25 en 26 november 2010

1. Report
EU Conference on Integration
Ghent 25th and 26th of November 2010
The added value of a regional
and local approach

3. Abstract
On the occasion of the Belgian EU-presidency, the Flemish Minister of Integration, Geert
Bourgeois and Inburgering Gent have organised a two-day Conference on Integration “The
added value of a local and regional approach” on the 25th and 26th of November 2010 in Ghent.
Building on the experiences in the integration field in the different EU-member states, the
Flemish Minister wishes to take integration to the next level and discuss the added value of
a regional and local approach towards integration. The Conference gathered 150 participants
from different EU countries who are either involved in policy making, academic research or
implementation of integration policies and practices.
Sharing their experiences and good practices to enable progress of integration policies and
practices on the regional and local levels is the objective.
This conference could not have had a better timing. German chancellor Angela Merkel de-
clared the failure of integration. In The Netherlands, the budget of civic integration is under
pressure and France faces the integration of Roma people. In the meantime, Flanders is build-
ing successfully at the integration of new and old comers.
The first day consisted of a general part, over viewing the whole field of integration, views,
ideas and experiences. The second conference day went into depth and focused on specific
issues such as language learning, social orientation and participation, parent participation,
career orientation and activities of migrant organisations.
We were very glad to welcome many international speakers and integration experts such as
Mr. Roger Noël, Head of the administration and social integration department, Ministry of
Immigration and Cultural Community, Quebec, Canada; Mrs. Andrée Van Es, Alderman for
integration of Amsterdam; Dr. Han Entzinger, professor at the Erasmus University of Rot-
terdam, The Netherlands; Dr. Can Aybek, professor at the University of Siegen, Germany; Mr.
Ramon Sanuhuja, director of the migration and integration department of Barcelona, Spain;
Mr. Xavier Alonso, representative Generalitat, Catalonia, Spain and Mrs. Eva Schultz, Expert
in the field of integration and representative of the European Commission, Unit Immigration
and Integration, Directorate-General Home Affairs.
In this publication you can read the premises, intentions, goals, outcomes and reports of
both conference days. The conference aims to be the starting point of a further dialogue be-
tween regions, local actors and experts.
1

4. Preface
Dear,
Migration to EU member states is an ancient phenom-
enon. Migration can only succeed in combination with
successful integration, thus creating a social basis in
the host society. Flanders has offered its newcomers an
integration package for the past ten years. It consists
of language, social orientation courses and career ori-
entation.
The integration policy requires both an effort from the
newcomers and from the Flemish society. Flanders is
very pleased to introduce its integration policy at the
EU-Conference on Integration: “The added value of a local and regional approach”. At the same
time, we would like to learn from experiences on integration in other EU member states.
The integration of newcomers does however not end once the integration programme is com-
pleted. I am convinced that local authorities and regional governments are an added value in
the field of integration of newcomers. Therefore I am pleased to invite experts, policy makers
and academics from different EU member states in order to present their experiences with
integration in regional and local contexts.
I hope we will meet in Ghent on the 25th and 26th of November and I am really looking
forward to an introduction to the various integration efforts of different EU regions and cit-
ies and to the inspiring good practices of successful integration!
Yours sincerely,
Geert Bourgeois
Vice-Minister-President of the Flemish Government
Flemish Minister of Administrative Affairs, Home Affairs, Integration, Tourism and the Flem-
ish Border Community
2

5. Content
Abstract............................................................................................................. 1
Preface............................................................................................................... 2
Content.............................................................................................................. 3
Objectives........................................................................................................... 4
Programme......................................................................................................... 5
Introduction....................................................................................................... 7
Local and regional approach....................................................................................13
Focal areas on integration......................................................................................22
Language learning.................................................................................................23
Social participation...............................................................................................29
Parent participation..............................................................................................38
Social orientation..................................................................................................42
Career orientation.................................................................................................47
Activities of migrant organisations...........................................................................56
Conclusion...........................................................................................................61
Closing note conference chair................................................................................. 64
3

6. Objectives
Migration to and in the European Union became more and more extensive after Word War
Two. Today, we can see new sorts of intra-European migration, which are mainly for economi-
cal reasons. This new kind of migration confronts us with specific problems, which ask for a
different kind of approach. The conference gave us a good chance to discuss the added value
of a local and regional approach on integration with experts from all over Europe.
We must be aware of the importance of exchanging experiences and ideas on integration
between European cities and regions. Even though the integration policy develops at the na-
tional or regional level, cities also play a very important role, because migrants live in cities
and municipalities and identify sometimes more with their city then with the country they
are living in. By the year 2030, 60 per cent of the world’s population will be living in cities.
It is clear that cities will also have to be prepared to assist migrants.
The overall purpose of the conference is to show the value of exchanging knowledge and
experiences of regions and cities in connection with the integration of migrants. The con-
ference must be the starting point of a long term exchange, cooperation and improvement
of the integration policy and implementation in regions and cities. A network of partners
from different EU-member states will be set up, so that it will be possible to keep on shar-
ing good or bad integration practice s. The communication will happen through the website
http://gent.inburgering.be.
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7. Programme
Day 1, 25th of November
13u00 - 14u00: Opening session
• Flemish Minister for Administrative Affairs, Home Affairs, Integration, Tourism and the Flemish border
community Mr. Geert Bourgeois
• Mayor of Gent Mr. Daniel Termont
• Mayor of Amsterdam and former Dutch Minister of Integration Mr. Eberhardt Vanderlaan t.b.c.
14u00 – 15u30: Keynote speeches on the confe­ ence themer
• Dr. Han Entzinger, Erasmus University Rotterdam Social Siences on the history of the existence of the concept of civic
integration and evolutions and evaluation in the Netherlands
• Dr. Can Aybek, University of Siegen on the German model of integration and the roles of different levels of go­vernments,
Germany
• Mr. Roger Noël, Head of the administration and social integration department, Ministry of Immigration
and Cultural Community, Quebec, Canada
16u00 – 18u00: Discussion platform
a) Initiatives of major cities towards integration and living in diversity:
a. Mr. Dirk Gebhardt, for Eurocities
b. Mr. Ramon Sanuhuja, director of the migration and integration department of Barcelona, Spain
b) Regional Initiatives towards integration and living in diversity for a succesful integration
a. Mrs. Inge Hellemans, Administration integration Flemish governement, Belgium
b. Mr. Xavier Alonso, on the Catalonian model of integration and the role of the Catalonian government
and the municipalities, Spain
Day 2, 26th of November
9u30 – 10u15: Keynote speeches
a) ‘Language requirements for adult migrants. Observations and challenges for the future’, Mr. Piet Van Aver-
maet, Director of the Centre for Diversity and Learning at the University of Ghent, Belgium
b) Social participation, Mrs. Laura Marziale, Migrants Resources Centre, London, UK
10u15 – 12u45: Working groups
a) Language learning: Good practices
a. Mr. Gunther Van Neste, Huis van het Nederlands Brussel, Belgium
b. Mr. David Little, professor Trinity College Dublin, Ireland
b) Social participation: Good practices
a. Mr Hassan Boujedain, Inburgering Antwerp, Belgium
b. Mr. Wim Budding, Stichting BMP, The Netherlands
c) Parent participation: Good practices
a. Mr. Kamal Amain, Counsellor parent participation and integration issues, AMPO Consultancy, The Neth-
erlands
b. Nord Rhein Westfalen, Germany
13u45 – 14u45: Keynote speeches
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8. a) Social orientation, Mr. Andras Kovats, Menedek, Hungary
b) Career orientation, Mr. Kayamba Nthisidi, Madrid, Spain
c) Activities of migrant organisations, Italy
14u45 – 16u30: Working groups
a) Social orientation: Good practices
a. Mr. Eric De Jonge, onthaalbureau Brussel, Belgium
b. Mr. Pierre Henry, France Terre d’Asile, Paris, France t.b.c.
b) Career orientation: Good practices
a. Mr. Kees Bleichrodt, University Asylum Fund (educational orientation), The Netherlands
b. Mrs. Liesbeth Van den Wijngaert, Flemish Service for Employment and Vocational Training (VDAB) (profes-
sional orientation), Belgium
c) Activities of migrant organisations: Good practices
a. Mrs. Naima Charkaoui, Minderhedenforum Brussels, Belgium
b. Swedish migrant organisation, Sweden
17u00: Closing session
• Conference chair, director Inburgering Gent, Mr. Koen De Mesmaeker
• Expert in the field of Integration and representative of the European Commission, Unit Immigration and Integration,
Directorate-General Home Affairs,
Mrs Eva Schultz
6

