the economic and socio-political indicators influenc FIGURE 1: ing the future perspectives of Austria as a Economic positioning within the EU 28 (2015) based on location for business and industry. economic and social indicators, rankings 1 – 28 (Biffl, Gudrun et al., Österreichische Migrationspolitik: Vision und Entwicklung eines Migrations-Monitoring-Systems, Krems 2015, p. 197)

FIGURE 1

43 04 | Economy and Infrastructure

In Austria, as in the rest of Europe, companies In the long term, refugee immigration may also are complaining of a lack of skilled workers, generate positive effects in some economic sec- especially those with qualifications in mathe- tors in the receiving regions, provided integration matics, informatics, natural sciences and tech is accepted as a desirable goal and the environ- nology (MINT subjects). In Austria, the percen ment stimulates people’s willingness to work. tage of workers in the highest qualification When cash benefits paid out to asylum seekers segment is expected to grow by 14.1% by 2025, and recognised refugees are transferred to family as compared with 2015. An increase of 21.1% is members abroad, this effectively causes an projected for the European Union as a whole. indirect loss to the domestic economy.

Investment activities in Austria remain muted, As regards environmental and infrastructure primarily due to the heavy burden of taxation and issues, the continuing trend towards urbanisation social charges on employed and self-employed is reinforced through immigration. Urban sprawl labour. This also concerns qualified immigration. and the lack of rural infrastructure will present Labour migration law in its current form targets enormous challenges to future generations in persons in employment and fails to take suffi- terms of environmental protection, energy sup- cient account of investors. Moreover, bureau- ply, waste management, industry, and transport cratic obstacles stand in the way of entrepre- facilities. Problems will also arise in the field of neurship, hinder investments and weaken the housing, as some urban agglomerations are country’s innovative strength. Confidence in the marked by persistent segregation. reliability of the state has suffered not only because of bureaucratic hurdles, but also on account of the payment in cash of social benefits STRATEGIC OBJECTIVES that parts of the public perceive as being dispro- portionately high. Refugee migration imposes a ECONOMIC GROWTH AND SKILLED LABOUR heavy financial burden on the regions of destination. Receiving and providing for asylum seekers, • A growing working population and an increase as well as paying out social benefits to those who in productivity are the prerequisites for eco have been granted asylum but are not yet inte nomic growth. In the long term, migration grated into the labour market, and their family alone will not lead to the required working members, is an economic challenge for Austria population growth. To mitigate the demo in the short and medium term. Between 2011 and graphic shock, comprehensive measures, 2013, public expenditure for refugees on average such as increasing the retirement age and corresponded to 0.05% of GDP. In 2016, the figure the labour force participation of women, are might increase to approx. 0.3% of GDP. necessary.

44 • Greater attention has to be paid to the inter- • The structure of qualifications required by actions between the labour market and the trade and industry is highly differentiated. social system. Effective incentives must be To ensure a sufficient supply of skilled labour provided for people to integrate into the labour with mid-level qualifications, Austrian compa- market and / or to work longer. The social nies would be well advised to engage in co- system has to be adjusted accordingly. Individ operation with economic operators and edu- ual life situations should be taken more into cational institutions in the regions of origin. account in granting social benefits. Here again, models of circular migration • To ensure that people above the age of fifty would be appropriate. remain fit for work (e.g. by easing their every- • Growing instability, religious tensions and day work conditions) and to benefit from their radicalisation may lead to the emigration of expertise (for the training of new recruits, for top achievers from the current regions of innovations, etc.), corresponding entrepre destination. This would have disastrous conse- neurial projects and strategies are to be quences for the domestic economy. To prevent promoted. such a development, internal security and • To increase the labour force participation social cohesion have to be strengthened. rate, the reconciliation of work and family life should be made easier. This can be achieved FISCAL POLICY AND BUREAUCRACY by providing better child care facilities (more company-run day-care facilities, support for • To create incentives for investments in times “multi-generational housing”, emergency day of sluggish economic activity, the tax burden care), extending telework options, offering on mid-level incomes should be eased. This more flexible working-time models and would make Austria more attractive for inno- introducing a fair system of family taxation. vation-oriented immigrants wishing to go into • The skills shortage in MINT occupations and qualified self-employment. in mid-level technical fields has to be counter- • Confidence in the reliability of the state is an acted by stimulating an interest in engineering essential factor accounting for the attractive- and science in children and adolescents (e.g. ness of a business location. Frequent changes school projects or school excursions to com- in the regulatory environment may have a panies with innovation potential). However, negative impact and should therefore be migration policies in the fields of labour and avoided. education should not be targeted solely at • The step-by-step elimination of bureaucratic MINT subjects – not least in order to protect obstacles may have a favourable impact on the interests of the regions of origin. Models investments and innovations. Faster and of circular migration would be well suited to simplified procedures in non-sensitive areas benefit all those involved with labour migra can help to attract investments from abroad. tion and educational migration (“triple win”).

45 04 | Economy and Infrastructure

• The payment of cash benefits to asylum • Mobility – as well as communication – is an seekers and recognised refugees who then economic factor strongly impacted by migra transfer the money to family members abroad tion. Migration policy has to address the not only runs counter to the purpose of the burden on and risks for the environment system of basic social assistance and / or associated with mobility and urbanisation means-tested income support, but is a disad- more effectively. More incentives have to vantage for the domestic economy, which be created for the further development and would otherwise benefit from consumption on use of environmentally safe, sustainable, the part of the beneficiaries. To counteract resource-preserving mobility technologies. asylum abuse and promote the integration of • Although the acceptance of refugees and recognised refugees into the labour market, people in need of protection, as well as their benefits in kind should be given preference family members, constitutes a substantial over cash benefits, with due consideration financial burden for Austria in the short and being given to the individual needs of those medium term, the positive effects of this concerned and the administrative costs being situation should not be overlooked. Recog kept to a minimum. nised refugees should be offered incentives to settle in structurally weak regions. This would ENVIRONMENT, URBANISATION relieve the labour market in urban agglomera- AND INFRASTRUCTURE tions and prevent further segregation. Pro viding accommodation for asylum seekers in • Immigration has the potential to put the hous- regions suffering from a rural exodus would ing market under considerable pressure. also stimulate the local economy and support In times of increased immigration, urban infrastructure improvements (indirect eco development projects that reflect the diversity nomic impact of migration-related invest- of the population in a well-balanced manner ments). Thus, refugee migration has the should be promoted. At the same time, it potential to generate positive effects for the needs to be stated very clearly that residential domestic economy that are not only of a construction cannot keep up with unforeseen, long-term nature. massive immigration. This is yet another reason why migration for the purpose of obtaining international protection status is to be limited to an acceptable measure.

46 LABOUR AND SOCIAL AFFAIRS

PLEASE OPEN 05 | LABOUR AND SOCIAL AFFAIRS

STRIAN WELFAR E AU E ST 1 TH ATE INCOME EARNERS PAY FOR SOCIAL BENEFITS Social benefits Pensions AND PENSIONS

Productivity of labour FOREIGN WORKERS ARE NEEDED IN 2 SPECIFIC SECTORS

Clear differentiation: More incentives Strategic Less bureaucracy Re-assess Priority for Refugee migration and for qualified training through multilingual performance: domestic legal migration in all immigrants partnerships online offers working conditions, programmes matters of employment with certain remuneration regions of origin

Legal migration Refugee migration

PRESERVING THE WELFARE STATE AND TAKING A STRATEGIC 3 APPROACH TO MIGRATION

Primarily Adjustment of the Social and labour qualified social system to market policy immigrant workers migration measures

1 Labour, pensions and social affairs are 2 Despite a high rate of unemployment, the 3 Migration policy should be used as a stra- closely related policy areas that are strongly Austrian labour market depends on migra- tegic instrument to a greater extent. To impacted by migration. Social benefits and tion to meet the demand in certain fields ensure the financing of the welfare state, pensions are financed solely by the taxes of qualification. Austria must position itself priority should be given to the immigration and other charges paid by the working as an attractive destination country for of qualified workers and the integration population. qualified workers. Appropriate incentives of the jobless into the labour market. The will have to be provided. social system should be adapted to global migration, as qualified immigrants are attracted not by social benefits, but by low tax and contribution rates. 4 MIGRATION SHOULD RE-BALANCE THE RATIO OF CONTRIBUTORS TO BENEFICIARIES

Risk of desolidarisation of society

5 UNFAIR PRIVILEGES FOR INDIVIDUAL GROUPS ENDANGER SOCIAL COHESION

PROMOTING PERFORMANCE- ORIENTED APPROACH 6 AND SOCIAL COHESION

Encourage voluntary Create incentives social activity to work for of migrants the common good

4 In view of the demographic development, 5 Developments in the field of social welfare 6 An achievement-oriented approach, social sufficient numbers of immigrants will be that are perceived as unfair and incompre- cohesion and the recognition of individual needed to keep the ratio of contributors hensible by parts of the population, such performance should be promoted more to beneficiaries in balance. as the actual or alleged unequal treatment effectively. In particular, recognised of social groups, have the potential to refugees and asylum seekers should endanger the cohesion of society. be involved in the life of society through voluntary work in the social sector.

05 | LABOUR AND SOCIAL AFFAIRS

CURRENT SITUATION social system. Developments of the social welfare state that are perceived as disadvantageous Labour issues and social affairs are closely and hard to understand, such as the actual or related, and strongly impacted by migration. alleged unequal treatment of social groups, have Migration has a substantial influence on the the potential to threaten social cohesion. Differ Austrian welfare state and its prerequisites. ences in the quality and scope of benefits grant- People in work finance the systems of social ed by the social systems of the individual EU security by paying taxes and other public Member States and the absence of harmonisa- charges. Only through their contributions can tion at European level may lead to an unequal social benefits and pensions be ensured. Given distribution of burdens among the Member current and foreseeable future demographic States. A distinction must be made between such developments, this applies, in particular, to structural imbalances and social security abuse, old-age pensions. as the uptake of benefits by individuals is lawful.

The situation on the Austrian labour market has been tense for quite some time. In 2015, the STRATEGIC OBJECTIVES overall rate of unemployment was 9.1%. At 13.5%, unemployment among non-Austrian LABOUR MARKET nationals was significantly higher than among Austrian nationals (8.1%). Nevertheless, the • Labour market demand should be met pri Austrian labour market continues to depend, to marily from the available supply of domestic varying degrees, on qualified immigrant labour in labour. A shortage of labour can only be partly various fields. This is due, not at least, to the offset through migration. If foreign labour is projected relative shrinkage of the working-age needed to meet demand, intensified efforts population. Without immigration, the working- should be made to attract EU citizens from age population would decrease in numbers from all fields of qualification to the Austrian labour currently 5.7 million to 4.1 million in 2050. market within the framework of internal Although a major part of the current demand migration within the EU. could be met from the existing supply of labour and through additional internal migration from other EU Member States, the Austrian economy also needs immigrant labour from third countries. So far, Austria has neglected to actively position itself internationally as an attractive country of destination for qualified workers by pursuing an appropriate strategy. Other countries have already done so and thereby ensured their attractiveness to qualified labour from abroad. A strategic approach to immigration is also essential for the future of the Austrian welfare state. In view of the demographic developments, the volume and composition of immigrant flows have an important influence on the future bal ance of contributors to and beneficiaries of the 47 05 | Labour and Social Affairs

• The value attributed to high achievers has to WELFARE STATE be reconsidered, especially in those segments of the labour market where bottlenecks exist • Based on the premise that the majority of or are expected to develop. For instance, immigrants coming to Austria will participate Austrian physicians or researchers tend to in the labour market, immigration may con leave Austria, as they expect better living tribute towards safeguarding the welfare conditions and higher salaries abroad. The state. level of remuneration offered should therefore • Any additional contribution to society by immi- be used as an incentive and an instrument of grants (e.g. through voluntary activities) is control. desirable and worthy of support. • Special incentives are necessary to attract • Migration is an increasingly dynamic phe qualified immigration. Provisions of foreign nomenon, and the average length of time nationals law are of secondary importance in people spend in a given country is getting this respect. Austria’s international attractive- shorter. Our social system has to adjust to this ness has to be increased across the board changing migratory behaviour, if migration is (e.g. wage and salary levels, working condi- to generate added value for the welfare state. tions, taxes, promotion of entrepreneurship • To ensure the future functioning of the welfare through start-up facilitation, public and social state, social-policy and labour-market mea security, culture). sures need to be taken, e.g. to foster the • The establishment of strategic training part- integration of persons without employment nerships with certain regions of origin (“model into the labour market. Special incentives for regions”) stimulates the development of the the integration of women into the labour latter and makes it easier for Austria to attract market should be created (e.g. by facilitating qualified immigrants. the reconciliation of work and family respon • Modern one-stop-shop services for potential sibilities). Such measures should target, in immigrants (e.g. electronic filing of applica- particular, female migrants, whose labour tions, comprehensive, multilingual online force participation rate generally tends to be information for all forms of migration) should lower. support, in particular, qualified immigration. • Refugee migration must not be confused with legal migration for work purposes, as this would undermine the integrity of asylum as an instrument of protection and, ultimately, be detrimental to those who are in need of protection. To avoid an additional “pull factor”, the current policy of not granting asylum seekers easier access to the labour market should therefore be maintained. However, voluntary social work may be an appropriate means of integrating asylum seekers into the life of society in the future.

