MIGRANT INTEGRATION AND REFUGEE RESETTLEMENT: CAN

UNCLAS SECTION 01 OF 05 BRUSSELS 005035

SIPDIS

DEPARTMENT FOR PRM - RHILTON; PA - ARUPPE

E.O. 12958: N/A
TAGS: SMIG PREF PHUM KPAO EUN USEU BRUSSELS
SUBJECT: MIGRANT INTEGRATION AND REFUGEE RESETTLEMENT: CAN
THE U.S. HELP EUROPE?


1. (U) This is an action message. See paragraph 20.


2. (U) Summary. Two unfolding migration-related crises have
riveted Europe in recent days: 1) the assassination of Dutch
filmmaker Theo Van Gogh by a Muslim extremist of Moroccan
descent, and 2) the uncontrolled arrival of shiploads of
migrants in Italy and subsequent deportations to Libya.
Europeans ask: how can the EU promote the integration of
migrants, and how can the EU offer protection to legitimate
refugees? USEU asks: can a VolVis program help Europe's
search for effective responses? End Summary.

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Assassination Deepens EU Concern Over Migrant Integration
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3. (U) One of the latest hot-button issues in the EU is the
integration of foreign migrants into host European societies.
While the EU has long focused on ways to discourage
international migration, it increasingly is resigned to the
fact the movement of people will continue despite best
efforts to develop countries of origin and enhance controls
at the EU's external frontier. The rise of anti-immigration
political parties across Europe, as well as increasing
instances of racist attacks and xenophobia, have convinced
many European policymakers of the need to consider a
two-pronged approach to international migration. They
advocate continuing efforts to reduce and control the flows
of migrants to Europe, while simultaneously promoting
measures to encourage integration of those already present.


4. (U) On November 9-11, the Dutch Presidency sponsored the
first European Ministerial Conference on Integration, just as
Europe was recovering from the shocking assassination of
Dutch filmmaker Theo Van Gogh by a Muslim extremist on
November 2. The assailant, an economically comfortable
dual-national citizen of Moroccan descent, objected to Van
Gogh's controversial portrayal of Muslim women as
subservient.


5. (U) Around the same time of the murder, newspapers
reported that growing numbers of European-born Muslims were
traveling to Iraq to join the insurgency and conduct jihad,
as well as assisting with terrorist attacks in Europe and
neighboring regions. One newspaper quoted Gilles Kepel,
author of The War for Muslim Minds, who argued that the
feeling of marginalization is one of the root causes of the
link between migrants and violence. He said that evidence
from the arrest of Muslim extremists in Europe indicated that
economic hardship is not a primary reason behind radicalism,
as many of those arrested were educated professionals. Kepel
further noted that economic success has not necessarily
brought social integration.


6. (U) Responding to the communal unrest in The Netherlands
which followed the assassination of Van Gogh, outgoing JHA
Commissioner Vitorino appealed to both citizens and
immigrants during a BBC interview. He said, "I think that
the Muslim communities should mobilize in a more active way
to be integrated. But, at the same time, we the Europeans
should also recognize that for a long time we have neglected
being more active in promoting integration." He noted that,
"What is happening now in The Netherlands could happen
anywhere in the EU." Vitorino's replacement also spoke of
integrating migrants during his Parliamentary hearing on
November 16, stressing the importance of education in
striving towards mutual respect and tolerance.


7. (U) On November 17, the Dutch Prime Minister also urged
the EU to work harder on integrating ethnic minorities during
a debate at the European Parliament in Strasbourg. He was
quoted in the press as saying, "The strong reactions and
counter-reactions after the death of Van Gogh shows there is
tension in our society. In Europe, we have to learn from one
another in the area of integration of minorities." Also
commenting on the fallout of the assassination, which
included arson attacks on Muslim schools, mosques and
churches in Holland, was the EU's anti-terrorism coordinator
Gijs de Vries: "The bombing of schools anywhere in the world
is an inexcusable act of barbarity," he told reporters.

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Poor Economy Underscores Need for Immigrants
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8. (U) Another Dutchman was also in the news on November 3,
referring to a positive consequence of increased immigration
to Europe. Wim Kok's scathing mid-term report of the Lisbon
Strategy underscored the poor estate of Europe's economy and
predicted a gloomier future based, in large part, on
deteriorating demographics. His report noted that the "pure
impact of aging populations will be to reduce the potential
growth rate of the EU from the present rate of 2 percent to
2.25 percent to around 1.25 percent by 2040." The report
goes on to state that, "...selective non-EU immigration will
be needed to meet European labor market shortages and partly
to offset the negative consequence of the 'brain drain'. It
would be wise for Member States to prepare themselves timely
and thoroughly for this decision because experience shows
that the successful inclusion of migrants and ethnic
minorities in society, and especially in the labor market,
demands considerable and sustained effort."

