Presentation by PROVIDUS researcher Dace Akule in seminar on Social Inclusion and Active Citizenship Indicators in Lisbon, Portugal (November 29, 2012 - November 30, 2012). Futher information: http://www.migpolgroup.com/events_detail.php?id=360

1. 5
Using indicators in Latvia:
active citizenship policy
Dace Akule, policy researcher,
Centre for Public Policy PROVIDUS

2. Third country nationals in Latvia
• Non-citizens - legal status created as a transitional measure for
permanent non-Latvian residents who lost the citizenship of Soviet
Union in 1991 when Latvia regained its independence and decided not
to grant automatic citizenship to all its permanent residents. According
to Office of Citizenship and Migration Affairs, there are approximately
312,000 non-citizens in Latvia in 2012 (approximately 14% of
population),
• Persons with a nationality of a third country: 2-3% of population
(largest group 1.4% Russian citizens).

3. Naturalization
• 98% of naturalization candidates are Latvia’s non-citizens (source: Krūma K.
Integration and naturalization tests: the new way to European Citizenship. Country Report Latvia”,
2010, Centre for Migration Law, Radboud University Nihmegen).
• Since 1995 when naturalization started, 139 300 persons have acquired
Latvian citizenship, including 2467 persons in 2011, and 1627 persons in the
eight months of 2012,
• In 1996 the number of non-citizens was 27%, in 2012 – 14%,
• Further decrease in the percentage of non-citizens among Latvia’s population
is one of the objectives of integration policy (“National identity, civil society
and integration policy guidelines 2012-2018” adopted in the government in
October 2011):
– the percentage of non-citizens among Latvian population should reach
9.8% in 2018,
– the number of naturalized persons per year should increase from 2330
in 2010, to 5500 in 2018.

4. Source: Office of Citizenship and Migration
Affairs www.pmlp.gov.lv
• Non-citizens status was created although during the independence
movement Latvia’s People’s Front had promised automatic citizenship
(legally without a right to do so).
• Not enough explanation why the decision was changed (in line with
the principle of continuity of Latvia’s state), for several years (1991-
1995) approximately 700 000 people were unsure about their status
and future in the country, because the law on non-citizens was
adopted in 1995, and non-citizens’ passports were issued as of 1997.

5. Source: Office of Citizenship and Migration
Affairs www.pmlp.gov.lv
• Heated discussions on their rights and the speed that they should be
allowed to naturalize - instead of quotas, regulation first (1995-1998)
provided the so-called “windows” when persons of specific age groups
would be allowed to naturalize, ensuring that not too many of them
acquire citizenship quickly.
• This order was cancelled in 1998 in a referendum, also leading to
granting of citizenship to newly born children of non-citizens. This is
visible in naturalization statistics in 1999 and 2000.

6. Source: Office of Citizenship and Migration
Affairs www.pmlp.gov.lv
• Increase in naturalization also the first years of Latvia’s EU
membership – rights and opportunities of EU citizens, including free
movement of labor,
• In 2007-2008 visa free regime for non-citizens with all EU countries
decreased motivation for naturalization, in addition to visa free regime
for non-citizens to travel to Russia (in place since 2008),
• Russian citizens have lower retirement age than in Latvia (non-
citizens becoming Russian citizens).

7. Reasons to acquire citizenship
Political participation opportunities on all levels are available only to citizens, as
third country nationals do not have rights to vote or run for election in
municipality elections.
OCMA survey in 2011 involving 750 naturalization candidates shows that the
most significant motivating factors were:
• life in Latvia (93% respondents agreed this was a significant factor) and a sense
of belonging to Latvia (87%)
• becoming EU citizens (85%),
• benefits to their children (71%),
• opportunities to participate in national elections - 71% of non-citizens said that
voting rights were a very important or rather important motivator to acquire
citizenship,
• better opportunities in national labor market (74%) and EU labor market
(41%).

8. Reasons to not acquire citizenship
OCMA survey in 2011 involving 1500 non-citizens shows that :
• 25% of respondents think that Latvian citizenship should be granted
to them automatically,
• 17% expect easements of naturalization procedure,
• 13.5% said it was easier to travel to the countries of Commonwealth
of Independent States, e.g. Russia with non-citizens’ passport,
• 8% are content with the status of non-citizens,
• 1.7% did not want to naturalize,
• 35% plan to naturalize in the nearest future,
• 25% have the intention to become Latvian citizens.