48 SOCIAL COHESION

• Differences between the social and health care systems of Member States of the Europe- an Union that make countries more or less attractive for migrants should be eliminated in the long term. • Individual performance and achievements should receive greater recognition, e.g. through tax incentives for services for the public good. • All people should participate in and contribute to the life of society. Voluntary social engagement by the population in general and migrants in particular should be promoted. • Recognised refugees should contribute to society by doing work for the public good as early as possible.

49 50 HEALTH AND HEALTH CARE

PLEASE OPEN 06 | HEALTH AND HEALTH CARE

Balance sheet Ageing population deficits and benefit adjustments Persons requiring long-term care in 2014: Economically 1.6 mn significant and associated with Demand assessments innovation for health and care are lacking in most Persons requiring provinces long-term care in 2050: 2.7 mn Overburdened hospitals and International outpatient Health utilisation of departments insurance medical care providers in Austria Assessments of demand AUSTRIA’S HEALTH are lacking CARE SYSTEM IS IN 1 A STATE OF TRANSITION More and more persons requiring care Emigration of medical personnel

Demographic changes

Health care for migrants

IMMIGRATION HAS SUBSTANTIAL IMPACTS 2 ON REGIONS OF ORIGIN Asymmetry in funding Emigration (EU) of qualified personnel

Medical tourism due to different levels of Decline of quality in medical the health services and different infrastructure accounting procedures International for invoicing them transfer of know-how

Due to better working conditions and higher in Austria pay in the target regions in the regions of origin

1 In view of demographic developments, of medical personnel. The international 2 Migration also has an impact on health Austria has to prepare for a changed basis utilisation of medical services in Austria care systems in the regions of origin: for its system of health and health care in brings progress in terms of technology, The emigration of qualified personnel order to keep the system successful and infrastructure and personnel and is thus and the associated decline of the medical maintain the welfare state: The percenta- a contributing factor to Austria’s remaining infrastructure in the regions of origin ge of potential contributors to the social a top location for medical services. On the clearly show the necessity for action in security systems is decreasing; in contrast, other hand, Europe-wide asymmetries are the destination regions. the percentage of potential beneficiaries is a factor in creating an unfair distribution increasing. The growing demand for health of burdens and overstretching capacities for care personnel in our ageing society pre- providing traumatised groups with neces- sents a challenge, as does the emigration sary psychiatric and psychological care. Shortages in domestic Group practices with longer medical care should opening hours and provision of be guarded against information, in order to unburden hospital outpatient departments Potential for future qualified personnel in the Austrian labour market should be fully exploited: Preventive health care identification of needed measures measures for migrants, such as better working conditions elimination of language barriers, expansion of health care services for refugees

Top-class medical services Promotion of in Austria office-practice sector

Make professions more attractive Promotion of ENSURING THE office-practice SUSTAINABILITY sector 3 OF THE HEALTH CARE SYSTEM

Demand for health care personnel, can be covered partly by Make Austria more foreign personnel attractive to medical personnel

Nation-wide management of demand

TAKING THE REGIONS OF ORIGIN INTO ACCOUNT Targeted 4 immigration programmes Fairer distribution of funding (EU)

Expansion of capac In combination ities of health care Comprehen- with training part- systems Exchange of sive determi nerships, to gain technical and nation of migrants for health scientific know-how Initiative at demand in and health care European the sector professions level for fair of health and pan-European health care in Austria distribution of in the regions of origin financial burdens

At European level, expansion of capacities of high- 3 The existing challenges in Austria in 4 In the regions of origin, the establish- quality, efficient connection with health and health care ment of high-quality, efficient health health care systems have to be met at several levels. In order care systems has to be promoted, above in the regions to sustainably maintain the general all through EU initiatives, in order to of origin availability of medical services in Austria, counteract brain-drain effects and pre- measures have to be taken to reduce the vent a further decline of the medical burden on hospital outpatient departments infrastructure. and to eliminate Europe-wide asymmetries. The demographic developments in the destination regions underline the demand for well-qualified caregivers and thus the necessity of also filling this need through migration.

06 | HEALTH AND HEALTH CARE

CURRENT SITUATION With respect to health-care and nursing person nel, two trends are becoming visible: There is an The sector of health and health care is currently increasing need, above all, for nursing staff, in a state of transition. The health insurance which can be met in part by employing additional providers have repeatedly recorded balance sheet personnel from other countries. At the same deficits in recent years and are continually ad time, it is observable that qualified personnel, justing their services to meet new challenges. A especially in the medical sector, have been shortage of physicians in rural regions is fore emigrating to other countries where working seeable; hospitals are highly frequented in both conditions are better and salaries are higher. An the outpatient and inpatient settings. In view of increasing number of doctors trained in Austria the demographic situation, Austria, as a welfare have been emigrating to Germany and Switzer state, has to prepare for the fact that the basis for land. If we look at the European Union as a financing its health care systems is changing: the whole, we can expect to have a shortage of one percentage of 15-to-64-year-old potential con to two million personnel in the field of health and tributors to the health care system is decreasing, health care by 2020. Whereas in 2014 there were while the percentage of potential beneficiaries approximately 1.6 million people aged 65 and aged 65 and over is increasing. Migration is an older in Austria, this age group will have in important factor in all these changes. It has the creased in size to about 2.7 million by the year potential to support and stabilise the system as 2050. As a result, the percentage of the popul well as to throw it off balance. Moreover, global ation requiring long-term care will increase and isation and migration are increasingly impacting thus, also, the number of care personnel requi Austria’s health care system. In addition to the red. For Austria as a whole, the prognosis is that transfer of technological and scientific knowl by 2020, the greatest employment growth in edge, the cross-border utilisation of medical absolute figures will be in the health and social services is playing an increasingly important role. care sector. Whether this employment growth This development within the framework of pro will cover the actual demand remains to be seen. gressing globalisation is an important economic It is also expected that the demand for 24-hour factor, but it can also present a major challenge care will increase. Corresponding demand for national health care systems. assessments are only available for a few prov inces. No comprehensive, nation-wide demand assessment is available to date.

Significant changes in the patient sector are foreseeable as well. Given that the first generation of so-called “guest workers” came to Austria in the 1960s and 1970s, the percentage of migrants requiring long-term care is going to increase considerably.

51 06 | Health and Health Care

The adverse working conditions and poor housing a distance between physician and patient, with which these people were confronted for should be used more frequently to this end, decades play a significant role here as well. An always carefully weighing the chances and additional factor is that compared to the rest of risks involved in this new technology. the population, migrants tend to make less use of • Austria’s health care system enjoys a high preventive health care and put their health at risk reputation abroad. This is a good initial posi more frequently. Moreover, they are confronted tion from which to utilise the advantages of with language barriers within the health system globalisation for the health care system in – as in other areas. Immigrants are often subject Austria. The fact that persons from all over the to a triple burden of stress: They have to work at world come to Austria as private patients for jobs that are detrimental to health more often the top-class medical services available here than other people do; as members of a minority is not only an important factor from an group they are victims of discrimination; and economic perspective, but also often gives a additionally, if they are mothers, they are con boost to innovation. This sector should be fronted with the pressure of trying to reconcile further promoted, while at the same time work and family responsibilities. Ultimately, in ensuring that doing so does not result in any view of the high numbers of refugees, shortages scarcity of the medical care services provided in the field of psychiatric and psychological care to the persons covered under Austria’s social will become even more pronounced. In Austria health care system. On the contrary, appropri there are only a very few therapy centres devoted ate measures should be instituted to ensure to refugees, and these are already insufficient to that the Austrian health care system as a cover current needs. whole benefits from this situation and that readily available medical care of equal quality can sustainably be provided to all parts of the STRATEGIC OBJECTIVES population – particularly in view of regional differences, language barriers and poverty ENSURING THE SUSTAINABILITY OF THE risks. HEALTH CARE SYSTEM • Increasing international mobility for the purpose of utilising medical services has • Migrants visit the outpatient departments of brought with it a wide variety of challenges, hospitals instead of office-based physicians both for the target countries and for the more frequently than other members of the countries of origin. Differences in the quality population. Targeted promotion of the of of available medical services, which can fice-practice sector, in particular group sometimes be large, and different accounting practices with longer opening hours (e.g. on procedures for treatments invoiced through evenings and weekends), as well as the provi the European Health Insurance Card, make sion of information to immigrants, should be medical treatments in Austria attractive for intensified Austria-wide, in order to reduce the other EEA citizens and their health care excessive use of hospital outpatient depart providers. This can lead to Europe-wide ments. In addition, the modern field of tele asymmetries in the financing of health care medicine, which, by means of telecommuni systems. Austria should therefore take the cation, enables diagnoses and therapy despite initiative at European level to promote a fair

52 pan-European distribution of the financial care sector. In order to determine the number burdens. As a precondition for achieving this, of (foreign) qualified health-care personnel it will be necessary to make a comprehensive that will be needed in the future, especially in inventory of the individual medical services the field of long-term care, a comprehensive being utilised and the costs that result from compilation of data will be required. The them in public health care institutions. management of demand should be coordinat • An excessive utilisation of medical services ed Austria-wide through cooperation between – especially complex ones – in foreign coun hospital operators, health insurance provid tries can also have negative effects on the ers, the Federation of Austrian Social Security countries from which the patients come, Institutions, the provinces and the responsible including, for example, the emigration of federal ministries. qualified personnel (brain drain) and the • Recognition procedures for certifications decline of infrastructure. Austria, as a target acquired abroad should be accelerated, while country, should fulfil its global responsibility maintaining full compliance with accredited by urging, at European level, that the capa professional standards, since this will facili cities of health care systems in the regions of tate the immigration of qualified personnel. origin be expanded to make them high-quality • Targeted immigration programmes, in combi and efficient. nation with training partnerships in countries of origin, may help to motivate immigrants to ENSURING SUFFICIENT HEALTH-CARE engage in health-care and nursing professions AND NURSING PERSONNEL and at the same time prevent Austrian training standards from being undermined. Combined • The potential for future qualified personnel, with the targeted promotion of forms of circu- such as qualified nurses, in the Austrian lar migration, such immigration programmes labour market should be fully exploited. may also prevent brain drain in the countries Comprehensive measures, including better of origin. working conditions and higher wages, should be taken to enhance the attractiveness of professions in the health care and nursing sector, so that more Austrians as well as migrants already living in Austria will be motivated to enter these professions. • Measures are to be taken to counteract the emigration of persons who have completed studies in medicine. This is necessary not only so that Austria can benefit from its invest ments in the provision of medical training and qualifications, but also in order to guard against a potential shortage of doctors in rural areas and conurbations. • Personnel from foreign countries will still be needed to meet the shortage in the health

53 06 | Health and Health Care

• The quality of care can be enhanced if caregivers have a good command of the native languages of migrants requiring care. Migra- tion background and multilingualism should therefore be recognised as added value in nursing staff and utilised correspondingly.

