[pic] | KOMMISSION DER EUROPÄISCHEN GEMEINSCHAFTEN |

[pic] | COMMISSION OF THE EUROPEAN COMMUNITIES |

Brüssel, den 21.12.2005

Brussels, 21.12.2005

KOM(2005) 669 endgültig

COM(2005) 669 final

MITTEILUNG DER KOMMISSION

COMMUNICATION FROM THE COMMISSION

Strategischer Plan zur legalen Zuwanderung

Policy Plan on Legal Migration {SEC(2005)1680}

{SEK (2005) 1680 }

TABLE OF CONTENTS

INHALTSVERZEICHNIS

1. Introduction 3

1. Einleitung 3

1.1. The political context 3

1.1. Politischer Hintergrund 3

1.2. The Lisbon Agenda and demographic trends 4

1.2. Die Lissabon-Agenda und demografische Trends 4

2. Legislative measures on labour immigration 5

2. Legislative Massnahmen für die Zuwanderung von Arbeitskräften 5

2.1. General framework directive 5

2.1. Allgemeine Rahmenrichtlinie 6

2.2. Four specific directives 6

2.2. Vier spezifische Richtlinien 7

2.2.1. A proposal for a directive on the conditions of entry and residence of highly skilled workers 7

2.3. Sonstige legislative Maßnahmen 9

2.2.2. A proposal for a directive on the conditions of entry and residence of seasonal workers 7

3. Wissensaufbau und Information 9

2.2.3. A proposal for a directive on the procedures regulating the entry into, the temporary stay and residence of Intra-Corporate Transferees (ICT) 7

3.1. Information und politische Debatte 9

2.2.4. A proposal for a directive on the conditions of entry and residence of remunerated trainees 8

3.2. Europäisches Portal zur beruflichen Mobilität (EURES) 10

2.3. Other legislative measures 8

3.3. Europäisches Migrationsnetz (EMN) 10

3. Knowledge building and information 8

4. Integration 11

3.1. Information and policy debate 8

5. Zusammenarbeit mit den Herkunftsländern 11

3.2. The European Job Mobility Portal (EURES) 8

5.1. Instrumente zur Förderung der zirkulären Migration und der Rückkehrmigration 12

3.3. The European Migration Network (EMN) 9

5.2. Schulung in den Herkunftsländern 12

4. Integration 9

6. Fazit 13

5. Cooperation with Countries of origin 10

Anhänge 14

5.1. Instruments to support circular and return migration 10

1. EINLEITUNG

5.2. Training in the countries of origin 10

Im vom Europäischen Rat am 4./5. November 2004 verabschiedeten Haager Programm wurde hervorgehoben, dass es einer offenen Debatte über Wirtschaftsmigration auf EU-Ebene bedarf, die – unter Berücksichtigung der besten Verfahrensweisen in den Mitgliedstaaten und ihrer Relevanz für die Durchführung der Strategie von Lissabon – die Grundlage für einen vor Ende 2005 vorzulegenden „ strategischen Plan zur legalen Zuwanderung […] , der auch Zulassungsverfahren umfasst, die es ermöglichen, umgehend auf eine sich ändernde Nachfrage nach Arbeitsmigranten auf dem Arbeitsmarkt zu reagieren,“ [1] bilden sollte. Mit der Vorlage dieses Dokuments kommt die Kommission der Aufforderung des Europäischen Rates nach.

6. Conclusion 11

Am 11. Januar 2005 verabschiedete die Kommission ein Grünbuch über ein EU-Konzept zur Verwaltung der Wirtschaftsmigration [2], um ihren politischen Auftrag zu erfüllen und eine eingehende Diskussion über die für die Zulassung von Wirtschaftsmigranten geeignetsten Gemeinschaftsregeln und über den zusätzlichen Nutzen, der sich aus der Annahme solcher gemeinsamen Maßnahmen ergibt, einzuleiten. Die Resonanz auf die öffentliche Konsultation machte deutlich, wie groß das politische Interesse an dieser Problematik ist.[3] Das Europäische Parlament, der Europäische Wirtschafts- und Sozialausschuss und der Ausschuss der Regionen gaben ebenfalls ihre jeweiligen Stellungnahmen ab.[4] Eine öffentliche Anhörung fand am 14. Juni 2005 statt.

Annexes 12

Eine Analyse der Beiträge ergab, dass eine gemeinsame EU-Strategie für die Wirtschaftsmigration generell befürwortet wird, wenn auch die Auffassungen hinsichtlich der zu verfolgenden Ansätze und der erwarteten Endergebnisse weit auseinander gehen. Die angesprochenen Fragen und die unterbreiteten Vorschläge bildeten eine gute Grundlage für die Ausarbeitung dieses Dokuments.

1. INTRODUCTION

Auf der Grundlage des bestehenden Rahmens wird mit diesem strategischen Plan ein „Fahrplan“ für den noch verbleibenden Zeitraum des Haager Programms (2006-2009) festgelegt; außerdem werden die Maßnahmen und Legislativvorschläge genannt, die die Kommission ergreifen bzw. vorlegen wird, um die EU-Strategie zur legalen Zuwanderung konsequent weiterzuentwickeln.[5] Zudem trägt der Plan dem im Juli 2005 angenommenen Lissabon-Programm der Kommission Rechnung.

The Hague Programme, endorsed by the European Council on 4-5 November 2004, stressed the importance of having an open debate on economic immigration at EU level, which – together with the best practices in Member States and their relevance for the implementation of the Lisbon strategy – should be the basis for “ a policy plan on legal migration including admission procedures capable of responding promptly to fluctuating demands for migrant labour in the labour market [1] ”, to be presented by the end of 2005. This document represents the Commission’s response to this European Council’s request.

1.1. Politischer Hintergrund

On 11 January 2005 the Commission adopted a Green Paper on an EU approach to managing economic migration [2] to fulfil its political mandate and launch a process of in-depth discussion on the most appropriate Community rules for admitting economic immigrants and on the added value of adopting such common measures. The response to the public consultation revealed a significant political interest in this matter[3] The European Parliament, the European Social and Economic Committee and the Committee of the Regions have also adopted their respective opinions[4]. A public hearing was held on 14 June 2005.

In den vergangenen Jahrzehnten haben die weltweiten Migrationsströme erheblich zugenommen. [6] Wirtschaftliche Unterschiede und demografische Veränderungen zwischen Industrie- und Entwicklungsländern, vor dem Hintergrund von Handel, politischen Problemen und Instabilität in Herkunftsländern haben alle zu einer stetig wachsenden Mobilität der Arbeitskräfte beigetragen.

The analysis of the contributions showed a general support for a common EU policy for economic immigration, albeit with important differences in the approaches to be followed and in the expected end result. The issues raised and the suggestions put forward represent a good basis for the elaboration of this document.

Angesichts der sich entwickelnden wirtschaftlichen und sozialen Situation in der EU, der internationalen Lage und der voraussichtlichen Zunahme der Zuwanderung in der Zukunft ist eine Einigung über gemeinsame EU-Regeln, die das breite Spektrum der Migrationsaspekte abdecken, erforderlich, um die Migrationsströme sowohl nach Europa als auch innerhalb Europas wirksam steuern zu können; dies wurde auch in der Mitteilung Europäische Werte in der globalisierten Welt [7] vom Oktober 2005 bekräftigt.

Building on the existing framework, this Policy Plan defines a road-map for the remaining period of The Hague Programme (2006-2009) and lists the actions and legislative initiatives that the Commission intends to take, so as to pursue the coherent development of EU legal migration policy[5]. It also responds to the Commission's Lisbon programme adopted in July 2005.

Es ist anzumerken, dass es zwar den Mitgliedstaaten obliegt, die Anzahl der Wirtschaftsmigranten festzulegen, die in die EU einreisen dürfen, um dort Arbeit zu suchen, aber es steht außer Frage, dass die Zulassung von Drittstaatsangehörigen in einem Mitgliedstaat Auswirkungen auf andere Mitgliedstaaten und deren Arbeitsmärkte haben kann. Zudem muss bei den laufenden Überlegungen über die künftige Politik auch dem Grundsatz der Gemeinschaftspräferenz Rechnung getragen werden; ferner müssen die Diskussionen über die Übergangsmaßnahmen, die derzeit die Freizügigkeit der Bürger der neuen Mitgliedstaaten beeinträchtigen, sowie die politischen und wirtschaftlichen Auswirkungen dieser Maßnahmen angemessen berücksichtigt werden.

1.1. The political context

Eine wirksame Migrationsstrategie darf nicht auf Instrumente für die Zulassung von Zuwanderern beschränkt werden. Weitere, gleichermaßen bedeutende legislative und operative Maßnahmen müssen getroffen werden, da es sich bei der Zuwanderung um eine komplexe Problematik handelt, die in all ihren Aspekten konsequent angegangen werden muss. Die Zulassung von Wirtschaftsmigranten muss zum einen mit Integrationsmaßnahmen und zum anderen mit Maßnahmen zur Bekämpfung der illegalen Einwanderung und Beschäftigung einschließlich des Menschenhandels einhergehen. Vor diesem Hintergrund muss die EU daher ihre Anstrengungen zur Eindämmung der Schattenwirtschaft intensivieren, die als „Pull-Faktor“ für die illegale Einwanderung wirkt und oftmals der Auslöser für Ausbeutung ist. Angesichts der Bedeutung dieses Themas wird spätestens im April 2006 eine separate Mitteilung über die künftigen Prioritäten zur Bekämpfung der illegalen Einwanderung vorgelegt.

Over the past decades, worldwide migration flows have been growing considerably[6]. Economic differences between, and demographic changes within, developed and developing countries, on a background of trade, political problems and instability in countries of origin, have all contributed to a steady increase in workforce mobility.

In diesem Papier werden daher Maßnahmen für all diese Bereiche, einschließlich der Zusammenarbeit mit den Herkunftsländern, vorgeschlagen. Bei der Ausarbeitung der verschiedenen Maßnahmen werden geschlechterspezifische Fragen im Hinblick auf den Schutz von Gruppen in besonders schwierigen Situationen gebührend berücksichtigt werden.

Given the evolving EU economic and social situation, the international context and the likely growth of immigration in the future, an agreement on common EU rules covering the broad spectrum of migration issues is necessary in order to ensure an efficient management of migration flows both toward and inside Europe, as confirmed by the October 2005 Communication on European values in the globalised world [7].

1.2. Die Lissabon-Agenda und demografische Trends

It must be noted that whilst decisions on admission numbers for economic immigrants entering the EU in order to seek work are the responsibility of the Member States, it is clear that the admission of third-country nationals in one Member State may affect others and their labour markets. Moreover, the ongoing deliberations on future policies must also take into account the Community preference principle and duly consider discussions on the transitional measures presently affecting the freedom of movement of the citizens of the new Member States and their political and economic impact.

In Bezug auf die Wirtschaftsmigration entsprechen die gegenwärtige Lage und Aussichten auf den EU-Arbeitsmärkten weitgehend einem „Bedarfsszenario“. In einigen Mitgliedstaaten besteht in bestimmten Wirtschaftssektoren bereits ein erhebliches Defizit an Arbeitskräften und Fertigkeiten, das von den nationalen Arbeitsmärkten nicht ausgeglichen werden kann. Dieses Phänomen betrifft die gesamte Bandbreite der Qualifikationen – vom ungelernten Arbeiter bis hin zur akademischen Spitzenkraft.

An effective migration policy cannot be limited to instruments for the admission of immigrants. Other equally important legislative and operational measures are necessary, as immigration represents a complex phenomenon that needs to be addressed coherently across all its dimensions. Admission of economic immigrants is as inseparable from measures on integration on the one hand, as it is from the fight against illegal immigration and employment, including trafficking, on the other. It is in this context therefore that the EU must intensify its efforts to reduce the informal economy, a clear “pull factor” for illegal immigration, as well as a catalyst for exploitation. Given the importance of this issue, a separate Communication on future priorities in the field of illegal immigration will be issued by April 2006.

Vorausschätzungen von Eurostat[8] zufolge wird in der EU „ die Bevölkerungszunahme bis 2025 […] hauptsächlich auf die Nettozuwanderung zurückzuführen sein, da die gesamte Sterbeziffer die gesamte Geburtenrate ab 2010 übersteigen wird. Die Auswirkungen der Nettozuwanderung werden den natürlichen Bevölkerungsrückgang nach 2025 nicht mehr überwiegen “. Dies wird beträchtliche Auswirkungen auf die Zahl der Beschäftigten in der EU25 haben, denn „ der Anteil der Einwohner im erwerbsfähigen Alter […] an der Gesamtbevölkerung dürfte stark zurückgehen, und zwar von 67,2 % im Jahr 2004 auf 56,7 % im Jahr 2050, was einem Rückgang […] um 52 Millionen […] entspricht “. Die Gesamtbevölkerung dürfte bis 2025 und die Zahl der Personen im erwerbsfähigen Alter bis 2011 zurückgehen. In einigen Mitgliedstaaten (Deutschland, Italien, Lettland, Ungarn) ist die Zahl der Personen im erwerbsfähigen Alter bereits rückläufig, während dies in anderen Mitgliedstaaten erst später der Fall sein wird (in Irland zum Beispiel ab 2035). Diese demografischen Aussichten werden zwar nicht alle Mitgliedstaaten in gleichem Maße betreffen, es handelt sich jedoch hierbei um einen Trend, dem koordiniert und effizient entgegengewirkt werden sollte.

This paper therefore puts forward initiatives to be developed in all these areas, including on cooperation with countries of origin. In the development of the various initiatives, due attention will be paid to gender issues, with a view to protecting the most vulnerable groups.

Zuwanderung allein bietet keine langfristige Lösung für das Problem sinkender Geburtenraten und einer alternden Bevölkerung, ist jedoch ein verfügbares Instrument im Rahmen einer breit gefächerten politischen Antwort. Angesichts der geringen Beschäftigungsquote und der hohen Arbeitslosenquote in vielen EU-Ländern[9] müssen im Hinblick auf die Verwirklichung der Ziele der Neuen Lissabon-Strategie für Wachstum und Beschäftigung, insbesondere der beschäftigungspolitischen Leitlinien[10], Maßnahmen Vorrang haben, die mehr EU-Bürger und rechtmäßig aufhältige Migranten in Arbeit bringen. Kurz- bzw. mittelfristig kann die Zuwanderung von Arbeitskräften – im Rahmen des umfassenden Maßnahmenpakets der Lissabon-Strategie zur Steigerung der Wettbewerbsfähigkeit der EU-Wirtschaft – positiv dazu beitragen, den Folgen dieser demografischen Entwicklung entgegenzuwirken, und wird von elementarer Bedeutung für die Deckung des gegenwärtigen und künftigen Arbeitsmarktbedarfs sein und daher wirtschaftliche Nachhaltigkeit und Wirtschaftswachstum gewährleisten.

1.2. The Lisbon Agenda and demographic trends

2. LEGISLATIVE MASSNAHMEN FÜR DIE ZUWANDERUNG VON ARBEITSKRÄFTEN

With regard to economic immigration, the current situation and prospects of EU labour markets can be broadly described as a “need” scenario. Some Member States already experience substantial labour and skills shortages in certain sectors of the economy, which cannot be filled within the national labour markets. This phenomenon concerns the full range of qualifications - from unskilled workers to top academic professionals.

Die durchgeführte öffentliche Konsultation bestätigte, dass in diesem Bereich gemeinsame EU-Regeln entwickelt werden müssen, und bot der Kommission ebenso eine zweckmäßige Grundlage für die Ausarbeitung ausgewogener und realistischer Vorschläge.

Eurostat projections[8] indicate that in the EU “ population growth until 2025 will be mainly due to net migration, since total deaths will outnumber total births from 2010. The effect of net migration will no longer outweigh the natural decrease after 2025 ”. This will have serious repercussions on the number of employed people in the EU25, as “ the share of population of working age […] in the total population is expected to decrease strongly, from 67.2% in 2004 to 56.7% in 2050, a fall of 52 million […]”. The decline in the total population is expected by 2025 and in the working age population by 2011. Some Member States (Germany, Hungary, Italy, Latvia) are already experiencing a decline in the working age population, while in others it will happen later (i.e. Ireland from 2035). These demographic trends will not affect all Member States to the same degree, but they are trends that should be addressed in a coordinated and effective way.

Die öffentliche Konsultation hat auf die möglichen Vorteile einer horizontalen Regelung hingewiesen, die die Zugangsbedingungen für alle Drittstaatsangehörigen bestimmen würde, die Zugang zum Arbeitsmarkt der Mitgliedstaaten suchen. Jedoch zeigten die Mitgliedstaaten selbst keine ausreichende Unterstützung für einen derartigen Ansatz. Zudem bedarf es eines hinreichenden Maßes an Flexibilität, um den verschiedenen Erfordernissen der nationalen Arbeitsmärkte Rechnung zu tragen. Daher werden im Hinblick auf die Verwirklichung der Ziele Transparenz, der Wirksamkeit der EU-Vorschriften und der Nichtdiskriminierung mehrere gezielte, einander ergänzende Maßnahmen -eine allgemeine Rahmenrichtlinie und vier spezifische Rechtsakte- als geeigneter erachtet. Mit diesem Maßnahmenpaket sollen unbürokratische und flexible Instrumente entwickelt werden, die einerseits allen Arbeitsmigranten faire, auf bestimmten Rechten basierende Möglichkeiten bieten und andererseits attraktive Bedingungen für spezifische Gruppen von Zuwanderern, die in der EU benötigt werden, festlegen.

Immigration does not provide in itself a long-term solution to falling birth rates and an ageing population, but it is one of the available tools within a broader policy mix. In consideration of the low employment and high unemployment rates in many EU countries[9], priority must be given to actions toward attracting more EU citizens and legally resident migrants to employment, with the aim of fulfilling the objectives of the New Lisbon Strategy for Growth and Jobs, in particular the employment guidelines[10]. In the short to mid-term, labour immigration can – as part of Lisbon Strategy’s comprehensive package of measures aimed at increasing the competitiveness of the EU economy – positively contribute to tackling the effects of this demographic evolution, and will prove crucial to satisfying current and future labour market needs and thus ensure economic sustainability and growth.

Im Unterschied zum Richtlinienvorschlag zur Arbeitsmigration von 2001 – mit dem die Bedingungen für die Einreise und den Aufenthalt zur Ausübung einer unselbständigen oder selbständigen Erwerbstätigkeit für alle Drittstaatsangehörigen geregelt werden sollten – betrifft dieses Maßnahmenpaket lediglich die Zugangsbedingungen und -verfahren für wenige ausgewählte Kategorien von Arbeitsmigranten. Zudem soll mit dem Maßnahmenpaket festgelegt werden, welche Rechte ein in einer Arbeitsbeziehung stehender Drittstaatsangehöriger innehat, nachdem er/sie auf das Gebiet der Mitgliedstaaten zugelassen worden ist.

2. LEGISLATIVE MEASURES ON LABOUR IMMIGRATION

Vor Unterbreitung dieser Vorschläge werden die einschlägig tätigen Sachverständigen konsultiert und in die entsprechenden Diskussionen einbezogen. Die wirtschaftlichen Auswirkungen der Vorschläge auf die Beschäftigung und das Wachstum werden angemessen berücksichtigt.

The public consultation which was undertaken confirmed the need to develop EU common rules in this field and it also provided the Commission with a useful basis on which to put forward balanced and realistic proposals.

Dieses Maßnahmenpaket schließt weitere Initiativen nicht aus. Gegebenenfalls können zusätzliche Vorschläge in Bereichen unterbreitet werden, in denen es weiterer Untersuchungen bedarf (zum Beispiel Vorschläge, die Situationen behandeln, in denen persönliche Kontakte zwischen Wirtschaftsmigranten und künftigen Arbeitgebern eine Einstellungsvoraussetzung sind, oder die die selbstständige Erwerbstätigkeit regeln usw.).

The public consultation drew the attention to possible advantages of a horizontal framework covering conditions of admission for all third-country nationals seeking entry into the labour markets of the Member States. However, the Member States themselves did not show sufficient support for such an approach. Moreover, there is the need to provide for sufficient flexibility to meet the different needs of national labour markets. Therefore, it is deemed more appropriate to attain the objectives of transparency, effectiveness of EU legislation and non-discrimination through a targeted set of several complementary measures – a general framework directive and four specific instruments. This package aims thus to develop non-bureaucratic and flexible tools to offer a fair, rights-based approach to all labour immigrants on the one hand and attracting conditions for specific categories of immigrants needed in the EU, on the other.

2.1. Allgemeine Rahmenrichtlinie

Unlike the 2001 proposal for a directive on economic migration – which intended to regulate the entry and residence conditions for all third-country nationals exercising paid and self-employed activities – this package only addresses the conditions and the procedures of admission for few selected categories of economic immigrants. In addition, it intends to establish which rights a third-country national in employment shall enjoy once he/she has been admitted to the territory of a Member State.

Mit Ausnahme der mit einem einzigen Antrag zu beantragenden Arbeits- und Aufenthaltsgenehmigung („gemeinsame Genehmigung“) werden die Zulassungsbedingungen und -verfahren für Wirtschaftsmigranten, die in den spezifischen Instrumenten festgelegt werden, nicht Gegenstand dieses Rechtsakts sein. Die Rahmenrichtlinie wird außerdem den Grundsatz der Gemeinschaftspräferenz[11] unberührt lassen.

These proposals will be preceded by discussions and consultations with the relevant experts. The economic impact on employment and growth will also be taken into account.

Mit diesem horizontalen Instrument soll in erster Linie ein gemeinsamer Rahmen hinsichtlich derjenigen Rechte festgelegt werden, der allen bereits in einem Mitgliedstaat zugelassenen, legal beschäftigten Drittstaatsangehörigen, die noch keinen Anspruch auf eine langfristige Aufenthaltsberechtigung haben, zu gewähren sind. Dies wäre nicht nur fair gegenüber den Personen, die mit ihrer Arbeit und den von ihnen entrichteten Steuern einen Beitrag zur Wirtschaft der EU leisten, sondern wäre auch ein wichtiger Schritt zur Schaffung gleicher Ausgangsbedingungen in der EU. In diesem Zusammenhang sollte auch die Frage der Anerkennung von Diplomen und sonstigen Qualifikationen behandelt werden, damit verhindert wird, dass Zuwanderer eine Tätigkeit ausüben, für die sie überqualifiziert sind, was sich hinsichtlich des Einkommens und der Anerkennung der Befähigungen sowohl für die Zuwanderer selbst, als auch für die Wohnsitz- und Herkunftsländer nachteilig auswirkt.

This package is not exhaustive. If appropriate, additional proposals may be presented in areas where further examination is needed (e.g. to address those situations where personal contacts between economic immigrants and future employers are a pre-requisite for hiring, or to regulate the self-employed, etc).

Ein einziger Antrag für eine gemeinsame Arbeits- und Aufenthaltsgenehmigung des Arbeitnehmers mit den neusten biometrischen Identifikatoren könnte vorgeschlagen werden. Dies hätte keine erheblichen Auswirkungen auf die innerstaatlichen Praktiken, würde jedoch die Verfahren für Zuwanderer und Arbeitgeber vereinfachen. Um einen Missbrauch zu begrenzen und die illegale Beschäftigung zu bekämpfen, könnten die Arbeitgeber wie in der Richtlinie betreffend die Forscher finanziell zur Verantwortung gezogen werden. Die Gültigkeit eines solchen Dokuments sollte untrennbar an das Vorhandensein eines legalen Arbeitsvertrags geknüpft werden; Ausnahmen von diesem Grundsatz könnten für bestimmte nationale Arbeitsmarktvoraussetzungen vorgesehen werden, die in den spezifischen Richtlinien behandelt werden, da es sich dabei um eine Aufenthaltsbedingung handelt.

2.1. General framework directive

2.2. Vier spezifische Richtlinien

With the exception of the single application for a joint permit, this instrument will not address admission conditions and procedures for economic immigrants, which will be laid down in the specific instruments. It will also not affect the application of the Community preference[11] principle.

Es wurde geprüft, ob spezifische Regelungen für bestimmte Wirtschaftssektoren oder große Gruppen von Zuwanderern vorgeschlagen werden sollten. In der gegenwärtigen Situation wurde es angesichts der Unterschiede zwischen den Mitgliedstaaten bei den demografischen Vorausschätzungen, den sozialen Bedingungen und Arbeitsmarktstrukturen, den Trends und Erfordernissen nicht für wirtschaftlich und gesellschaftlich effizient erachtet, auf bestimmte Sektoren abzuzielen, da dies ein unerwünschtes Erstarren der nationalen Arbeitsmärkte zur Folge haben könnte. Andererseits waren im Zuge der öffentlichen Konsultation eindeutig Gruppen von Arbeitnehmern mit gemeinsamen Bedürfnissen und Interessen ermittelt worden. Außerdem sollen die Interessen bestimmter Mitgliedstaaten, die eher hoch qualifizierte Arbeitnehmer anziehen wollen, und die Interessen derjenigen Mitgliedstaaten, die vor allem Saisonarbeitnehmer benötigen, ausgewogen berücksichtigt werden. Diese Rechtsakte werden die Rahmenrichtlinie ergänzen und sich nur auf unselbstständig Erwerbstätige beziehen.

The main purpose of this horizontal instrument is to guarantee a common framework of rights to all third-country nationals in legal employment already admitted in a Member State, but not yet entitled to the long-term residence status. This would not only be fair toward persons contributing with their work and tax payments to our economies, but would also contribute to establishing a level playing field within the EU. In this context, the question of recognition of diplomas and other qualifications should be addressed to avoid the situation where immigrants work well below their competences, a loss in terms of income and skills’ valorisation for the immigrant as well as for the countries of residence and origin.

Generell sollte die Zulassung an das Vorhandensein eines Arbeitsvertrags geknüpft werden; außerdem muss zuvor die „wirtschaftliche Notwendigkeit“ geprüft werden. Ausnahmen können für festgestellte strukturbedingte/vorübergehende Erfordernisse in bestimmten Sektoren/Berufszweigen/Regionen erforderlich sein. Den internationalen Verpflichtungen, die die EG bzw. die EG und ihre Mitgliedstaaten, insbesondere im Rahmen der Gemeinsamen Handelspolitik eingegangen sind, wird nachzukommen sein. Dennoch sollte eine sich an ethischen Grundsätzen orientierende Rekrutierung für Sektoren erwogen werden, in denen es besonders häufig zur Abwanderung von Spitzenkräften ( Brain Drain ) kommt: So erfordert der weltweite Personalmangel im Gesundheitswesen, insbesondere der gravierende Mangel an medizinischen Fachkräften in Teilen Afrikas, zu dem noch der Brain Drain hinzukommt, einen umfassenden kohärenten Ansatz für die Rekrutierung medizinischer Fachkräfte unter ethischen Gesichtspunkten.[12]

A single application for a joint work/residence permit – held by the worker and containing the most advanced biometric identifiers – could be proposed. While not significantly affecting national internal procedures, it would simplify procedures for immigrants and employers. In order to limit abuses and to fight against illegal employment, the financial responsibility of the employer could be engaged, as in the researchers directive. The validity of such a document should be inextricably linked to the existence of a legal work contract; exceptions to this principle could be foreseen under specific conditions of nationals labour markets, and will be addressed in the specific directives.

2.2.1. Vorschlag für eine Richtlinie über die Bedingungen für die Einreise und den Aufenthalt hoch qualifizierter Arbeitnehmer[13]

2.2. Four specific directives

Die weitaus meisten Mitgliedstaaten brauchen diese Arbeitnehmer aufgrund de s Mangels an hoch qualifizierten Arbeitskräften auf den Arbeitsmärkten. Wie zudem neueren Untersuchungen zu entnehmen ist, haben beispielsweise 54 % der Einwanderer der ersten Generation aus dem Mittelmeerraum, dem Nahen Osten und Nordafrika, die einen Hochschulabschluss besitzen, ihren Wohnsitz in Kanada und den USA, während 87 % der aus diesen Regionen stammenden Einwanderer mit einer Primar- oder Sekundarschulbildung oder einer Schulbildung unter Primarniveau in Europa leben. [14] Um diese Situation zu verbessern, könnte ein spezielles gemeinsames Verfahren für die rasche Auswahl und Zulassung hoch qualifizierter Zuwanderer konzipiert werden; außerdem könnten attraktive Bedingungen für solche potenziellen Zuwanderer geschaffen und diese damit ermutigt werden, sich für Europa zu entscheiden. In diesem Zusammenhang wird noch näher geprüft werden, ob die Mobilität innerhalb der EU einbezogen werden soll oder eine ehrgeizigere Vorschlagsoption vorzuziehen ist, nämlich eine EU-Arbeitsgenehmigung („ Green Card “ der EU), die von einem Mitgliedstaat ausgestellt wird, aber unionsweit gültig ist, wobei die Regeln über den Zugang zu den nationalen Arbeitsmärkten umfassend berücksichtigt werden

It was examined whether to propose specific schemes for precise sectors of the economy or for broad categories of immigrants. In the present situation and given the differences between Member States in terms of demographic forecasts, social conditions and labour market structures, trends and needs, it was not deemed economically and socially efficient to address any specific sector, as this could result in an unwanted stiffening of national labour markets. On the other hand, the public consultation clearly identified categories of workers for which common needs and interests exist. The intention is also to strike a balance between the interests of certain Member States – more inclined to attract highly skilled workers – and of those needing mainly seasonal workers. These instruments will be complementary to the framework directive and will only address paid workers.

Der fluktuierende Bedarf an Arbeitsmigranten[15] kann nur durch flexible, vereinfachte Verfahren gedeckt werden. Der Vorschlag könnte eine Öffnungsklausel vorsehen, die anwendbar ist, wenn andere als hoch qualifizierte Arbeitnehmer benötigt werden oder in bestimmten Regionen ein Arbeitskräftemangel herrscht. Die einzige Verpflichtung würde darin bestehen, dass über das System zur gegenseitigen Information in Asyl- und Einwanderungsangelegenheiten Bericht erstattet werden muss.

As a general principle, admission should be conditional on the existence of a work contract and on the “economic needs test”. Exceptions may be necessary for declared structural/temporary needs in certain sectors/occupations/regions. International commitments entered into by the EC, or by the EC and its Member States, notably under the Common Commercial Policy, will need to be respected. Moreover, ethical recruitment should be considered for sectors particularly vulnerable to brain drain: for example, the global crisis in human resources for health, with severe health worker shortages in parts of Africa in particular, which are compounded by the brain drain, requires a comprehensive and coherent approach to ethical recruitment of health workers[12].

2.2.2. Vorschlag für eine Richtlinie über die Bedingungen für die Einreise und den Aufenthalt von Saisonarbeitnehmern

2.2.1. A proposal for a directive on the conditions of entry and residence of highly skilled workers[13]

Saisonarbeitnehmer werden in bestimmten Bereichen, vor allem in der Landwirtschaft, im Baugewerbe und im Tourismus, in denen viele Zuwanderer unter unsicheren Bedingungen einer illegalen Beschäftigung nachgehen, regelmäßig benötigt. Es wird eine Aufenthalts- und Arbeitsgenehmigung vorgeschlagen werden, die es Drittstaatsangehörigen ermöglicht, in einem Zeitraum von vier bis fünf Jahren eine bestimmte Anzahl von Monaten jährlich zu arbeiten. Einreise- und Ausreisestempel sollen einen Missbrauch verhindern.

The vast majority of Member States need these workers, because of shortfalls in the labour markets pool of highly qualified workers. Furthermore, recent studies highlight for example that 54% of Med-MENA first-generation immigrants with a university degree reside in Canada and the USA, while 87% of those having a lower than primary, a primary or a secondary level education are in Europe[14]. In response to this situation a common special procedure to quickly select and admit such immigrants, as well as attractive conditions to encourage them to choose Europe could be devised. In this respect, it will be further evaluated whether to include intra-EU mobility or to opt for a more ambitious proposal, i.e. an EU work permit (EU green card), issued by one Member State but valid throughout the EU, on the understanding that rules regulating access to the national labour markets will be fully respected.

Der entsprechende Vorschlag soll gewährleisten, dass den Mitgliedstaaten die benötigten Arbeitskräfte zur Verfügung stehen und dass gleichzeitig die Rechtsstellung der betreffenden Zuwanderer gesichert ist und ihnen eine regelmäßige Arbeit in Aussicht gestellt wird, womit eine besonders ungeschützte Kategorie von Arbeitern geschützt und auch ein Beitrag zur Entwicklung der Herkunftsländer geleistet wird. [16] Selbst bei hoher Arbeitslosigkeit kommt es selten zu einem Konflikt zwischen den Interessen dieser Gruppe von zugewanderten Arbeitnehmern und den Interessen der Arbeitnehmer der EU, da wenige EU-Bürger und in der EU ansässige Personen bereit sind, saisonale Tätigkeiten auszuüben.

Fluctuating demands for migrant labour[15] can only be met by flexible facilitated procedures. The proposal could then provide for an opening clause, applicable when there is a need for certain categories of workers other than highly skilled (i.e. qualified workers) or a lack of manpower in certain regions. The only obligation would be to report through the mutual information system on immigration and asylum.

2.2.3. Vorschlag für eine Richtlinie über Verfahren zur Regelung der Einreise, des befristeten Aufenthalts und der Wohnsitznahme von innerbetrieblich versetzten Arbeitnehmern

2.2.2. A proposal for a directive on the conditions of entry and residence of seasonal workers

Mit diesem Vorschlag sollen gemeinsame Verfahren zur Regelung der Einreise innerbetrieblich versetzter Arbeitnehmer in die EU sowie des befristeten Aufenthalts und der Wohnsitznahme dieser Arbeitnehmer in der EU festgelegt werden. Diese Verfahren werden nicht die von der EG bzw. der EG und ihren Mitgliedstaaten eingegangenen internationalen Verpflichtungen berühren. Um eine Umschichtung der Führungskräfte und Spezialisten internationaler Unternehmen innerhalb Europas zu ermöglichen, sollte auch die Frage der unionsinternen Mobilität innerbetrieblich versetzter Arbeitnehmer angegangen werden, denn EU-Maßnahmen würden hier eindeutig einen zusätzlichen Nutzen bewirken.

Seasonal workers are regularly needed in certain sectors, mainly agriculture, building and tourism, where many immigrants work illegally under precarious conditions. The scheme will propose a residence/work permit allowing the third-country national to work for a certain number of months per year for 4-5 years. Entry and exit stamps should prevent abuses.

2.2.4. Vorschlag für eine Richtlinie über die Bedingungen für die Einreise und den Aufenthalt von bezahlten Auszubildenden

The aim is to provide the necessary manpower in the Member States while at the same time granting a secure legal status and a regular work prospective to the immigrants concerned, thereby protecting a particularly weak category of workers and also contributing to the development of the countries of origin[16]. Even in presence of high unemployment, this category of immigrant workers rarely conflict with EU workers as few EU citizens and residents are willing to engage in seasonal activities.

Hierbei handelt es sich um eine bestimmte Gruppe von in der Ausbildung befindlichen Personen, für die es (anders als bei unbezahlten Auszubildenden[17]) keine gemeinsamen Regeln gibt; daher muss diese Rechtslücke geschlossen werden. Indem Drittstaatsangehörigen ermöglicht wird, durch eine Ausbildungszeit in Europa Fertigkeiten und Wissen zu erwerben, kann der Strom von Wissen ( Brain Circulation ), der sowohl dem Herkunfts- als auch dem Aufnahmeland zugute kommt, gefördert werden. Es bedarf jedoch bestimmter Garantien, damit es nicht zu einem Missbrauch, d. h. zur Beschäftigung von Auszubildenden, die in Wirklichkeit unterbezahlte Zeitarbeitnehmer sind, kommt.

2.2.3. A proposal for a directive on the procedures regulating the entry into, the temporary stay and residence of Intra-Corporate Transferees (ICT)

2.3. Sonstige legislative Maßnahmen

This scheme will set out common procedures to regulate the entry into, temporary stay and residence in the EU of ICT. These procedures will be without prejudice to international commitments entered into by the EC or by the EC and its Member States. In order to enable the reallocation of international companies’ key personnel and specialists within Europe, intra-EU mobility of ICT should also be addressed, as it would be a clear added value of the EU intervention.

Alle Richtlinien im Bereich legale Einwanderung und Asyl enthalten Bestimmungen, die den Zugang der betreffenden Drittstaatsangehörigen zum Arbeitsmarkt regeln. [18] Nach einer Bewertung könnten noch vor der in den jeweiligen Rechtsakten vorgesehenen Halbzeitüberprüfung Änderungsvorschläge im Hinblick auf eine weitere Vereinheitlichung vorgelegt werden.

2.2.4. A proposal for a directive on the conditions of entry and residence of remunerated trainees

3. WISSENSAUFBAU UND INFORMATION

This is a particular category of persons in training for which no common rules exist (unlike for unremunerated trainees[17]): it is therefore important to fill in this legislative gap. Allowing third-country nationals to acquire skills and knowledge through a period of training in Europe can be a way to encourage brain circulation, beneficial for both the sending and receiving country. Safeguards will be necessary to avoid abuses, i.e. trainees who are in reality underpaid temporary workers.

Die konsultierten Beteiligten haben nachdrücklich auf den zusätzlichen Nutzen hingewiesen, den EU-Maßnahmen zur Gewährleistung eines besseren Zugangs zu Informationen über verschiedene Migrationsaspekte sowie des Austauschs und der Verbreitung dieser Informationen bewirken. Sie bestätigten auch, dass es wichtig ist, die politische Debatte und den Wissensaufbau zu fördern. Daher sollen in den kommenden Jahren einige Instrumente entwickelt werden, mit denen sich der Zugang zu den verfügbaren Informationen sowie der Austausch und die Koordinierung dieser Informationen erheblich verbessern lassen. Die vorgeschlagenen Maßnahmen können durch weitere Aktivitäten ergänzt werden.

2.3. Other legislative measures

3.1. Information und politische Debatte

All legal immigration and asylum directives contain provisions regulating access to work for the third-country nationals concerned[18]. After evaluation, proposals for amendment could be put forward with a view to achieving further harmonisation, even before the mid-term review foreseen in the respective texts.

Ein EU-Zuwanderungsportal wird vor Ablauf des Jahres 2007 eingerichtet werden; über dieses Portal sollen Informationen zu den Maßnahmen und einschlägigen Rechtsvorschriften der EU, Neuigkeiten und sonstige Informationen sowie Links zu den entsprechenden nationalen Websites, zum EURES-Netzwerk (EURES - European Employment Services ), zur künftigen EU-Integrationswebsite, zu relevanten Forschungsergebnissen auf EU-Ebene und internationaler Ebene usw. abrufbar sein. Es werden spezielle Kampagnen zur Information über die Zuwanderungspolitik der EU sowie weitere Untersuchungen, insbesondere über Genehmigungen für Arbeitsuchende und Regelungen für hoch qualifizierte Arbeitnehmer, durchgeführt.

3. KNOWLEDGE BUILDING AND INFORMATION

Gezielte EU-Maßnahmen werden die Debatte und den Erfahrungsaustausch der Beteiligten fördern. Im Zuge des Europäischen Jahres der Mobilität der Arbeitnehmer (2006) und des Europäischen Jahres der Chancengleichheit für alle (2007) werden wichtige Fragen im Zusammenhang mit Zuwanderern aus Drittstaaten ermittelt, erörtert und angegangen werden.

Consulted stakeholders clearly stressed the added value of EU action to ensure a better access to, exchange and dissemination of information on various aspects of migration. They also acknowledged the importance of fostering policy debate and knowledge building. Hence, a number of tools will be developed in the next years, to achieve a substantial improvement in access, exchange and co-ordination of available information. The list of actions presented is not exhaustive, complementary activities may be envisaged.

Der Kommission wird die Durchführung der bestehenden Rechtsinstrumente überwachen und darüber hinaus die auf einzelstaatlicher und auf EU-Ebene durchgeführten Sensibilisierungs-, Informations- und Schulungsmaßnahmen unterstützen.

3.1. Information and policy debate

3.2. Europäisches Portal zur beruflichen Mobilität (EURES)

An EU Immigration Portal – containing EU policies and acquis, news and information, as well as links with the relevant national websites, the EURES network, the future EU integration website, relevant research results at EU and international level, etc – will be set up by the end of 2007. Specific information campaigns on the EU policies on immigration will be carried out, together with further studies, in particular on job-seekers permits and highly skilled systems.

Im Zuge der Konsultation zeigte sich, dass das über das Europäische Portal zur beruflichen Mobilität und das EURES-Netzwerk[19] bereitgestellte Angebot zur Förderung der Mobilität von EU-Bürgern auch eingesetzt werden könnte, um die Wirtschaftsmigration von Drittstaatsangehörigen besser zu steuern. Die EURES-Leitlinien, die in Kürze überarbeitet werden, werden einen geeigneten Rahmen bilden, um das über das Portal abrufbare Angebot anzupassen und zu erweitern, auf einige der oben untersuchten Informationsbedürfnisse (wie Bereitstellung regelmäßiger Informationen über Beschäftigungsmöglichkeiten in Europa, Trends auf dem EU-Arbeitsmarkt usw.) zu reagieren und die Synergien mit dem künftigen EU-Zuwanderungsportal und dem Mobilitätsportal für europäische Forscher[20] zu optimieren. Die neuen Leitlinien 2007-2010 werden mittelfristig die erforderlichen Anpassungen ermöglichen.

Targeted EU activities will support the debate and exchange of experiences among stakeholders. The 2006 European Year of Workers Mobility and the 2007 European Year of Equal Opportunities for All will identify, discuss and address significant issues related to third-country immigrants.

3.3. Europäisches Migrationsnetz (EMN)

Besides monitoring the implementation of the existing legal instruments, the Commission will support national and EU level awareness raising, information and training initiatives.

Über das EMN sollten der Europäischen Gemeinschaft, ihren Mitgliedstaaten und längerfristig auch der breiten Öffentlichkeit objektive, zuverlässige und vergleichbare Daten zu Migration und Asyl zur Verfügung gestellt werden. [21] Im Rahmen der Analyse der Ergebnisse der öffentlichen Konsultation zum Grünbuch über die Zukunft des EMN[22] werden die künftigen Prioritäten ermittelt, angemessene Strukturen entwickelt und die erforderlichen Schritte eingeleitet, damit zufrieden stellende Ergebnisse erzielt und somit bessere Informationen bereitgestellt werden können. In diesem Zusammenhang werden Überlegungen darüber angestellt, wie die verschiedenen bestehenden und künftigen EG-Netze und -Informationsquellen im Bereich Migration besser gestrafft werden können.

3.2. The European Job Mobility Portal (EURES)

4. INTEGRATION

The consultation process highlighted that the services provided via the European Job Mobility Portal and the EURES[19] network to foster mobility of EU nationals could also support the management of economic immigration of third-country nationals. In this context, the forthcoming revision of the EURES Guidelines will provide a relevant framework to adapt and expand services made available via the portal, to respond to some of the information needs examined above (e.g. provide regular information on employment opportunities in Europe, EU labour market trends, etc), optimising synergies with the future EU immigration portal and the European Researchers’ Mobility portal[20]. The new Guidelines 2007-2010 will provide a medium-term horizon to implement the necessary adaptations.

In der Mitteilung von 2003 über Einwanderung, Integration und Beschäftigung wurde nachdrücklich darauf hingewiesen, dass der Zugang zum Arbeitsmarkt für die Integration der Drittstaatsangehörigen von elementarer Bedeutung ist. In der 2005 angenommenen Mitteilung über eine gemeinsame Integrationsagenda , deren Follow-up die Kommission aufmerksam verfolgen wird, wurde ein Rahmen für die Integration von Drittstaatsangehörigen in der EU vorgeschlagen. Die Ausrichtungen dieser Mitteilung wurden vom Rat in seinen Schlussfolgerungen zu einer gemeinsamen Integrationsagenda vom Dezember 2005 unterstützt.

3.3. The European Migration Network (EMN)

Da Integration sich über mehrere Bereiche erstreckt, einschließlich Beschäftigung, Stadtentwicklung und Bildung, wird die Kommission sicherstellen, dass gebündelte Anstrengungen unternommen werden, um die Prioritäten im Bereich Integration kohärent über eine Bandbreite von Politikbereichen zum Ausdruck zu bringen.

EMN goal was to provide the EC, its Member States and in the longer term the general public, with objective, reliable and comparable information on migration and asylum[21]. The analysis of the results of the public consultation on the Green Paper on the future of the EMN[22] will identify the future priorities, develop adequate structures and take the necessary steps to ensure the satisfactory delivery of results, in order to improve available information. A reflection on how to better streamline the various present and future EC networks and sources of information on migration will be carried out in this context.

Zu den in verschiedenen relevanten Bereichen empfohlenen Maßnahmen[23] gehören der Ausbau der Einführungsprogramme und –maßnahmen für legale Zuwanderer und ihre unterhaltsberechtigten Angehörigen. Außerdem sollten neuen Wirtschaftsmigranten Informationspakete sowie Sprachkurse und staatsbürgerliche Schulungen angeboten werden, um sicherzustellen, dass die Zuwanderer die gemeinsamen europäischen und nationalen Werte verstehen, respektieren und Nutzen aus ihnen ziehen. Maßnahmen der Aus- und Fortbildung sowie kulturelle Initiativen werden weiterhin den Integrationsprozess unterstützen.

4. INTEGRATION

Die EU unterstützt die Integrationspolitik der Mitgliedstaaten über Finanzierungsinstrumente wie die Vorbereitenden Maßnahmen zur Integration von Drittstaatsangehörigen (INTI). Im Rahmen der Finanziellen Vorausschau für 2007-2013 schlug die Kommission ein neues, gezieltes Solidaritätsinstrument vor: den Europäischen Fonds für die Integration von Drittstaatsangehörigen. In Ergänzung zum Europäischen Sozialfonds (ESF) ist dieser Fonds auf die Herausforderungen im Zusammenhang mit Drittstaatsangehörigen ausgerichtet; er stützt sich auf die vom Rat „Justiz und Inneres“ im November 2004 vereinbarten Gemeinsamen Grundprinzipien für die Integration.

The 2003 Communication on Immigration, Integration and Employment stressed that access to the labour market is crucial for the integration of third-country nationals. The 2005 Communication on a Common Agenda for Integration , which the Commission will actively follow up, put forward a framework for the integration of third-country nationals in the EU. The orientations contained in this Communication have been supported by the Council in its conclusions on a common agenda for integration adopted in December 2005.

Eine Priorität des Entwurfs der ESF-Verordnung für 2007-2013 besteht darin, die Zuwanderer stärker am Erwerbsleben zu beteiligen und ihre soziale Integration zu fördern. Die Kommission wird besonders darauf achten, dass im Hinblick auf die Umsetzung dieser Priorität wirksame Maßnahmen durchgeführt und angemessene Ressourcen bereitgestellt werden. Die Aushandlung der Strategischen Nationalen Rahmen – und entsprechender operativer Programme – wird das institutionelle Instrument sein, mit dem sichergestellt wird, dass die EU-Mittel in den kommenden Jahren für diesen Zweck effizient verwendet werden. Bestimmte Integrationsmaßnahmen könnten auch aus dem Europäischen Fonds für regionale Entwicklung unterstützt werden.

As integration cuts across various fields, including employment, urban policies and education, the Commission will ensure joint efforts to coherently reflect integration priorities across a range of policies. Among measures recommended in various relevant areas[23] are reinforcing of the capacity of introduction programmes and activities for legal immigrants and their dependants. They should include information packages for newly arrived economic immigrants, as well as language and civic orientation courses aimed at ensuring that immigrants understand, respect and benefit from common European and national values. Education, training and cultural initiatives will continue to support integration processes.

5. ZUSAMMENARBEIT MIT DEN HERKUNFTSLÄNDERN

The EU assists Member States’ integration policies via financial instruments, such as the Preparatory Actions for integration of third-country nationals INTI. Under the financial perspectives 2007-2013, the Commission proposed a new targeted solidarity instrument, the European Fund for the Integration of third-country nationals. Its objectives – complementary to the European Social Fund (ESF) – are related to challenges identified with respect to third-country nationals, and are based on Common Basic Principles on Integration agreed by JHA Council in November 2004.

Die Konsultation ergab eindeutig, dass die Zusammenarbeit mit den Drittländern im Bereich der Wirtschaftsmigration intensiviert werden muss und Maßnahmen entwickelt werden müssen, von denen sowohl die Herkunfts- und die Zielländer als auch die Arbeitsmigranten selbst profitieren. Unter anderem könnte die Migration qualifizierter Arbeitnehmer aus Entwicklungsländern in die EU überwacht werden, um die Sektoren und Herkunftsländer zu ermitteln, die unter einem beträchtlichen „ Brain Drain “ zu leiden haben. Innerhalb der EU und mit den betreffenden Ländern sollte über Lösungsmöglichkeiten diskutiert werden. Angesichts der Bedeutung umfassender Informationen in den Herkunftsländern über Möglichkeiten und Bedingungen legaler Zuwanderung in die EU beabsichtigt die Kommission zudem, das derzeit bestehende Informationsangebot auszuweiten.

A specific priority of the draft ESF regulation for 2007-2013 is to increase immigrants' participation in employment and strengthen their social integration. In this respect, the Commission intends to give particular attention to ensure that effective action and adequate resources are devoted to this priority. The negotiation of the Strategic National Frameworks – and corresponding operational programmes – will be the institutional vehicle to ensure that in the coming years EU funds will be effectively used for this purpose. The European Regional Development Fund may also support certain integration measures.

Weitere Maßnahmen könnten in den folgenden Bereichen eingeleitet werden und die EU könnte soweit möglich die entsprechende finanzielle Unterstützung bereitstellen.

5. COOPERATION WITH COUNTRIES OF ORIGIN

5.1. Instrumente zur Förderung der zirkulären Migration und der Rückkehrmigration

A clear outcome of the consultation was the need to enhance collaboration with third countries on economic migration and to develop initiatives offering “win-win” opportunities to countries of origin and destination and to labour immigrants. One possible action is monitoring migration of skilled workers from developing countries to the EU so as to identify sectors and countries of origin subject to significant brain drain. Discussions within the EU and with these countries should take place to seek possible solutions. Furthermore, the Commission, mindful of the importance of providing more comprehensive information in the Countries of origin on the possibilities and conditions for legal immigration to the EU, intends to take the necessary steps to enlarge the sources of information presently available.

In der Mitteilung über Migration und Entwicklung wurde hervorgehoben, dass die Rückkehrmigration und die zirkuläre Migration erleichtert werden müssen. Ihr Follow-up – unter anderem durch spezielle Maßnahmen – kann entscheidend zur Entwicklung einer EU-Strategie im Bereich Wirtschaftsmigration beitragen. Die Richtlinie betreffend die Rechtsstellung der langfristig aufenthaltsberechtigten Drittstaatsangehörigen bietet bereits interessante Möglichkeiten; so können die Mitgliedstaaten zurückkehrenden Migranten gestatten, diese Rechtsstellung über den in Artikel 9 vorgesehenen Einjahreszeitraum hinaus zu behalten. Durchführbarkeitsstudien sind für etwaige neue Maßnahmen geplant, nämlich Langzeit-Mehrfachvisa für zurückkehrende Migranten oder die Möglichkeit, ehemaligen Migranten den Vorzug zu geben und ihnen eine neue Aufenthaltsgenehmigung für eine weitere befristete Beschäftigung im ehemaligen Aufnahmeland in einem vereinfachten Verfahren zu erteilen. Zu diesem Zweck könnte eine EU-Datenbank errichtet werden, in der die Drittstaatsangehörigen erfasst werden, die die EU nach Ablauf ihrer befristeten Arbeits-/Aufenthaltsgenehmigung verlassen haben. Eine Durchführbarkeits-/Zweckmäßigkeitsanalyse für eine solche Datenbank könnte beispielsweise im Rahmen der Folgenabschätzung erfolgen, die für das Einreise-/Ausreise-Erfassungssystem[24] durchzuführen ist.

Other initiatives could be put forward in the following areas and the EU may provide adequate financial support where possible.

Außerdem sollte sich die EU weiterhin aktiv darum bemühen, Regelungen für eine befristete Migration auszuarbeiten, die zu einer Maximierung des Nutzens für alle Beteiligten beitragen könnten; so könnte zum einen den Arbeitsmarkterfordernissen in den Mitgliedstaaten Rechnung getragen werden und zum anderen – aufgrund der schließlich erfolgenden Rückkehr der Migranten – ein Beitrag zur Entwicklung der Herkunftsländer geleistet und den betreffenden Migranten die Möglichkeit geboten werden, bestimmte Fertigkeiten zu erwerben und anderweitig von ihrem Aufenthalt im Aufnahmeland zu profitieren.

5.1. Instruments to support circular and return migration

Bestimmungen über eine gesteuerte befristete und zirkuläre Migration werden in einige der spezifischen Rechtsakte (Abschnitt 2.2) aufgenommen.

The Communication on Migration and development highlighted the importance of facilitating return migration and circular migration. Its follow-up – also by specific measures – can contribute significantly to the development of an EU economic migration policy. The Directive on the status of long-term residents already offers interesting possibilities, such as the possibility for Member States to allow returning migrants to retain this status for longer than the one year period provided for in Art. 9. Feasibility studies are foreseen on possible new measures, i.e. long-term multi-entry visas for returning migrants or the possibility for former migrants to be given priority and obtain a new residence permit for further temporary employment in the former host country under a simplified procedure. In this respect, an EU database of third country nationals having left the EU at the expiration of their temporary residence/work permit could be set up. A feasibility/opportunity analysis of such database could for example be included in the impact assessment that should be carried out for the entry-exit system[24].

5.2. Schulung in den Herkunftsländern

Furthermore, the EU should actively pursue efforts to design temporary migration schemes that could help maximise benefits for all interested parties, i.e. responding to labour needs in Member States while contributing, through eventual return, to the development of countries of origin and offering skills and other gains to participating migrants.

Ungeachtet der Integrationsmaßnahmen vor der Abreise könnten berufliche Fortbildungsmaßnahmen und Sprachkurse im Herkunftsland den Zuwanderern helfen, ihre Fähigkeiten weiterzuentwickeln und sich besser auf die Arbeitsmarkterfordernisse in der EU einzustellen; damit würden sich ihre Chancen auf eine legale Beschäftigung erhöhen. Es wird genau geprüft werden, ob es politisch zweckmäßig sowie technisch und finanziell möglich ist, die Schaffung angemessener Schulungsstrukturen unter der Verantwortung lokaler Behörden und/oder nichtstaatlicher Akteure mit EG-Mitteln zu fördern.

Arrangements on managed temporary and circular migration will be included in some of the specific instruments (§ 2.2).

Unabhängig von den getroffenen Maßnahmen sollte die Zulassung eines Arbeitnehmers jedoch nicht an die Teilnahme an solchen Kursen geknüpft werden, wenn auch Erleichterungen erwogen werden könnten.

5.2. Training in the countries of origin

6. FAZIT

Irrespective of pre-departure integration measures, professional training and linguistic courses in the country of origin could help immigrants to develop skills and better adjust to the labour needs in the EU, thus facilitating their opportunities to find legal employment. The political opportunity and the technical/financial feasibility of supporting with EC funding the establishment of adequate training structures under the responsibility of the local authorities and/or of non-governmental actors will be closely explored.

Mit diesem Strategischen Plan kommt die Kommission dem ihr im Rahmen des Haager Programms erteilten Auftrag nach und reagiert auf die Ideen und Anregungen, die im Zuge der öffentlichen Konsultation an sie herangetragen worden waren. In den nächsten vier Jahren werden konkrete Maßnahmen vorgeschlagen; außerdem werden zusätzliche Untersuchungen und Analysen durchgeführt (siehe Anhang I). Weitere Diskussionen und Konsultationen mit Sachverständigen aus den Mitgliedstaaten, den Sozialpartnern und sonstigen Beteiligten werden zu gegebener Zeit stattfinden.

Whatever the actions taken, the admission of a worker should not be conditional on the attendance of such courses, even though facilitations could be envisaged.

Anhänge

6. CONCLUSION

I. Roadmap for the proposed measures

With this Policy Plan, the Commission fulfils the mandate of The Hague Programme and responds to the ideas and suggestions put forward during the public consultation. Precise measures will be proposed in the next four years and additional studies and analysis will be carried through (see Annex I). Further discussions and consultations with experts from Member States, social partners and other relevant stakeholders will take place in due time.

This roadmap should be considered as indicative and not exhaustive, as other actions may be scheduled in the coming years. It gives an overview of the Commission’s intentions, but its implementation will depend, amongst other things, on the necessary preliminary work – including impact assessments and consultations – to be carried out before putting forward the concrete proposals, as explained in the main text of the policy plan on legal migration.

Annexes

Year | Policy Plan section | Actions envisaged |

I. Roadmap for the proposed measures

2006 | 2. | Discussion with and consultation of the relevant experts (from Member States, the other EU institutions and international organisations, social partners, civil society, etc) in preparation of the possible legislative instruments for the entry and residence of third-country nationals (will continue throughout the 2006-2009 period). |

3.1. | - Research studies and dissemination of available results (will continue throughout the 2006-2009 period), in particular studies on job-seekers permits and on highly skilled schemes, including the creation of a possible EU green card system (for 2006); - Activities under the umbrella of the European Year of Workers Mobility - Feasibility analysis and possibly pilot phase of the EU migration portal. |

Year | Policy Plan section | Actions envisaged |

3.2. | Development of the new EURES Guidelines |

2006 | 2. | Discussion with and consultation of the relevant experts (from Member States, the other EU institutions and international organisations , social partners, civil society, etc) in preparation of the possible legislative instruments for the entry and residence of third-country nationals (will continue throughout the 2006-2009 period). |

3.3. | - Analysis of the contributions to the Green Paper on the Future of the European Migration Network (EMN), adopted in 2005, and selected expert meeting (March 2006); - Depending on the outcome of the public consultation: decision on the future of EMN and, if it is to be maintained, adoption by the Commission of a proposal to provide a legal base for the network (second half of 2006). |

4. | - Implementation of measures for integration via the ESF (will continue throughout the 2006-2009 period); - Annual call for proposals for preparatory actions for integration of third-country nationals INTI. INTI should be followed by the European Fund for the Integration of third-country nationals proposed by the Commission under the financial perspectives 2007-2013; - Handbook on integration for policy-makers and practitioners – second edition, covering also integration in the labour market; - Integration website: pilot phase. It will also contain best practice in the area of integration in the labour market. |

3.2. | Development of the new EURES Guidelines |

5. | - With a view to foster and facilitate circular migration, analysis of the transposition and implementation in particular of Art. 9 of Council directive 2003/109/EC (long-term residents) by the Member States (to be continued in 2007); - Feasibility studies on long-term multi-entry visas and on how to effectively implement circular migration; - Availability of financial support under EU financial instruments for pilot projects for the creation of training structures in the countries of origin (from 2006). |

2007 | 2.1. 2.2.1. | - Presentation by the Commission of proposals for the framework directive and for the directive on the conditions of entry and residence of highly skilled workers (negotiations in Council will start in 2007 and, if necessary, continue in 2008). |

2.3. | Starting a process of reflection on the revision of existing directives based on the actual implementation by the Member States, including discussion with the relevant stakeholders (will be carried out throughout the period according to the transposition date of the different measures). |

5. | - With a view to foster and facilitate circular migration, analysis of the transposition and implementation in particular of Art. 9 of Council directive 2003/109/EC (long-term residents) by the Member States (to be continued in 2007); - Feasibility studies on long-term multi-entry visas and on how to effectively implement circular migration. - Availability of financial support under EU financial instruments for pilot projects for the creation of training structures in the countries of origin (from 2006). |

3.1. | - Activities under the umbrella of the European Year of Equal Opportunities; - Launch of information campaigns explaining the EU policies on immigration (continuation in the following years); Setting-up of an operational EU migration portal (end of 2007). |

3.2. | - Adaptation of the EURES portal. |

3.3. | - Depending on the outcome of 2006 consultation: start-up of 'new' EMN, i.e. with legal basis and new structure resulting from the Green Paper consultation and legal basis procedure, definition of longer term priorities (for next two years) and further consolidation and active incorporation of representatives from all the Member States. |

4. | European Integration Forum to bring together a range of stakeholders at EU level, including social partners and local authorities. |

3.2. | - Adaptation of the EURES portal. |

5. | - Feasibility of a system to monitor migration of skilled workers from developing countries to the EU with a view to identifying significant cases of brain drain; - Feasibility of workable temporary migration schemes, including incentives to foster the voluntary return of migrants; - Feasibility/opportunity analysis of the database of third-country nationals having left the EU at the end of their temporary residence/work permit (“returnees database”); - Conference with the Member States, third-countries and other relevant stakeholders on how to concretely encourage and develop brain circulation and return migration. |

2008 | 2.2.2 | - Presentation by the Commission of a proposal for a directive on the conditions of entry and residence of seasonal workers. |

4. | European Integration Forum to bring together a range of stakeholders at EU level, including social partners and local authorities. |

2.3. | Proposals for amendments of the existing directives, where necessary and based on the 2007 analysis and consultations (could continue in 2009 and after). |

3.2. | Follow-up activities on the EURES portal. |

2008 | 2.2.2 | - Presentation by the Commission of a proposal for a directive on the conditions of entry and residence of seasonal workers. |

4. | - Impact assessment on the implementation of measures to support integration via the ESF and, if necessary, via other Community instruments; |

2.3. | Proposals for amendments of the existing directives, where necessary and based on the 2007 analysis and consultations (could continue in 2009 and after). |

5. | - Setting up of a system to monitor migration of skilled workers from developing countries to the EU with a view to identifying significant cases of brain drain; - Based on the 2007 feasibility analysis, possible proposal for setting up the “returnees database”. |

3.2. | Follow-up activities on the EURES portal. |

2009 | 2.2.3. 2.2.4 | - Presentation by the Commission of two proposals for a directive on the procedures regulating the entry into, temporary stay and residence of intra-corporate transferees and on the conditions of entry and residence of remunerated trainees; |

4. | - Impact assessment on the implementation of measures to support integration via the ESF and, if necessary, via other Community instruments; |

5. | - Based on preceding studies and feasibility analysis, possible presentation of proposals for concretely support circular and return migration. |

II. Bibliography

The following bibliography contains the full reference of the documents and legislative instruments and proposals quoted in the Policy Plan, together with other documents which are considered of relevance for the issues discussed in the text. It must nevertheless not be considered as exhaustive of the literature/instruments existing in this field.

5. | - Based on preceding studies and feasibility analysis, possible presentation of proposals for concretely support circular and return migration. |

A. Article 63 of the EC Treaty :

II. Bibliography

“The Council […] shall adopt:

[…]

A. Article 63 of the EC Treaty :

3. measures on immigration policy within the following areas:

“The Council […] shall adopt:

(a) conditions of entry and residence, and standards on procedures for the issue by Member States of long-term visas and residence permits, including those for the purpose of family reunion,

[…]

(b) illegal immigration and illegal residence, including repatriation of illegal residents;

3. measures on immigration policy within the following areas:

4. measures defining the rights and conditions under which nationals of third countries who are legally resident in a Member State may reside in other Member States.

(a) conditions of entry and residence, and standards on procedures for the issue by Member States of long-term visas and residence permits, including those for the purpose of family reunion,

Measures adopted by the Council pursuant to points 3 and 4 shall not prevent any Member State from maintaining or introducing in the areas concerned national provisions which are compatible with this Treaty and with international agreements. […]”

(b) illegal immigration and illegal residence, including repatriation of illegal residents;

B. Legislative instruments and proposals :

4. measures defining the rights and conditions under which nationals of third countries who are legally resident in a Member State may reside in other Member States.

1. Council Directive 2005/71/EC of 12 November 2005 on a specific procedure for admitting third-country nationals for purposes of scientific research;

2. Recommendation 2005/761/EC of the European Parliament and of the Council Recommendation 2005/762/EC of 12 October 2005 to facilitate the admission of third-country nationals to carry out scientific research in the European Community;

B. Legislative instruments and proposals :

3. Council of 28 September 2005 to facilitate the issue by the Member States of uniform short-stay visas for researchers from third countries travelling within the Community for the purpose of carrying out scientific research;

1. Council Directive 2005/71/EC of 12 November 2005 on a specific procedure for admitting third-country nationals for purposes of scientific research;

4. Proposal for a Council Decision on the establishment of a mutual information procedure concerning Member States’ measures in the areas of asylum and immigration, COM(2005)480 final;

2. Council Recommendation 2005/762/EC of 12 October 2005 to facilitate the admission of third-country nationals to carry out scientific research in the European Community;

5. Proposal for a Regulation of the European Parliament and of the Council on Community statistics on migration and international protection, COM(2005)375 final;

3. Recommendation 2005/761/EC of the European Parliament and of the Council of 28 September 2005 to facilitate the issue by the Member States of uniform short-stay visas for researchers from third countries travelling within the Community for the purpose of carrying out scientific research;

6. Council Decision of 12 July 2005 on guidelines for the employment policies of the Member States, OJ L 205 of 06.08.2005 (New Lisbon Agenda).

4. Proposal for a Council Decision on the establishment of a mutual information procedure concerning Member States’ measures in the areas of asylum and immigration, COM(2005)480 final;

7. Council Directive 2004/114/EC of 13 December 2004 on the conditions of admission of third-country nationals for the purposes of studies, pupil exchange, unremunerated training or voluntary service (applicable as of 12 January 2007);

5. Proposal for a Regulation of the European Parliament and of the Council on Community statistics on migration and international protection, COM(2005)375 final;

8. Council Directive 2003/109/EC of 25 November 2003 concerning the status of third-country nationals who are long-term residents (applicable as of 26 January 2006)

6. Council Decision of 12 July 2005 on guidelines for the employment policies of the Member States, OJ L 205 of 06.08.2005 (New Lisbon Agenda).

9. Council Directive 2003/86/EC of 22 September 2003 on the right to family reunification (applicable as of 3 October 2005);

10. Council Regulation (EC) No 859/2003 of 14 May 2003 extending the provisions of Regulation (EEC) No 1408/71 and Regulation (EEC) No 574/72 to nationals of third countries who are not already covered by those provisions solely on the ground of their nationality;

8. Council Directive 2003/109/EC of 25 November 2003 concerning the status of third-country nationals who are long-term residents (applicable as of 26 January 2006)

11. Proposal for a Council Directive on the conditions of entry and residence of third-country nationals for the purpose of paid employment and self-employed economic activities (COM(2001)386);

9. Council Directive 2003/86/EC of 22 September 2003 on the right to family reunification (applicable as of 3 October 2005);

12. Council Directive 2000/43/EC of 29 June 2000 implementing the principle of equal treatment between persons irrespective of racial or ethnic origin;

13. Council Directive 2000/78/EC of 27 November 2000 establishing a general framework for equal treatment in employment and occupation;

11. Proposal for a Council Directive on the conditions of entry and residence of third-country nationals for the purpose of paid employment and self-employed economic activities (COM(2001)386);

14. Council Resolution of 20 June 1994 on limitations on the admission of third-country nationals to the territory of the Member States for employment;

12. Council Directive 2000/43/EC of 29 June 2000 implementing the principle of equal treatment between persons irrespective of racial or ethnic origin;

15. Council Resolution of 30 November 1994 relating to the limitations admission of third-country nationals to the territory of the Member States for the purpose of pursuing activities as self-employed persons;

13. Council Directive 2000/78/EC of 27 November 2000 establishing a general framework for equal treatment in employment and occupation;

16. Council Regulation (EEC) n°1612/1968 on freedom of movement for workers (in particular, article 19(2) for the “Community preference”).

14. Council Resolution of 20 June 1994 on limitations on the admission of third-country nationals to the territory of the Member States for employment;

C. Commission Communications :

17. Communication from the Commission on EU/EC Strategy for Action on the Crisis in Human Resources for Health in Developing Countries , COM(2005)XXX;

16. Council Regulation (EEC) n°1612/1968 on freedom of movement for workers (in particular, article 19(2) for the “Community preference”).

18. Communication from the Commission on Priority actions for responding to the challenges of migration: first follow up to Hampton Court , COM(2005)621 final;

C. Commission Communications :

19. Green paper on The future of the European migration network , COM(2005)606 final;

17. Communication from the Commission on EU/EC Strategy for Action on the Crisis in Human Resources for Health in Developing Countries , COM(2005) 642;

20. Communication from the Commission on Improved effectiveness, enhanced interoperability and synergies among European databases in the area of Justice and Home Affairs , COM(2005)597 final;

18. Communication from the Commission on Priority actions for responding to the challenges of migration: first follow up to Hampton Court , COM(2005)621 final;

21. Communication from the Commission on European values in the globalised world: Contribution of the Commission to the October Meeting of Heads of State and Government , COM(2005)525 final;

19. Green paper on The future of the European migration network , COM(2005)606 final;

22. Communication from the Commission on A Common Agenda for Integration: Framework for the Integration of Third-Country Nationals in the European Union , COM (2005)389 final;

20. Communication from the Commission on Improved effectiveness, enhanced interoperability and synergies among European databases in the area of Justice and Home Affairs , COM(2005)597 final;

23. Communication from the Commission on Migration and Development: Some concrete orientations , COM (2005)390 final;

21. Communication from the Commission on European values in the globalised world: Contribution of the Commission to the October Meeting of Heads of State and Government , COM(2005)525 final;

24. Green Paper on Confronting demographic change: a new solidarity between the generations , COM(2005)94 final;

22. Communication from the Commission on A Common Agenda for Integration: Framework for the Integration of Third-Country Nationals in the European Union , COM (2005)389 final;

25. Green Paper on An EU approach to managing economic migration , COM(2004)811 final;

23. Communication from the Commission on Migration and Development: Some concrete orientations , COM (2005)390 final;

26. Communication from the Commission Study on the links between legal and illegal immigration , COM (2004)412 final;

24. Green Paper on Confronting demographic change: a new solidarity between the generations , COM(2005)94 final;

27. First Annual Report on Migration and Integration , COM(2004)508 final;

25. Green Paper on An EU approach to managing economic migration , COM(2004)811 final;

28. Communication from the Commission on Immigration, integration and employment , COM(2003)336 final;

26. Communication from the Commission Study on the links between legal and illegal immigration , COM (2004)412 final;

29. Communication from the Commission on Integrating migration issues in the EU relations with third countries , COM(2002)703 final;

27. First Annual Report on Migration and Integration , COM(2004)508 final;

30. Communication from the Commission on A Community immigration policy , COM(2000)757 final;

28. Communication from the Commission on Immigration, integration and employment , COM(2003)336 final;

D. Eurostat publications and statistics :

29. Communication from the Commission on Integrating migration issues in the EU relations with third countries , COM(2002)703 final;

31. Eurostat, Euro-indicators, news release, 141/2005 of 4 November 2005, Unemployment data of September 2005 (http://epp.eurostat.cec.eu.int/pls/portal/docs/PAGE/PGP_PRD_CAT_PREREL/PGE_CAT_PREREL_YEAR_2005/PGE_CAT_PREREL_YEAR_2005_MONTH_11/3-04112005-EN-BP.PDF).

30. Communication from the Commission on A Community immigration policy , COM(2000)757 final;

32. Eurostat, Statistics in Focus, Population and Social Conditions, 15/2005, Population in Europe 2004 – First results (http://epp.eurostat.cec.eu.int/cache/ITY_OFFPUB/KS-NK-05-015/EN/KS-NK-05-015-EN.PDF).

D. Eurostat publications and statistics :

33. Eurostat, news release, STAT/05/48 of 8 April 2005, Population projections 2004-2050 (http://epp.eurostat.cec.eu.int/pls/portal/docs/PAGE/PGP_PRD_CAT_PREREL/PGE_CAT_PREREL_YEAR_2005/PGE_CAT_PREREL_YEAR_2005_MONTH_04/3-08042005-EN-AP.PDF).

E. Studies and other documents :

34. Council Conclusions on A Common Agenda for Integration , Council Document 14390/05 of 1-2 December 2005;

35. European Commission, The 2005 EPC projections of age-related expenditure (2004-2050) for the EU-25 Member States: underlying assumptions and projection methodologies , European Economy Special Reports N°19, November 2005 (http://europa.eu.int/comm/economy_finance/publications/occasional_papers/2005/ocp19en.pdf);

E. Studies and other documents :

36. European Commission – European University Institute – CARIM, Mediterranean Migration – 2005 report , (http://www.carim.org/Publications/AR2005CARIM.pdf);

34. Council Conclusions on A Common Agenda for Integration , Council Document 14390/05 of 1-2 December 2005;

37. European Commission, DG Justice, Freedom and Security, Handbook on integration for policy makers and practitioners , November 2004, written by the Migration Policy Group, Brussels. The handbook can be downloaded from the following address: http://europa.eu.int/comm/justice_home/doc_centre/immigration/integration/doc/handbook_en.pdf;

38. Common Basic Principles on integration , Council Document 14615/04 of 19 November 2004;

36. European Commission – European University Institute – CARIM, Mediterranean Migration – 2005 report , (http://www.carim.org/Publications/AR2005CARIM.pdf);

39. Studies on labour migration, Migration Research Group, Hamburg Institute for International Economics (HWWA), Germany; papers prepared for the European Commission, DG Employment and Social Affairs, June 2004, available at: http://europa.eu.int/comm/employment_social/employment_analysis/immigr_new_stud_en.htm. The papers examine best practice regarding recruitment of labour migrants, projecting future labour needs and labour market integration in the European countries as well as in other industrialised countries. They were prepared by experts from the MRG, in cooperation with the Migration Policy Institute, Washington DC;

40. Admission of third-country nationals for paid employment or self-employed activity , European Commission, Directorate General for Justice and Home Affairs, 2001, ISBN 92-894-1689-0. The study, undertaken by Ecotec Research and Consulting Limited between November 1999 and May 2000, analysed and compared the legal and administrative frameworks in the EU-15 concerning the admission of third-country nationals to the EU Member States for the purposes of paid employment and self-employment.

38. Common Basic Principles on integration , Council Document 14615/04 of 19 November 2004;

D. International organisations’ studies and documents:

41. Report of the Global Commission on International Migration, Migration in an interconnected world: New directions for action , November 2005 (www.gcim.org);

42. World Bank report, International Migration, Remittances and the Brain Drain , eds. M. Schiff and C. Özden, New York October 2005 (http://econ.worldbank.org/external/default/main?theSitePK=1572893&contentMDK=20693491&pagePK=64168182&piPK=64168060);

D. International organisations’ studies and documents:

43. ILO action plan on migrant workers adopted by the 2004 International Labour Conference(http://www.ilo.org/public/english/protection/migrant/download/ilcmig_res-eng.pdf);

41. Report of the Global Commission on International Migration, Migration in an interconnected world: New directions for action , November 2005 (www.gcim.org);

44. International Labour Organisation, Towards a fair deal for migrant workers in the global economy (http://www.ilo.org/public/english/standards/relm/ilc/ilc92/pdf/rep-vi.pdf), Geneva 2004.

45. III. EU acquis concerning the right to work for third-county nationals

43. ILO action plan on migrant workers adopted by the 2004 International Labour Conference(http://www.ilo.org/public/english/protection/migrant/download/ilcmig_res-eng.pdf);

Directive | Transposition deadline | Article(s) concerning the right to work | Text of the Article |

44. International Labour Organisation, Towards a fair deal for migrant workers in the global economy (http://www.ilo.org/public/english/standards/relm/ilc/ilc92/pdf/rep-vi.pdf), Geneva 2004.

1. Directive 2001/55/EC on minimum standards for giving temporary protection in the event of a mass influx of displaced persons and on measures promoting a balance of efforts between Member States in receiving such persons and bearing the consequences thereof, Official Journal L 212, 07/08/2001 P. 0012 - 0023 | 31.12.2002 | 12 | The Member States shall authorise, for a period not exceeding that of temporary protection, persons enjoying temporary protection to engage in employed or self-employed activities, subject to rules applicable to the profession, as well as in activities such as educational opportunities for adults, vocational training and practical workplace experience. For reasons of labour market policies, Member States may give priority to EU citizens and citizens of States bound by the Agreement on the European Economic Area and also to legally resident third-country nationals who receive unemployment benefit. The general law in force in the Member States applicable to remuneration, access to social security systems relating to employed or self-employed activities and other conditions of employment shall apply. |

45. III. EU acquis concerning the right to work for third-county nationals

2. Directive 2003/9/EC laying down minimum standards for the reception of asylum seekers, Official Journal L 031, 06/02/2003 P. 0018 - 0025 | 6.2.2005 | 11 | 1. Member States shall determine a period of time, starting from the date on which an application for asylum was lodged, during which an applicant shall not have access to the labour market. 2. If a decision at first instance has not been taken within one year of the presentation of an application for asylum and this delay cannot be attributed to the applicant, Member States shall decide the conditions for granting access to the labour market for the applicant. 3. Access to the labour market shall not be withdrawn during appeals procedures, where an appeal against a negative decision in a regular procedure has suspensive effect, until such time as a negative decision on the appeal is notified. 4. For reasons of labour market policies, Member States may give priority to EU citizens and nationals of States parties to the Agreement on the European Economic Area and also to legally resident third-country nationals. |

Directive | Transposition deadline | Article(s) concerning the right to work | Text of the Article |

3. Directive 2003/86/EC on the right to family reunification, Official Journal L 251, 03/10/2003 P. 0012 - 0018 | 3.10.2005 | 14 | 1. The sponsor's family members shall be entitled, in the same way as the sponsor, to: (…) (b) access to employment and self-employed activity; (…) 2. Member States may decide according to national law the conditions under which family members shall exercise an employed or self-employed activity. These conditions shall set a time limit which shall in no case exceed 12 months, during which Member States may examine the situation of their labour market before authorising family members to exercise an employed or self-employed activity. 3. Member States may restrict access to employment or self-employed activity by first-degree relatives in the direct ascending line or adult unmarried children to whom Article 4(2) applies. |

4. Directive 2003/109/EC concerning the status of third-country nationals who are long-term residents, Official Journal L 016, 23/01/2004 P. 0044 - 0053 | 23.1.2006 | 11 | 1. Long-term residents shall enjoy equal treatment with nationals as regards: (a) access to employment and self-employed activity, provided such activities do not entail even occasional involvement in the exercise of public authority, and conditions of employment and working conditions, including conditions regarding dismissal and remuneration; (…) 3. Member States may restrict equal treatment with nationals in the following cases: (a) Member States may retain restrictions to access to employment or self-employed activities in cases where, in accordance with existing national or Community legislation, these activities are reserved to nationals, EU or EEA citizens; (b) Member States may require proof of appropriate language proficiency for access to education and training. Access to university may be subject to the fulfilment of specific educational prerequisites. |

21 | 1. As soon as they have received the residence permit provided for by Article 19 in the second Member State, long-term residents shall in that Member State enjoy equal treatment in the areas and under the conditions referred to in Article 11. 2. Long-term residents shall have access to the labour market in accordance with the provisions of paragraph 1. Member States may provide that the persons referred to in Article 14(2)(a) shall have restricted access to employed activities different than those for which they have been granted their residence permit under the conditions set by national legislation for a period not exceeding 12 months. Member States may decide in accordance with national law the conditions under which the persons referred to in Article 14(2)(b) or (c) may have access to an employed or self-employed activity. |

5. Directive 2004/81/EC on the residence permit issued to third-country nationals who are victims of trafficking in human beings or who have been the subject of an action to facilitate illegal immigration, who cooperate with the competent authorities, Official Journal L 261, 06/08/2004 P. 0019 – 0023 | 6.8.2006 | 11 | 1. Member States shall define the rules under which holders of the residence permit shall be authorised to have access to the labour market, to vocational training and education. Such access shall be limited to the duration of the residence permit. 2. The conditions and the procedures for authorising access to the labour market, to vocational training and education shall be determined, under the national legislation, by the competent authorities. |

6. Directive 2004/83/EC on minimum standards for the qualification and status of third country nationals or stateless persons as refugees or as persons who otherwise need international protection and the content of the protection granted, Official Journal L 304, 30/09/2004 P. 0012 - 0023 | 10.10.2006 | 26 | 1. Member States shall authorise beneficiaries of refugee status to engage in employed or self-employed activities subject to rules generally applicable to the profession and to the public service, immediately after the refugee status has been granted. 2. Member States shall ensure that activities such as employment-related education opportunities for adults, vocational training and practical workplace experience are offered to beneficiaries of refugee status, under equivalent conditions as nationals. 3. Member States shall authorise beneficiaries of subsidiary protection status to engage in employed or self-employed activities subject to rules generally applicable to the profession and to the public service immediately after the subsidiary protection status has been granted. The situation of the labour market in the Member States may be taken into account, including for possible prioritisation of access to employment for a limited period of time to be determined in accordance with national law. Member States shall ensure that the beneficiary of subsidiary protection status has access to a post for which the beneficiary has received an offer in accordance with national rules on prioritisation in the labour market. 4. Member States shall ensure that beneficiaries of subsidiary protection status have access to activities such as employment-related education opportunities for adults, vocational training and practical workplace experience, under conditions to be decided by the Member States. 5. The law in force in the Member States applicable to remuneration, access to social security systems relating to employed or self-employed activities and other conditions of employment shall apply. |

7. Directive 2004/114/EC on the conditions of admission of third-country nationals for the purposes of studies, pupil exchange, unremunerated training or voluntary service, Official Journal L 375, 23/12/2004 P. 0012 - 0018 | 12.1.2007 | 17 | 1. Outside their study time and subject to the rules and conditions applicable to the relevant activity in the host Member State, students shall be entitled to be employed and may be entitled to exercise self-employed economic activity. The situation of the labour market in the host Member State may be taken into account. Where necessary, Member States shall grant students and/or employers prior authorisation in accordance with national legislation. 2. Each Member State shall determine the maximum number of hours per week or days or months per year allowed for such an activity, which shall not be less than 10 hours per week, or the equivalent in days or months per year. 3. Access to economic activities for the first year of residence may be restricted by the host Member State. 4. Member States may require students to report, in advance or otherwise, to an authority designated by the Member State concerned, that they are engaging in an economic activity. Their employers may also be subject to a reporting obligation, in advance or otherwise. |

8. Directive 2005/xx - on a specific procedure for admitting third-country nationals for purposes of scientific research – not published yet | 10.2007 | 6 | 1. A research organisation wishing to host a researcher shall sign a hosting agreement with the latter whereby the researcher undertakes to complete the research project and the organisation undertakes to host the researcher for that purpose (…). 2. Research organisations may sign hosting agreements only if the following conditions are met: (a) the research project has been accepted by the relevant authorities in the organisation, after examination of: (i) the purpose and duration of the research, and the availability of the necessary financial resources for it to be carried out; (ii) the researcher’s qualifications in the light of the research objectives (…) (b) during his /her stay the researcher will have sufficient monthly resources to meet his / her expenses and return travel costs in accordance with the minimum amount published for the purpose by the Member State, without having recourse to the Member State’s social assistance system; (c) during his /her stay the researcher will have sickness insurance for all the risks normally covered for nationals of the Member State concerned. (d) the hosting agreement shall specify the legal relationship and working conditions of the researchers. 3. (…). 4. The hosting agreement shall automatically lapse when the researcher is not admitted or when the legal relationship between the researcher and the research organisation is terminated. 5. (…) |

11 | Researchers admitted under this Directive may teach in accordance with national legislation. Member States may set a maximum number of hours or of days for the activity of teaching |

12 | Holders of a residence permit shall be entitled to equal treatment with nationals as regards: (a) recognition of diplomas, certificates and other professional qualifications in accordance with the relevant national procedures; (b)working conditions, including pay and dismissal; (…) |

8. Directive 2005/71/EC - on a specific procedure for admitting third-country nationals for purposes of scientific research, Official Journal L 289, 3/11/2005 P. 0015 - 0022 – | 10.2007 | 6 | 1. A research organisation wishing to host a researcher shall sign a hosting agreement with the latter whereby the researcher undertakes to complete the research project and the organisation undertakes to host the researcher for that purpose (…). 2. Research organisations may sign hosting agreements only if the following conditions are met: (a) the research project has been accepted by the relevant authorities in the organisation, after examination of: (i) the purpose and duration of the research, and the availability of the necessary financial resources for it to be carried out; (ii) the researcher’s qualifications in the light of the research objectives (…) (b) during his /her stay the researcher will have sufficient monthly resources to meet his / her expenses and return travel costs in accordance with the minimum amount published for the purpose by the Member State, without having recourse to the Member State’s social assistance system; (c) during his /her stay the researcher will have sickness insurance for all the risks normally covered for nationals of the Member State concerned. (d) the hosting agreement shall specify the legal relationship and working conditions of the researchers. 3. (…). 4. The hosting agreement shall automatically lapse when the researcher is not admitted or when the legal relationship between the researcher and the research organisation is terminated. 5. (…) |

IV. Statistics

11 | Researchers admitted under this Directive may teach in accordance with national legislation. Member States may set a maximum number of hours or of days for the activity of teaching |

Table 1 - Population projections for the EU25 + Bulgaria and Romania: Total population

Member States | Population at 1 January (1000 inhabitants) | Percentage increase with respect to 1.1.2004 |

IV. Statistics

2004 | 2015 | 2025 | 2050 | 2015 | 2025 | 2050 |

Table 1 - Population projections for the EU25 + Bulgaria and Romania: Total population

EU25 | 456 815 | 467 307 | 470 057 | 449 831 | 2.3 | 2.9 | -1.5 |

Member States | Population at 1 January (1000 inhabitants) | Percentage increase with respect to 1.1.2004 |

EU15 | 382 674 | 394 727 | 398 780 | 384 356 | 3.1 | 4.2 | 0.4 |

2004 | 2015 | 2025 | 2050 | 2015 | 2025 | 2050 |

New Member States | 74 141 | 72 580 | 71 278 | 65 475 | -2.1 | -3.9 | -11.7 |

EU25 | 456 815 | 467 307 | 470 057 | 449 831 | 2.3 | 2.9 | -1.5 |

Belgium | 10 396 | 10 674 | 10 898 | 10 906 | 2.7 | 4.8 | 4.9 |

EU15 | 382 674 | 394 727 | 398 780 | 384 356 | 3.1 | 4.2 | 0.4 |

Czech Republic | 10 212 | 10 012 | 9 812 | 8 894 | -2.0 | -3.9 | -12.9 |

New Member States | 74 141 | 72 580 | 71 278 | 65 475 | -2.1 | -3.9 | -11.7 |

Denmark | 5 398 | 5 498 | 5 557 | 5 430 | 1.9 | 2.9 | 0.6 |

Belgium | 10 396 | 10 674 | 10 898 | 10 906 | 2.7 | 4.8 | 4.9 |

Germany | 82 532 | 82 864 | 82 108 | 74 642 | 0.4 | -0.5 | -9.6 |

Czech Republic | 10 212 | 10 012 | 9 812 | 8 894 | -2.0 | -3.9 | -12.9 |

Estonia | 1 351 | 1 279 | 1 224 | 1 126 | -5.3 | -9.4 | -16.6 |

Denmark | 5 398 | 5 498 | 5 557 | 5 430 | 1.9 | 2.9 | 0.6 |

Greece | 11 041 | 11 390 | 11 394 | 10 632 | 3.2 | 3.2 | -3.7 |

Germany | 82 532 | 82 864 | 82 108 | 74 642 | 0.4 | -0.5 | -9.6 |

Spain | 42 345 | 45 264 | 45 556 | 42 834 | 6.9 | 7.6 | 1.2 |

Estonia | 1 351 | 1 279 | 1 224 | 1 126 | -5.3 | -9.4 | -16.6 |

France | 59 901 | 62 616 | 64 392 | 65 704 | 4.5 | 7.5 | 9.7 |

Greece | 11 041 | 11 390 | 11 394 | 10 632 | 3.2 | 3.2 | -3.7 |

Ireland | 4 028 | 4 555 | 4 922 | 5 478 | 13.1 | 22.2 | 36.0 |

Spain | 42 345 | 45 264 | 45 556 | 42 834 | 6.9 | 7.6 | 1.2 |

Italy | 57 888 | 58 630 | 57 751 | 52 709 | 1.3 | -0.2 | -8.9 |

France | 59 901 | 62 616 | 64 392 | 65 704 | 4.5 | 7.5 | 9.7 |

Cyprus | 730 | 828 | 897 | 975 | 13.3 | 22.8 | 33.5 |

Ireland | 4 028 | 4 555 | 4 922 | 5 478 | 13.1 | 22.2 | 36.0 |

Latvia | 2 319 | 2 174 | 2 068 | 1 873 | -6.3 | -10.8 | -19.2 |

Italy | 57 888 | 58 630 | 57 751 | 52 709 | 1.3 | -0.2 | -8.9 |

Lithuania | 3 446 | 3 258 | 3 134 | 2 881 | -5.5 | -9.1 | -16.4 |

Cyprus | 730 | 828 | 897 | 975 | 13.3 | 22.8 | 33.5 |

Luxembourg | 452 | 499 | 544 | 643 | 10.4 | 20.5 | 42.3 |

Latvia | 2 319 | 2 174 | 2 068 | 1 873 | -6.3 | -10.8 | -19.2 |

Hungary | 10 117 | 9 834 | 9 588 | 8 915 | -2.8 | -5.2 | -11.9 |

Lithuania | 3 446 | 3 258 | 3 134 | 2 881 | -5.5 | -9.1 | -16.4 |

Malta | 400 | 439 | 468 | 508 | 9.8 | 17.0 | 27.1 |

Luxembourg | 452 | 499 | 544 | 643 | 10.4 | 20.5 | 42.3 |

Netherlands | 16 258 | 16 957 | 17 429 | 17 406 | 4.3 | 7.2 | 7.1 |

Hungary | 10 117 | 9 834 | 9 588 | 8 915 | -2.8 | -5.2 | -11.9 |

Austria | 8 114 | 8 358 | 8 501 | 8 216 | 3.0 | 4.8 | 1.3 |

Malta | 400 | 439 | 468 | 508 | 9.8 | 17.0 | 27.1 |

Poland | 38 191 | 37 429 | 36 836 | 33 665 | -2.0 | -3.5 | -11.8 |

Netherlands | 16 258 | 16 957 | 17 429 | 17 406 | 4.3 | 7.2 | 7.1 |

Portugal | 10 475 | 10 762 | 10 730 | 10 009 | 2.7 | 2.4 | -4.4 |

Austria | 8 114 | 8 358 | 8 501 | 8 216 | 3.0 | 4.8 | 1.3 |

Slovenia | 1 996 | 2 019 | 2 014 | 1 901 | 1.1 | 0.9 | -4.8 |

Poland | 38 191 | 37 429 | 36 836 | 33 665 | -2.0 | -3.5 | -11.8 |

Slovakia | 5 380 | 5 309 | 5 237 | 4 738 | -1.3 | -2.7 | -11.9 |

Portugal | 10 475 | 10 762 | 10 730 | 10 009 | 2.7 | 2.4 | -4.4 |

Finland | 5 220 | 5 354 | 5 439 | 5 217 | 2.6 | 4.2 | -0.1 |

Slovenia | 1 996 | 2 019 | 2 014 | 1 901 | 1.1 | 0.9 | -4.8 |

Sweden | 8 976 | 9 373 | 9 769 | 10 202 | 4.4 | 8.8 | 13.7 |

Slovakia | 5 380 | 5 309 | 5 237 | 4 738 | -1.3 | -2.7 | -11.9 |

United Kingdom | 59 652 | 61 934 | 63 792 | 64 330 | 3.8 | 6.9 | 7.8 |

Finland | 5 220 | 5 354 | 5 439 | 5 217 | 2.6 | 4.2 | -0.1 |

Bulgaria | 7 801 | 7 130 | 6 465 | 5 094 | -8.6 | -17.1 | -34.7 |

Sweden | 8 976 | 9 373 | 9 769 | 10 202 | 4.4 | 8.8 | 13.7 |

Romania | 21 711 | 20 917 | 19 746 | 17 125 | -3.7 | -9.1 | -21.1 |

United Kingdom | 59 652 | 61 934 | 63 792 | 64 330 | 3.8 | 6.9 | 7.8 |

Source: Eurostat; data for France refers to Metropolitan France

Bulgaria | 7 801 | 7 130 | 6 465 | 5 094 | -8.6 | -17.1 | -34.7 |

Over the next two decades the total population of the EU25 is expected to increase by more than 13 million inhabitants, from 456.8 million on 1 January 2004 to 470.1 million on 1 January 2025. Population growth in the EU25 until 2025 will be mainly due to net migration, since total deaths in the EU25 will outnumber total births from 2010. The effect of net migration will no longer outweigh the natural decrease after 2025, when the population will start to decline gradually. The population will reach 449.8 million on 1 January 2050, that is a decrease of more than 20 million inhabitants compared to 2025. Over the whole projection period the EU25 population will decrease by 1.5%, resulting from a 0.4% increase for the EU15 and a 11.7% decrease for the ten new Member States.

Romania | 21 711 | 20 917 | 19 746 | 17 125 | -3.7 | -9.1 | -21.1 |

Table 2 - Population projections for the EU25 + Bulgaria and Romania: population structure – Main age groups

Source: Eurostat; data for France refers to Metropolitan France

Percentage aged 0-14 | Percentage aged 15-64 | Percentage aged 65+ |

DK | 1600 | 500 | 2741000 | 2003. Professionals relate to occupations requiring special skills which are in demand |

Table 2 - Population projections for the EU25 + Bulgaria and Romania: population structure – Main age groups

DE | 165000 | 3300 | 36275000 | 2003. Figures relate to non-EU persons arriving in Germany. The total includes multiple entries, the vast majority of whom are unskilled. Professional category relates only to “Green Card” scheme for IT specialists |

Percentage aged 0-14 | Percentage aged 15-64 | Percentage aged 65+ |

ES | 65000 | - | 16241000 | Approximate net estimate for 2002/2003 for the rise in the numbers in the SI system (excluding EU nationals) |

DK | 1600 | 500 | 2741000 | 2003. Professionals relate to occupations requiring special skills which are in demand |

FR | 31200 | 12400 | 23885000 | Professionals covers the inflows of those with Autorisations Provisoire de Travail (APTs) and qualified “travailleurs permanents” in 2003. |

IE | 16100 | 2000 | 1750000 | 2003 data. Professionals include WP holders with occupations defined as in ISCO88 and the highly skilled on Working Visas. New member States (EU10) are excluded. |

ES | 65000 | - | 16241000 | Approximate net estimate for 2002/2003 for the rise in the numbers in the SI system (excluding EU nationals) |

IT | 78800 | 500 | 21757000 | Visas issued to non EU nationals in 2003 for self employment and contract work. Professional figure is reserved quota for highly skilled. |

FR | 31200 | 12400 | 23885000 | Professionals covers the inflows of those with Autorisations Provisoire de Travail (APTs) and qualified “travailleurs permanents” in 2003. |

LV | 2800 | - | 987000 | 2002 |

IE | 16100 | 2000 | 1750000 | 2003 data. Professionals include WP holders with occupations defined as in ISCO88 and the highly skilled on Working Visas. New member States (EU10) are excluded. |

LT | 500 | 160 | 1421000 | 2003 |

IT | 78800 | 500 | 21757000 | Visas issued to non EU nationals in 2003 for self employment and contract work. Professional figure is reserved quota for highly skilled. |

HU | 40300 | 3800 | 3868000 | No. of non-EU workers holding valid WPs on 31/12/03. Professionals have "college" or "university " education. |

LV | 2800 | - | 987000 | 2002 |

NL | 38000 | 10900 | 8176000 | 2003 |

LT | 500 | 160 | 1421000 | 2003 |

PL | 5600 | 1700 | 13820000 | Estimated new permits (i.e. excl renewals) for non-EU persons in 2002.Professionals are those classed as "experts and consultants" |

HU | 40300 | 3800 | 3868000 | No. of non-EU workers holding valid WPs on 31/12/03. Professionals have "college" or "university " education. |

SK | 1000 | - | 2111000 | Total non-EU inflow for 2002 |

NL | 38000 | 10900 | 8176000 | 2003 |

FI | 13100 | 1700 | 2406000 | 2003. Covers non-EU WP holders. |

PL | 5600 | 1700 | 13820000 | Estimated new permits (i.e. excl renewals) for non-EU persons in 2002.Professionals are those classed as "experts and consultants" |

SE | 6700 | 4300 | 4348000 | 2002. Covers non-EU WP holders. |

SK | 1000 | - | 2111000 | Total non-EU inflow for 2002 |

UK | 89200 | 15800 | 28338000 | 2003 data. Persons who entered the UK from abroad on WPs in 2003. Excludes renewals and "first permissions" for those already resident in the UK. Professions defined as in ISCO 88. Includes small number of EU10 citizens. |

FI | 13100 | 1700 | 2406000 | 2003. Covers non-EU WP holders. |

Total | (554900) | (57060) | 168124000 |

SE | 6700 | 4300 | 4348000 | 2002. Covers non-EU WP holders. |

EU25 | 633200 (est) | 74300 (est) | 191841000 |

Source: Study on assessing the question of applying numerical ceilings to the temporary movement of contract service suppliers (Mode 4) in the context of the GATS negotiations on trade in services. Prepared by Prof. J.J. Sexton for the European Commission (DG TRADE), April 2005

Total | (554900) | (57060) | 168124000 |

The category “professionals with work permits” can in most cases be equated with “highly skilled”. Thus, the table above gives an indication of the minimum number of people (estimation of 74,300 for EU25) who could be covered by a scheme for the admission of highly skilled workers.

EU25 | 633200 (est) | 74300 (est) | 191841000 |

Table 5: Regularisations in selected EU Member States (data from regularisation campaigns)

Greece

Year | Number of applicants | Number regularised |

Table 5: Examples of regularisations in EU Member States (data from regularisation campaigns)

1998—White card Green card | 370,000 228,000 | 370,000 220,000 |

Greece

2001 | 368,000 | 228,000 |

Year | Number of applicants | