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IN-DEPTH ANALYSIS ON “POTENTIAL AND THECHALLENGES INTEGRATION OFOF MIGRANTSEVOTING AND IN REFUGEES THE An EUI Forum on Migration, CitizenshipEUROPEAN and DemographyUNION” Editors: Rainer Bauböck Milena Tripkovic This work has been published by the European University Institute, Robert Schuman Centre for Advanced Studies. © European University Institute 2017 Editorial matter and selection © editors 2017 Chapters © authors individually 2017 doi:10.2870/30835 ISBN:978-92-9084-460-0 QM-02-17-060-EN-N This text may be downloaded only for personal research purposes. Any additional reproduction for other purposes, whether in hard copies or electronically, requires the consent of the author(s), editor(s). If cited or quoted, reference should be made to the full name of the author(s), editor(s), the title, the year and the publisher Views expressed in this publication reflect the opinion of individual authors and not those of the European University Institute. Requests should be addressed to [email protected]. Website: http://www.eui.eu/Projects/TheForum/Home.aspx Artwork: © iStock: Rawpixel; ID: 490796440 THE INTEGRATION OF MIGRANTS AND REFUGEES An EUI Forum on Migration, Citizenship and Demography Editors: RAINER BAUBÖCK MILENA TRIPKOVIC TABLE OF CONTENTS PREFACE 1 Rainer Bauböck and Milena Tripkovic THE INTEGRATION OF MIGRANTS AND REFUGEES – A EUROPEAN SYNOPSIS 7 Rainer Münz SECTION 1: CITIZENSHIP AND LEGAL STATUSES 23 CITIZENSHIP AND LEGAL STATUSES IN RELATION TO THE INTEGRATION OF MIGRANTS AND REFUGEES 24 Maarten Vink CITIZENSHIP, DIVERSITY AND MOBILITY 48 Kees Groenendijk TOWARDS A LIFE COURSE PERSPECTIVE ON NATURALISATION FOR REFUGEES 51 Ines Michalowski BEYOND THE NATION STATE? GLOCAL CITIZENSHIP AND ITS CONSEQUENCES FOR INTEGRATION 57 Barbara Oomen SECTION 2: EDUCATION 61 NO LOST GENERATION? EDUCATION FOR REFUGEE CHILDREN: A COMPARISON BETWEEN SWEDEN, GERMANY, THE NETHERLANDS AND TURKEY 62 Maurice Crul, Elif Keskiner, Jens Schneider, Frans Lelie and Safoura Ghaeminia EDUCATION OPPORTUNITIES FOR RECENTLY ARRIVED MIGRANTS 80 Michael Teutsch SECTION 3: LABOUR MARKET INTEGRATION 87 REFUGEE AND MIGRANT LABOUR MARKET INTEGRATION: EUROPE IN NEED OF A NEW POLICY AGENDA 88 Klaus F. Zimmermann EUROPE AND THE ‘REFUGEE/MIGRATION CRISIS’: STARTING POINTS FOR POLICY DEBATES ABOUT PROTECTION AND INTEGRATION 101 Martin Ruhs ‘FROM REFUGEES TO WORKERS’: WHAT CHALLENGES? 105 Iván Martin WHERE AND WHEN TO START THE INTEGRATION PROCESS? 109 Alessandra Venturini SECTION 4: CULTURAL INTEGRATION 115 INTEGRATION AND CULTURE: FROM ‘COMMUNICATIVE COMPETENCE’ TO ‘COMPETENCE IN PLURALITY’ 116 Ruth Wodak FROM EASTERN ENLARGEMENT TO JIHAD: THE DOUBLE CHALLENGE FOR MIGRANT INTEGRATION IN EUROPE 138 Anna Triandafyllidou THE CULTURAL INTEGRATION OF IMMIGRANTS AND REFUGEES: SHIFTING NARRATIVES AND POLICIES IN THE EUROPEAN UNION 144 Tamas Szücs PREFACE Rainer Bauböck and Milena Tripkovic The new challenges European University Institute Even before the current refugee/migrant crisis, population movements towards developed This book discusses the challenges that the countries had been steadily increasing over contemporary refugee and migration crisis, which time. Since 2000, the immigrant populations culminated with the arrival of more than 1 million in both the EU and the OECD have grown by asylum seekers in 2015, poses to traditional 30%.2 Although research shows that the rise approaches to immigrant integration employed in immigration does not have a negative effect 1 by the European countries affected. These on the success of integration,3 the specificity of challenges arise from a host of factors particular the current crisis might pose altogether new to the ongoing patterns of immigration: the challenges to ‘traditional’ integration mechanisms unprecedented number of migrants and refugees and processes. that have recently entered Europe; the mostly unregulated and uncontrolled nature of this There are many reasons to think that circumstances new immigration; the burden that this puts on are different this time round. First, the number of European countries that had previously had very refugees and migrants currently entering Europe little experience with immigration and integration is unprecedented. In 2014, around 219,000 people but also the opportunities it provides in terms of crossed the Mediterranean, while the number grew 4 addressing the key social and economic challenges to around one million in 2015. There were almost that Europe will be facing in the next 30 years; 1.3 million asylum applications in the EU countries 5 the desire of immigrants and refugees to settle during 2015. The high number of refugees in specific countries (particularly Germany and and migrants has already caused difficulties for Sweden); and the security concerns