HEALTH PROMOTION

• Deficits on the part of migrants in taking advantage of preventive health care measures must be countered by targeted information campaigns. Language barriers that prevent immigrants from making rapid use of the health care system in cases of illness should be overcome. At the same time, new im migrants should be encouraged to learn the German language on their own initiative. • Persons who have been confronted with traumatic experiences, be it because they have come from war regions or because they were the victims of rape or female genital mutilation, need special attention. Given the rising number of applications for asylum, capacities for psychiatric and psychological care are to be expanded.

54 POLITICAL SYSTEM AND MEDIA

PLEASE OPEN 07 | POLITICAL SYSTEM AND MEDIA

THE POLITICAL SYSTEM CREATES THE CONDITIONS FOR PEOPLE TO

1 LEAD SELF-DETERMINED LIVES

I T

M O C

D N A N I O T CA SA DU Y Y , E ES TO VALUES

Values and rules for harmonious social interactions and a stable political system

COMMUNICATING VALUES AND RULES FOR SOCIETY 2 AS A WHOLE

Using new forms of communication to strengthen the credibility of political Values for Teaching values actors and the media society as prior to a whole immigration

1 The political system in Austria has to create 3 Education is the prerequisite for a func- 4 Policy makers and the media need to the appropriate environment for people to tioning democracy and for participation strengthen their credibility. The use of feel secure and lead self-determined lives. in society. Civic instruction should be new communication channels can be This is a challenge for society as a whole. introduced at all types of schools at all helpful in this respect. Well-balanced, levels, in apprenticeship training, as well matter-of-fact reporting is particularly 2 A stable political system needs values and as in training for military, alternative and important. This includes informing rules as a basis for people to live together voluntary service, as a means of fostering potential migrants in their countries of in harmony. The many-faceted identities peaceful co-existence and preventing origin about opportunities and risks in of migrants in terms of origin, religion, radicalisation. At the same time, the media Austria. In particular, discussions in the gender, age or sexual orientation are to be should assume their societal and political social media should be toned down. Hate welcomed. In a society characterised by a responsibility more fully. speech and other punishable acts must great diversity of identities, shared values be subject to effective sanctions. and basic rules are particularly important for social cohesion. Migrants should be made aware of the values upon which life in our society is based before they come to Austria. CIVIC INSTRUCTION AS A PREREQUISITE FOR A 3 FUNCTIONING DEMOCRACY

Civic instruction and Measures media studies in all types to promote of schools at all levels an inclusive society

Education for all: Media must be the key to societal and more aware of political participation their societal and political responsibility

Preventing Understanding radicalisation complex trends interactions

EXTENSIVE COMMUNICATION AS A PREREQUISITE FOR THE CREDIBILITY 4 OF POLITICAL ACTORS AND THE MEDIA

Realistic and balanced Direct interaction reporting on via the migration issues Internet

Using new forms of communication to strengthen the credibility of political actors and the media

Emphasis on credible and reliable information

Information for potential migrants in the countries Toning down of origin on opportunities the debate and risks in Austria

07 | POLITICAL SYSTEM AND MEDIA

CURRENT SITUATION The massive migration movements that started in September 2015 have therefore confronted the As a policy area that overlaps and interacts with political system and the media with enormous numerous other fields, migration presents a additional challenges. Incidents such as those on many-faceted challenge for the political system New Year’s Eve in Cologne, as well as the in and the media. The management of migration creasing frequency of manifestations of hostility demands a holistic and proactive approach. A to foreigners, have given rise to a feeling of variety of topics, such as housing, the labour insecurity among the population. They have had market, language, education, social issues, a polarising effect and have conveyed a negative values, and security, have to be taken into con image of migration. Moreover, unresolved prob- sideration. Migrants often have several points of lems of integration stemming from earlier waves reference that determine their identity, and they of immigration also have to be taken into ac- continue to be more or less strongly connected count. with their regions of origin, e.g. through remittances to their home countries. Migrants arrive In this situation, unprecedented challenges are with a range of linguistic and cultural skills that arising for the state and for society as a whole. may be enriching for the host society; at the Social peace and social cohesion in Austria and same time, they often find it difficult to adjust to Europe are at stake. In this context, the confi life in a new environment. Even people who have dence people place in policy makers and the been in Austria for some time have problems media is of special importance. However, against accepting attitudes and behavioural patterns the background of temporarily uncontrolled different from their own. Numerous challenges migration, confidence in the political system and have to be addressed by policy-makers and the traditional media reporting has been shaken. media if migration is to generate added value for This is reflected in political developments in a society as a whole. number of European countries as well as in the voicing of dissatisfaction and anger through In Austria and the EU, the fundamental rights and various channels, including social media. Thus, freedoms due to everyone open up the chance for the challenges for politics and the media that people to lead self-determined, successful lives. existed long before the most recent migration Respect for the rights held by others is a prere- crisis have been further aggravated. quisite for all members of society to live together in peace and harmony. The Austrian political Policy makers, including those at European level, culture is characterised by democracy and the have so far failed to devise comprehensive, pro- rule of law. Based on the system of social part- active approaches to migration that take all rele- nership, consensus is sought as a way of balanc vant issues into consideration. The debate is of- ing conflicting interests. People who have never ten reduced to topics such as labour migration or lived in a functioning democracy first need to asylum. The impact of migration on the social learn how a free society works. system or the values and security of free socie-

55 07 | Political System and Media

ties takes second place, unless problems arise in Today, modern communication, e.g. via social this context. In selecting immigrants or persons media, has the potential to influence migration in need of protection for resettlement pro more strongly than in the past. This is confirmed grammes, too little attention is paid to whether by the course of events leading up to the biggest the individuals concerned are willing to live by refugee and migration movement since the the rules of a free society and integrate them Second World War. However, the possibilities of selves accordingly. It is due, not least, to the modern communication were also illustrated by limited scope of the political discourse that an Austrian information campaign in Kosovo in migration is perceived as a problem rather than 2015, when advertisements were placed in local as an opportunity and is therefore discussed in media and the message was communicated in a controversial and highly emotional manner. cooperation with political actors of the country of origin. The campaign resulted in a noticeable This approach is reflected in the media coverage reduction in the number of asylum applications of migration issues. In their response to a partic filed by Kosovar nationals in Austria. ular event, the media tend to either present migration as a problem or overemphasise its positive aspects. There is a lack of purely factual STRATEGIC OBJECTIVES and balanced reporting. Moreover, migrants themselves rarely feature as actors in media VALUES AND RULES FOR HARMONIOUS reports. Thus, the media present a one-sided SOCIAL INTERACTIONS AND A STABLE and distorted image of reality. The “community POLITICAL SYSTEM media” contribute to this situation, as they primarily target “their” communities and do not • Recognition of the different and many-faceted sufficiently cover other developments in the host identities of migrants is as important as a society. The influence of media in the countries of body of shared values and rules for the benefit origin of the migrants should not be underesti- of all people living in Austria – regardless of mated either, as they tend to present an idealised origin, religion, gender, age or sexual orienta- view of emigration and take a largely positive tion. The political system has to provide the view in their reporting. necessary framework. This requires contributions from all levels of government – federal, Altogether, the media in Austria and in relevant provincial and local – as well as from society countries of origin fail to present a true and fair as a whole. The social partners, the media, the view of the reality of migration. This has a nega religious communities and academia have a tive impact on people’s trust and interest in special responsibility in this respect. media reports. Instead of relying on traditional media, many people believe what they read in contributions to social media that better reflect their own expectations and attitudes. Criteria such as quality, balance and objectivity are hardly taken into account at all.

56 • The Universal Declaration of Human Rights, CIVIC INSTRUCTION AS A PREREQUISITE the European Convention on Human Rights, FOR A LIVING, FUNCTIONING DEMOCRACY the fundamental values enshrined in the Treaty on European Union, the EU Charter of • Education in general should be understood Fundamental Rights, and the fundamental and used as the key to enlightened participa rights deriving from the Austrian Constitution tion in social and political life. Education should be referred to for guidance and orien- enables people to understand complex tation. The fundamental freedoms resulting relationships and to orient themselves accord from them, which allow people to lead self- ingly, rather than rushing to adopt simplistic determined, successful lives, provide a set of solutions. Ultimately, education also helps to rules for respectful and harmonious co-exis- prevent radicalisation. tence. These rules have to be communicated • Civic instruction for all should therefore be as early as possible in the migration process regarded as a means to facilitate harmonious and enforced in appropriate form in daily life. co-existence. It should serve the objective of • Modelled on the principle that requires im- promoting an inclusive society in which indi migrants to learn German before they come to viduals with different outlooks on life can and Austria, the principle of value guidance prior will participate in the interest of the common to immigration should be introduced. People good. who migrate to Austria or are granted protec- • Civic instruction and media studies should tion via a resettlement programme should be therefore be included or expanded at all levels obliged to attend courses that teach these of education, in all educational institutions as values. In selecting immigrants for resettle- well as in apprenticeship training, alternative ment programmes, their willingness to inte service, and the training of recruits for military grate into a free society should be taken into service. Migrants who were socialised in soci- account. eties with values other than our own should • Intensified efforts to communicate values and be given special attention as a group to be fundamental rules should target all members engaged in dialogue. of society, starting in a playful manner at pre-school level, in order to promote function ing social interactions and prevent xenopho- bia. Migrants are to be especially engaged in dialogue.

57 07 | Political System and Media

COMMUNICATION AS A PREREQUISITE • By exercising their control functions, institu- FOR THE CREDIBILITY OF POLITICS AND tions such as the Press Council and the Fed- THE MEDIA eral Communications Senate should contrib ute to fact-based and well-balanced reporting. • To strengthen the credibility of politics and the • Information campaigns in the countries of media, new forms of communication should origin should inform potential migrants about be used more intensively. The Internet offers Austria as a potential country of destination. special possibilities of direct interaction via In this context, greater attention should be social media. The arguments and anxieties paid to communication via social media. voiced should be countered in a manner that Migrants living in Austria should be involved in is easy to understand and based on facts. the dissemination of information, as they enjoy Ultimately, this can help to further develop a high degree of credibility with their compa the culture of political discourse. Based on triots in the countries of origin. an appropriate legal framework, all Austrian media should be allowed to exercise their journalistic activities in the social media without restriction. This trend is to be sup ported. • As a matter of principle, media reports on migration issues should be well-balanced and based on reality, thus contributing proactively to a better understanding of migration in society and conflict-free social interactions. To this end, the topic of migration should be appropriately reflected in the public-service mandate of the Austrian Broadcasting Corpo- ration and in all other legislation concerning the media in Austria (e.g. the Private Radio Act). • Community media should be encouraged to devote greater attention to issues of the host society. • Government support for the media could be strategically targeted in order to promote fact-based and well-balanced reporting and to encourage the media to offer special programmes for newly arrived migrants (e.g. subtitles in other languages). • More information on migration issues, incor- porating the expertise of public authorities, should be provided for journalists.

