Authors:
Flaminia Marchetti, Policy Analyst
Laura Morreale, Policy Analyst
Abstract
In our modern and multicultural society, the words “migration” and “integration” are definitely brought up quite a lot in everyday life and discourses, as well as in the political debate. Society in general has a tendency to point out whether migrants are well-integrated or not. More specifically, in the latter case, it blames them for their lack of ability to integrate, rather than on the system at its core, and thus contributes to a further marginalisation of migrant groups. Young people are prime victims of this derogatory narrative. This analysis offers an overview of the specific vulnerabilities of three particular groups of young people with a migratory background, and offers ideas of actions to tackle the issues they face by taking into account socio-economic policies, their involvement in the decision making, and by customising cultural policies with a mainstream approach.
1. Introduction
When dealing with multiculturalism in relation to contemporary migrations, it is frequent to come across discourses on “integration” of people belonging to different cultures in our society. It is a widespread common perception that migrants should behave in a certain way and demonstrate their commitment to positively engage with the socio-economic environment in order to be accepted as a fully integrated and useful member of society. In this perspective, people with a migratory background who experience marginalization at the economical and/or social level may be perceived as not committed enough to integration. However, this assumption should be regarded as misleading, as it attributes the responsibility of inclusion to people who often do not have the possibility to improve their condition, precisely because of how society itself is organized. Different structural reasons such as legal barriers, exploitation of migrants as low-cost workforce, linguistic difficulties, poor services or unequal access to them, but also widespread prejudice and stigma determine higher levels of socio-political marginalization among people with a migratory background, with implications such as higher levels of early school leaving and of engagement in illegal activities. Therefore, it should be a duty of institutions at various levels to provide the structures for everyone to positively engage with the context they live in. Among all migrants, children and young people are a particularly vulnerable group, and therefore require special attention. Measures for granting them equal opportunities and improving their status should be prioritized by policymakers at different levels. This policy paper is an attempt to identify areas of vulnerability and actions that could be implemented to prevent the marginalization of young people with a migratory background, with possible consequences on social unrest in European societies.
2. What are we talking about when we refer to “young migrant generations”?
When talking about young people with a migratory background, it is important to understand that, although migrants and individuals with a migratory background face a number of cross-cutting issues, each group is impacted differently, and has its very own needs and vulnerabilities, issues that hit harder than others. As a result, taking all variables into consideration is key for efforts to be more successful.
Child migration is a global phenomenon and it is growing at a great rate. Child and adolescent migrants are a significant proportion of the total migrant population and in Europe, young people with a migratory background form a composite group that represents a substantial proportion of the overall population of the continent. At the end of 2018, more than 1 out of 5 young people in Europe were either themselves foreign-born or who are native-born with foreign-born parents, and although the trend changes deeply across countries, their community is steadily increasing.
Children and young people in migration are often referred to as “children on the move”, and they are directly and indirectly impacted by migration. On one hand, they can move or migrate with their parents or guardians to another place, and therefore be directly affected, on the other, they might be the ones who are left behind.
There are a number of issues that affect young migrants and children with a migratory background in general. Because they are a vulnerable group, children can be victims of abuse, exploitation and violence, but they also face other kinds of risks: psychological trauma, wasted potential and delinquency are just some examples of the problems young people might have to deal with and that need to be addressed. However, they are often considered bystanders rather than individuals and key agents for change, for this reason they should be the prime recipients of initiatives that are customised and let them develop their skills and ideas.
Our analysis focuses on three main categories of young people with a migratory background, that could be recipients of the programmes and initiatives, and that would benefit from a change in narrative as well as of tailored programmes. In order to address these specificities and vulnerabilities, a brief introduction of both the group and the specific issues they face is necessary.
2.1 Children or young people who moved with their families
The so-called accompanied children are those young migrants who move and migrate with their parents or their guardians, and they face incredible challenges in the destination country, just like in the transit ones. They miss out on educational opportunities, they might lack it in its entirety actually, and might not fit into their country of arrival: have a hard time learning the language and the culture, finding it difficult to integrate.
Reports by UNICEF highlight that refugee children are 5 times more likely to be out of school than other children, and it comes without saying that these issues can have a long lasting impact on their physical and mental health, especially because they prevent them from reaching their full potential.