that have both transit and recipient countries, which are arisen in the aftermath of terrorist attacks. The struggling to provide conditions for satisfying contributions, both individually and in their basic needs such as food, shelter and healthcare. entirety, seek to explore the medium and long- However, it is not only the numbers – the nature term impacts of these and other challenges on the of immigration has also been transformed by debate and to measure the success of immigrant becoming much less regulated and controlled, integration. The book is divided into four sections, thus preventing the destination countries from addressing the impact of this new wave of predicting and planning the necessary resources to immigration on: (I) access to citizenship and legal host the immigrants. The prospect of a persisting statuses, (II) educational integration, (III) labour 2 OECD (2015), ‘Indicators of Immigrant Integration market integration, and (IV) cultural integration. 2015: Settling In,’ available at: http://www.oecd-ilibrary.org/social- issues-migration-health/indicators-of-immigrant-integration- 2015-settling-in_9789264234024-en (last accessed August 22, 2016). 3 Ibid. 1 The book is based on contributions first presented at a 4 Hume, T. and Pawle, L. (2015), ‘Number of Migrants conference on the Integration of Migrants and Refugees within Reaching Europe this Year Passes 1 Million’, available at: http:// the EUI Forum on Citizenship, Migration and Demography on 29 edition.cnn.com/2015/12/22/europe/million-refugees-enter- and 30 September 2016. The Forum series was initiated in 2015 europe/ (last accessed August 22, 2016). by former EUI President J.H.H. Weiler and the Director of the Robert Schuman Centre Brigid Laffan. All the contributions to this 5 Eurostat (2016), ‘Asylum Statistics’, available at: http:// volume have been revised after the conference. ec.europa.eu/eurostat/statistics-explained/index.php/Asylum_ statistics (last accessed August 22, 2016). 1 PREFACE ~ Rainer Bauböck, Milena Tripkovic flow of refugees and migrants in the coming years across Europe by September 2017 is carried out as makes integration a crucial issue for the future of intended,10 many people will be sent to countries Europe. other than those of their preference. Refugee Second, both demands for and obstacles to destinations will stop being a matter of personal burden-sharing between EU countries through choice. While this process may be necessary redistributing refugees and forced migrants from for the sake of fair burden-sharing, it will most over-burdened Greece and Italy to other EU probably negatively influence both the capacity member states have increased dramatically. Many and willingness of immigrants to integrate into countries that have so far not had much experience their new communities and public opinion in with immigration – and immigrant integration – countries where refugee relocation is seen to be have been asked to accept significant numbers of imposed by ‘Brussels.’ newcomers. This has already triggered negative Third, the public debate on how to handle the reactions and explicit hostility in some Member crisis has steadily been shifting towards a focus States. For instance, in August 2015 Slovakia on the security threat posed by the uncontrolled announced that it will only accept Christians,6 influx of refugees and migrants. In the wake of the while Hungary’s Prime Minister Viktor Orbán Paris terrorist attacks of November 2015, Poland stated that accepting immigrants will serve withdrew its earlier promise to accept 7,000 to spread terrorism7 and called a referendum individuals as part of the EU plan.11 Further terrorist to block the implementation of EU decisions attacks in Brussels and Nice have only deepened regarding the relocation of refugees.8 The lack of security concerns. The massive, apparently experience of such countries with hosting and organised, sexual molestation and assaults by integrating immigrants, combined with hostile Muslim-background immigrants on women on attitudes towards them, compounds the problems New Year’s Eve 2015 in Cologne soured the public in countries that are currently overburdened mood and support for the ‘culture of welcome’ and does not augur well for the integration of for newly arriving refugees that had prevailed in refugees in the most reluctant host states. Most Germany and Austria in summer 2015. Although refugees/migrants entering Europe before the civil society organizations continue to provide effective closure of the previously-open Balkan crucial support for newcomers, public opinion route since November 2015 resolutely aimed for has shifted dramatically. While anti-migration specific destinations and mainly wanted to settle rhetoric and the securitization
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