8 September 1994

Doc. 7136

1403-7/9/94-3-E

CONTRIBUTION

of the Committee on Migration, Refugees and Demography

to the debate of the Assembly

on co-operation in the Mediterranean basin

by Mr CUCÓ

Spain, Socialist Group

Contents

Page

Introduction        2

I.       The causes and consequences of migration flows

      in the Mediterranean region        3

1.       The causes        3

1.1.       Demographic situation        3

1.2.       Economic and social situation        3

1.3.       Political situation        4

2.       The consequences        4

2.1.       The consequences for the host countries        4

2.2.       The consequences for the countries of origin        5

II.       Council of Europe activities in this field        5

1.       Activities of the Parliamentary Assembly        5

2.       European Population Committee (CDPO)        6

3.       Third Conference of Mediterranean Regions

(Taormina, Italy, 5-7 April 1993)        6

4.       International Symposium "Transmediterranean Interdependence

and Partnership" (Rome, 17-19 January 1994)        6

III.       Possible solutions        6

1.       Measures to bring about economic recovery in the

countries on the southern and eastern shores of

the Mediterranean        6

2.       Measures to facilitate the integration of immigrants

living legally in the host countries        7

3.       Establishment of an institutional framework for closer

co-operation between the Mediterranean countries        8

Introduction

      Migration flows to Europe have become one of the main concerns of the member states of the Council of Europe. It is generally acknowledged and feared that the number of migrants will continue to rise, mainly as a result of demographic imbalances between the developed world and developing countries, coupled with inadequate economic performances and political instability in many countries of the latter group.

      At the same time, the slow down in economic growth in most European countries and the severe unemployment that has resulted mean that the capacity of these countries to absorb new immigrants has been reduced. These problems have been greatly exacerbated by the economic difficulties of the former communist bloc and the tragic war in the former Yugoslavia.

      In Europe, the area most affected by migration flows is the Mediterranean basin, where a combination of all the major causes of immigration can be observed (demographic imbalances, under-development and war). The relatively small distance between the northern and southern shores of the Mediterranean tends to encourage would-be migrants to cross this expanse of water which marks the boundary between poverty and prosperity.

      Obviously, these migrants do not stop at the borders of southern Europe. Accordingly it is of crucial importance for the political and economic stability not just of those European countries directly involved but of the continent as a whole to bring both current and potential future migration flows under control in the Mediterranean region.

      Before dealing with these issues in greater detail, I should point out that the problem of refugees and displaced persons from former Yugoslavia, which has already been dealt with specifically in four reports and one opinion1 submitted by the committee to the Assembly, will be examined only in general terms in this contribution.

I. The causes and consequences of migration flows

in the Mediterranean region

1.       The causes

1.1.       Demographic situation

      The growing demographic imbalance between the southern and northern shores of the Mediterranean is today a well-documented, widely acknowledged fact. It is also worth noting that the greatest imbalances are to be found in population growth rates. During the period 1980-88 the annual growth rates were respectively 0,2% in Italy, 0,3% in France, 0,4% in Greece and 0,6% in Spain, as compared with 3,1% in Algeria, 2,7% in Morocco, 2,6% in Egypt and 2,5% in Tunisia (according to "Population, employment and migration in the countries of the Mediterranean Basin", International Labour Office, Geneva, 1993). These rates suggest that even allowing for the recent slow down in population growth in the countries of the southern Mediterranean the population can be expected to increase from 161 million in 1982 to 340 million by the year 2025, a virtual doubling.

      Leaving aside disparities in population growth rates, imbalances are being exacerbated by other demographic factors, particularly differences in population structure, with that of the southern Mediterranean noticeably younger than that of the northern Mediterranean.

1.2.       Economic and social situation

      At the same time, demographic pressure inevitably has a major impact on economic growth. Population growth engenders higher "social" spending, particularly on education, health care and housing. Since food subsidies are also considered necessary to keep the lid on social unrest the scope for productive investment is significantly reduced.

      The other negative corollary of rapid population growth, rising unemployment, was made worse by the central planning that characterised economic policy, to a variable extent, in the countries of the southern Mediterranean. For years, oil revenue and borrowings enabled these countries to disregard market forces, but this era has now come to an end and the problem of overmanning has become apparent to all.

      The economic take-off of all the countries of the southern and eastern shores of the Mediterranean is also compromised by an enormous foreign debt. As much as 75% of Algeria's export revenue is used to service the country's foreign debt; the corresponding figures for Morocco and Egypt are 35% and 25% respectively.

      With regard to the situation in the former eastern bloc, new migration flows from the region have largely been caused by the economic and social difficulties inherent in the transition to a market economy. After the borders were opened in 1989, hundreds of thousands of Bulgarian citizens of Turkish origin emigrated to Turkey. From mid-1990 onwards we witnessed a mass exodus of Albanians, mainly to Italy and Greece.