9. Introduction
Before we start looking at the approach on integration of some big cities and regions, it
would be good to clarify the term ‘inburgering’, which is ‘the first step, the fist phase of the inte-
gration process, where people receive courses on social participation, get personal assistance towards
career planning and follow Dutch courses’. Because there is no fixed translation into English, we
will use ‘integration’ or ‘civic integration’ to describe the process.
Flanders
Like in other federal states, the Belgian federal govern-
ment is exclusively competent for the acquisition of
citizenship and for the allowance and stay of migrants
on the Belgian territory. The immigration and asylum
policy is exclusive federal material. Flanders, a region
in Belgium, is responsible for the reception and the
integration of immigrants. It’s obviously true that the
federal foreign policy has consequences for the inte-
gration policy of the regions.
From the 6.2 million inhabitants of Flanders, 355.000
or 6 per cent have a foreign nationality. Although
Flemish Minister of Integration, Geert Bourgeois, opine citizenship is not a good indicator
for people with a migrant background, certainly not in Belgium. In May 2000, the federal
government made the acquisition of citizenship less strict. It is now sufficient to stay le-
gally in Belgium for 3 years, to be able to become a Belgian citizen. Belgium does not link
the acquisition of citizenship to integration. In Minister Bourgeois’ opinion, the acquisition
of citizenship should be the crowning of a successful integration process. A moment when
a migrant can say: “I want to join this new society and build a future”. A moment when the
government acknowledges the efforts of the migrant, congratulate him or her and welcomes
him or her as a new citizen.
The number of non-Belgian inhabitants does not say anything about the real number of in-
habitants with a foreign origin. To get a more realistic image, Minister Bourgeois thinks we
have to take a look at the people who are born with any other then a Belgian nationality
and at the children who are born as a Belgian citizen, but have a mother who was born with
a foreign nationality. In stead of the above mentioned 6, we can than speak of 10 per cent
inhabitants with a foreign nationality.
Minister Bourgeois notices that the diversity of our society creates opportunities, but on
the other hand also entails problems and challenges. The most important challenge and ac-
cording to Bourgeois, at the same time the most important social problem in Flanders and in
7

10. many other European Countries, is the integration of migrants. “Migration can only succeed in
combination with successful integration, thus creating a social basis in the host society.” For the last
ten years, Flanders offers an integration course, with the main focus on a basic knowledge of
Dutch for those migrants who want to settle in Flanders. The knowledge of the language is
seen as the key to a successful integration.
When the integration course is done, that doesn’t mean that the integration process is fin-
ished. Civic integration is just a step towards integration. The way each integration process
passes through will be very different, but it never functions without efforts of both migrants
and the host society.
Although there are plenty of examples of successful integration of migrants, Minister Bour-
geois notices that integration unfortunately is not yet succeed. That is what Angela Merkel
meant when she declared in October 2010: “Multikulti gescheitert, absolut gescheitert is”, multi-
culturalism has failed. In Minister Bourgeois’ opinion, many people share this analysis, which
is in fact a strong appeal for integration. Mr. Bourgeois thinks that multiculturalism has failed
because it was not an integrative form of multiculturalism, but more a ‘segregative multicultur-
alism’. It was not living with each other, but apart from each other.
To conclude, Minister Bourgeois defines integration as a shared responsibility. Like other gov-
ernments, the Flemish government also takes responsibility. The Flemish integration policy
is not complete. That is why we’ve organised a conference on integration. To exchange views
and information, to learn from each other.
Ghent
Mayor of the city Ghent, Daniël Termont, acknowledges that his
city is facing serious challenges, challenges encountered in major
cities all over Europe and all over the world. Ghent wants to be a ‘city
of knowledge and culture, accessible to everyone’, but it seems that some
people can’t find their own place in the city. For Mr. Termont it is
clear that the fight against all forms of exclusion is prior. Ghent can
take action in the field of employment, housing and education. Mid
2007, Ghent has incorporated its ultimate objective: “we must be a
sustainable, open and solidarity society. Through the combination of all creative forces, it must become
a creative city which plays a versatile pioneering role”.
Ghent experiences problems, which they cannot manage, like the significant influx of poor
people originated from former Central and Eastern European countries (mainly Bulgaria and
Slovakia), who have had little or no education and who are often discriminated against in
their countries of origin. Mayor Termont begs for help from higher authorities, especially
from Europe, to eliminate the problem and is anxiously waiting to see what structural mea­
8

11. s­ res will be undertaken by the European Union to deal with the abuses in the countries of
u
origin. “Everyone is becoming aware of the fact, that something needs to be done about the situation
that these people are in. But the administrative mills are turning particularly slowly meanwhile, cities
have to cope with the difficulties ‘in real time’.”
Mr. Termont perceives a transfer of competences of nation states. From the bottom-up in
favour of the supranational Europe and from the top-down, towards regions and cities. By
the year 2030, 60 per cent of the world’s population will be living in cities. He is convinced
that the future of Europe will be determined in the cities and regions. But, they will have to
receive the necessary support. The city of Ghent is willing to take up its responsibility, but
not unconditionally. They are willing to invest further in their integration policy in general,
but will need, according to Mr. Termont, extra support to tackle the challenges. “It is time for
high and efficient multi-level governance.”
Amsterdam
Throughout Europe, and in The Netherlands, the debate on in-
tegration is becoming ever sharper. This development can partly
be explained by the now broadly-accepted observation that the
multicultural society has failed. The alderman of Inte­ration
g
of the city of Amsterdam, Andrée Van Es, does not question
whether the multicultural society is dead or bursting with life,
she feels the multicultural society is simply a given. In Amster-
dam, almost half of the population has a migrant background.
People of 178 nationalities live in Amsterdam. Mrs. Van Es notes
that many European cities have opted to tackle their integra-
tion problems with specific policies targeted at individual groups. For many years, this was also
the practice in Amsterdam. Today, such an approach would not be enough. Therefore the city
opted for a generic policy on diversity, based on two key principles, namely citizenship and a
solid anti-discrimination policy. In Mrs. Van Es’s opinion, the term citizenship encompasses the
objective of integration: namely that every individual takes his or her personal responsibility as
a citizen to participate fully in the society. Respecting the individuality of others in the context
of a diverse Amsterdam is an essential element.
As a local government, Amsterdam wants every resident, irrespective of his or her origins, to
be judged on his or her merits. Good education is one of the things that are certainly needed
to improve the opportunities for migrants. Thanks to the compulsory civic integration policy,
Amsterdam has, over the past few years, reached out to large groups of men and women,
who have now acquired a basic knowledge of the Dutch language and society, what Mrs. Van
Es sees as an essential precondition for successful integration.
Now, in a period of sharpening attitudes and polarisation, Mrs. Van Es sees a clear task for the
local government in facilitating discussions in our cities. “We are leaving no stone unturned in
tackling the disadvantage, but at the same time, we are calling upon all the men and women of Amster-
9

12. dam to take responsibility for their city. Irrespective of their origins, the people of Amsterdam consider
themselves ’Amsterdammers’. And that is a sentiment I wish to continue to support.”
The Netherlands
Prof. dr. Han Entzinger, professor at the Erasmus Uni-
versity of Rotterdam has a clear view on the history of
the existence of the concept of civic integration and the
evolution and evaluation in The Netherlands. Dr. Entzinger
established that in the past decade, the registered trends
in immigration and integration have not been quite in line
with the perceived developments. Social participation of
first and second generation immigrants has substantially
increased, and the nature of immigration has drastically
changed. Yet, the mutual perception of immigrants and non-immigrants has become more nega-
tive.
Dr. Entzinger concludes by saying that civic integration courses can be effective as long as
their strong politicisation can be avoided. In The Netherlands, civic integration started out
as an instrument to promote integration, but it gradually became a means to control immi-
gration and to keep unwanted immigrants out. The new government (2010) even intends to
oblige migrants to leave the country if they fail for their test in the civic integration course.
If this will be part of the government’s strategy is doubtful to Dr. Entzinger, it will probably
violate EU regulations and international treaties.
Germany
We’ve had some insights from Belgium, the region Flanders
and The Netherlands, the big city Amsterdam. Now we take
a brief look at the roles of different levels of govern­ ent
m
in Germany, which has a very interesting model of inte-
gration. Dr. Can M. Aybek clarifies the German model of
integration and the role of the local government. Dr. Aybek
is an integration expert, research associate and lecturer at
the University of Siegen in Germany. In his discourse he
introduced the concept of multi-layered citizen­hip and
s
discussed the role that local-level forces play in integration
policy implementation and policy-making1 . He illustrates the role of the local government
with two empirical examples: Frankfurt and Munich. Aybek wants to stress the fact that it is
crucial to also recognise the role of the local level in the access of migrants to citizenship and
other rights, besides the roles states play in providing maintenance.
The manuscript he wrote for the conference is based on the article: Can Aybek and Margit Fauser, Mapping Access to Citizenship
from Below: The Role of the Local Level in the Inclusion of Immigrants in Germany and Spain, forthcoming 2011.
10