58 PUBLIC SECURITY AND STATE INSTITUTIONS

PLEASE OPEN 08 | PUBLIC SECURITY AND STATE INSTITUTIONS

T RIA – NAT ION AL AU S LE VEL

EUROPEAN LEVEL

GENEVA CONVENTION IN THE CONTEXT OF 1 GLOBAL MIGRATION

EU Member States Associated non-EU countries 1954 2016 EU partial application of Schengen Brexit Secure external borders

EU SAFETY ZONES ON THE PERIPHERY OF 2 CONFLICT REGIONS

SECURE EXTERNAL 3 BORDERS OF THE EU

GB IE GR SL LV LT RO HU SK EU-WIDE STANDARDI CZ SE BG NL SATION IN THE FIELD ES EE DE PL OF MIGRATION DK HR 4 FI AND ASYLUM 5 MT CY IT BE AT ACCEPTANCE BY PT FR LU THE POPULATION

EU Migration Codex Common external Harmonised border protection procedures

1 The Geneva Convention of 1951 (entered 3 Given that the EU’s internal borders are into force in 1954) is to be interpreted in open, its external borders have to be the context of global migration. protected. The protection of the external borders should, in the long term, be carried 2 Possibilities need to be created for persons out by EU institutions. particularly in need of protection to enter the country legally via EU safety zones in 4 At European level, there is a need for har- or on the periphery of conflict regions, with monisation and standardisation of the EU the cooperation of the UNHCR. legislation on migration and asylum (an EU Migration Codex), the establishment of EU authorities, and standardised procedures for external border protection and asylum. T RIA – NAT ION AL AU S LE VEL

EUROPEAN LEVEL

Asylum Basic welfare Foreign nationals Settlement Employment of Foreign nationals Granting of support police and residence foreign nationals law procedures citizenship

Associated non-EU countries EU partial application of Schengen Brexit AUSTRIAN CODE Secure external borders 6 OF MIGRATION LAW

RESPONSIBILITY OF 7 SOCIETY AS A WHOLE 5 ACCEPTANCE BY THE POPULATION STRENGTHENING AND UNBURDENING OF POLICE 8 IN THE FIELD OF MIGRATION

Greater Enhancement of Further Fewer administrative personnel infrastructure training duties resources

5 Migration policy is an undertaking that 7 Emphasis on the responsibility of society 8 In view of the existing challenges, the involves all of society and requires broad as a whole: in addition to immigration and police must be strengthened in terms of acceptance by the population – at national security authorities, all stakeholders of the personnel and infrastructure. In addition, and European level. state and civil society have to contribute. the police must be relieved of adminis trative duties in the field of immigration in 6 Simplification, clarification and systemati- order to have sufficient capacities to carry sation of Austria’s entire body of foreign out its core functions. nationals legislation through the introduc tion of an Austrian code of migration law.

08 | PUBLIC SECURITY AND STATE INSTITUTIONS

CURRENT SITUATION area. It is also observable that Austria’s burden in terms of the reception of asylum seekers is Migration, when utilised for the benefit of society, extremely high in comparison with other EU contributes to the demographic stability and countries. In 2015, 10.3 asylum applications per socio-economic prosperity of the host society. 1000 inhabitants were submitted in Austria, These are important societal factors for public ranking Austria fourth in an EU comparison. security. Altogether, 88,160 applications for asylum were submitted in Austria in 2015; this equalled the However, migration can also – e.g., if there is a total of all such applications submitted in the 18 high level of immigration within a short period least affected Member States. of time – present a major challenge for public security and the stability of state institutions. Austria’s foreign nationals law comprises a highly Even economically strong states can be pushed complex body of regulations. These include, in to the limits of their capacities by migration. addition to the high number of content-related Maintaining social peace is a core responsibility federal regulations (Asylum Act [Asylgesetz], of state politics. Public security and well-func Federal Office for Immigration and Asylum tioning state institutions are major prerequisites Procedure Act [BFA-Verfahrensgesetz], Basic for social peace. Thus, public security is not an Welfare Support Agreement [Grundversorgungs- end in itself, but, rather, serves the common vereinbarung], Federal Basic Welfare Support Act good. Moreover, it must be borne in mind that [Grundversorgungsgesetz Bund], Foreign Natio- security is extensively affected by such factors nals Police Act [Fremdenpolizeigesetz], Settle- as the labour market situation, the state of the ment and Residence Act [Niederlassungs- und economy, social cohesion and social structures. Aufenthaltsgesetz], Act Governing the Employ- ment of Foreign Nationals [Ausländerbeschäfti- At the pan-European level, there are structural gungsgesetz], Austrian Citizenship Act [Staats- deficits in the functioning of foreign nationals bürgerschaftsgesetz], and innumerable policy, asylum policy and migration policy: ordinances), far-reaching provisions under Neither in legal nor in organisational terms international law and European law, as well as have the Member States put the institutions of an extensive body of case law from Austria’s the European Union in a position to accomplish supreme courts, the Court of Justice of the the task – which should, by nature, be pan- European Union and the European Court of European, in accordance with the logic of the Human Rights. Schengen system as well as the principle of subsidiarity – of managing these three related policies. These pan-European deficits are placing an increasingly excessive burden on Austria’s immigration and asylum authorities as well as on its security authorities. This is due to the fact that these authorities are having to partly replace Schengen border security functions by securing Austria’s internal borders within the Schengen

59 08 | Public Security and State Institutions

Instances of inefficiencies in the implementation Parts of the host societies in the European re- of immigration law are also observable. For gions of destination of present-day (mass) migra- example, in some areas, such as the immigration tion are at risk of succumbing to polarisation, of key workers or development cooperation, extremism and radicalisation. International overlapping jurisdictions hinder the further Islamist terrorism is endangering Austria and development of existing legal instruments Europe. Radical movements are abusing religion and / or a coordinated approach. Even though the to ensnare and exploit people for terrorist pur responsible Austrian authorities are functionally poses. At the same time, a lack of perspective equipped with the administrative resources to is a breeding ground for criminality. Young, handle immigration in the extent expected on a unemployed men, in particular, are susceptible long-term basis, the current flood of refugee to crime and radicalisation. immigrants – more than ten times as many as the long-term average – is causing a work over- Turmoil and upheavals in certain regions of the load. Moreover, the complex system of immigra- world are endangering stability and security in tion and asylum requires considerable human Austria and in Europe. Irregular migration to and and material resources in the police sector. The through Europe is causing great human suffering result is that core functions of the police in the on the part of those involved and engendering maintenance of public security and in law en- growing concern among the population. More forcement can no longer be accomplished to the over, it is not in line with the original objectives of required extent. the Geneva Convention Relating to the Status of Refugees, which was adopted in 1951 and en Governmental management of migration is a tered into force in 1954. The persons who drafted nation-wide undertaking and must be accompa- the Convention in 1951 and further developed it nied by basic acceptance from Austrian society as in the Protocol of 1967 could foresee neither a whole. Accomplishing it requires a much higher the possibilities for mobility nor the methods of degree of cooperation than is currently provided communication that are available in the present for and practised. The refugee crisis in the au- day, and thus could not envision the dangers of tumn of 2015, in particular, showed that excep organised transcontinental human trafficking. tionally big challenges can only be met through close cooperation between representatives of the state and organisations of civil society. Against the background of Austria’s federal structure, defining and coordinating domestic policy on migration and asylum represents an “cross cutting” task.

60 STRATEGIC OBJECTIVES • The national character of migration and asylum policy has to be taken fully into account at LEGAL FRAMEWORK AND DOMESTIC federal level through cooperation between all COOPERATION relevant ministries (particularly in the fields of the economy, labour and social affairs, educa- • At European level, there is a need for further tion, foreign affairs and internal affairs). As- harmonisation and standardisation of the pects of migration and asylum policy have to legislation on migration and asylum, taking be integrated into the policies of all depart- account of the principle of subsidiarity. It is ments concerned – as well as into their also necessary to end the current situation budgets. of fragmentation by introducing a collection • In the public interest, the state, the provinces of Directives and Regulations (a European and the municipalities should strengthen their Migration Codex), as well as to establish formal and informal cooperation. More use common European civil service structures so should be made of existing legal instruments that implementation practices will not differ of the “cooperative federal state”, including, from one Member State to another. for instance, agreements between the federal • At national level, the legal framework needs to government and the provinces on specific be simplified, clarified and systematised, the matters within their respective remits. In object being an Austrian code of migration law order to enhance effectiveness, an adequate that regulates all areas of immigration and sanctioning mechanism should be instituted. asylum law (asylum, basic welfare support, Wherever necessary, supplementary provi foreign nationals police, settlement and re- sions at national level should be laid down. sidence legislation, legislation on the employ- • It is undisputed that migration presents a ment of foreign nationals, the granting of challenge to the host society but at the same citizenship, and procedural law provisions). time also brings potential benefits. In order to The strengthening of specific federal compe- deal with migration successfully, country-wide tences where required has proven its worth efforts have to be made. The immigration and in times of massive migration to Austria. This security authorities directly responsible can- strategy should enable Austria to meet its not be expected to shoulder the entire burden. national responsibility to provide safe and All departments of the federal, provincial and decent accommodations for refugees quickly municipal governments as well as institutions and comprehensively in the future as well. of civil society will have to make their respective contributions, in a spirit of national soli darity. • The state and civil society have to cooperate so that the country as a whole can cope with the phenomenon of migration. Existing coopera tion between state institutions and civil society is to be continued and, where needed, intensified.

61 08 | Public Security and State Institutions

PUBLIC SECURITY AND ENFORCEMENT • The right to asylum is a defining feature of a OF FOREIGN NATIONALS LEGISLATION liberal, democratic society under the rule of law. Persons who are particularly in need of • The state institutions responsible for main- protection have to be helped. Asylum pro taining public security and enforcing foreign ceedings should be shortened so that eligible nationals legislation are to be strengthened. individuals can be identified more quickly. A Measures to enhance the personnel situation consistent return policy with respect to those and improve infrastructure are to be taken individuals who do not require such protection wherever the need is greatest (the law en- is an indispensable prerequisite for a func forcement resources of the federal police, the tioning and credible asylum policy. Therefore, Federal Office for Immigration and Asylum). an effective return system that functions Additional further training courses should be irrespective of the arbitrariness of certain made available to persons who are on duty at individual states (e.g. emergency travel certifi- the country’s hot spots. cate) is needed. • Particular challenges and job-related burdens should be mitigated through a special system DERADICALISATION AND of incentives. Personnel who have to deal with DEMOGRAPHIC BALANCE politically controversial matters at hot spots should benefit from higher remuneration. • Comprehensive measures are to be taken in • Sustainable measures to relieve the police of the area of deradicalisation and prevention. administrative duties are required immedi • The demographic overabundance of male ately in all areas, above all in terms of the persons that is associated with certain forms complex body of foreign nationals-law regula- of migration (e.g. asylum seeking) is to be tions. Irrespective of the comprehensive taken into account with a view to societal jurisdiction of the federal police as a law balance. New arrivals who have a high proba- enforcement body, it is necessary to reinforce bility of being allowed to remain in Austria teams of foreign nationals-law experts. This need to be given a perspective and a struc will require the hiring of more police person- tured set of meaningful daily activities (e.g. nel. in the form of training or work for the public • Given that the internal borders within the EU good). are open, the EU’s external borders have to be • The question of how to deal with immigrants secured. The protection of the EU’s external or asylum seekers convicted of a crime – in borders should, in the long term, be carried Austria, in any case – is to be given higher out by EU institutions. importance in individual immigration (as well as asylum) proceedings.

62 REGIONS OF ORIGIN

• A centrally controlled policy of development cooperation is needed. Political and economic cooperation (establishment and expansion of infrastructures, institutions of health and education, etc.) should be pursued first and foremost with third countries on which Eu rope’s security is dependent. • Transcontinental irregular migration entails many dangers to the lives and physical safety of those involved. In order to curtail such activities and further develop the “Save Lives Initiative” presented by Austria at EU level, possibilities should be created for submitting asylum applications directly to a European institution and / or the United Nations High Commissioner for Refugees (UNHCR) in specially established safety zones, to be set up in or as close as possible to the conflict regions. This corresponds to the goal of the Geneva Convention, which is to protect refugees – but not to promote transcontinental migration flows that, for most of those in volved, are associated with dangers to life and limb.