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EU Strategy for Migrant Integration
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9. (U) The high-level conference on migrant integration,
chaired by Dutch Minister for Aliens Affairs and Integration
Rita Verdonk and supported by the Washington-based Migration
Policy Group, sought to develop a list of "best practices"
with regard to integration, particularly of young people from
ethnic minority backgrounds. A "Handbook for Integration"
was developed for the conference and presented by the
European Commission. Special workshops focused on: a)
protecting the democratic rule of law and combating
radicalization; b) the role of parents and mentors; and, c)
fighting discrimination.


10. (U) On November 19, the European Council adopted
conclusions regarding migrant integration, which included the
following overview statements highlighting the reality of
immigration and its benefits:

-- "Immigration is a permanent feature of European society.
If the flow of immigrants -- who should be understood
throughout the text as legally residing immigrants in the
territory of the Member States -- is orderly and well
managed, Member States reap many benefits. These include
stronger economies, greater social cohesion and increased
feeling of security, and cultural diversity. Taken together
and across all Member States, these benefits advance the
European process and strengthen the Union's position in the
world. Therefore, the effective management of migration by
each Member States is in the interest of all."

-- "A critical aspect of managing migration is the successful
integration of legally residing immigrants and their
descendants....It is vital for Member States to maintain and
further develop societies in which newcomers feel welcome,
which are defined by a spirit of mutual understanding and
accommodation, and where there are clear expectations of all
residents -- old and new."


11. (U) The common basic principles for the integration of
legal immigrants adopted by the EU Council are as follows:

-- integration is a dynamic, two-way process of mutual
accommodation by all immigrants and residents;
-- integration implies respect for basic EU values;
-- employment is a key part of the integration process, and
is central to the participation in and visible contributions
to the host societies;
-- basic knowledge of the host society's language, history
and institutions is indispensable to integration, and
immigrants must acquire this basic knowledge;
-- education is also critical in this process;
-- access for immigrants to institutions, as well as to
public and private goods and services, on a basis equal to
citizens is critical;
-- frequent interaction between immigrants and citizens, such
as shared forums, inter-cultural dialogue, etc., is important;
-- practice of diverse cultures and religions must be
safeguarded (unless practices conflict with other inviolable
European rights or with national law);
-- the participation of immigrants in the democratic process
and in formulating integration policies, especially at the
local level, support integration;
-- mainstreaming integration policies throughout government
is an important consideration; and,
-- developing clear goals, indicators and evaluation
mechanisms are necessary to adjust integration policies.

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Identifying Refugees within the Broader Migration Flows
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12. (U) While agreement has solidified around the integration
of legal immigrants, divisions in the EU still exist over the
handling of clandestine migration flows, which often include
people claiming a need for international protection. On
November 19, the European Parliament voted to confirm the new
European Commission, which noticeably did not include Rocco
Buttiglione, Italy's nominee who was to have held the
Justice, Freedom and Security (JFS) portfolio. Buttiglione
first created a furor over reviving a controversial scheme to
set up migrant camps in Libya to screen out economic migrants
from asylum seekers attempting to enter the EU without
authorization. (It was Buttiglione's comments on
homosexuality and the role of women in society which proved
his downfall, however, not his views on migration.)


13. (U) In prepared questions and answers for the Parliament,
the new Italian nominee for JFS issues Franco Frattini
reversed course regarding migrant camps. He stated: "The
initial ideas put forward by the two Member States (Germany
and Italy) address the specific situation of last countries
of transit where migrants and refugees stop before entering
the EU....Our first aim should be to address humanitarian
needs and prevent the Mediterranean from becoming a
"graveyard". A viable, legal and safe alternative to
smuggling should be offered to those who find themselves in
these circumstances who require protection and for whom there
is not integration potential in these countries, amongst
others by offering resettlement schemes to the EU. However,
these policies simultaneously need to be able to address the
mixed migratory character of the transitory populations in
these countries and to facilitate information sharing on the
real possibilities for migration to the EU....Any new
approaches will however need to respect a number of basic
principles, in particular full respect for the international
legal obligations of Member States, including the full and
inclusive application of the 1951 Refugee Convention, the
non-refoulement principle, and the European Convention on
Human Rights and Fundamental Freedoms." In so declaring,
Frattini washed his hands of the Libya venue and stepped away
from Buttiglione's ill-timed initiative. Italy, however,
pursues a bilateral agreement with Libya.

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Encouraging Refugee Resettlement Programs
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14. (U) The European Commission is currently drafting a
proposal to establish a program to identify bona fide
refugees in regions of origin and resettle them in Europe.
JHA Administrator Phil Douglas, who is drafting the proposal,
told PRMOff the initiative would:
-- be part of a package deal aimed at ensuring a "more
orderly and manageable entry" into the EU (in other words,
part of the crack down on illegal immigration);
-- contribute to "safe access to the EU for those in need of
international protection" by identifying in advance those
abroad who are most desperately in need;
-- address negative attitudes many Europeans have about
asylum seekers (Douglas illustrated by noting that those
fleeing conflict in Kosovo -- i.e., obvious refugees -- were
greeted warmly in Europe unlike the "self-selecting" asylum
seekers who do not have a clearly evident need of
protection); and,
-- facilitate integration via a comprehensive mechanism to
prepare housing, job training and other tailor-made programs
in advance of arrivals.