9. Citizenship law amendments
Law unchanged since 1998, amendments in final reading (plan to enter
into force in January 2013)
Limited dual citizenship:
• EU, European Free Trade Area and NATO countries,
• countries having signed an agreement with Latvia on recognizing dual
citizenship,
• if dual citizenship is a result of adoption or marriage,
• a special permission is given by the government of Latvia.

10. Dual citizenship
The requirement to renounce citizenship to acquire citizenship has been
acknowledged as a problem for third country nationals in Latvia - hiders
integration and person’s ability “to make a positive contribution to the
society” (source: Immigrants in Latvia: Possibilities and Conditions of Inclusion, Baltic Institute
of Social Studies, 2009).
New dual citizenship regulation will not cover citizens of Russia, Ukraine
or Belarus (top countries that immigrants come from). Alternatives:
• Opposition Harmony Centre suggests allowing dual citizenship with
member states of the Council of Europe,
• Latvian government could include signing special agreements on dual
citizenship with these countries among its priorities for immigrant
integration policy.

11. Non-citizens’ children
• In order to register Latvian citizenship of an infant child born to
Latvian non-citizens, a request of only one parent would be necessary
(at the moment, a request by both parents is required).
• The agreement to register the infant child for Latvian citizenship will
take place at the same time when the fact of birth is registered (this
was not specified in the current law), or until the child has reached the
age of 15.
• In the age of 15-18 the person can apply by him/herself, after proving
Latvian language knowledge.
• After the age of 18 the normal naturalization procedure applies.

12. Non-citizens’ children
• Discussions are continuing on the requirement that the parent would
have to confirm his/her commitment to help the child learn Latvian and
develop respect for Latvia, when registering the child for Latvian
citizenship. A very similar request is already included in the Citizenship
law, but Latvian Minister of Foreign Affairs suggests erasing this point
in the final reading.
• Provisions regarding the citizenship of infants born to Latvia’s non-
citizens are a major improvement to avoid the long-term democratic
exclusion of these children. However, this provision will not have an
effect on the Latvian-born children of people who immigrated to Latvia
after it regained independence in 1991.

13. Subtraction of citizenship
• In the third reading coalition party Nationalistic alliance has proposed
adding another reason why a citizenship may be subtracted – if a
person “knowingly and significantly violates the promise to be faithful
to the Republic of Latvia that he/ she made when becoming a Latvian
citizen”.
• In addition, Nationalistic alliance suggests tripling the ‘trial period’ for
citizens, increasing the time when a state can ‘take away’ citizenship
after a person becomes Latvian citizen from 10 years to 30 years.

14. Naturalization procedure
In the third reading one parliamentarian proposes to double the
residence time requirement for naturalization candidates – the person
would have to live in Latvia on a permanent residence permit at least
10 years (instead of the 5 years requirement currently in place) to be
an eligible candidate for citizenship.
The current requirement of 5 years of permanent residence in practice
already means at least 10 years of residence in the country before a
person is eligible to naturalize (because the person needs to live in
Latvia for at least 5 years to be eligible for a permanent residence
permit, and then needs to wait another 5 years to qualify for
naturalization).

15. High school graduates
Latvia’s citizenship regulation would become more favorable for
immigration integration with regard to the eligibility for first generation
immigrants and their Latvian-born children, if the parliament would
support the proposal of Harmony Centre to grant the right of
citizenship to high school graduates:
• persons with permanent residence in Latvia,
• without the citizenship of another country,
• if he/ she has after May 1990 acquired a diploma of primary or
secondary school (after no less than 8 years of studies).

16. Tax debts, ceremonies
Discussions in the parliament on tax debts as additional criteria for
naturalization candidates:
• the size of grey economy is estimated approximately 30%, avoiding to
pay taxes on all income is still considered smart (tricking the state), low
trust in social policy provisions (pensions for future generations) so
individual strategies are chosen.
• in this context, why is tax paying a criterion only for naturalization
applicants? Are there data that people without Latvian citizenship are
more likely to avoid paying taxes?
Public consultation on citizenship ceremonies until January 2013.