In 2019, Europe welcomed more than twenty thousand accompanied children. Member State have made an effort to ensure education to all children, and include them in formal education. However, some trends show that migrant children tend to underperform first, as they face language barriers, and psychological distress.
In the absence of the right support, their academic and social performances tend to worsen. Facing language barriers causes them to experience isolation, difficulty in integrating themselves and making friends their age - that is key for their development and for their inclusion in society. As a result, they might not feel like they belong, and consider education worth it, leading to dropping out of school.
Another issue that is often overlooked is the key role migrant children, especially older siblings, play in the process of claiming the status of the entire family. As they have access to education and can learn the language faster than their parents, they become the ones who take care of the bureaucracy and act as translators for their parents. This has an important effect on their development as they are forced to “grow up faster” than the rest of the kids, and have to take on more responsibility than they should.
2.2 Unaccompanied Minors
The UNHCR defines unaccompanied children are children separated from both parents and other relatives and that are not being cared for by any other adult who, by law or custom, should be responsible for doing so.
It is undeniable that unaccompanied minors are to be considered an extremely vulnerable group: just like the rest of migrant children, they are at risk of experiencing physical and mental trauma, hardship in learning the language and in integration; on the other hand, because they are unaccompanied, and they lack the support and care of an adult, they are more at risk of falling victims of violence, trafficking and delinquency, and therefore specific support should be provided to address their specific needs.
Nonetheless, it is important to highlight that unaccompanied children are first of all children, not migrants, and should be treated as such. When considering the course of action, an assessment of the withstanding trauma that might prevent them from expressing coherently their child-specific experiences as well as migrant experiences is necessary.
Some of the main challenges faced by unaccompanied minors, that makes them especially deserving of priority, has to do with the aforementioned trauma, as both their physical health, and mental health can suffer repercussions from the traumatic stress they have been subjected to. A number of reports call for immediate attention to this group that is more likely to come across abuse, military recruitment, child labour (including from their foster families) and detention, especially because they are often discriminated against and denied access to food, shelter, housing, health services and education. The same reports also point out the need to tackle these threats and problems, particularly in view of the constant increase in the number of young migrants.
2.3 So-called “Second Generation Migrants”
A “Second Generation Migrant” is a person who was born in and is residing in a country that at least one of their parents previously entered as a migrant. People with this sort of background generally complete their education or professional training in the residing country, they are socialized to the culture of the residing country rather than their country of origin. So much so that they might not speak the language of their parents, not share or know only part of their culture and feel closer to the habits and values of the residing country, living a fine balance between two universes.
In Europe, 34.3% of the population belongs to this category in 2014, and we can predict that the percentage has increased in the last few years. Because of their position in between symbolic worlds and realities, they experience a very peculiar hybrid version of both cultures, and for this same reason, they also often suffer from very specific issues. As opposed to the other two categories we focus on in this policy brief, individuals belonging to this category do not really face language barriers, as they learn the language of the residing country since their early childhood. However, they experience barriers of different nature: living in between two cultures can generate an identity problem. What culture is the most relevant and why are they not able to peacefully coexist? As a matter of fact, when a child is born into a host culture that is ethnically and culturally different from the culture of their parents, a complex ethnic identity formation occurs. They do not fully understand both cultures, but at the same time, they are not fully accepted as belonging to any of the two, putting them at risk of facing further issues.
First of all, because of their origin, they often face social exclusion, that can be both subtle or hard, from the rest of the country. On the other hand, they also face discrimination based on the mere stereotypes that people have towards foreigners. As a matter of fact, for equal education, people with a migratory background are often discriminated against in employment and academic realities. Moreover, a number of states do not grant citizenship at birth, systematically excluding second generation migrants from having access to all those rights and privileges that citizenship entails, resulting in further social, political and economic exclusion.
Finally, it is necessary to consider COVID-19 an important variable in the equation, and therefore focus on its impact on the three categories. If it is true that the virus has increased the feeling of isolation and exclusion of the entire population, it is undeniable that the results on people with a migrant background are suffering particularly from the restrictions.