13. Dr. Aybek argues that “it is important to account for the role of the local governments in providing
access to citizenship. I propose a multi-layered concept of citizenship: one that accounts for multiple
dimensions of the social world and for rights and practices on one hand and for multiple levels of govern-
ments and relevant political-administrative structures on the other”. Aybek’s first way to illustrate
the importance of the local government is that they implement the national policies. Aybek
notes that his case studies of Frankfurt and Munich shows that “local authorities may go
beyond a narrow implementation of existing rules, actively facilitating immigrants’ access to
mainstream services, and providing them with services specifically adapted to their needs”.
Secondly, Aybek mentions the complementary functions cities fulfil. For example, they offer
advisory councils, round tables and local referenda in order to create participatory channels
for immigrants. The fact that initiatives of local governments can sometimes oppose the ap-
proach of the central government is, according to Aybek, a third example to illustrate the
different ways in which the local level provides access to citizenship. Finally, local approaches
can also precede national conditions, which means that local policies may be disseminated
across a country and adopted by other localities. In this case, countries function as a source
of inspiration for local governments from another country, and vice versa. In his conclusion
Aybek clearly says that it is not his aim to place the local in opposition to the national, or to
suggest that one level of government is more important. In his opinion, the local is not inde-
pendent from the national, but neither is the national from the local. Thus, a multi layered
perspective on citizenship, allows a more productive analysis of how, in cities, citizenship is
not only provided on, but also through the local level.
Quebec
Mr. Roger Noël, Senior analyst from the Québec Ministry of Im-
migration and Cultural Community, presents Québec’s approach
to immigration and integration within the Canadian context.
11,5 percent of the population in Québec were born abroad. The
main preoccupation for the Québec government is to establish
a social consensus and capacity to welcome immigrants. The
four main objectives identified in the Policy Statement on Im-
migration and Integration (1990) remain issues for Québec:
- to redress Qéubec’s demographic situation
- to help Québec’s economy to prosper
- to secure the French language in Québec
- to open up Québec to the world and embrace diversity
It is good to first take a look at the responsibilities of Canada versus Québec. Permanent im-
migration and the reception and integration of immigrants are exclusive responsibilities of
Québec temporary immigration is a shared responsibility between Québec and Canada. The
Québec government faces a lot of integration challenges, like for example the successful in-
tegration of immigrants, and this, in less time and with less resources. We want to facilitate
French language training for immigrants and mobilise employers to open up to skilled and un-
11

14. skilled labour of immigrant origin. Québec wants to favour a climate of openness of the popu-
lation towards immigration and diversity. As integration is bidirectional, it must be a shared
responsibility, the government supports the immigrant in his or her integration process and
works towards maintaining harmonious relations between Quebeckers of all origins and the
immigrant is also made responsible to insure the success of his or her own integration.
An important part of the integration process are the French language training programs.
Québec organises agreements with partner organisations abroad in organising language
courses. Abroad as well as in Québec there is a possibility to follow online French courses,
covering 6 language skills and 8 themes including employment, housing and democratic life
in Québec. In Québec there are five different ways to attend language courses: regular full-
time courses, regular full-time courses with clientèle with little schooling, regular part-time
courses, part-time courses in the workplace and self-training centres for immigrant workers.
Québec’s welcoming and integration support services are founded on the belief that the in-
tegration process must start before or during the immigration procedures. The therefore per-
sonalised accompaniment approach that is used aims to accelerate the integration process,
is adapted to individual needs and offers the opportunity to follow-up on the progress made.
Welcoming and integration support is given in Québec as well as abroad. The services abroad
are offered by Immigration-Québec offices or on the website, for example, information on
Québec’s common values, arrival preparation information sessions, etc…
In Québec, the welcoming support upon arrival at Montréal-Trudeau Airport, information is
given on housing, transportation, etc.,… At the immigration-Québec offices, individual or
group settlement information sessions are organised and information on the job market,
techniques in finding a job and academic programmes and recognition of acquired compe-
tencies are given as well as first settlement steps information sessions. In Québec, there are
also 61 NGOs and other institutional partners who provide settlement services (counselling,
evaluation of integration steps and follow-up and information sessions on housing and trans-
portation) and French language training.
To conclude, Mr. Noël opines that although the powers of Québec are somewhat limited, it
has exclusive responsibility in matters of selection of immigrants of the economic class and
selected refugees. It can also determine its integration programmes.
Thus, Québec can offer an array of settlement and integration services with the objective to
meet its economic and cultural needs and to support and insure the success of newcomers’
integration process.
12

15. Local and regional approach
The aim of the conference was to take a look at the added value of a local and regional ap-
proach on integration. The first question we have to deal with is if there is an added value.
The initiatives of major cities and regional initiatives towards integration give us on over-
view of different approaches on integration. In what follows we will take a closer look at the
local and regional approach on integration.
Initiatives of major cities towards integration and living in diversity
Dirk Gebhardt
EUROCITIES is a network of 140 major European cities, repre-
senting cities of over 250 000 inhabitants, organising knowl-
edge exchange between and political work in the name of
big cities. The 35 working groups of EUROCITIES are covering
all areas of interests for cities. There is a permanent Working
Group Migration and Integration. Mr. Gebhardt, EUROCITIES’
Programme Officer Social Affairs, describes the framework of
the working group as an Integrating Cities Partnership with
the European Commission (learning, dialogue, conferences)
– local implementation of Common Basic Principles, local di-
mension of Integration Agenda.
The challenges major cities are currently facing are the following:
- Strongly increasing migration dynamics (Athens, Barcelona, Rome…)
- Migration as universal feature of European cities
- ‘Super-diversity’ and challenges of minority/majority relations
- High volatility and turnover (e.g. intra-EU-migration)
- High risk of exploitation for some groups (e.g. without permit)
- Labour market inclusion
- Political participation
- Anti-migration position gaining weight, re-ethnisation of national debates?
EUROCITIES made 11 commitments in its Integrating Cities Charter on further developing
cities policies on equal opportunities and diversity for cities in policy making, service provi-
sion, employment, procurement of goods and services (opening up host society). The charter
is signed by mayors of 21 cities so far: Amsterdam, Athens, Barcelona, Berlin, Copenhagen,
Genoa, Ghent, Helsinki, London, Malmö, Milan, Munich, Nantes, Oulu, Oslo, Rome, Rotter-
dam, Stockholm, Tampere, The Hague and Utrecht.
The aim of EUROCITIES is to move towards a common position of big cities in Europe. The
creation of an environment of mutual trust and cooperation between cities at administrative
13

16. and political level is very important. Mr. Gebhardt states cities can serve as emerging political
actors in Europe, maybe also in the field of migrant integration. For big cities, migration is
simply a given, to manage the influx, cities are certainly in need of a well-managed migra-
tion policy. Therefore political leadership is needed in order to gain a strategic approach to
integration governance. For EUROCITIES it is very important to develop an efficient and pro-
active newcomer office and work all together to move towards a common European position.
Ramon Sanuhuja
The Barcelona of today is largely the result of the migrations
of yesterday. The history of our city shows us various periods
in which large population increases have occurred as a result
of different migratory movements. If we look at the 20th
century onwards, we see that the city began the century
with over half a million inhabitants, of whom 21% were born
outside Catalonia.
In January 2000, the number of foreigners living in Barcelona represented 3.5% of the total
population, but at the beginning of the year 2010 this proportion was around 17% (almost
300 000 people)
When an intense process of social transformation takes place during a relatively brief period
of time, it is essential for the different political and social agents to react quickly to under-
stand the depth of the changes and to be capable of providing appropriate and effective
responses to the new challenges and the new necessities.
For this reason, when we speak of the complexities arising out of this increase in diversity,
we must be well aware of the global context and the different variables that come into play in
the way this diversity is lived and perceived in all spheres of urban life. If we do not do this,
we will fall into the error of believing that the origin of these complexities lies exclusively in
cultural differences when in fact they are strongly determined by social and economic vari-
ables. But neither must we fall into the trap of minimising the cultural variables and focusing
solely on socio-economic aspects, because history and, in particular, the recent experiences
of other countries have shown us that both factors are relevant and are often interrelated.
The way in which a city like Barcelona interprets and faces the challenges posed by this
increase in diversity is entirely determined by its specific historical, social, cultural and eco-
nomic characteristics. There is no sense in conceiving a strategy that does not start out from
this premise.
This means that it is impossible, and entirely useless to seek to transfer “models” of other
cities or countries, most of which in any case are currently being revised. But this does not
14