17. Inclusive policy discourse?
• Even when you’re a citizen, can you be trusted?
• Suspicion because:
– “they” vote for “their” parties (close ties with Russia),
– “they” vote in favor of Russian as second state language (February
2012),
– “they” suggest granting automatic citizenship to all non-citizens (2012,
referendum was halted),
– “they” do not understand “core values” of Latvian constitution.
PROVIDUS research “Shrinking citizenship” on parliamentary and media
debates in Latvia, analyses the discourses of Latvian politicians and the media
about nation, citizenship, cultural diversity, history and the nation-state.

18. Other indicators
To measure the results of national integration policy linked to active
citizenship from “National identity, civil society and integration policy
guidelines 2012-2018”:
Current data Goal for 2018
Sense of belonging to Latvia and Europe among 30% for Latvia 75% for Latvia
pupils of bilingual and Latvian schools 50% for Europe 70% for Europe
Sense of belonging to Latvia among Latvians and 70% among 80% among
Russians Latvians Latvians
44% among 55% among
Russians Russians
Percentage of Latvian inhabitants who agree that 15% 21%
they can influence decision-making
The average number of NGOs per 1000 inhabitants 6 9
Youth participation in voluntary activities 12% 35%
Participation in voluntary activities among the 10% 15%
general public

19. Other indicators
To measure the results of national integration policy linked to active
citizenship from “National identity, civil society and integration policy
guidelines 2012-2018”:
Current data Goal for 2018
Participation of ethnic minorities in public 24% 26%
administration
Number of active NGOs representing the 15 22
interests of third country nationals
Percentage of ethnic minorities celebrating the 46% 66%
anniversary of Latvia’s proclamation
People who have in the last 3 years donated 17% 20%
clothes, equipment, food etc to charities
Participation in demonstrations and strikes No data available No concrete goals
set

20. Other indicators
“Handbook on methodology for evaluating integration policy of third country
nationals”, Baltic Institute of Social Sciences, 2011
Rights of third country nationals to:
• vote and run for election in municipal elections,
• establish a political party and be a member of a political party,
• establish a non-governmental organization and be a member of an NGO,
• organize and participate in meetings, gatherings, demonstrations and strikes,
Policy:
• Third country nationals are informed about their political and civic
participation opportunities on national and municipal level,
• State funding for NGOs representing third country nationals at a national and
local level.

21. Other indicators
“Handbook on methodology for evaluating integration policy of third country
nationals”, Baltic Institute of Social Sciences, 2011
• Existence of consultative mechanisms on integration:
• with the participation of third country nationals on national level and
municipal level,
• third country nationals are appointed by state/ municipality institutions or
their own organizations,
• councils involve third country nationals’ representatives or experts working
with third country nationals integration,
• consultation takes place on a regular basis, ad hoc basis,

22. Consultative body
A consultative body at a national level on immigrant integration is to be
established in 2012.
95% of our recommendations taken on board (from PROVIDUS research “
Consultative bodies and dialogue platforms for immigrant communities: lessons from
” in 2012):
• open call for NGOs (not individual CVs but organizations’ experience) to be
evaluated by clear criteria (e.g. active for at least 2 years; cooperation
experience with other NGOs to establish and maintain feedback mechanism),
• NGOs of 4 types: non-citizens, recently-arrived migrants, asylum seekers and
refugees, and organizations with expertise on immigrant integration,
• the number of NGO representatives should match the number of
representatives from state and municipality institutions,
• the inclusion of social partners,
• council’s role in planning and evaluating integration programs (e.g. multi-
annual and annual integration fund programs), legislation, policy documents.

23. Additional indicators and policies?
Participation in NGOs:
• Data on third country nationals/ naturalized migrants among NGOs
members, staff, board could be acquired via NGO surveys or
administrative data (if NGOs report on this in annual reports on their
activities),
• Problem with data of informal participation (volunteering, taking part
in events, not being a member).
PROVIDUS study “
Political participation of third country nationals in Latvia, Estonia and Poland
”, 2011.
Active citizenship and participation policies – initiatives for legislation or
agenda setting, local level referenda (European Citizens’ initiatives,
similar on national level in Latvia) are open only to citizens.