63 64 PERSPECTIVES OF MIGRATION IN THE REGIONS OF ORIGIN

PLEASE OPEN 09 | PERSPECTIVES OF MIGRATION IN THE REGIONS OF ORIGIN

MIGRATION HAS POSITIVE AND NEGATIVE EFFECTS ON 1 THE REGIONS OF ORIGIN

Remittances can be used to LONG-TERM MEASURES TO DEVELOP support social and DEMOCRACY AND STRENGTHEN education systems 2 POLITICAL STABILITY

Returnees influence economic, Transfer of political, technological and economic and societal development technical know-how

Emigration can improve demographics

Comprehensive Development development policy cooperation to with long-term strengthen perspectives ENCOURAGE MEANINGFUL civil society and effects CIRCULAR MIGRATION IN VIEW OF ITS POSITIVE Meaningful circular EFFECTS mobility generates positive networking effects

Involvement of regions of origin in European migration policy, establishment of a functioning public Returnees can administration on site strengthen democracy

1 Migration has a considerable impact not 2 A successful migration policy has to 3 Austria can contribute to the economic only on the countries of destination, but involve all areas of government activity. development, the system of education and also on the regions of origin. Destination This applies, in particular, to political and the dissemination of factual information in countries as well as countries of origin are economic cooperation with the regions of the regions of origin in a number of ways. subject to both positive and negative effects origin. The countries of origin should be Circular migration is the most effective of migration. involved in migration-policy initiatives to a form of development cooperation. In par greater extent. Aligned with the objectives ticular, the return of well-trained experts in of circular migration, this would promote law, the social sciences and the humanities the transfer of political, economic and would be helpful for the establishment of technological know-how and, at the same functioning structures in the regions of time, open up new investment opportunities origin. However, living conditions in the for Austria. regions of origin can improve only if people in the destination countries become aware of their individual responsibility and adopt sustainable consumption patterns. AUSTRIA’S ROLE IN INFORMATION Improvement of POLICY AND IN PROMOTING employment conditions on site 3 ECONOMIC DEVELOPMENT ON SITE

Effective monitoring Creating incentives for trained and earmarking migrants to return to their home countries of funds

Emigration waves Stimulating Creating conditions Providing Realistic assess- lead to loss of economic devel for targeted information ment of destination qualified workers opment on site investment support on site countries

Openly address dangers and Raising awareness impacts for own Remittances can responsibility create dependence Target group:

Regions of origin Migrants Sustainable consumption and mobility patterns Host society Increased vulnerability of children, women and elderly people left behind

AUSTRIA‘S ROLE IN STRENGTHENING HUMAN RIGHTS AND PRESERVING HUMAN 4 DIGNITY IN THE REGIONS OF ORIGIN

Transcontinental networks favour organised crime Counteract long-term Create perspectives negative family and and underline importance psycho-social effects of education

Education chosen exclusively or primarily with a view to emigration Programmes Increased cooperation with to raise awareness governments and educational Target group: for the impact of and research institutions migration on Regions of origin local society Migrants Host society 4 Austria can also make an important contribution to the strengthening of human rights and the preservation of human Use influence to Information on criminal dignity in the regions of origin. At Euro- communicate values activities in connection with pean level, Austria should urge the EU to irregular migration bring its political and economic influence to bear in order to strengthen the rights of women, children, the elderly and members of minorities in the regions of origin. However, measures have to be taken not only in the regions of origin, but also in Combat human rights Combat people the destination countries: it is essential abuses and strengthen smuggling and that everyone be made aware of the fact vulnerable groups human trafficking that people smuggling is a serious crime.

Raise awareness in destination countries that people smuggling is a crime

09 | PERSPECTIVES OF MIGRATION IN THE REGIONS OF ORIGIN

CURRENT SITUATION The impacts of migration on the regions of origin may be positive as well as negative – as is the Another factor to be considered in devising mi- case in the regions of destination. The positive gration policies is the extremely heterogeneous effects include the following: situation in the regions of origin. Migration has a substantial impact not only on the countries of • Migrants returning from democratic countries destination, but also, often to a high extent, on can trigger or support democratisation pro- the regions of origin. These include the candi cesses in their countries of origin. They tend dates for accession to the European Union, to advocate more political rights and political primarily in South-Eastern Europe, other Euro participation. pean states, such as Ukraine or Russia, the • Emigration can ease the burden of a critical Middle East, North Africa, the rest of the African demographic development and relieve the continent (Sub-Saharan Africa), South Asia and pressure on the labour market in the regions South-East Asia. Differences in instruments of of origin. migration policy as well as the relationships • The return of migrants can contribute to between migration policy and development positive economic development, foster techno- policy, foreign-trade policy and foreign policy also logical progress and lead to an expansion of have to be taken into consideration at Austrian, the structures of the state and civil society. European and global levels. • The fact that many young people regard education as a chance to emigrate in the Given the emergence of migration networks, future, but then do not emigrate after all, can combined with easier access to information about have a favourable impact on human capital migration routes and countries of destination, formation in their countries of origin. even people with small financial resources can • In our globalised world, circular mobility now afford to emigrate. In other words: the more between the regions of origin and destination migration, the higher the level of information in creates positive network effects. This results the regions of origin; and the higher the level of in intensified economic relations (trade, for- information in the regions of origin, the lower the eign direct investments) as well as know-how costs of migration. This, in turn, results in more transfer, and has an influence on institutional migration. and administrative developments. • Remittances by migrants to their regions of origin are particularly important. The positive effects of remittances are most pronounced in countries that have neither a functioning social system nor a functioning system of education.

65 09 | Perspectives of Migration in the Regions of Origin

At the same time, however, various negative • In certain regions of origin, people choose a factors and effects can be observed at national particular course of education or a specific and global political, economic and socio-cultural occupation for themselves or their children levels: with a view to the associated chances of migration. This can lead to a one-sided orien- • Massive and unforeseeable waves of emigra tation of the education policies of the coun- tion can contribute to a significant “brain tries of origin. drain” (loss of qualified people needed to • Organised crime, such as trafficking in human maintain a country’s economic and innovative beings and drug trafficking, tends to thrive strength and in its public administration). This under the conditions of international migrati- can foster bad governance and corruption. on and take advantage of its networks. In • Remittances are often used to finance addition, the political elites in the countries of consumption rather than sustainable develop- origin often have no interest in counteracting ments. Moreover, the regions of origin are at emigration trends among their own popula risk of becoming dependent on the flow of tion. They see the short-term advantages remittances, and the gap between rich and associated with emigration (such as remit poor can keep growing. tances) and are aware of the fact that emi • Migration has an impact on family structures grants tend to have a higher level of education in the regions of origin. Children and the and therefore side with oppositional forces. elderly suffer most from being separated from their family members, and this may have The industrialised countries and their service serious psycho-social consequences. These societies have a heavy responsibility to bear, not can lead to crime and violence in the regions only with a view to migration. The exploitation of of origin, and even result in a rise in child natural resources, climate change caused by labour in certain cases. In some regions of environmental pollution and, not least, consump- origin, the emigration of men increases the tion patterns in the highly developed states have vulnerability of the women and children left a strong impact on the regions of origin, which in behind, as their social status and incomes turn leads to migration. Measures taken in the decline. fields of development policy, economic policy, security policy and foreign policy, ideally to be coordinated at European level, could have a positive long-term effect on the regions of origin. Public-relations work focusing on cooperation in the areas of development policy and security policy as well as on economic cooperation plays an important role in this context.

66 STRATEGIC OBJECTIVES • Migration policy should not focus exclusively on the advantages for the region of destina DEMOCRACY, POLITICAL STABILITY tion, but also take the interests of the regions AND PUBLIC ADMINISTRATION of origin into account. The European Union should involve the regions of origin more • A successful migration policy requires a com- strongly in its migration policy. Education, prehensive approach. Migration is an issue training and institution building must be given that needs to be taken into consideration in absolute priority in European and international every policy area. All too often, the pursuit of migration policies. Austria should take the short-term economic advantages takes prece- initiative in setting in motion the elaboration dence over medium- and long-term conside- of a European or international concept aimed rations (e.g. regarding the development po- at empowering migrants to participate in the tential of certain regions of origin and the establishment of a system of good gover implications of migration flows). Austria nance. should therefore pursue a centrally coordi • The countries of origin should be involved nated development policy that takes a long- more strongly in the design and implementa term perspective and considers all economic tion of migration-policy initiatives, especially and political implications. with a view to skilled labour migration. This • Given their positive effects, models of circular would ensure that the regions of origin can migration should be promoted. benefit from the transfer of political, economic • Many migrants leave their home countries and technological know-how. Cooperation because they have no or not enough possibili- along these lines could open up new invest- ties of democratic participation. Within the ment opportunities for Austria. framework of development cooperation, efforts should therefore be made at internation ECONOMIC DEVELOPMENT, EDUCATION al and European level to strengthen civil AND INFORMATION POLICY society. • International organisations, the community of • Remittances can help to improve individual states and, in particular, the European Union living conditions and support the stabilisation have to actively work on the prevention, de- and sustainable growth of the economy, escalation and termination of conflicts. Bene- provided they are used to finance entrepre- fiting from its long history of relations with neurship and investments in education and certain regions, Austria should bring its training. Therefore, development-policy political and economic weight to bear. Based incentives are needed to create the conditions on the strength of long-standing ties, even a for targeted investments in the regions of relatively small country can change things for origin. the better.

67 09 | Perspectives of Migration in the Regions of Origin

• Efforts must be made to ensure that the funds • Migration flows are indirectly influenced by made available are used for the benefit of the each and every one of us. International activi- social and economic advancement of large ties of business and industry and the resulting parts of the population. Effective monitoring environmental degradation in all parts of the of the use of earmarked funds is necessary. world, as well as patterns of individual con- • Providing training for migrants who, upon sumption and mobility in our industrial and completion of their training, return to their service societies, may, as a whole, have a home countries is the most effective and strong impact on the economic situation and sustainable form of development cooperation. living conditions in the regions of origin and, The regions of origin require not only technical consequently, on migration trends. Even and scientific personnel. Expertise in the though as individuals we may feel that this is fields of law, economics, the humanities and beyond our control, it can make a difference the social sciences is equally important for if many people choose to act sustainably and a comprehensive, sustainable development. become aware of their responsibility vis-à-vis New models of circular migration, coordinated the regions of origin. with the countries of origin, might create the necessary incentives. HUMAN RIGHTS AND HUMAN DIGNITY • Brain-waste and brain-drain effects can be reduced through better policies in the sectors • European and Austrian foreign and migration of the labour market, information and educa policies should pursue the goal of not allowing tion, both in the regions of origin and in the migration to destroy family and social struc destination countries. Here, too, a pan-Euro tures in the regions of origin. The negative pean initiative aimed at developing joint long-term psycho-social effects suffered by projects is required. children whose parents emigrate should be • Communication is an essential element of counteracted through programmes in the migration policy. People take their decisions regions of origin. Austria should initiate on the basis of the information available. awareness-raising projects at European level. Information targeting the regions of origin can help to correct misconceptions about the destination countries and enables potential migrants to take informed decisions based on a realistic assessment of the situation. The hazards associated with irregular transcontinental migration should be discussed openly in the regions of origin.