17. mean that it is futile or unnecessary to analyse these experiences and identify their positive
aspects and, particularly, their mistakes.
Taking into consideration the history and the specific characteristics of the city as the capital
of Catalonia, one of the principal economic motors of Spain and with prominent presence in
the increasingly consolidated Euro –Mediterranean space, Barcelona needs to face the chal-
lenge of managing diversity on the basis of a proactive attitude, defining a long-term strat-
egy with it’s sights set on the city of the next ten or fifteen years.
The Intercultualist approach
Specifically, we can identify three principles on which the interculturalist approach rests:
- Principle of equality
- Principle of diversity
- Principle of positive interaction
Inter cultural Policies
Specifically in relation to strictly inter cultural policies, for some years now the City Council
has been promoting policies that emphasise the need to foster interaction and inter cultural
dialogue. There are a number of examples of this.
In 1997 when the percentage of foreign residents in the city was only 2%, the City Council
defined its first, pioneering Municipal Plan for Agriculturalist.
Interculturality has also been promoted in various areas, such as education, through pro-
grammes in schools, within the framework of the educational setting plans (plans Educatius
d’Entorn) and other initiatives under the umbrella of the City Educational Project.
Another example is the creation in 1999 of the Barcelona Inter-Religious Centre, now the Re-
ligious Affairs Office, with the goal of guaranteeing freedom and peaceful coexistence in the
public sphere for all religious beliefs and visions of life.
In 2002 the Inter cultural Mediation Service came into operation, with the purpose of being a
bridging instrument between immigrants, professionals of the administration and the native
population, and also between collectives of different cultural origins.
The city’s various district councils are also working from an inter cultural perspective. The
realities vary a great deal between different neighbourhoods, but many districts have pro-
moted reception plans and community actions to foster peaceful coexistence, in which inter
cultural dialogue is a strategic goal.
15

18. In the sphere of culture, we must highlight the impulse given by, and the subscription to, the
Agenda 21 for Culture- the movement of cities of the world committed to cultural develop-
ment- and the support for UNESCO Convention on Protection and Promotion of Diversity of
Cultural Expressions of November 2005.
The Immigration Working Plan 2008-2011
In October 2008, after several months of work the Immigration Working Plan 2008-2011 was
approved with the consensus of all the political parties. This plan, which brings up to date the
measures of the Municipal Plan 2002, sets out five lines of action, the fourth of which refers
to nurturing interculturality and participation in order to guarantee full integration. One of
the concrete measures contained in this section is precisely “the drafting of the Municipal Plan
for Interculturality”
The drafting of the Barcelona Interculturality Plan was a mandate of the Immigration Work-
ing Plan, approved by all the political groups represented on the city council.
The principal goal of this plan is to define the city’s own strategy for peaceful coexistence
in diversity: that is to say, to define a political strategy on how we interpret and face the
challenges posed by the increase in socio-cultural diversity and how we exploit its potentiali-
ties. The strategy is based on the interculturalist approach, and therefore it was necessary
to define how this was to be applied to the reality of Barcelona. Education, culture, urban
planning, economic promotion, the districts, etc. All the various spheres have to be aware of
the challenges posed by diversity and how the principle of interculturality is promoted. The
plan defines a strategy for answering questions.
Barcelona City Council’s Commitment
Barcelona city council is committed to devoting human, technical and financial resources to
ensure that the Barcelona Inter cultural Plan is put into practice, and this plan is undertaken
with transparency, for the whole of the city’s population.
In order to guarantee this, the City Council will take the following measures:
1. Set in motion a training and awareness programme for the workers in the different mu-
nicipal sectors and districts on the management of diversity and inter cultural policies.
2. Make the necessary technical coordination arrangements to guarantee that the Plan is
implemented, rolled out and monitored.
3. Reinforce transversality, appointing a person to be responsible for the Plan in all munici-
pal areas, and carry out periodical monitoring of the Plan within the framework of the
government bodies and existing inter-group round tables.
4. Reinforce channels of communication and forums where work is done in collaboration
16

19. with districts, to give them support and to help ensure that the measures are put into
practice in all of the city’s neighbourhoods.
5. Adapt the Barcelona Inter cultural Plan website, so that it will become an accessible area
for the follow-up and monitoring of the Plan’s development, and constitute an important
centre of resources regarding inter cultural policies www.interculturalitat.cat or www.
bcn.cat/plain-terculturalitat
6. Assess the impact of the Plan’s policies by way of the indicators of results that are at-
tached in the annex. This will need to be validated, adapted and extended in an ongoing
way with the incorporation of new indicators.
7. Draft a comprehensive biannual report, with a complete evaluation of the process of put-
ting the Barcelona Inter cultural Plan into practice, and with an analysis of the situation
of the city in terms of inter cultural matters.
Finally, the City Council is also committed to its workers being more and more representa-
tive of the city’s pluralism and sociocultural diversity, eliminating the barriers that directly
or indirectly make this aim more difficult to achieve.
Regional initiatives towards integration and living in diversity for
successful integration
Inge Hellemans
Mrs. Hellemans the Policy advisor, Flemish Authority, Agency for
Internal Affairs Inburgering talks about the integration courses in
Flanders and Brussels as part of the regional initiatives towards
integration. Flanders describes ‘inburgering’ as “an interactive process
through which the government provides immigrants with a specific pro-
gramme on the one hand to allow them to increase their self-reliance and
on the other hand to encourage society to recognise these people as fully-
fledged citizens, with the aim of achieving full, active participation and
shared citizenship for everyone as well as sufficient social coherence”.
Integration programmes can be divided in two parts. A Primary Programme, allowing people
to integrate, actively develop their life careers and to sufficiently master the Dutch language.
The Secondary Programme, which aims to achieve full participation into the society of people
integrating and provides them with a view to develop their life careers. The Primary Pro-
gramme is coordinated by a welcome office and consists of a training programme (elementary
Dutch course, social orientation course and career orientation). Each newcomer is assigned a
programme counsellor. The duration of the training programme will approximately be 1 year
at most. Mrs. Hellemans stresses the fact that integration is not something you just do inside
the classroom. We must encourage the people integrating to build up a social network, to
get to know their local town or community, to practice their Dutch, to sign up to become a
17

20. member of a local association or sports club, to take up voluntary work,…
In Belgium, the integration programme is intended for foreigners aged eighteen and above
who are coming to take up long-term residence in Flanders or Brussels. Belgians who were not
born in Belgium and who have at least one parent who was not born in Belgium either, also
rank among the target group of integration policy. An important issue that has to be men-
tioned is that, in Belgium, integration cannot be linked with residence, because the latter is
a competence of the federal government, as well as access to the Belgian territory.
Mrs. Hellemans shows the different partnerships needed to establish integration programmes
successfully. E.g. Public Social Welfare Centres (OCMW), Welcome Offices, ‘Houses of Dutch’,
Dutch language providers and the Flemish Service for Employment and Vocational Training
(VDAB). Federal authorities, Flemish authorities and local authorities (councils) are also in-
volved.
Xavier Alonso
Only ten years ago Catalonia counted 1.500.000 inhabitants less
than today. Its current population is 7.5 million, of which 16%
(1.200.000) are foreigners. Mr. Xavier Alonso talks about the Cata-
lonian model of integration and the role of the Catalonian govern-
ment and the municipalities. Catalans are used to thinking in terms
of integration. Catalonia doesn’t have a model for integration of
immigrants. It’s a strong tradition in Catalonia to speak about “in-
tegration”. First, the country faced and accepted the integration of
other Spaniards, and now, it is the same with foreigners.
Strong mainstream services. Another dimension explaining the integration of foreigners is the
existence of a large network of basic common services devoted to the whole population since
the 1920’s -especially public schools and the health system.
The municipalities developed strong initiatives in al sorts of public policies. In terms of im-
migration policies, from the beginning of the 80’s Catalonia’s municipalities set up hundreds
of plans, programs, services, etc
Here are some examples of today’s global and permanent programs that began as small local
experiences in the public sector:
- admission of irregular immigrants in the health system,
- coordination of the fight against feminine sexual mutilation,
- specialized training for public employees to help them to understand changes and adapt
to the implementation of services,
- Reception classrooms for new pupils.
18