1.3.       Political situation

      In the past, political instability and conflicts in many countries of the Mediterranean region tended to encourage migration, as exemplified by the Arab-Israeli conflict, the war in Algeria and, more recently, the Gulf war.

      Sadly, the present situation is just as grim. Yugoslavia is in the throes of civil war, with tens of thousands killed or wounded and hundreds of thousands of refugees. Religious fundamentalism is on the increase in most of the region's Islamic countries, particularly Algeria. The violent conflict in south-eastern Turkey is intensifying and the political future of Libya remains uncertain. Clearly, there is a serious risk of these situations developing into major disasters, resulting in a great influx of immigrants into Europe.

2.       The consequences

2.1.       The consequences for the host countries

      In theory, migration is beneficial in economic terms for the host countries in that it represents a source of labour and helps to keep wage levels down. In addition, this labour force has been trained at the expense of the countries of origin. Migration should also benefit most European countries in demographic terms because fertility rates are below replacement level.

      Unfortunately, however, the weight of these theoretical arguments is lessened in practice when the numbers arriving far exceed the host countries' capacity to absorb new immigrants. Not only have the traditional immigration countries, such as France, reached saturation point, but countries which for decades were centres of emigration (Italy, Spain, Greece, Turkey, etc.) are now themselves attracting hundreds of thousands of immigrants. To give an example, between 1981 and 1991 the number of foreigners in Italy and Spain doubled.

      At a time of tight budgets and economic crisis, it is hard for the European countries to meet the costs associated with immigration. In addition, unemployment is now the most pressing problem facing all the European countries. This situation has reawakened violently racist and xenophobic feelings towards immigrants and given rise to appalling acts of crime.

2.2.       The consequences for the countries of origin

      It is no secret that the authorities of countries in the southern Mediterranean have tended to look rather favourably on the migration of their nationals to the developed countries, and indeed most still do today. The fact that the number of Moroccan immigrants in Europe considerably exceeds two million provides ample evidence of this policy. The short-term gains are obvious — migrants represent a major source of foreign currency and help to ease pressure on labour markets.

      As European labour markets are more than saturated, however, European governments have adopted an extremely selective immigration policy which gives priority to highly-qualified specialists. Clearly, the logical consequence of this policy is a brain drain, which could hamper the medium and long-term development of the countries of the southern Mediterranean.

II. Council of Europe activities in this field

1.       Activities of the Parliamentary Assembly

      In recent years, issues related to refugees, migration and demography in the Mediterranean basin have been debated by the Parliamentary Assembly on a number of occasions. A series of recommendations has been adopted on this subject, such as Recommendation 1125 (1990) on the new immigration countries, Recommendation 1154 (1991) on North African migrants in Europe, Recommendation 1179 (1992) on the exodus of Albanian nationals and, of course, a number of texts on the situation in the former Yugoslavia2. The most comprehensive document on this subject is probably the report drafted by Mr Mota Torres (Portugal) and Mr Vázquez (Spain) on demographic imbalances between the countries of the Mediterranean basin (Doc. 6462), on the basis of which Recommendation 1164 (1991) was adopted. This recommendation calls on the Committee of Ministers inter alia:

      —to       instruct the European Population Committee (CDPO) to study these problems;—

      —to       use the Council of Europe's North-South Centre to increase public awareness of Mediterranean interdependence;—

      —to       organise an international conference on demographic problems in the Mediterranean basin and related population movements.In

      In this connection, I am pleased to note that the Committee of Ministers has recognised the importance of the issues involved and has taken action on most of the Assembly's proposals.

2.       European Population Committee (CDPO)

      Further to Recommendation 1164 (1991), the CDPO acknowledged that the problems related to demographic imbalances in the Mediterranean were a subject of prime importance. It commissioned an expert to prepare a preliminary study on this subject and established a group of specialists on demographic imbalances between the countries of the Mediterranean Basin, which held its first meeting on 11-13 April 1994. The CDPO also decided to organise an international conference on these problems, which should take place in 1996 in Spain.

3.       Third Conference of Mediterranean Regions (Taormina, Italy,

5 -7 April 1993)

      The Taormina Conference, organised under the auspices of the Parliamentary Assembly and the Standing Conference of Local and Regional Authorities of Europe (CLRAE), discussed, inter alia, immigration issues. In their Final Declaration participants support the establishment of a foundation for Mediterranean migration. The main purpose of this foundation would be to promote:

      —in       formation, studies and research on migration and the training of migration specialists;—

      —co       -operation in this field between the countries of the Mediterranean basin;—

      —mu       tual understanding between migrants and the host country population.4.

4.       International Symposium "Transmediterranean Interdependence and Partnership" (Rome, 17-19 January 1994)

      This symposium, organised by the Council of Europe's North-South Centre in co-operation with the Italian Parliament, brought together 150 participants from forty countries. It was organised in the form of three working groups. The Committee on Migration, Refugees and Demography was represented on Group II (migration and exchanges) by its Chairman, Mr Flückiger.