On one hand, unaccompanied migrants and children who have arrived with their parents are more at risk of isolation and of feeling the cultural and language barriers. When education has moved online, they have been denied access to the creation of relations that are key for their socialisation to the culture of the residing country. On the other hand, since the pandemic started the rate of people who have dropped out of school has increased for several reasons: language barriers and lack of access to services are just some of the social issues that have risen during the lockdown.
3. Our policy proposals
As mentioned in the introduction, a variety of policies could be adopted to tackle the vulnerabilities of the considered categories, in order to address the incidence of negative factors which may lead to marginalization. A comprehensive perspective on the issue is surely needed, because of the heterogeneity of the target group and complex nature of their vulnerabilities. Our policy proposals will focus on three main fields, all important to pursue a peaceful social environment and overcome causes of social exclusion:
- - inclusive socio-economic policies;
- - involvement in decision-making processes;
- - cultural policies with a mainstreaming approach.
The diversity of the sectors considered necessarily involves actions on different levels: European, national and local; public and private; formal and informal. Though, our proposals are not deemed to be exhaustive: they rather aim to contribute to the existing debate and stimulate further ideas on the topic. The following policies may thus be considered useful proposals that nonetheless are not sufficient on their own to achieve a peaceful and cohesive society. They should be instead regarded in combination, within a multidisciplinary approach which requires the commitment of different actors and their expertise. Moreover, the achievement of a positive inclusion along with the fight against causes of marginalization can not ignore the discussion on citizenship policies, which are not homogeneous in the EU (despite the conceptualization of EU citizenship, which remains rather vague in multiple aspects). This has led to dissimilar effects on the opportunities for young people with a migrant background across Europe. While addressing the topic of citizenship is beyond the scope of this policy paper, it is worthwhile mentioning this aspect in the broader topic of inclusion. In addition to this, it should be noted that even in countries with relatively favourable policies for second generation migrants in relation to access to citizenship rights, other structural issues persist as barriers to equality and inclusion, often linked to socio-economic disadvantage or isolation because of the migratory background and subsequent difficulties in improving one’s status.
3.1 Socio-economic policies
Aware of the most common causes of vulnerability in the target group, policymakers who operate in the field of inclusion in a youth-based and intergenerational perspective should not neglect socio-economic measures that may guarantee young people with a migratory background opportunities of social emancipation. This means to act for an equitable access to the labour market and to higher education, which are fundamental assets to prevent exclusion and social discontent.
As noted by EU FRA (European Union Agency for Fundamental Rights), a shortcoming quite common in European countries is the difficulty for migrants and citizens with migrant background to access to public employment, along with the lack of positive actions in public administration aimed at improving diversity and inclusion. According to research, the presence of immigrants and culturally-diverse people in public labour is positive both to give a good example to the private sector and to inspire children and young people with an ethnically diverse background. However, the language barrier for “first generation migrants” could be a significant obstacle in accessing many average positions in the public sector. For this reason, a good strategy could be encouraging the institutionalization in public offices and in the healthcare sector of translation and cultural mediation jobs. This will foster employment of the target group while at the same time guaranteeing accessible services for the non-native population that has linguistic difficulties. Moreover, schools and other educational institutions can offer employment opportunities in the language teaching sector by simplifying some bureaucratic barriers relative to access titles and the compatibility of diplomas and other certificates obtained in a third country.
Another important sector for policy intervention regards the access to the labour market after migrant young people have completed school. Because migrant parents have usually less knowledge about the local labour market and a narrower network of people in the host country, their children may be disadvantaged in finding employment in comparison with their peers. This is even more so for children whose parents have moved to the host country during their childhood or later, as they will probably have even less experience of the local environment, and for unaccompanied minors who do not have a family support and must often rely on reception services and personal networks, usually including other migrants: they are particularly vulnerable to unemployment or exploitation. A relevant policy in this field should be the provision already in schools of an orientation desk or a mentorship service for young people at the end of their studies, that should monitor opportunities and keep interested students informed. A further action with the same purpose could be to implement the inclusive dimension of existing traineeship and apprenticeship programs. For example, programs enacted in the context of the EU Commission’s Youth Guarantee policy (whose target group is represented by people between 18-30 years-old NEETs, not in education, employment nor training) are in principle open to citizens and non-citizens alike: monitoring studies by the YG national coordinators on actual access of foreign people and of second generation migrants to those programs could be a first step to strengthen inclusion in their enactment. A second step could be to spread the knowledge of these programs among social actors employed in reception services and in schools, especially in territories with high migrant populations. Moreover, planning an annual quota for non-citizen residents within the program at a regional level could be a supplementary strategy to encourage diversity and participation, and favour employment among these vulnerable categories.