21. Another feature of our way of thinking on integration is the so called Normalization Prin-
ciple. The principle establishes that “immigrants should as far as possible be included in the
ordinary system of public services”.
Spanish legislation on immigration is very progressive. The first contemporary provisions on immi-
gration came into force in 1985, and since then the irregular immigrants had some fundamen-
tal rights, which have steadily increased in number since then. The legislation is progressive
because it was developed during those same years (1985-2009) in which the Spanish popula-
tion longed for and fought to get rights they couldn’t get for themselves during the 39 years
of the Dictatorship. The struggle for fundamental rights for the whole population was the
struggle for fundamental rights for everybody –including foreigners.
We cannot manage the integration process well, without at the same time managing the
frontiers, residence permits, deportations well. The Catalans had suffered from a limited vi-
sion. We think in terms of integration but not in terms of management of migration flows.
In Alonso’s view, to manage integration properly requires experience, a vision beyond regional
frontiers and a political will to share powers with central government.
In Spain, the connection between systems of integration and management of migratory
flows is ruled by at least 4 coordination bodies, established in 2000. There are councils where
representatives of regions and the central State debate common issues but its performance is
still way below what is needed for efficient outcomes. The political demands of the Catalans
are reflected in immigration policy. Catalonia has maintained a constant will to self-govern
and for the survival of its culture and language. We could say that the EU’s Basic Common
Principle of Integration number 1, “Integration is a dynamic, two-way process of mutual ac-
commodation” also fits into our system.
Language teaching of Catalan. There is a strong demand for the language teaching of Catalan for
adults and other programs like Language Pairs. The number of enrolments in Catalan courses and
the number of Language Pairs have almost doubled in the last five years (2004-2009). With re-
gard to the compulsory education of children, there is a commitment to multilingualism based
on Catalan as the teaching language. The reception classroom is a reference framework and an
open working environment in a school which facilitates immediate and appropriate attention
for newly arrived students and helps teaching staff to confront new educational challenges.
In the 2008-2009 school year there were 1,234 reception classrooms serving a total of 22,453
students. At the same time, language teaching of some of the most important languages of the
immigration has been organised: Amazigh, Romanian, Urdu, Arabic, Bengali or Chinese.
Only regularizations case by case will be admitted in the future. Spain had to approve massive regu-
larizations in the past, but in the future an increase of the regularizations case by case is en-
19

22. visaged. Spain had to begin managing immigration flows when they were at its highest level,
and because of the lack of experience we didn’t manage to get a good level of control. Many
people entered illegally or rapidly became undocumented once they settled in the territory.
The Spanish legal system is mainly based on residence permits to work. Only in 2005 was an
alternative way of entrance regulated: “The Administration may grant a temporary residence permit
in cases of special bonds, humanitarian reasons, and collaboration with the legal authorities or other
exceptional circumstances to be determined in the enacting regulations”.
In this special procedure, the immigrant has to prove his or her integration throughout all
kinds of documents reflecting personal facts of his/her social life, like having children at
school, the enrolment in vocational training or language courses, etcetera. These documents
prove individual facts all of which are related either to regional or to local powers.
Since 2009 at least 4 types of procedure require a report issued by the Autonomous Commu-
nity –or in some cases, by the municipalities- in order to evidence integration into Spanish
society:
1) Residence permits in cases of special bonds,
2) Renewal of temporary residence permits,
3) Residence permits for unaccompanied minors, and
4) Acquisition of nationality by virtue of residence.
In 2010, Catalonia approved the Law of the Reception Services the Law is based on EU’s principles
and orientations. Both the 1st Handbook on Integration and the Basic Common Principle
number 4 pointed out that ME ought to create introductory programs, because basic knowl-
edge of the host society, of the host society’s language, history, and institutions is indispen-
sable to integration”. The new Catalan law provides that migrants should perform 200 hours
of non compulsory and free training, in the following subjects,
- Catalan and Castilian. 160 hours.
- History, institutions and fundamental rights. 20 hours.
- Labour rights and duties, and the function of the labour market. 20 hours.
Those who complete the courses shall obtain a certificate that could be used as “report of in-
tegration” in State procedures.
In some situations, regions lead, and in others perform like municipalities. The Generalitat
and the 946 Catalan municipalities develop many programs and services. The leadership of
our regional government must, above everything else, demonstrate that it can:
20

23. - coordinate with municipalities
- coordinate with the State
- plan and legislate for the country as a whole
- set some strategic programs
- manage a universal reception service
- manage a statistically based monitoring system.
21

24. Focal areas on integration
The second day of the conference different working groups were organised, going into depth
and focussing on specific issues such as language learning, social orientation and participa-
tion, parent participation, career orientation and activities of migrant organisations. We
chose to focus on those six aspects because of their importance within the integration pro-
cess for migrants.
In what follows, you will find a description of the conference working groups, each one
introduced by two experts in the field, talking about their approach, project or practice on
integration.
22

25. Language learning
Keynote
In his résumé, Mr. Piet Van Avermaet, professor at the Ghent
University, talks about the language requirements for adult
migrants and the corresponding observations and challenges
for the future. He is convinced that language and societal
knowledge tend to be regarded as key elements for policies
that ensure the social cohesion of a country or a region. For
some years, there has been a move towards stricter conditions
for newcomers in European countries. The requirements in-
clude a basic knowledge of the language and familiarity with a country’s culture. A survey
shows that in 2009 75% of European countries (23/31) have linguistic requirements as part
of their integration regulations. Mr. Van Avermaet notices that in most countries there is a
shift from providing opportunities for immigrants to follow language tuition programmes to
introducing obligatory programmes with tests and sanctions. In some countries the stricter
conditions are even used as a gate-keeping mechanism. As some additional general observa-
tions Mr. Van Avermaet established that:
- The number of Knowledge of Society tests (KOS) is limited for entrance, but higher for
people applying for citizenship.
- Still some countries have language requirements but do not offer language courses, so
that candidates have to go to the private market with high costs.
Mr. Van Avermaet faces some challenges for example: Can we take the diversity of educational
and cultural backgrounds into account? How can we meet migrant’s and society’s specific and
functional language needs? As an answer Van Avermaet proposses more analyses, new peda-
gogy’s and tailor made courses. Questions like ‘how can we encourage people to stay in the
courses?’ and ‘to what extent can an integration policy be of a more facilitating instead of a
conditional nature?’ are raised. Piet Van Avermaet is convinced that a more facilitating policy,
language courses and language tests can be more flexible, more tailor made in format and
content. The level of language proficiency can vary depending on the needs of the immigrants
and on the linguistic requirement in specific domains of the host society in which an immi-
grant wants to function. A more facilitating policy is more encouraging than discouraging. It
is aimed at integration and non-discrimination. It also offers more opportunities for acknowl-
edgement of immigrant’s plurilingual repertoires. More facilitating policies of this nature aim
for the inclusion of all people in a multicultural society. Diversity is seen as an added value
and an asset, a source for creativity and innovation.
Working group
The central theme in this working group was Language Learning, and how this is organised
in Brussels (and Flanders) and in Ireland. The Belgian case was mainly about how the demand
23

26. and supply of language courses are organised and about how the use of Dutch is stimulated,
while the Irish case focused more on how the language is taught, and how to improve learn-
ers autonomy in second language education.
Mr. Gunther Van Neste, Director Huis van het Nederlands Brus-
sel, Belgium, gave us an overview of the different goals of the
Huis van het Nederlands (HvN) (translation: House of Dutch),
and how they try to reach these goals.
Prof. Dr. Emeritus David Little of Trinity College in Dublin and
founder of Integrate Ireland Language and Training (I.I.L.T.) of-
fered a short summary on the beginning of I.I.L.T. and he ex-
plained the methods that I.I.L.T. developed for teaching English
as a foreign language.
In Flanders and Brussels there are 8 different Houses of Dutch that each correspond with a
Welcoming Office that serves the same region. They were established between 2002 and 2004
with a double statuary mission: “To help people who want to learn Dutch, to find the appropriate
Dutch Course and at the same time balancing the demand and supply of Dutch courses”.
The House of Dutch in Brussels has a third mission: promoting the use of Dutch in Brussels.
This is what sets them apart from the other Houses of Dutch, because they work in a region
where most Dutch speakers automatically switch to another language when interacting with
a non native Dutch speaker.
By testing and interviewing, they determine the possibilities for the applicant. Based on this,
the applicant is directed to the most appropriate, closest school. This diminishes the com-
petitions between the different providers (schools) of Dutch, and helps balancing the supply
and demand.
To promote Dutch the House of Dutch didn’t start a big campaign (not to offend French-
speaking people in Brussels) but they promote practice programs with native Dutch speak-
ers, they set up a website via which students can meet up with native Dutch speakers and
together with partners they help organisations and companies to use accessible “Language on
the Shop Floor”.
Professor David Little talks about the three main goals of the
Integrate Ireland Language Learning program he developed. They
were to develop learner’s proficiency, to develop the ability with
students to manage their own language learning in the future
and to bring learners in contact with culture and society. The
majority of the students at I.I.L.T. already had some proficiency
in English, a few were fluent but needed to develop their skills in
academic English, and a few had no English and no literacy skills
in their home language. The courses I.I.L.T. offered were very in-
24