      In its conclusions, Group II proposed a series of recommendations concerning not only migrants' fundamental rights and their integration into the host societies but the need to develop co-operation programmes between countries on each side of the Mediterranean. Further, the group recommended the establishment of a constitutional framework for co-operation among Mediterranean countries in the form, for example, of a Mediterranean Council.

III. Possible solutions

1.       Measures to bring about economic recovery and to reduce demographic pressure in the countries on the southern and eastern shores of the Mediterranean

      I believe that the best way to combat mass migration flows to Europe is to tackle the root of the problem, namely to contribute to the economic development of the countries on the southern and eastern shores of the Mediterranean. Because immigration in the Mediterranean basin affects all European countries, a combined effort will be needed to implement jointly development assistance programmes.

      It is important that these programmes be part of general efforts to strengthen pluralist democracy and human rights, including equality between sexes, in the countries receiving aid. In fact, all population policy must be based on freedom of choice and information. The general enhancement of the status of women, which is necessary to enable them to exercise this freedom, cannot be realised unless corresponding measures are taken in the areas of education and health. For this reason, these two fields should receive priority assistance from abroad.

      Clearly, social development, including enhancement of the status of women, goes together with economic development. That is why the co-operation with the countries on the southern and eastern shores of the Mediterranean is so important. This assistance must comprise financial and technical aid, transfers of technology and trade agreements giving countries of the southern Mediterranean enhanced access to European markets. Measures to reduce and restructure these countries' foreign debt are another important component. It should be pointed out to the European countries that even if opening up their markets causes certain short-term imbalances, these disadvantages will be offset by the corresponding reduction in migratory pressure.

      Training for the workforce should be a particular priority, and countries from the two sides of the Mediterranean should co-operate in order to encourage migrant specialists to return voluntarily to their countries of origin.

      Nevertheless, technical and economic assistance for the southern Mediterranean will produce the desired results only if it takes place in a favourable economic environment which is based on free markets and competition.

2.       Measures to facilitate the integration of immigrants living legally in the host countries

      The democratic principles on which our societies are founded imply that relations between the host countries and legal immigrants must be based on non-discrimination. These immigrants must enjoy the same welfare rights as nationals and their right to equal access to the labour market and vocational training should be enshrined in law.

      In a similar vein, given that most of these immigrants have settled permanently in Europe, they should in time be granted political rights, in accordance with the Convention on the Participation of Foreigners in Public Life at Local Level.

      The current resurgence of racism and xenophobia places all European countries under an obligation to work together to fight this evil, which undermines the very foundations of our democratic societies. I welcome the decision taken by the heads of state and government of the member states of the Council of Europe at the Vienna Summit in October 1993 to implement a plan of action on combating racism, xenophobia, anti-Semitism and intolerance, and hope that this European campaign which targets young people, will bear fruit as soon as possible.

      Regarding the material conditions of integration, member states should consider making greater use of the Council of Europe's Social Development Fund by submitting projects designed to resolve the social problems associated with the presence on their territories of immigrants or refugees.

3.       Establishment of an institutional framework for closer co-operation between the Mediterranean countries

      The facts presented in this contribution demonstrate the vital importance of establishing a permanent institutional framework for co-operation between the countries of the region if migration flows within the Mediterranean basin are to be brought under control. I welcome the project, launched by Spain in 1990 and subsequently developed by the Inter-Parliamentary Union, to set up a Conference on Security and Co-operation in the Mediterranean (CSCM). The Committee on Migration, Refugees and Demography would like to see this idea implemented, for reinforcing the security and stability of the region on a democratic basis would undoubtedly reduce migratory pressure.

      Setting up a kind of migration "observatory" in the Mediterranean to carry out research in this area would also help us acquire a sounder understanding of migration flows in the region.

      With regard to Council of Europe structures, I should like to express my support for the idea floated during the aforementioned (Rome) International Symposium "Transmediterranean Interdependence and Partnership" of integrating a "Mediterranean component" into the Council of Europe's Lisbon-based North-South Centre. This component would be responsible inter alia for monitoring the implementation of recommendations put forward at the symposium in co-operation with participants from both sides of the Mediterranean.

      Unstinting support should also be given to the CDPO in its efforts, further to the relevant Assembly recommendations, to organise an international conference on demographic problems in the Mediterranean basin, which could take place in Spain in 1996.

      Reporting committee: Committee on the Environment, Regional Planning and Local Authorities.

      Reference to committee: Doc. 6894, Reference No. 1891 of 3 September 1993.

      This contribution was approved by the Committee on Migration, Refugees and Demography on 16 May 1994.

      Secretaries to the committee: MM. Newman and Sich.

1 ¹ 1. Doc. 6554 and Recommendation 1176 (1992). Doc. 6740 and Recommendation 1205 (1993); Doc. 6910 and Resolution 1010 (1993); Doc. 6997 and Resolution 1019 (1994) and Doc. 7066 and Recommendation 1238 (1994).

2 ¹See footnote page 3.