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Resolution 2176 (2017)
Integration of refugees in times of critical pressure: learning from recent experience and examples of best practice
1. In 2015, the mass arrival of refugees
in western Europe via Turkey, Greece and the western Balkans, combined
with the continuous inflow via Italy, brought the increase of the
number of refugees and migrants to a climax. The responses of the
general public to this crisis have included rejection and fear,
with a widespread reluctance to receive additional refugees, putting
increasing pressure on those countries receiving the greatest numbers
of asylum applicants and refugees.
2. Certain States which have managed the reception of particularly
high numbers of refugees (Germany and Sweden, for instance) have
accrued valuable experience in integrating new arrivals. This, along
with experience gained in countries receiving fewer refugees, could
be shared with others, thereby encouraging greater solidarity and
more equitable sharing of responsibilities. The Parliamentary Assembly
believes that solidarity and the sharing of responsibilities should
be a common concern beyond the boundaries of the European Union,
and to this end calls on all member States to demonstrate political
courage in finding sustainable solutions for the integration of
refugees in their societies.
3. The integration of refugees is a long and complicated process,
requiring long-term commitment on the part of both the refugees
and the authorities, and the continuing engagement of civil society.
If policy no longer promotes integration and the public mood towards
refugees is one of mistrust and hostility, they risk becoming isolated,
increasingly alienated and at risk of radicalisation.
4. Effective integration is based on the respect for the fundamental
values of the host society, including constitutional principles
and cultural practices. It engages the refugees in the daily economic,
social and cultural life of the host community and it reflects understanding
of and respect for the situation of the refugees and their cultural
backgrounds. It is an ongoing process rather than a final destination,
depending on constructive tripartite engagement between the authorities,
the host community (especially civil society) and the refugees.
5. The Assembly recognises that while requiring respect for the
basic values of the host society, integration of migrants means
neither assimilation – whereby newcomers adopt the host societies’
culture, values and traditions in place of their own – nor a multi-culturalism
of native-born and refugee or migrant communities living separate
existences according to their original cultures, values and traditions.
6. Recalling its Resolution
2137 (2016) on the impact of European population dynamics
on migration policies, and referring to Resolution 2175 (2017) on migration
as an opportunity for European development, especially with respect
to the employment of migrants, the Assembly encourages the Council
of Europe member and observer States and States whose parliaments
enjoy observer or partner for democracy status with the Parliamentary
Assembly to ensure the successful integration of refugees by:
6.1. recognising that increasing
levels of migration are a permanent characteristic of Europe today and
that, if well managed, the integration of refugees is a means of
contributing to demographic renewal, the acquisition of new competences
and the cultural diversity and enrichment of host societies;
6.2. urging politicians to recognise that refugees are protected
under international and European Union law and therefore it is in
the interest of the host country for them to be effectively integrated
into society;
6.3. strongly condemning and punishing any form of discrimination,
racism, xenophobia and violence against migrants;
6.4. promoting the integration of refugees as a public asset
worth investing in;
6.5. increasing efficiency and reducing the length of the processing
of asylum applications and optimising the territorial distribution
of asylum seekers as preconditions for public confidence and for
the presence in the territory of productive, well-integrated refugees,
thus helping to avoid alienation or radicalisation of refugees and
political discontent in the country;
6.6. ensuring that unaccompanied minors receive the necessary
legal and social assistance in submitting their asylum applications,
and ensuring that the asylum applications of minors who have lived in
the host country for a considerable length of time are finalised
before they reach the age of majority;
6.7. with respect to national policies:
6.7.1. reviewing
national legislation and its implementation with a view to facilitating
the integration process and eliminating bureaucratic obstacles;
6.7.2. designating a central contact point for refugees, which
has the necessary geographical coverage, and through which all of
the key integration-related information and services can be co-ordinated
and channelled;
6.7.3. ensuring effective co-ordination and co-operation between
the different State agencies, regional and local authorities and
non-governmental organisations involved in integration projects;
6.7.4. providing for effective legal and political accountability
for integration processes at national and local levels;
6.7.5. considering the introduction of a special identity card,
if this is not already in place, issued upon registration to give
the authorities access to all information on a person which is relevant
for the integration process;
6.7.6. introducing different elements, including a gender-sensitive
approach, aimed at facilitating integration at the earliest stages
of the asylum determination procedure, including psychological trauma
support, and the provision of female asylum officers and interpreters;
6.7.7. ensuring that expenditure and programmes which benefit
migrants do not introduce real or perceived reductions in investment
and services for resident populations, in particular with respect
to other disadvantaged groups in the country;
6.7.8. creating an environment and conditions which promote the
activities of non-governmental organisations and civic initiatives
aimed at increased integration of refugees and migrants, and encouraging
the involvement of the local population;
6.7.9. taking into account that consultation and participation
of both migrants and civil society in the host country in decision
making and the implementation of integration programmes allow policies
to be better adapted to specific circumstances at national, regional
and local levels, and promote a sense of shared responsibility;
6.7.10. ensuring that multimedia communication and information
campaigns are organised, targeting both residents and migrants,
with the aim of providing clear and informative guidelines and a
positive general environment for all;
6.8. with respect to the settlement of migrants in the host
country:
6.8.1. ensuring that relocation of migrants is
carried out taking into account the capacities of and opportunities
available in the places of settlement, including educational and
job opportunities, as well as to the social and community needs
of the refugees concerned, the possibility to live according to
their culture and religion, and their family circumstances;
6.8.2. providing adult migrants with the necessary language and
vocational training courses and a level of civic instruction which
provides guidelines for everyday life in the country;
6.8.3. creating conditions and measures for the recognition and
validation of academic and professional experience and qualifications
for those refugees without proof of their diplomas;
6.8.4. providing children with immediate access to appropriate
education or day care, where possible including them in mainstream
educational structures, provided allowances are made to minimise
language and cultural barriers, and providing for the possibility
for refugee children to continue education even in cases where relocated
families decide to resettle in a place other than that originally
foreseen;
6.8.5. strengthening the capacity of teachers to integrate refugee
children fully in the school environment, and including human rights,
non-discrimination and migration issues in the teacher training
curriculum;
6.8.6. providing young unaccompanied migrants with support for
their integration through social participation and access to education,
while ensuring support in their transition beyond the age of 18;
6.8.7. fully recognising the key role of women for the successful
integration of migrant families and ensuring that the specific needs
of migrant women are duly taken into account in terms of access
to sexual and reproductive health, vocational and linguistic training,
and independent access to education, while providing the necessary
resources and training staff;
6.8.8. understanding that family reunification is an integral
part of successful integration and thus should not be subject to
additional obstacles, suspensions or other measures causing delays
in reunification;
6.8.9. granting an individual legal status to migrant women who
join their spouses through family reunification, if possible within
one year of their date of arrival;
6.8.10. protecting and assisting particularly vulnerable groups,
such as women, girls and unaccompanied minors, including by providing
the latter with individual guardianship and follow-up into adulthood;
6.8.11. ensuring proper resources for social and health-care services
for migrants, and making good use of existing youth, cultural and
sports initiatives that foster inclusiveness;
6.8.12. making use of platforms for international dialogue and
co-operation, for exchange of information and experience, such as
the European Parliamentary network on diaspora policies, the Council
of Europe Sport migrant integration platform and the Council of
Europe’s Intercultural cities programme, to take advantage of best
practices and models.