27. tensive with 20 hours of tuition and 10hours homework every week. Teachers were offered a
good salary and were supposed to prepare and develop materials as well as teach the students.
The guiding principle of I.I.L.T. was learner autonomy, which they develop by operationising
learner involvement, learner reflection and targeting language use.
Learner involvement was stimulated by working with small groups, and without a pre-exist-
ing curriculum so that a continuous process of negotiating the individual and group needs on
a weekly or even daily basis is what determined each term’s programme.
To target language use, English was the main medium of classroom communication, and a
conscious effort was made to integrate reading and writing and to help students develop
literacy skills. A few examples of how this was done were creative writing activities (short
stories, poems), a reading club, etc.
Learner reflection is already implicated in the ongoing process of needs analysis and goal
setting and is further developed by using the European Language Portfolio, with the use of
check-lists to get self-assessments.
Although learners were not required to pass a test, their learning was externally assessed
and certified by FETAC (Further Education and Training Awards Council). This assessment was
based on the student’s portfolios that were monitored to ensure that the stated standards
were achieved. Because these FETAC certificates are nationally recognized, they were an im-
portant tool in the integration process of the refugees.
If asked for the strongest elements necessary to achieve what I.I.L.T. did, the ethos and the
underlying framework are the answer and these can also be transmitted from one context to
another. Especially the teacher’s ethos was very important they got paid enough and were
closely involved in the development of the programme.
I.I.L.T. still exists, but due to allocation and financial and logistical problems it is not func-
tioning any more.
The system of “Taalcoaches” (language coaches) like it exists in the Netherlands, where wom-
en visit each other at home, refugees and spiritual leaders are appointed a buddy to coach
them through the programs, does not exist in this form in Flanders or Ireland. In Ireland
there are regular evening meetings with retired people and newcomers were they practiced
English, and in this way improve the social interaction. In Flanders language learning started
by conversation groups with volunteers, now the classes are taught by professionals and
complemented by activities with volunteers.
As a conclusion we can say that in learning a host language (spoken in the country a person
migrated to) there is a close interaction between the ideological view, you live in Flanders
you have to speak Dutch, and the practical view, you want to work in Flanders you need to
speak Dutch.
25

28. Good integration practices
Andersson Elffers Felix – The Netherlands
Employer Incentive ‘Language in the workplace’
1 year intensive national campaign financed by the Dutch Ministry of Housing, Spatial
Affairs and Environment. Employers are stimulated to provide language courses to em-
ployees who don’t master the Dutch language sufficiently. These language courses are
funded by the local municipalities. On top of this, employers receive a compensation
fee of 1000 Euros for every employee who participates in the program. During a 1 year
period, the Ministry financed 30 regionally functioning account managers to create
awareness amongst employers of the advantages of these courses and to support the
actual organisation of these programmes on the work floor. AEF provided account man-
agement for the larger region of Rotterdam.
The language courses are offered under the system of civic integration. For the the same
target groups and follows – largely - the same curriculum. When courses are provided
on the work floor, the content can be tailor- made to the requirements of the employer
and on the job coaching is possible. The courses also need to be completed with a Dutch
integration exam, or a government/state exam. By passing one of the exams the criteria
to get a Dutch passport are met. There are three main types of language courses, follow-
ing the Dutch system. Courses are flexible and tailor made, and can take place once or
twice a week for 3-4 hours at once. The courses takes between 3 – 18 months, depend-
ing on the base level of participants, ability to learn as well as demands of employers.
The content and level of the three courses differ:
1. a language course completed with a integration exam; this course aims to obtain
a basic level to obtain knowledge of Dutch society (examination at A2 level)
2. a language course completed with a State exam; people who follow this course
have already a basic knowledge of Dutch language and continue their course on a
higher level, focusing more on grammar. Passing this exam gives admittance to on
ward professional or academic education
3. a language course in addition to a basic professional education (MBO 1 / 2); This lan-
guage course is aimed at supporting students to make them able to finish their studies.
Two distinctive target groups can attend. The first are those people who are obliged to
participate in a civic integration programme. The second are the people who can partici-
pate on a voluntary basis. Many people from this latter group are so called ‘old-comers’;
people who hold a Dutch passport but are still not able to speak the Dutch language and
26

29. therefore do not fully participate in society. However, more and more knowledge mi-
grants, for example those working on their doctorate at the Erasmus University Rot-
terdam, are able to participate.
This initiative builds on the civic integration programme, which formed a cornerstone
of the Deltaplan Civic Integration, a comprehensive plan to address integration execut-
ed by the Directorate of Integration within the Ministry of Housing Spatial Planning
and the Environment (currently under the Ministry of Internal Affairs).
Results
500 employees in a period of 9 months
Qualitative outcomes:
1. Collaboration between municipalities to better service employers related to civic
integration
2. Further collaboration between the employers service points and civic integration
executing departments within the municipalities
3. Awareness amongst employers of the option to provide on the job language training
in collaboration with municipalities
More information: M.Keulemans@aef.nl
Community of Sant’Egidio – Belgium
Language School Yaguine en Fodé
1. Language School Yaguine en Fodé. Dutch conversation classes. Twice a week new-
comers have the opportunity to exercise the knowledge they have gained.
2. The movement Volkeren van Vrede (People of Peace) gathers newcomers from many
different countries. They are committed to work for a better society.
The aim is to assist newcomers in acquiring language skills to enhance their integration
in society and to introduce newcomers in Belgian society, its history and its inhabitants
and becoming a part of it.
Results
Yearly, the school hands out certificates to those who attended the classes regularly.
The movement increased the newcomers’ knowledge about Belgian society (e.g. World
War II and the Jewish population of Antwerp…). It established contacts between groups
27

30. that would normally not meet: newcomers and elderly people. This contact creates
friendships and thus fights not only racism but also the loneliness of the Belgian elderly
people. The newcomers also meet other newcomers from very different backgrounds
than their own, avoiding the creation of ‘islands’ of people with the same background.
The school helped people with their language skills, thus increasing the possibility of
finding a job and function well in society.
The activity has impact different levels. Firstly the newcomers experience contributing
to and belonging to their new society. It also has a very important impact on the Bel-
gian elderly people they visit: they are less lonely and often the newcomers help them
to remain at home instead of having to go to an institution. Last but not least, the
movement actively fights racism. For example because of their commitment to society
as a whole and to the vulnerable group of elderly people.
More information: www.santegidio.org or info@santegidio.be
28

31. Social participation
Keynote
Community Education and Employment Coordina-
tor from the Migrants Resource Centre (MRC), Mrs.
Laura Marziale shares her experiences on social par-
ticipation of migrants in the UK. The MRC works with
migrants and refugees, in partnership with other
agencies to effect social justice and change enabling
migrants to fully participate in the society. To accom-
plish this goal, there certainly are lots of barriers and
challenges which have to be defeated. Mrs. Marziale
names a few like isolation, lack of confidence and self-
esteem, lack of UK work experience, poor English lan-
guage skills, not knowing how things work in the UK,
and so on. To win over these barriers, the MRC has a clear view on social participation. First
of all, they help migrants in understanding how things work in the host society, especially on
the labour markets. The MRC also tries to give accurate one-to-one advice and information.
The fact that migrants should feel supported, encouraged and empowered cannot be under-
estimated. As well as there should be a platform available, so that they can share experiences
and feel part of a community. Mrs. Marziale continues by saying that, in the UK, it is very
important to gain work experience in your professional field. That’s why the MRC also sup-
ports volunteering as a mean to stimulate social participation. The Migrants Resource Centre
gives high priority to the self-realisation of migrants. They have to feel good about their place
in the society and feel respected and valued. Mrs. Marziale points out that the MRC is a real
point of reference in London, their users describe the organisation as “a place where we can feel
safe, not judged and build confidence, where my own social life is improved, knowing that the MRC is
here is reassuring”.
Working group
Mrs. Liesbeth Dierickx, Staff member Communication and Partici-
pation of the Reception Office Antwerp, Belgium and Mr. Wim Bud-
ding, advisor of the Foundation for the Promotion of Social Partici-
pation, Amsterdam, the Netherlands presented there views on social
participation and talked about the added value of their organisation.
Liesbeth Dierickx established that, in general, new immigrants show
a low level of social participation. This is not so much the outcome
of a lack of interest than it is a logical result of the fact of being a
new­­comer in society.
29