68 • Poorly educated themselves, many people in • In order to reduce the flow of refugee migrati- the regions of origin feel that education alone on and the associated dangers to life and limb, does not offer their children positive future the European Union has to use its political and prospects and therefore opt for emigration. economic influence to strengthen the rights of To counteract this trend, the value attributed women, children, the elderly and the various to education should be emphasised in the minorities in the regions of origin. The Euro- regions of origin. Austria should propose pean Union should make involvement of the European initiatives aimed at intensifying countries of origin in the strengthening of cooperation with governments, civil societies, minority rights and the fight against human and institutions of education and research in rights abuses a prerequisite for participation the regions of origin and destination. in development programmes. Here, too, a • In cooperation with the governments of the policy of incentives, e.g. through offers of countries of origin, the European Union and cooperation to promote education in the Austria have to fight against smuggling of regions of origin, would be appropriate. migrants and human trafficking in the regions of origin at all political, diplomatic and technical levels. This is the only way to prevent the financial exploitation and the loss of lives of migrants who become involved with people smugglers, as well as other consequences of irregular migrations, such as the exploitation of women and children through forced prosti- tution and slave labour. These forms of crime should be raised as an issue in educational institutions in the regions of origin. In the destination countries, attention should be drawn to people smuggling as a crime against human dignity in order to prevent its trivialisa- tion.

69 70 CONFIGURATION OF THE MIGRATION SYSTEM IN AUSTRIA

PLEASE OPEN 10 | CONFIGURATION OF THE MIGRATION SYSTEM IN AUSTRIA Diversity

Demographics

Global responsibility LEGAL MIGRATION STRENGTHENS AUSTRIA 2 AS A LOCATION OF BUSINESS AND INDUSTRY

Public security and state Legal immigration as an opportunity institutions to strengthen Austria as a location of industry and research

Labour and social affairs Meeting demand Public-relations Enhance Austria’s Correct asymmetries for skilled labour in work targeting attractiveness of education, social mid-qualification range potential immigrants for highly qualified and health-care immigrants systems in Europe

RESETTLEMENT Create possibilities of legal entry 3 for the most vulnerable people coming from crisis regions

Fair distribution of persons in need of international protection – Entitlements to social benefits only in ed ix the state in which m Austria as an protection status was granted m advocate of global i gr and EU initiatives at io n fl lo w Value statement to s be signed before Clear and permanent settlement uniform rules SOCIAL in Austria throughout Europe PEACE

Consider interactions between migration, Allow asylum seekers the welfare state and and recognised refugees S the labour market to engage in social activities T Y A IT B R IL E I P TY S , S RO ECURITY, P

1 Given that migration and asylum policy 2 In a migration strategy focused on secu- 3 Asylum policy must be based on ethical concerns society as a whole, it requires rity, stability and prosperity, controlled responsibility. Given the reality of mixed the cooperation of all relevant governmen- legal migration plays a central role. migration flows, asylum policy bears tal and civil-society stakeholders. The responsibility vis-à-vis persons in need of overriding objective of migration policy protection, the domestic population and must be to preserve social peace and the regions of origin. This challenge can foster social cohesion. If Austria is to only be met if clear and uniform rules apply remain a stable state in which people can throughout Europe and enforcement is live in security and prosperity, the systems harmonised accordingly. on which Austria’s stability as a state depends must remain in balance. Diversity DEVELOPMENT OF A COMPREHENSIVE 1 MIGRATION STRATEGY Protection of external borders by EU institutions Education and research IRREGULAR 4 MIGRATION

Economy and infrastructure Correct distorted ideas about the Consistent destination country return policy

Political system and media

Explore the possibility of a European foreign nationals police

Health and health care

MIGRATION AND Migration influences 5 DEVELOPMENT all policy areas and therefore is a task for the state as a whole

Cooperation of all state institutions and other stakeholders in the Coordination of migration Increased cooperation development of a and development between EU and regions of origin: migration strategy cooperation policy giving people perspectives in their home countries

Building awareness of SOCIAL individual responsibility for PEACE consumption patterns

S T Y Sustainable and responsible Migration partnerships: A IT B R migration: promote give priority to countries of IL E I P programmes of temporary origin with political and historical TY S , S RO and circular migration ties with Austria ECURITY, P

4 A credible asylum and migration policy 5 Development cooperation and migration requires a consistent return policy. To are closely related policy areas. It is there- contain the flow of irregular migration, fore essential that they be better coordi- it will be necessary to ensure more effec- nated. Besides the measures taken by tive protection of the external borders of governmental and civil-society stakehold the EU, combat transcontinental people ers, individual patterns of consumption smuggling, and engage in targeted pub- can have a significant impact. lic-relations work in the regions of origin.

10 | CONFIGURATION OF THE MIGRATION SYSTEM IN AUSTRIA

CURRENT SITUATION as high as under the previous system. Even though it has not met the high expectations Migration has an influence on all policy areas. placed in it, the system has proved successful. Migration policy therefore concerns all tasks of Nevertheless, the potential of the “Red-White- the state and has to be taken into account in all Red Card” to increase the attractiveness of political decisions. Based on the findings and Austria as a location of industry and research on conclusions of the Migration Council presented a sustainable basis has yet to be fully utilised. in the individual sections of this report, specific recommendations regarding the further develop- A major part of immigration is subject to EU law ment of the national migration system can be on residence rights. As at 1 January 2015, almost issued. European and international standards 50% of the non-Austrian resident population in have to be considered, in particular, in the field of Austria were EU citizens or citizens of other refugee law. Depending on the type of migration member states of the European Economic Area concerned (asylum, legal migration or irregular or Switzerland. This is a consequence of the migration), the state’s possibilities for controlling freedom of movement of persons guaranteed by migration vary widely, and some of them are EU law. Given that Austria has hardly any possibi- extremely limited in scope. The possibilities that lity of controlling this form of immigration and, do exist should be used in a targeted manner. if at all, can only do so through indirect measures Particularly in matters of employment, a clear (e.g. by providing more or less attractive social distinction has to be made between the various services), ways and means of attracting migration phenomena, always taking the recipro- high-achieving immigrants should be explored. cal effects that arise from them into account. As last year’s wave of refugee migration showed, Even in times of a “refugee crisis”, legal migra- a system based on freedom of movement within tion – especially labour migration – should be the EU must be complemented by effective pro- regarded as a desirable and positive form of tection of the EU’s external borders. Failure to immigration. It is at the heart of a migration meet this requirement runs counter to the funda- strategy focusing on security, stability and pros- mental principle of the European Union and leads perity. In 2011, a new immigration regime was to the emergence of protectionist border protec introduced with the “Red-White-Red Card”, tion models based on the idea of the nation state. which grants card holders the right of fixed-term settlement if certain criteria are fulfilled and thus serves as the central instrument of control in the field of labour migration. Residence rights are granted to qualified third-country workers of different categories (very highly qualified work ers, skilled workers in occupations with labour shortages, other key workers, graduates of Austrian institutions of higher education, and self-employed key workers). From the inception of this regime, the number of people benefiting from the “Red-White-Red Card” was about twice

71 10 | Configuration of the Migration System in Austria

The events that have occurred in the context of If a well-structured system of asylum and im- refugee migration since the end of 2014 have migration is to be maintained, a consistent return highlighted the deficiencies of the national and policy is indispensable. In the absence of a return European systems of asylum and migration. The policy, the migration system loses credibility. right to asylum is an essential characteristic of a There is an urgent need for action at European liberal, democratic society under the rule of law. level, if the EU’s dependence on the willingness A sustainability-oriented asylum policy is associ- of the countries of origin to readmit their own ated with a heavy burden of responsibility: re nationals is to be reduced. Better coordination of sponsibility to those in need of protection, to the development cooperation in Europe and Austria domestic population, and to the regions of origin. is essential in order to establish migration policy This responsibility also implies recognition of the as a central parameter in this policy area. fact that resources and capacities for admission are limited. High numbers of asylum seekers, Given the provisions of European and internation when they exceed a certain magnitude, are bound al law, the principles of the rule of law, and the to have a negative impact on the quality of the jurisprudence of the supreme courts based system of asylum and admission. Developments thereupon, the legal situation in the field of in connection with the “refugee crisis” have given migration has become extremely complicated rise to concerns about the future among large and almost impossible to grasp in its full com parts of the population and raised the general plexity. Whatever the type of migration, those question of the perspectives of assistance pro concerned find themselves confronted with a vided in Europe – far away from the actual maze of legal standards and provisions, especial- regions of crisis and war. A system of protection ly in the field of foreign nationals law, that makes that accepts the loss of thousands of human lives compliance very difficult. every year needs to be fundamentally reoriented. Comparisons with past migration movements Ultimately, there is no doubt that migration between neighbouring countries do not apply, policy must be supported by the population. as conditions today are entirely different. The In a democracy, acceptance by the population unprecedented degree of globalisation has given is indispensable. Migration-policy guidelines for rise to entirely new communication patterns and Austria and Europe, especially in terms of quanti- forms of transcontinental migration unheard of ty and future orientation, must be endorsed by in the past. public opinion. Therefore, the fears and anxieties of all groups of the population have to be taken seriously, addressed and openly discussed.

72 STRATEGIC OBJECTIVES • A professional and broad-based concept for public-relations work should be developed in SETTLEMENT AND RESIDENCE order to make potential qualified immigrants aware of Austria as a location of industry and • Given that migration and asylum are cross- research and inform them of the advantages cutting issues, all the ministries and other of legal migration offered by the “Red-White- stakeholders concerned should cooperate Red Card” system. more closely. To this end, a national migration • The opportunities of legal migration, especial- strategy should be developed on the basis of ly for purposes of work and education, should this report. be highlighted. Austria’s attractiveness can be • Greater attention has to be paid to the com- enhanced through an immigration policy that munication of values to immigrants, also in is linked with other policy areas and enables certain areas of legal migration. Modelled on family members to join highly qualified work the principle that requires immigrants to learn ers in Austria. To this end, steps must be German before they come to Austria, the ac- taken to reduce bureaucracy in the field of ceptance of the values of our society should be legal migration. made a condition for the immigration of • Austria should advocate the correction of third-country nationals. asymmetries in the fields of education, social • The demand-based system of controlling legal services and health care within the European immigration in accordance with certain crite- Union. Initiatives aimed at better meeting the ria should be further developed. Demographic demand for labour with personnel from the developments have to be taken into account. European Economic Area should be taken. • Austria should participate actively in the revision of the EU Blue Card Directive and ASYLUM AND RESETTLEMENT ensure, in accordance with the principle of subsidiarity, that the “Red-White-Red Card” • The provisions of asylum law have to be har- can still be used without restrictions as a monised throughout Europe in order to ensure national instrument for qualified immigration. uniform enforcement. Austria should contrib • Eligibility for the “Red-White-Red Card” ute actively to realising the long-term goal of should be extended to holders of bachelor and establishing European authorities with uni- doctoral degrees. Allowing third-country form structures and the introduction of an EU graduates a period of twelve months to find a asylum procedure. job appears to be substantively justified. Moreover, the “Red-White-Red Card” regime should be adapted so as to ensure that the demand for skilled labour can also be met in the mid-qualification range.