Regarding higher education, measures to boost the enrollment and accomplishment of university degrees by migrant students could include:
- - A tutoring service in universities, through a specific multilingual desk in welcoming offices or through a “buddying” initiative where peers can offer their support to students with linguistic difficulties in their daily activities at university (enrollment, formal requests for services, studying);
- - Scholarships for refugee resident students with fewer economic opportunities;
- - A mentoring program in high schools, composed by psychology experts, cultural mediators and legal-administrative advisors, aimed at counselling, motivating and supporting migrant youth, second generation migrants and in general young people with fewer opportunities in the choice of the prosecution of their studies, as they may not always receive sufficient endorsement from their families because of linguistic and/or socio-economic barriers - with a particular attention to girls who sometimes are not given the same opportunities as males in pursuing higher education.
3.2 Involvement in decision making
A second field requiring particular attention, and offering great opportunities to a more inclusive and adequate society is the involvement of the target groups in the decision making process, especially and foremost when it comes to solving issues that affect them. As a matter of fact, a determining factor of exclusion from society is the lack of attention to the set of rights and duties of individuals belonging to a community, and that should be considered citizens regardless of their origin.
Not only involving immigrant experiences to the debate generally adheres to democratic principles, but it also offers great opportunities: namely, the identification of problems, the access to different and valuable insights and perspectives, the potential to more informed policies; ultimately, aligning the needs of the people, with the strategy and the final goal. As many reports have pointed out that policies aiming at people’s inclusion, such as easing the naturalization procedure, granting citizenship and allowing participation to the political life are the single most effective tool to positive integration outcomes.
A number of problems arise. First of all, although many are the associations and organizations of civil society calling for a broadening of the citizenship base all over Europe, citizenship is a matter of the nation-state, any decision regarding citizenship lays in the nation-state itself, rather than in the EU. Thus, it is hard to map the Members’ state of the art. However, by residing within the borders of the country, individuals lacking all social and political rights challenge the legitimation of the State. Moreover, for many states, an issue of no small importance has to do with the need to redesign the party and electoral system to assure immigrants’ voices were to be heard. Another crucial point of analysis would be controlling the hostility and violence towards and against immigrants.
Granting citizenship and easing the naturalisation procedures represent the most inclusive policies, and appear to have a greater positive impact to integration than any other instrument put in place, but they are often strongly opposed at a political and societal level. In this matter, despite the strong opposition, a number of organizations and associations have put in place campaigns and projects asking for citizenship for all. However, other tools can be implemented and established to somehow compensate for the lack of participation:
- - For those who do have access to citizenship, campaigns that directly support them in the process and later on in assisting them in their registration to the vote;
- - Campaigns that address the lack of appropriate approaches to the acquisition of citizenship;
- - Campaigns aiming at raising awareness about immigrant disenfranchisement;
Moreover, another crucial form of involvement in the decision-making process at the maximum rate is their involvement through consultative bodies, that can take the form of consultations:
- - Consultations composed in their entirety of people with a migratory background members to voice the needs of the group, or
- - Consultations with institutions to increase mutual understanding and ease communication between the two. Starting from the assumption that it is immigrants themselves who know what is best for them, the results of the consultations are subjected to the scrutiny of public institutions in charge of weighing the received suggestions;
These forms of inclusion provide a fair window for immigrants to give their insight and push their needs forward, while not being undermined in the public debate.
3.3 Cultural policies with a mainstreaming approach
As mentioned above, the factors that determine disadvantage among young people with a migratory background in comparison with their peers are structural: therefore, there is a need for policies that involve broader sections of society, indirectly having a positive impact on the target group. This is what we would indicate by the expression “mainstreaming approach”: usually associated with gender equality policies, it may be extended to any process that aims at systematic change in society by taking into account the specificities of a disadvantaged group in policies with a broader target. In this sense, this section will propose some actions in the field of cultural and educational policies which considers the worlds of associationism, school and socialization in general as bearers of positive changes toward an inclusive society. In this field, a prominent role could be represented by local administrations that have the opportunity to create inclusive environments by cooperating with civil society actors and supporting their action in the territory.
Supporting socialization spaces
In the European legal culture, an increasingly important value is attributed to the so-called subsidiary principle: according to it, the institutions which are closer to citizens’ needs should be prioritized in delivering services which they are more capable to ensure than institutions at a higher level. This principle should also guide the relationship between public administrations and the civil society, which often organizes itself in a participatory and efficient way to deliver some services on a given territory. Local associations, citizens’ committees and informal groups often are closer to the needs of a community, because they are made up of people who are part of it and experience its everyday grievances, relations and possible conflicts. These representative bodies of civil society activism are often able to organize successfully social and cultural activities, including services specifically targeting migrant people (language courses, legal support for asylum seekers) or are able to detect them - particularly the youth - in socialization events (such as sports, music, libraries, artistic events etc.) or through initiatives aimed at giving support for the most vulnerable people in the community (i.e. food distribution, circular economy projects, medical care, support to victims of violence).
Despite their usefulness to the community, these realities often do not receive recognition or support from local administrations. On the contrary, sometimes bureaucratic issues and lack of dialogue with the authorities lead to divergences, particularly on issues linked to the allocation and use of public spaces. There are, however, some examples of positive engagement with policymakers through official dialogue, negotiations and the signature of protocols which regulate mutual responsibilities between the citizens’ initiatives and the administrators. These practices should be promoted at the local level: in this way, the administrators would demonstrate their commitment to value positive inputs generated by civil society and recognize the citizens as relevant actors in pursuing the collective well-being. Not listening to what the local inhabitants think it is best for their neighborhood leads to mutual incomprehension and hostility between citizens and politicians/administrators. To foster participation and trust, municipalities could adopt the following measures:
- - promote periodical surveys enquiring on what citizen’s initiatives are active in the administered territory and in which sector(s) do they act;
- - activate mechanisms of dialogue with these associations and committees to evaluate the need of the territory and their ideas for improving the well-living of local people;
- - support and recognize the use of public and unused spaces by civil society groups through official partnerships which establish mutual responsibilities and protect the public interest;
- - offer counseling of experts to monitor and improve the activities aimed at pursuing positive change in sensible fields (early school leaving, criminality rate, social degradation and marginalization).
Although not directly linked the issue of promoting the inclusion of young migrant generations (in all the meanings analyzed in par. 2), this kind of policies can have a relevant impact on it precisely because they offer support to bottom-up participatory mechanisms and forms of self-organization by the local inhabitants, whose goal is to provide opportunities to vulnerable people, including migrant communities. Municipalities which have large migratory populations may combine this more general approach with a specific attention for inclusion, for example by proposing an observatory body of experts in the fields of migration and multiculturalism which would be in charge of monitoring and encouraging dialogue with the different territorial initiatives specifically thought for, and promoted by, migrants. In the context of such an institution, these bottom-up realities may therefore develop a useful network of similar social actors and have a better connection with existing public services, which may be useful to pursue their goals more effectively by becoming familiar with best practices and relevant public services.
Enhancing cooperation at the local level on inclusion and multiculturalism
Engaging actively in partnership with the so-called third sector, policymakers could pursue a change towards a more inclusive society by financing and valuing local cooperation projects. Indeed, inclusion of migrants and refugees is one of the key actions promoted by EU institutions: it is necessary to spread to local actors a good knowledge of the analysis, tools and opportunities offered by international organizations, particularly the EU Commission in this field, in order to advance concrete actions that may work in each particular context. In combination with socio-economic measures as the abovementioned ones, targeting marginalized communities, the mainstreaming perspective is particularly relevant in the cultural field, especially in promoting a culture of equality, respect for different cultures and condemnation of racism and xenophobia. In this perspective, the collaboration with associations operating in local development projects is pivotal. Partnerships of the public sector with cultural centres, NGOs and associations should be pursued in order to carry out activities promoting a sense of community and belonging among the local youth, while at the same time spreading knowledge about human rights.
The specific contextual relevance of the proposed cooperation projects could be pursued through preparatory studies and surveys on population distribution and its relation with variables often affecting migrant population, such as school attendance and eventual early leaving, difficulties in housing, employment (or lack of) among the local youth. This preliminary analysis may help in identifying which sectors should be prioritized. A profitable allocation of funds directed towards this kind of activities needs careful planning of calls with clear objectives to collect proposals from prepared social actors and the subsequent stage of implementation in partnership with them. It would be important to organize moments of common discussion and planning for a strategic vision on possible activities to be implemented in relation to the territory’s need, with all relevant stakeholders interested in participating. A good strategy to ensure that these measures benefit migrant populations - especially those who face higher risks to be isolated, such as newly arrived migrants and unaccompanied minors - could be the involvement of reception structures, schools and other institutions through which they may transit to find some forms of support.
Moreover, it is important to monitor the existing funding opportunities at the national and EU level, and make relevant third-sector actors more aware of them, while at the same time encouraging them to propose projects in the field of inclusion and multiculturalism. In order to achieve a better knowledge about the topic and the existing channels, it could be useful to think about digital public campaigns, the creation of a specific portal dedicated to disseminate funding opportunities, and direct notifications to organizations who wish to be informed about the new opportunities.
Education and training on anti-racism and inclusion
Anti-racism, anti-discrimination and inclusiveness are a core value of the European Union and its Member states, and this is the reason why educating and training people, especially younger generations to anti-racist, non-discriminatory and inclusive behaviours remain probably the single most important tool for the successful development of an inclusive and “well-integrated”, thus happier, society. As a matter of fact, education - to be intended as both formal and informal - can, on one hand, address and eradicate the issues, as it provides the instruments to support the promotion of activities, initiatives and campaigns that enhance the rights of migrants and refugees, and of all minority groups, as well as promoting anti-racist and inclusive values, through a change in narrative; and help improve people’s overall well-being, on the other.
Therefore, tackling discrimination and racism is not a mere job the European Institutions have assigned to schools for the sake of education, but it is also important for student well-being, development and educational success. Young people discriminated against are more likely to have: negative attitudes to school, lower levels of motivation and academic achievement, a higher risk of dropping out of formal education, experience of bullying, and last, but not least, mental health problems. All these issues can build up to isolation and ultimately undermine an individual’s ability to participate in society. Moreover, education has been proven to intensify social cohesion, fight xenophobia and social division.
However, in order to develop an educational system that is inclusive, and able to effectively teach anti-discrimination two actions have to be implemented. First of all, a change in the educational system itself is necessary. At a formal level, it is indispensable to change the narrative and the light people with a migratory background are depicted in: rather than victims, along with institutions, they should be considered prime actors of change.
Furthermore, formal education cannot be the only tool used to eradicate the issue, but non-formal education must complement it. Informal education refers to all activities and structured programmes that do not make use of the formal educational curriculum to teach things, but rather develop critical thinking and lifelong learning. European Institutional bodies highly support non-formal education projects, and small organisations at the local level can take advantage of European call for projects within a number of frameworks - Erasmus+ being the most important - that finance organisations that organise initiatives that respect European values. The integration of migrants’ experiences in these initiatives and actions will foster intercultural exchange and learning, and it will also increase the chances of creating activities that aim at raising awareness over the issue. It is possible to find an incredible amount of projects that call for anti-discrimination and anti-racist activities that have also produced resources, such as booklets and games, available online to guide and pave the way for an increase in the number of programmes of the same nature.
4. Conclusions
The promotion of a fair, inclusive and participatory society is the key to change the current narrative that often burdens migrants with their successful integration. However, the current paradigm somehow does not take into account a number of socio-economic and political factors that can determine people’s inclusion or exclusion from society, and while it blames immigrants themselves, it does not focus enough on the institutions that create the conditions for integration.
In this policy brief, we have focused on the especially vulnerable groups of people with a migratory background: namely, young migrants who have emigrated with their parents; unaccompanied minors; second-generation migrants. All of them have their own specific vulnerabilities. Nonetheless, on the one hand, we have presented innovative possible policies and suggestions keeping in mind socio-economic inclusivity, involvement in decision-making and mainstream approaches; on the other, this analysis also encourages the different approaches to be customised and tailored for the targeted groups.
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