15. (U) Douglas stressed that the program would be modest,
with no set annual quotas or ceilings. Target numbers would
be notional, non-binding, and invoked to respond to specific,
emerging situations. Furthermore, the numbers most probably
would be derived from pre-existing Member State resettlement
programs. (Note. Currently, the following annual refugee
resettlement quotas exist in Member States: Sweden - 1000;
Finland - 750; Denmark - 500; Netherlands - 500; UK - 500;
Ireland - 10.) The European Commission should propose using
the European Refugee Fund to financially augment these
programs and in the process reserve some numbers for its own
use. Funds might also be used to help other Member States
initiate refugee resettlement programs. Despite the very
modest nature of current thinking, which is heartily endorsed
by the European Parliament, several Member States are "cooler
than neutral" to the Commission's proposal. Germany is among
those who object to any plan to bring in more refugees to
Europe.


16. (U) A few reasons given by humanitarian workers in Europe
who oppose refugee resettlement programs are:
- it's unpalatable to select some refugees over others;
- resettled refugees might get a "good" label while asylees
end up stigmatized as "queue jumpers"; and,
- governments will have a pretext for sealing borders and
access to asylum.

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Speaking Out in Favor of Refugees
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17. (U) Nevertheless, the EU has some high level supporters
for increased protection, including resettlement
opportunities, for needy refugees. Responding to the growing
humanitarian crisis in the Mediterranean and the
German/Italian proposal for migrant camps, Swedish Minister
for Migration and Asylum Policy Barbro Holmberg called on the
EU to take more responsibility for refugees and for
resettlement. In a letter to the editor of the Financial
Times she wrote:

-- "People trying to get to Europe are being exploited by
smugglers and risk their lives at sea. Some of them are
asylum seekers. Others plan to enter Europe illegally. This
is a human tragedy that we in the EU must do our utmost to
solve."

-- "Resettlement is another way of sharing the responsibility
for the refugees in the world. It is a way to give
protection to individual refugees but it could also help
solve protracted refugee situations, if used strategically.
Four of the EU Member States have had resettlement programs
for a long period of time. Another two have newly started
programs. I urge more to follow the lead. In countries such
as the U.S., Canada and Australia, resettlement has been an
important part of asylum policy for a long time. They have
large quotas each year. The EU ought to consider seriously
having a common resettlement program."

-- "With the demise of Rocco Buttiglione's candidacy for the
position of Justice & Home Affairs Commissioner, the support
for migrant camps in North Africa has waned. The only
remnants of this debate are plans for the EC to fund UNHCR
capacity building measures in five North African countries --
no physical camps. As to the Swedish hope for resettlement,
the EC plan for an EU-wide program has encountered serious
opposition from Germany and other important Member States."


18. (U) Liberal MEP Graham Watson, whose party was
instrumental in de-railing the Buttiglione nomination, made
an eloquent pro-refugee appeal in an editorial published in
the International Herald Tribune on November 17. Highlights
include:

-- "Protecting those who seek asylum is an absolute duty, not
just according to any basic notion of human charity but in
international law. Refugees are helplessness incarnate.
They are usually poor. They often barely speak the language
of their destination country. They ask for help while
offering nothing obvious in return." (Comment. Despite
Watson's good intentions, this portrayal of refugees is apt
to perpetuate the stereotype that refugees will drain social
services and contribute little to countries which provide
protection. End Comment.)

-- "Before his appoint to the new European Commission was
blocked by the European Parliament, the
commissioner-designate for JHA, Rocco Buttiglione, speculated
publicly on the merits of reviving a plan that had been
scrapped last year to develop a system of reception camps
outside the EU's borders for asylum seekers. The camps,
administered by states like Libya, Ukraine and Russia, would
process applications for asylum in Europe....European states
would effectively be outsourcing their obligations to
refugees under international law."

-- "Treating refugees with respect imposes political and
financial costs and demands tolerance and compassion, but it
is a badge that we should wear with pride. The day we deem
that cost too high to pay, we surrender that badge and that
high ground, for good."
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Potential VOLVIS: Helping Europe Handle Migrants and Refugees
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19. (U) USEU would like to expand on its successful use of
the voluntary visitor program in addressing issues that
resonate through all the Member States by exploring the
possibility of a volvis on integrating migrants and
resettling refugees. These two issues are much in debate
throughout the EU, and the international community as a whole
could benefit if the U.S. is able to provide a positive
example. Immigrants that feel a part of Europe should be
less receptive to recruitment efforts by extremist
organizations. Refugees in need of international protection
can find a haven if more EU countries establish formal
resettlement programs. At a meeting with EU officials on
November 26, both the incoming Luxembourg Presidency and the
European Commission said that a voluntary visitor program
dealing with these issues should receive robust interest.


20. (U) Posts that would consider nominating either a
government official or prominent NGO representative to
participate should send an email to PRMOff Marc Meznar
indicating interest, as well as any specific suggestions. If
USEU receives enough positive responses, we will pursue the
idea of a volvis with the Department of State.

SCHNABEL