73 10 | Configuration of the Migration System in Austria

• The rights of persons entitled to protection as • Austria should continue in its role as an initi- well as the possibilities of terminating their ator and pioneer at EU level (e.g. the “Save asylum status and returning them to their Lives Initiative”).The main focus should be on countries of origin have to be harmonised at adapting EU law so as to ensure solidarity and EU level to a greater extent. Europe-wide, fairness in the distribution of people in need of asylum status should – in compliance with international protection among the Member fundamental rights – be established as a States. This includes measures to prevent temporary legal institution, the constitutive secondary migration within the European extension of which will only be granted if the Union in the long term. Employment rights conditions under which asylum was first and entitlements to social benefits, for in granted continue to exist. stance, should only exist in the Member State • Inactivity can lead to crime and foster radicali- in which protection status was granted. sation. Asylum seekers and recognised • In order to contain the transcontinental flow refugees not yet integrated into the labour of refugees and the associated dangers to market should be given a structured set of people’s lives, to protect particularly vulnera meaningful daily activities. The principle of ble groups, such as women and children, and mutual obligation applied to recipients of to implement protective measures locally in social benefits should also apply to asylum the regions of origin, solutions have to be seekers and recognised refugees. Social devised to protect people in the peripheral engagement and community-building activi- areas of conflict regions, e.g. in safe zones or ties are to be promoted. existing refugee facilities. On-site protection • The fundamental rules of a democratic and systems have to be established. In cooperation liberal society are essential pillars of social with mobile authorities, persons likely to be peace. Everyone can be expected to know and granted asylum should be brought to Europe observe these fundamental rules. A value by safe and legal means, subject to predefined statement to be signed upon resettlement or numerical limits and a limitation in time of prior to permanent settlement, and obligatory their asylum status. Such solutions should courses that teach these values, should be jointly developed and implemented by the provide the basis for immigration. European Union or, at least, by a group of • The measures envisaged for various policy Member States. Persons who do not qualify areas have to be assessed for their impact on for protection have to be returned quickly to migration. In particular, social benefits and their respective regions of origin or to pro labour market services play a decisive role in tected facilities. The requirements to be met potential immigrants’ choice of a country of for the management of global migration and destination. Careful consideration of possible mixed migration flows include: interactions and forward-looking action are – a workable system that allows persons in essential in order not to upset the balance of need of special protection to enter the these systems. country; – intensified measures for the resettlement of refugees; – effective and efficient protection of the borders of the Schengen area.

74 • In the field of resettlement, helping those • A credible migration policy requires a con particularly in need of protection should sistent return policy. Stronger incentives for remain the top priority. The European Union voluntary return and more efficient measures should bring its economic and political weight for implementing forced returns are essential. to bear in calling for global solidarity among This necessitates a consistent attitude vis-à- the international community. The allocation of vis uncooperative countries of origin to be refugees qualifying for resettlement must be adopted at national level and agreed upon with based on fairness vis-à-vis all countries. No the EU Member States. single state should be able to derive an exclusive (macro-economic) benefit from other peo- MIGRATION AND DEVELOPMENT ple’s suffering. • Development cooperation and migration are IRREGULAR MIGRATION closely related policy areas and therefore need to be better coordinated. • EU institutions should assume the task of • At European level, cooperation should be in- ensuring more effective protection of the tensified with those regions of origin and external borders of the EU. This goal could be transit whose political and economic develop- achieved by broadening the scope of the ments have a decisive influence on the stabil FRONTEX mandate or by creating a special ity of Europe. Cooperation with the regions of external border management agency of the origin should cover all issues relating to the European Union. As long as external border establishment of potential safe zones for asy- protection is not managed appropriately at lum and resettlement as well as the return supranational level, commensurate measures policy. The objective has to be to give people are to be taken at national level as a transi in the regions of origin perspectives for the tional solution. future; long-term policies must take prece- • In the long term, transcontinental people dence over short-term gains. smuggling can only be combatted effectively • Migration policy must be taken into considera- through supranational measures. Austria tion in all contacts and forms of cooperation should take the initiative at EU level in aiming with regions of origin and transit regions. Its for the establishment of a European foreign objectives have to be derived from a national nationals police authority whose bodies have migration strategy. powers similar to those of national foreign • Programmes of temporary and circular migra- nationals police forces. tion play an essential role in a sustainable and • Targeted public-relations work in the regions responsible migration policy. of origin should help to contain illegal im- • When entering into migration partnerships, migration by correcting distorted and exces preference should be given to countries of sively positive ideas about the regions of origin with long-standing political or historical destination and presenting a realistic image ties with Austria. of the actual situation.

75 10 | Configuration of the Migration System in Austria

• A broad-based initiative aimed at making people aware of the fact that economic practices in the destination countries as well as individual patterns of consumption can have an impact on the future prospects of people in the countries of origin would be desirable.

76 MEMBERS OF THE MIGRATION COUNCIL

PROF. PAUL LENDVAI

Journalist and political writer, author of 17 books, editor-in-chief and co-publisher of “Europäische Rundschau”, columnist for the daily “Der Standard”, executive producer of “Europastudio”, a television discussion pro gramme produced by ORF (Austrian Broad- casting Corporation).

77 The Members of the Migration Council

UNIV.-PROF. DR. HEINZ FASSMANN DR. STEPHAN MARIK-LEBECK

Geographer specialising in migration and urban Born in 1976, geographer and head of the research. Chairman of the Expert Council for “Demography, Health and Labour Market” unit Integration of the Federal Ministry of Europe, at Statistics Austria. More than ten years of work Integration and Foreign Affairs, Vice-Rector for in the field of migration and integration statistics, Research and International Affairs at the Univer- project leader for the “Statistical Yearbook on sity of Vienna, Member of the Austrian Academy Migration and Integration”. of Sciences.

ARABELLA KIESBAUER

Moderator of numerous television programmes in Austria and Germany since the end of the 1980s. Awarded the Golden Decoration of Merit of the Republic of Austria by the Austrian Federal Ministry of Education, Arts and Culture in 2003 for her many years of committed work promoting integration as a cultural mediator.

79 The Members of the Migration Council

UNIV.-PROF. DDR. CHRISTIANE SPIEL UNIV.- PROF. DR. MARKUS HENGSTSCHLÄGER

Professor of Educational Psychology and Head of the Institute of Medical Genetics and Evaluation at the University of Vienna since 2003. Director at the Center for Pathobiochemistry Founder of educational psychology as a scientific and Genetics of the Medical University of Vienna, discipline. Research areas: life-long learning, Deputy Chairman of the Austrian Bioethics prevention of violence, integration of migrants, Commission, Deputy Chairman of the Austrian and gender stereotypes in educational socialisa- Council for Research and Technology Develop- tion. ment, Member of the University Council of the University of Linz, and Head of the Academia Superior Think Tank.

PROF. DR. BERNHARD FELDERER

Studies in economics at the University of Vienna and the University of Paris (1964 – 1966); Re search Assistant at Princeton University, Visiting Professor at the University of North Carolina, USA (1966 – 1968); Institute of Economic Policy and Economic Research, University of Karlsruhe (1968 – 1974); Professor of Economics at the University of Cologne (1974 – 1990); Director of the Vienna Institute of Advanced Studies (1991 – 2012); Member of the Government Debt Commit- tee since 2002; Chairman of the Government Debt Committee / Fiscal Council since the end of 2006.

81 The Members of the Migration Council

UNIV.-PROF. DR. WALTER SCHRAMMEL DIANA MEDANOVA, BSC

Professor Emeritus of Labour and Social Law at Born in Bulgaria; came to Austria in 2007 to study the School of Law of the University of Vienna. at the Vienna University of Economics and Busi- ness. While still a student, founded an Internet business for the comparison of insurance offers. Owner of a consulting company in the insurance sector since 2015. Promotes female and non-Austrian start-ups.

DR. H.C. FRANZ KÜBERL GERALD GROSS

Born in Graz in 1953; 1994 – 2016: Director of Born in Vorau in 1964, career as a journalist from Caritas at the Diocese of Graz-Seckau; 1995 – 1987 to 2001, including 23 years with ORF, the 2013: President of Caritas Austria. Priority areas Austrian Broadcasting Corporation (moderator of of work, based on the conviction that all people the following programmes: “Burgenland Heute”, should have the same chances in life: fight ZIB 2, ZIB 1, ZIB spezial, Modern Times, Presse- against poverty, help for people in need of pro- stunde). Since 2011 free-lance media trainer, tection, emergency relief abroad, pastoral care, moderator and author (“Wir kommunizieren uns care for elderly people. zu Tode“, “Making News. Hinter den Kulissen der TV-Nachrichten“). Managing Director of gross:- media.

83 The Members of the Migration Council

UNIV.-PROF. MMAG. AO. UNIV.-PROF. MMAG. DDR. DR. EVA SCHULEV-STEINDL, LL.M. CHRISTIAN STADLER

Professor of Public Law at the University of Graz. Born in Vienna in 1966; studied law and philoso- After studies at the Vienna University of Econom phy. Assistant Professor of Law at the University ics and Business, the University of Vienna and of Vienna, head of the research group on polemo- the London School of Economics, post-doctoral logy and legal ethics. Research priorities: politi- thesis at the University of Vienna in 2003. Guest cal and legal philosophy, legal culture, legal professorships (Vienna University of Economics ethics, polemology and ethics of public security. and Business, University of Klagenfurt); Profes- sor of Law at the Vienna University of Natural Resources and Life Sciences from 2008 to 2014.

PROF. DR. HABIL. BELACHEW GEBREWOLD UNIV.-PROF. DR. MICHAEL LANDESMANN

Professor of International Relations, Head of Professor of Economics at the University of Linz. Department for Social Work and Social Policy at From 1996 to 2016 Scientific Head of the Vienna the MCI, Innsbruck. Research areas: security, Institute for Comparative Economic Studies conflicts and migration. Scientific publications (www.wiiw.ac.at); has taught at the Universities include: Anatomy of Violence (Ashgate 2009); of Cambridge, Harvard, Jerusalem, Bologna, Global Security Triangle (Routledge 2010); Un- Osaka, Mumbai, Basel, and others. derstanding Migrant Decisions (Routledge 2016).

85 The Members of the Migration Council

MAG. PETER WEBINGER

Deputy Director General of the General Direc- torate for Legal Affairs at the Austrian Federal Ministry of the Interior, Head of the “Migration, Citizenship, Asylum and Human Rights” Unit, Member of the SCIFA (Strategic Committee on Immigration, Frontiers and Asylum) and the Advisory Council on Country of Origin Documen- tation.

86 GLOSSARY

Asylum Brain gain The right to asylum is enshrined in the Geneva Brain gain refers to the receiving country’s gain Convention on Refugees. It protects persons who in human capital through the immigration of are outside their own country’s territory owing to qualified individuals. fear of persecution on grounds of race, religion, nationality, membership of a certain social group Brain waste or political affiliation, and who are unable or Brain waste refers to a situation in which the unwilling to obtain protection in their home qualifications of individuals, mostly immigrants country. whose knowledge and skills acquired abroad have not been adequately recognised by the Asylum Act receiving state, are not utilised for the benefit The Asylum Act governs the granting and with- of the latter. drawal of the status of recognised refugee and the right to subsidiary protection for foreign Community nationals in Austria, the granting of residence The term community as used in this report refers rights for reasons worthy of special consideration to an ethnic, a religious or a cultural community (so-called humanitarian residence right), as well in the receiving state (e.g. Russian community, as the question as to the circumstances under Christian-Orthodox community). which decisions based on the Asylum Act result in the termination of residence rights pursuant to Diversity the Foreign nationals Police Act. The Federal Diversity refers to differences between groups Office for Immigration and Asylum is responsible and individuals, e.g. in the core dimensions of for the enforcement of the Asylum Act. age, gender, sexual orientation, religious or cultural affiliation and disability. Asylum seekers Persons who have applied for asylum (interna EFTA tional protection) and whose applications have EFTA (European Free Trade Association) is an not yet been processed, closed or considered to intergovernmental organisation set up for the be unfounded. promotion of free trade and the economic integration of its members. The Member States of Brain drain EFTA are Iceland, Liechtenstein, Norway and Brain drain refers to the loss of human capital Switzerland. The Association is based on the through the emigration of qualified individuals, EFTA Convention and a worldwide network of which typically has a negative impact on the free-trade and partnership agreements. economy, the labour market, the education system and other sectors in the regions of origin. Foreign nationals Foreign nationals are individuals of non-Austrian nationality.