32. Since 2004, the reception office in Antwerp (Belgium) encourages immigrants to participate
fully in society by taking action as a volunteer within local organisations.
Although volunteers receive no remuneration as such, the benefits for immigrants are mul-
tiple:
- they can practice their Dutch language skills;
- they can build up a social network with locals;
- they can build up work experience and competences;
- they can become acquainted with unspoken behaviour, norms and values;
- they can make themselves feel useful in their new society.
In offering voluntary work, the reception office does not stand alone. It seeks active collabo-
ration with other organisations to engage immigrants as volunteers. This is part of a strategy
to raise awareness within civil society for the specific situation of immigrants. The reception
office wants to motivate organisations to work with migrant volunteers. By doing so, they
build up a network which acts as a “task force on volunteering”.
The kind of organisations volunteers are referred to is quite diverse: nursery homes, child
care, sports clubs, etc.
Clearly, not only the immigrants benefit from voluntary work, but also the organisations they
work for. Not only get volunteers the work done; for both parties, there’s definitely a strong
positive effect on mutual image building and on social cohesion.
In order to make the project known among the large group of clients of the reception office,
a video was made which is now part of the social orientation course. Also other tools were
developed, such as: a participation help desk guaranteeing an individual approach, informa-
tion sessions, motivating tools and so on.
An essential part of the project is the matching between offer and demand. The screening
instruments assure the best match between talents of immigrants and expectations or needs
of organisations.
In general, the whole motivational, screening and matching process is rather time-consum-
ing. As a result, individual evaluation remains difficult since follow-up from the reception
office has been weak so far. Partially, this is also the result of the success of the initiative.
Although designed as a small project, about 100 persons a year receive personal assistance on
voluntary work. And the public consists of more women than men.
However, 50 % of all volunteers still continue their activities 3 months after starting.
Results could even be more impressive, but sometimes people are refused because Belgian
legislation does not allow certain categories of immigrants to do voluntary work.
Acknowledging the success of the project, the city of Antwerp recently decided to start up a
service point for volunteers, thus assuring the continuation of the project on a larger scale
and within a larger network.
30

33. Discussion
In general, participants at the conference stress that it can be difficult to reach immigrants
and to motivate them to do voluntary work while they live in a precarious situation.
Newcomers to society often have other priorities, such as: getting their documents in order,
finding good accommodation, helping relatives in their country of origin financially, etc.
Engaging someone to support others when they themselves are in need of support is not an
easy task.
In that case, a lot depends on the message you bring. Doing voluntary work clearly can have
a positive outcome. For social workers, it enables them to start up a discussion on how im-
migrants see their future in their host country and to reflect on career orientation.
While, for immigrants it’s an opportunity to learn or to practice the local language and to
know more about society. It also has a positive influence on their self-esteem and helps them
not to get isolated.
The whole isolation issue is a very important one. People can only do something back for
society when they feel they have their proper place in society.
Here, also community-based or migrant organisations have a role to play. Being among co-na-
tionals sometimes is the easiest or fastest link to resolve one’s problems. It is important that
people feel at home away from home. This gives them a sense of belonging, which can help
them to better participate in society. Communities are often seen as a threat to traditional
society, or they are neglected, but they can be a leverage for social participation. As a conse-
quence, language learning is not necessarily the right focus right from the start. Although it
remains essential that people do speak the language after time.
We must also realize that voluntary work is not for everybody, personal agendas play a part.
We have to take into account that volunteers have different capacities, which makes it dif-
ficult to classify people or to trace one simple path to follow. Working with volunteers is
customary. From a societal context, it is indispensable to be able to speak the local language.
But this can be reached by different activities, both formal and informal learning, as long as
the approach is a participatory one.
The whole idea of empowering implicates that you set up a process with people to start an
activity that they will leave in the end.
Traditionally, the third sector is more open to this (regardless if it is a community-based or-
ganisation or not), while for private companies this will be much more difficult.
Stichting BMP stands for “Foundation for the Promotion of Social Participation”, a small
Dutch professional non-profit organisation which was set up in 1986.
Its mission is to promote people’s participation into the development of society. It is com-
mitted to empower people by facilitating the active involvement of individuals, groups and
organisations in social trends that affect them.
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34. Various bodies fund BMP on an individual project basis. These bodies include ministries, local
authorities, community organisations, funds, the European Commission, etc.
Stichting BMP is specialized in projects with a focus on stim-
ulating the debate on globalization, as a central theme.
In recent years, BMP has focused on three core themes:
- ageing of society and the position of seniors;
- human rights;
- immigration and the position of immigrants and refu-
gees.
BMP’s projects place great emphasis on opportunities for self-
development and self-realisation. Its public consists mainly
of newcomers into society, e.g. immigrants, refugees.
Among BMP’s projects was the development of an empowerment method for older refugees,
on the basis of practical experiments with life stories and expression.
“The Power of Older Refugees” organized workshops in several European cities (Berlin, Ghent,
London, Vienna), promoting different approaches of empowerment. One of these consisted
of writing and reciting poetry.
Based on the same method, the participants at the working group were invited to write a
poem themselves.
Starting from each one’s own individual experience, small groups were created to write 1
poem each with a common structure. The individual reflection seeked an answer on the fol-
lowing questions:
- I had to move because...
- I join society so I can...
- When I think of home, I always feel...
Subject of the poem was how participants feel about social participation in relation to arriv-
ing into a new society.
The poem itself was an exercise on how to make something impressive with little means, us-
ing the power within people to express themselves.
The poems
As an example of the exercise, we reproduce here 2 out of the 6 poems.
(1)
We had to move
Because we could not stay
And stagnation was not an option
When we think of home
We always feel happily confused
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35. We join society
To learn, understand and feel the difference
(2)
Every move I make
Is composed
Of self-cost, discovery and experience
So I had to move
Because I felt of taken the wrong way
And I wanted something better
To be free
The world outside
Is more inviting than my village
Which is small
And I had to move
I am not able to stay
Waiting for life
To overtake me
Society I join
In order to express my knowledge, experience and contribution
In proof of development
And see myself expressed
I join society
In order to fully realize
And bring out
The fullness of integration
Feeling loneliness
Homesick
Family
World
Is what I think of
When I think of home
Frames of reference
Lack of development of my parent homeland
Bring me feelings of home
When I think about it
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36. Discussion
The discussion focused on the necessity of educating universal values to immigrants, as a key
stone to social participation.
Although the comprehension of (and the respect for) universal values was recognized as an
important asset, this was not seen as a typical “migrant issue”.
Universal values – as the name suggest – should unite people and not separate them.
In conclusion, we can say that social participation manifests itself through every day life.
How people fit into society depends on their background, expectations and chances in life.
Empowering people is an essential step towards social participation, using their experiences
and the power within.
For some, voluntary work can be a powerful tool towards social participation and well-being.
However, there’s no such thing as one recipe for all.
Another important asset is that voluntary work also helps to open up civil society towards
immigrants. This way, both integration and social participation become a two-way process.
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37. Good integration practices
Austrian Integration Fund (ÖIF) – Austria
The Integration Award for Sports
In giving an ‘Integration Award for Sports’, successful integration is combined with posi-
tive images in sports, contributing to an increased sense of “togetherness”. A jury com-
prising individuals from the fields of sports, business and social affairs selects the best
projects. They look closely at qualities like sustainability, originality, working method,
visibility, and the level of volunteerism. The only condition is that the projects must
have already begun or have been successfully completed. In 2010 the award is being
granted in cooperation with the Bundes-Sportorganisation (BSO) and the SPORTUNION
Österreich.
Results
When people of different nationalities, religions, or with different worldviews meet
through sports, there is generally no room for reservations; skills like tolerance, fair-
ness, team spirit, and solidarity can be explored and shared. The Integration Award for
Sports is given to outstanding projects that encourage and advance the integration of
persons with a migrant background into the Austrian society.
Around 80 projects were submitted in 2008. This initiative highlights the diverse pos-
sibilities of integrative sports projects. Participants and organizers received increased
media attention through the “Integration Award for Sports”. There was broad media
coverage of the award ceremony and the winners throughout Austria.
Sports do not always lead to integration. The awarded project encourages cooperation
between migrants and Austrians by employing special working methods. It involves
working together and not parallel to each other. The awarded project emphasizes active
participation of the target group.
More information: http://www.integrationsfonds.at/ or http://www.integrations-
fonds.at/
Consorzio Sociale COIN - Italy
C.A.S.A. Care Assistants Search Agency
CASA faces the increasing demand for care commitments and quality care for depend
35

