US embassy cable - 04BRUSSELS5035

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. 
 
------------------------ 
Assassination Deepens EU Concern Over Migrant Integration 
------------------------ 
 
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. 
 
------------------------ 
Poor Economy Underscores Need for Immigrants 
------------------------ 
 
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." 
 
------------------------ 
EU Strategy for Migrant Integration 
------------------------ 
 
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. 
 
------------------------ 
Identifying Refugees within the Broader Migration Flows 
------------------------ 
 
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. 
 
------------------------ 
Encouraging Refugee Resettlement Programs 
------------------------ 
 
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. 
 
------------------------ 
Speaking Out in Favor of Refugees 
------------------------ 
 
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." 
------------------------ 
Potential VOLVIS: Helping Europe Handle Migrants and Refugees 
------------------------ 
 
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