87 Glossary

Foreign nationals law Host society Foreign nationals law is a term that covers all A society that receives immigrants or is other- legal provisions applicable to nationals of states wise confronted with migration phenomena other than Austria and to stateless persons. (e.g. irregular migration). Austria’s foreign nationals law comprises not only such legislation as the Settlement and Immigration country Residence Act, the Foreign Nationals Police Act An immigration country is a country that attracts and the Asylum Act, but also the Act Governing immigrants because it typically has a prepon- the Employment of Foreign Nationals, the Basic derance of “pull factors” and therefore owes its Welfare Support Act, and provisions on the population growth primarily to immigration. In granting of Austrian citizenship. contrast, an emigration country is a country from which many people are driven to emigrate on Foreign Nationals Police Act account of “push factors”. The Foreign Nationals Police Act governs not only the activities of the foreign nationals police Integration (including, in particular, the prevention of illegal Integration is a long-term process aimed at entry into the country by foreign nationals, moni- enabling immigrants to become involved in toring of foreign nationals during their stay on society on a permanent basis, so that they can Austrian territory, the passing back of foreign participate in the life of society on an equal nationals and the prevention and termination of footing with the domestic population. This is a illegal acts in connection with irregular migra reciprocal process in which both the host society tion), but also the issue of visas to third-country and the immigrants that are to be integrated nationals for a stay of up to six months, the encounter one another in a spirit of mutual rejection, forced return and toleration of persons appreciation. Criteria of successful integration illegally residing on Austrian territory, and the include the recognition of the legal systems and enforcement of residence-terminating measures. the values of the host society by immigrants, their economic self-sufficiency, and a command Guest workers of the language that allows them to become During the economic boom in the 1960s, Austria involved in all areas of public life. began to actively encourage foreign guest work ers, especially from Turkey and the former Internal migration Yugoslavia, to come to Austria. Originally, the Internal migration refers to the movement of idea was that foreign workers would stay in the persons within a country to a different place of country for some time, then return to their coun- temporary or permanent residence. The term tries of origin and, if necessary, be replaced by can also refer to cross-border migration within new “guest workers”. the European Union or within the European Economic Area (EEA) and Switzerland.

88 Migration Parallel society The term refers to the cross-border migration of The term refers to an ethnically homogeneous persons who live or work temporarily or perma- group of the population with little or no spatial, nently in a state other than their own. Migration social and cultural contact with the host society. is a many-faceted phenomenon that occurs in various forms, such as legal migration (e.g. Recognised refugees migration for the purpose of work and education Persons whose applications for asylum have or family reunification), irregular migration been accepted are called recognised refugees. (illegal entry into and / or illegal stay in the coun- They have the right to remain in Austria on a try) and asylum (justified refugee migration). permanent basis. In many areas of law, they have the same rights and obligations as Austrian Migration background citizens. The term migration background applies to two groups of persons: On the one hand, it applies Red-White-Red Card to persons who have immigrated from abroad The Red-White-Red Card is a residence permit (“first generation” migrants), including those granted to qualified third-country workers on the who arrived in Austria some time (even a long basis of certain criteria pursuant to the Austrian time) ago. On the other hand, it applies to Settlement and Residence Act. The Red-White- persons born in Austria (who never migrated Red Card is intended for “very highly qualified themselves) to immigrant parents, i.e. “second workers”, skilled workers in occupations with generation” immigrants. Those whose parents labour shortages, “other key workers”, third- were born in Austria, but whose grandparents country graduates of Austrian institutions of immigrated from abroad, are “third generation” higher education, and self-employed key work immigrants. ers. The Red-White-Red Card entitles the card holder to fixed-term settlement. Migration flows / Migration movements These are migration processes involving large Reintegration numbers of people. If migration occurs due to The term is used in the context of (former) a variety of reasons or motivations, the term migrants returning to their countries of origin. “mixed migration flows” is used. Remittances MINT Money transfers by migrants to their countries The MINT subjects are mathematics, informatics, of origin are referred to as remittances. natural sciences and technology. Resettlement Net migration Resettlement is the acceptance and integration Net migration is the balance between immigra of refugees in special need of protection by a tion and emigration. Depending on whether the third country, if return to the country of origin or number of immigrants exceeds the number of permanent acceptance by the current country of emigrants or vice versa, the country records a residence is impossible. migration gain (positive migration balance) or a migration loss (negative migration balance).

89 Glossary

Residence permit Settlement and Residence Act Third-country nationals who intend to remain in The Austrian Settlement and Residence Act Austria for more than six months or settle there governs the granting, refusal and withdrawal of for a certain purpose can apply for the residence residence permits for third-country nationals permit specific to the purpose of their stay. staying or wishing to stay in the country for more than six months, as well as the documentation of Segregation residency under EU law for citizens of the EEA Segregation means the concentration of individu- and Switzerland and their third-country family al social groups within a limited area of a town or members. Thus, the act covers the core areas of region. Besides ethnic, cultural and religious “legal migration”. The corresponding employ- characteristics, segregation can also be based on ment rights of foreign nationals are laid down in other demographic categories (e.g. social status). the Act Governing the Employment of Foreign Ghetto formation is an extreme form of segrega- Nationals. tion. Society as a whole Settlement The term refers to the host society including The term “settlement” is defined in the Austrian immigrants. Settlement and Residence Act. Pursuant to this act, settlement means actual or intended resi- Third-country nationals dence on the federal territory for the purpose of Third-country nationals are persons who are establishing a domicile for more than six months nationals of states other than EU Member States, within one year, establishing the centre of main EEA countries or Switzerland. interests or pursuing a gainful occupation on a non-temporary basis. In principle, the period of Visa / Visa liberalisation (lawful) settlement is of relevance for the (subse- A visa is a permit of entry or transit granted by quent) granting of a residence permit for unlimi- a state for a short-term stay of up to six months. ted settlement (“long term resident – EU”) and Visas are usually issued in the form of passport the granting of Austrian citizenship. The Red- stickers. There are airport transit visas (“A White-Red Card for qualified labour migrants is a visas”), travel visas (“C visas”) and residence residence permit that authorises the card holder visas (“D visas”). Airport transit visas and travel to settle in Austria. visas are governed by the provisions laid down in the EU Visa Code. Residence visas issued for a longer stay in the country (e.g. for purposes of employment or job search) or for humanitarian reasons are regulated by the Foreign Nationals Police Act. Nationals of states with which visa liberalisation agreements have been concluded are allowed to enter Austria without a visa and stay for a certain period of time (usually 90 days).

90 ACKNOWLEDGEMENTS

The Migration Council wishes to thank the nu merous representatives of political institutions, academia, the business community, civil society, bodies representing organised interests, and the participants in stakeholder rounds and work- shops for their active support.

Our special thanks are due to:

Andreas Baumgartner (Das Sozialwissenschaftli- che Forschungsbüro, 1070 Wien), Johann Bezde- ka (Austrian Federal Ministry of the Interior), Gudrun Biffl (Danube University Krems), Fritz Hausjell (University of Vienna), Dietmar Hudsky (Austrian Federal Ministry of the Interior), Hel- mut Ivansits (Chamber of Labour), Margit Kreuz- huber (Austrian Federal Economic Chamber), Martina Lackner (Austrian Trade Union Federati- on), Markus Pausch (Salzburg University of Applied Sciences), Alexandra Schöngrundner (Federation of Austrian Industries)

Wilhelm Sandrisser (Austrian Federal Ministry of the Interior) for his support in the focus area of “Politics and Media”

We gratefully acknowledge the support and assistance received from:

Alexandra Buchinger, Florian Hahn, Karin Poandl, Markus Schratter (Austrian Federal Ministry of the Interior)

Editorial team:

Dietmar Hudsky, Eva-Caroline Pfleger, Alexandra Buchinger, Michaela Gerlach, Karin Poandl, Markus Schratter (Austrian Federal Ministry of the Interior)

91 92 UNDERSTANDING MIGRATION – MANAGING MIGRATION

PLEASE OPEN UNDERSTANDING MIGRATION – MANAGING MIGRATION

DEMOGRAPHIC DEVELOPMENTS DIVERSITY EDUCATION AND From the state and its institutions AND CHANGES IN SOCIETY RESEARCH to each and ev ery individual

As diversity increases, shared School-specific “social index”: resources for schools should be allo- An ageing society with low birth values are all the more important for social cohesion cated on the basis of clear criteria. rates needs young working-age Support for pre-school children in immigrants learning German; multilingual edu- In a democracy, acceptance cation should start at elementary level by the population is essential. Demographic imbalance as a Migration policy needs gen- Promotion of the dual system of security risk: balanced distri- eral support training and transfer of the Austrian bution as an important factor success model to relevant regions of stability of origin Diversity as a source of innovative strength and Capacity bottlenecks in certain State systems need time to a challenge fields of study require coor- adjust to changes and can only dination of higher education cope with managed migration policy at EU level Neutrality of religions in all spheres of the secular state Suitable measures against emigration of Austrian university graduates: Austria should derive a benefit from its investments in education and training

POLITICAL SYSTEM AND MEDIA PUBLIC SECURITY AND Values for society as a whole: STATE INSTITUTIONS building awareness for fundamental values in Austria Open internal borders necessitate external border protection by EU institutions Counteract radicalisation trends: civic instruction as a prerequisite for a living democ Austria as an advocate of racy and an inclusive society multilateral and EU initiatives: further development of the Save Lives Initiative Comprehensive communication as a prerequisite for the credi Harmonisation and simplifi- SOCIAL bility of policy makers and media PEACE cation of migration and asylum law: adoption of an EU Migra- tion Codex and an Austrian Migration Code

Security Stability

IRREGULAR MIGRATION

ASY LUM From the state and its institutions ECONOMY AND LABOUR AND HEALTH AND to each and ev ery individual INFRASTRUCTURE SOCIAL AFFAIRS HEALTH CARE

Economic growth needs con- Targeted immigration pro- trolled, demand-oriented Migration can help to balance grammes to meet the demand immigration the ratio between contributors for health-care workers and and beneficiaries physicians Promotion of entrepreneurship through tax relief for middle Measures to counteract short- incomes Measures to meet the demand age of physicians: prevent for skilled labour: incentives emigration of medical gradu for qualified immigration, e.g. ates and medical personnel Easier reconciliation of work modern one-stop-shop services and family: introduction of a family taxation system Counteract shortages in health Promote achievement orien- care and consider special tation and social cohesion: needs of migrants Incentives for settlement in encourage voluntary social structurally weak regions engagement of migrants Eliminate asymmetries of health care systems in Europe Benefits in kind instead of cash benefits for asylum seekers and recognised refugees

PERSPECTIVES OF MIGRATION IN THE REGIONS OF ORIGIN CONFIGURATION OF THE Long-term measures to develop MIGRATION SYSTEM IN AUSTRIA democracy and strengthen political stability in the regions Migration has an impact on of origin all policy areas: development of a migration strategy as a task for the state In the regions of origin: correct distorted ideas of the regions of destination Possibilities of legal immigration for persons in urgent SOCIAL need of protection: mobile PEACE Building awareness for the EU authorities, with UNHCR individual’s responsibility involvement, at the periphery for sustainable patterns of of regions in crisis consumption Consistent return policy as a prerequisite for credible asylum policy: return of per- In the regions of destination: sons not eligible for protec convey the message that people tion, improved cooperation smuggling is a serious crime with countries of origin

Further development of Red-White-Red Card system to meet the demand for skilled labour

Stability Prosperity

LEGAL MIGRATION Council in the Report by Migration covered of issues Overview

ASY LUM SOCIAL PEACE

Understanding Migration – Managing Migration. Austria is resolved to remain a stable and secure state in which people can live in prosperity, and to assume its global responsibility vis-à-vis the regions of origin. If social peace is to be preserved in Austria in the long term, state systems such as education, the economy, the labour market, health care and public security have to be kept in balance. Migration cannot be viewed as being separate from these essential functions of society and the state. Every measure taken by the state in any area of policy, as well as the patterns of behaviour of each and every individual, can have consequences that are relevant to migration. Managing migration is a task shared by all of us.