38. ent family members and children by facilitating and supporting the integration of
third country nationals, mainly women, in the EU. The main objective of Care Assistant
Search Agency is to develop and disseminate a tool for public and private bodies that
work in the care assistance with the aim to respond on to their needs of managing the
offer and the demand in this sector. In this respect, Care Assistant Search Agency aims
to develop an Agency model which on one side responds to an increasing number of
vacant job’s in the long term care sector and on the other hand to an increasing number
of immigrants from outside the EU by supporting the matchmaking between offer and
demand of informal care assistance.
Results
The main objective of the CASA project is to design an Agency model and provide pri-
vate and public bodies involved in the care assistance services with a pre-feasibility
study. The Agency, if implemented, will be able to provide services to:
- people in need of long term assistance - for a better quality of life;
- third-country nationals, mainly women searching for stable jobs and integration.
It is particularly significant that the Project has being developed in a time when a lot of
attention is given to immigrants and their smooth integration in the “host” countries.
The Agency will be considered as a reliable, trustworthy, competent reference point to
solve problems, conflicts and to make life easier for the two target groups it aims to
help: families in need of care services and potential members of the supply.
The Agency structure was very well received by potential users, with the suggestion to
organize it with more staff than those units considered in the Feasibility Report as the
“minimum required work force”.
The concept developed by the project and the results disseminated at national and
international level were considered of utmost interest from different points of view:
a) the positive integration of migrant workers in a job situation highly needed and for
which quality and tailored training was considered essential
b) the availability of a service which could be also implemented by migrant themselves
through the formula of a small enterprise ( e.g. a small cooperative ) thus giving
them a
more sound opportunity to work and maintain their residence permit
c) the possibility to create synergies with existing projects, financed at EU level
More information: www.sociale.it or www.coin.coop or annagrazia.laura@sociale.it
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39. Vienna Business Agency - Austria
Mingo Migrant Enterprises
Entrepreneurs with a migrant background make up about 20 % of Viennese economy.
Information about business support offered by public institutions in German language
couldn’t reach and evoke an interest from the target group. Based on studies performed
in 2007, the city of Vienna has elaborated better practices focused on active networking
and effective measures for gaining confidence within the target group. The main goal
of Mingo Migrant Enterprises was/is to evoke and strengthen the economic potential
of this specific group of enterprises by supporting at least 300 entrepreneurs within 3
years. The initiative is focused on equality in treatment of Viennese entrepreneurs.
Results
By the end of September 2010 about 420 entrepreneurs had contacted Mingo Migrant
Enterprises to ask for information and/or support on business matters; 108 prospective
Entrepreneur’s participated in a special cost-free start-up coaching and 5 entrepreneurs
participated in a cost- free finance coaching program. Many entrepreneurs and start-
ups participated in cost free Workshops on entrepreneurial Matter’s by Mingo Academy.
Networking-activities also proved to be successful: Next to the Turkish community in
Vienna, Mingo Migrant Enterprises gained access to the Polish, Bulgarian, Egyptian,
Chinese, and various other ethnic communities mostly coming from the Balkan and
Eastern European countries. The target group’s feedback to the activities of Mingo Mi-
grant enterprises is positive beyond expectations. Mingo Migrant Enterprises is widely
accepted as the first stop shop.
More information: www.vba.at or raeke@wirtschaftsagentur.at
37

40. Parent participation
Working group
In this working group two speakers in-
troduced their own regional approach
in enhancing parental participation to
improve integration of young immi-
grants. Mr. Kamal Amain, counsellor
parental participation and integration is-
sues, represented the AMPO consultancy
and talked about a parental participation
project in Amsterdam. Mr. Pat Kussé of
the City of Antwerp explained the “KAAP-project” in Antwerp.
Both approaches start from the model of parental participation described by Mr. Amain as
the reciprocal influences between children and their parents, children and their teachers and
parents and teachers. Research shows that interactions between immigrant parents and their
children’s schools are rare and of a low quality. This ought to be related to poor integration
outcomes of both migrating children and their parents. Mr. Kussé stated that school results
increase (up to 30%) when parents are more involved in their children’s learning process. The
common goal of the project in Antwerp and in Amsterdam is to improve the relationship be-
tween the parents, the school and the children.
In Amsterdam the motto “learning through experience” is central. Parents of secondary school
children are given certain privileges to help organise practical things and they are motivated
to talk about activities, school results and so on. There’s only one condition, they have to try
to speak Dutch as much as possible. Research in Amsterdam has shown that a lot of parents
are interested in these types of projects, that costs are low and the effects on integration of
the children are substantial: school results, knowledge of the Dutch language and chance on
the labour market increase. It has also shown that mostly mothers become more involved in
their children’s education.
The KAAP-project in Antwerp mainly focuses on giving parents the possibility to learn Dutch
on the school of their children during the school hours. There’s a dialogue between the teach-
ers of the children and the teachers of the parents. This way parents get more involved in the
learning process of their children.
KAAP use their funds to pay admittance for parents who want to participate in the project.
They also give schools an amount of money to hire someone to motivate parents to partici-
pate. For the language lessons teachers of the centre of adult education are hired. This raised
some questions about the capability of these teachers to cope with cultural differences. Mr.
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41. Kussé says his organisation addresses this problem by organising sessions. During these ses-
sions basic school subjects are being explained in the presence of cultural experts to assure
the message is well received.
The KAAP-project has shown that a lot of parents are interested in their children and in learn-
ing Dutch. The demand even exceeds the supply.
Both in Amsterdam and in Antwerp parents are asked to try to speak Dutch as much as pos-
sible. A representative of Solentra said they start from the dominant culture to guide the
integration process, which means that speaking Dutch is not necessary. Mr. Amain replicated
that the school system in Belgium and the Netherlands demands parents to participate in
the learning process of their children. This is suggested to be a major reason for the big gap
between good and bad students in these countries. Therefore speaking Dutch is an important
step in integration.
There were questions about the continuation of parental participation on schools when a
project is finished. It seems that a school‘s attempts to get parents involved decrease when a
project is finished. There seem to be no obvious reasons for this tendency.
39

42. Good integration practices
NPO Solentra (Solidarity and Trauma) – Belgium
Zorg in kleur – Care in colour
As a pilot project we evaluate a community-based and etnopsychiatric approach to
working with migrant children and their families in a school context. These children
suffer clinically significant behavioural, emotional, school and/or social problems. Par-
ents and teachers are mobilized to help the migrant child with his socialization process.
By creating a shared sense of connectedness around the welfare of the child they are
invited to work together as equal partners (empowerment) to resolve the problem. By
also taking into account informal resources (E.g. neighbours, other parents..) to address
problems, this approach also tries to counter the (unnecessary) high level of profession-
alization in our Western society. This is what we call a community-based approach. A
sense of community can only originate in a context of mutual respect and curiosity for
the other and his or her (cultural) way of understanding the world. An etnopsychiatric
perspective makes a valuable contribution to create such a dialogue.
Results
Clinical achievements:
- Creating cultural sensitivity on both sides (school and family)
- Creating an alliance between parents and teachers
- Becoming aware of the bi cultural participation of children
- Informing parents about the school system
- Creating involvement on both sides (school and family)
- Putting a stop to social isolation
- Breaking out of a negative spiral (behavioural problems)
- Paving the way to mental health and other services
- Creating a network (informal as well as formal)
More information: www.solentra.be or Katrien.Vanfraussen@uzbrussel.be
Gemeinnützige Hertie-Stiftung (Hertie Foundation) – Germany
Frühstart-project
Stimulation of language, inter cultural education and parental involvement – In inter-
linking these 3 elements the project frühstart already lays the foundation stone at the
nursery school career and integration, in particular for children who come from an
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43. immigration background. To reach the aim, nursery-school teachers are trained for two
years and volunteers are trained for one year. Since 2004, 36 nursery-schools in ten Ger-
man cities (Hesse) have participated in the project.
Results
Training:
Raising awareness for inter cultural education among nursery school teachers, parents
and volunteers, developing competences in languages training of the nursery school
teachers.
Language stimulation:
Significant improvement in vocabulary and grammar. Good development in vocabulary,
articulation, language production, phonology and language comprehension.
Parental involvement:
Improvement of cooperation and contact with parents; Increase of participation of the
parents by individual consultations, parent-teachers conferences and common projects
with mentors and volunteers.
Inter cultural education:
Raising awareness for inter cultural education among nursery school teachers, parents
and volunteers; Improved cooperation and contact with parents.
More information: www.ghst.de (german); www.ghst.de/en/ (english) ; www.projekt-
fruehstart.de (german) or TalmonS@ghst.de
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