Co-funded by the European Union FONDAZIONE ISMU INIZIATIVE E STUDI SULLA MULTIETNICITÀ KING Knowledge for INtegration Governance Evidence on migrants’ integration in Europe edited by Guia Gilardoni, Marina D'Odorico and Daniela Carrillo February 2015 Acknowledgments The authors would like to thank all the researchers involved in the project (see the list of contributors), policy makers and experts who agreed to be interviewed for this research. The project has been carried out also thanks to the support provided by European Policy Centre (EPC) - Bruxelles University of Birmingham - Institute for Research into Superdiversity (IRiS) Fundacja Osrodek Badan Nad Migracjami – Center of Migration Research, Warsaw Central European Labour Studies Institute (CELSI), Bratislava This report is the result of the KING project, co-funded by the European Commission, Directorate-General Home Affairs, under the Action HOME/2012-2013/EIFX/CA/CFP/4000004268. KING is coordinated by the ISMU Foundation, based in Milan (Italy) in partnership with Fondazione Cariplo State of Hessen - Hessisches Ministerium für Soziales und Integration Obra Social La Caixa, Institut de Recherches Formations et Actions sur les Migrations (IRFAM) Start date: 15 September 2013; end date: 15 March 2015 This report is edited by Guia Gilardoni, Marina D’Odorico and Daniela Carrillo, with the contribution of Veronica Riniolo, Giulia Mezzetti and Pierre Georges Van Wolleghem All the research papers and the reports of the project can be downloaded from the website www.king.ismu.org Twitter: @KING_Project_EU © 2015 Fondazione ISMU, Milan All Rights Reserved. No part of this publication may be reproduced or transmitted in any form, or by any means, without due permission, in writing, from Fondazione ISMU – Iniziative e Studi sulla Multietnicità. Licenced to the European Union under conditions. This project has been funded with support from the European Commission. This publication reflects the views only of the authors, and the European Commission cannot be held responsible for any use which may be made of the information contained therein. Contents List of contributors p. 1 Introduction » 5 1. The European context in brief. Population, labour market and attitudes » 11 1.1 Europe’s demographic changes » 12 1.2 The role of the labour market structure » 19 1.3 Receiving societies: between discrimination, misconceptions and xenophobia » 21 2. The framing of migrant integration policy » 25 2.1 General assumption, orientations and basic concepts used » 25 2.1.1 Immigration: how policy makers perceive it » 26 2.1.1.1 Who is the preferred type of migrant? » 27 2.1.2 Integration: how policy makers perceive it » 29 2.1.2.1 Old files, same aims » 29 2.1.2.2 EU calls for rights and obligations comparable to those of EU-citizens » 31 2.1.2.3 Integration as a two way process » 32 2.1.3 The policy shift: integration is a challenge to whom? » 34 2.2 Target group: Who has the right to be/become an immigrant and to be integrated? » 38 3. The governance of migrant integration policy » 41 3.1 Actors » 42 3.1.1 Who has the authority over what? » 42 3.1.2 National and local competences » 44 3.1.3 Tension between levels of governance » 45 3.1.4 The role of civil society in filling the gaps » 46 3.1.5 Migrant organisations and networks » 48 3.2 Organisation of policy making and implementation » 50 3.2.1 Europe diving integration: an intricate mix of actions » 50 3.2.1.1 Harmonisation of national rules » 50 3.2.2 National and local level: an erratic organisation of migration and integration » 53 governance 4. Local integration policies in three different dimensions p. 55 4.1 Integration policy in the legal-political dimension » 57 4.1.1 Access to legal status and citizenship: the role of cities » 58 4.1.2 Political participation of migrants: direct or indirect participation » 59 4.1.2.1 The right to vote » 59 4.1.2.2 Consultative committees: role and limits » 60 4.1.3 Migrant associations and integration in the legal-political dimension » 62 4.1.4 The attitude of receiving societies on migrant integration in the legal political » 63 dimension 4.2 Integration policy and migrants’ integration in the socio-economic dimension » 64 4.2.1 Labour market » 65 4.2.2 Education and training » 68 4.2.3 Health care » 72 4.2.4 Housing » 74 4.3 Integration policy in the cultural-religious dimension » 76 4.3.1 Language instruction » 78 4.3.2 Civic integration » 80 4.3.3 Religion » 81 5 Integration strategies » 85 5.1 Mainstreaming » 85 5.2 Monitoring » 91 5.3 Non discrimination » 96 Conclusion » 101 References » 109 LIST OF CONTRIBUTORS Diego Acosta is a Lecturer in European Law at the University of Bristol. He is the author or co-editor of several books and publications in the area of EU Migration Law: The Long-Term Residence Status as a Subsidiary Form of EU Citizenship (Martinus Nijhoff, 2011), EU Immigration Law: Text and Commentary (Martins Nijhoff, 2012, with S. Peers, E. Guild, K. Groenendijk and V. Moreno-Lax), and EU Justice and Security Law: After Lisbon and Stockholm (Hart, 2014, with C. Mur- phy). He is co-supervisor of the five-year research project titled “Prospects for International Migration Governance (MIGPROSP)” for which Professor Andrew Geddes, as principal investigator, has obtained a European Research Council grant. Anne Bathily is project officer at the European Council on Refugees and Exiles (ECRE), where she follows integration policies at the EU level, coordinates the core group on integration as well as the Refugee alliance. She has also worked as a consultant for the UNHCR/IOM and as a freelance journalist. Gian Carlo Blangiardo is Professor of Demography and director of the Department of Statistics at the University of Milan Bicocca. He is member of the European Commission’s group of experts in Demography, of the Scientific and Technical Board of the Region of Lombardy (social affairs), of the National Observatory on Family, of the Scientific Board of the ISMU Foundation, of the Lombardy’s Regional Observatory for Minors, of the Regional Observatory on Social Exclusion. Since 2001 he coordinates the Regional Observatory on Integration and Multiethnicity. Tiziana Caponio is Professor of Dynamics and Processes of Migration at the University of Turin, Italy and research affil- iate at the Collegio Carlo Alberto, Turin. She is the author of Competing Frames of Immigrant Integration in the EU: geographies of social inclusion in Italian regions, Policy Studies, 34:2, 162-179, 2013, with Francesca Campomori., “The- ories of Multiculturalism Italian Style: Soft or Weak Recognition?”, in R. Taras (ed), Challenging Multiculturalism: Man- aging Diversity in Europe, Edinburgh, Edinburgh University Press, 2012, The Local dimension of migration policymaking, Amsterdam, Amsterdam University Press, IMISCOE Report Series, 2010, with Maren Borkert. Daniela Carrillo holds a PhD in Anthropology from the University of Florence. Since 2006, she has been working for the ISMU Foundation as a member of the Health and Welfare Unit. She co-edited, with Nicola Pasini, Migrazioni Generi Famiglie. Pratiche di escissione e dinamiche di cambiamento in alcuni contesti regionali, Franco Angeli : Milano, 2009, on the practice of Female Genital Mutilation in the migratory context, and, with Trinidad Osteria and Annavittoria Sarli, The Health Dimension of Asian Migration to Europe, Asia-Europe Foundation - De La Salle University Publishing House:Manila, 2013. Paola Coletti has a PhD in Public Policy Analysis at University of Pavia and received a post-doctoral research fellowship at Polytechnic of Milan in Public Policy Analysis (2007-2010). She is the author of Evidence for Public Policy Design: How to Learn from Best Practices (Palgrave Macmillan, 2013). Gray Craig is Professor of Community Development and Social Justice at Durham University, UK and Emeritus Professor of Social Justice at the Wilberforce Institute for the study of Slavery and Emancipation, Hull. Recent books include Social Justice and Public Policy, Child Slavery Now, Community Development: a Reader; and Understanding 'Race' and Ethnicity. Mariachiara Di Cesare is esearch Associate in Population Health at Imperial College London. Where she carries out research about risk factors associated to communicable and non-communicable diseases. In particular she has been working on inequalities in non-communicable diseases, risk factors contribution to overall and chronic diseases mortal- ity, and the role of early nutrition on child development. She is the author of Di Cesare M, Sabates R, Lewin KM, 2013, 1 A double prevention: How maternal education can affect maternal mental health, child health and child cognitive de- velopment, Longitudinal and Life Course Studies, Vol:4,pp. 166-179 and Di Cesare M, Bennett JE, Best N, et al., 2013, The contributions of risk factor trends to cardiometabolic mortality decline in 26 industrialized countries, International Journal of Epidemiology, Vol:42, ISSN:0300-5771, pp. 838-848. Marina D’Odorico holds a Ph.D. in Sociology and Social Research Methods from the Catholic University of Milan. As a member of the Immigration and Asylum Law unit since 2001, she has been working for ISMU Foundation, where she has been taking part in the planning and execution of national and international projects particularly on integration issues. She co-authored, with Ennio Codini, Democracy and Citizenship in the 21st Century, Critical Issues and Perspec- tives, McGraw-Hill Education, Milan, 2014;with Daniela Carrillo and Guia Gilardoni, EMILL : A tool reading integration practices and their respective contexts, ISMU Foundation, Milan, 2013, and, with Ennio Codini and Manuel Gioiosa, Per una vita diversa. La nuova disciplina dell’asilo, FrancoAngeli, Milano, 2009. She also contributed to Exploring avenues for protected entry in Europe, 2012, authored by Christopher Hein and Maria De Donato, final report of the E.T.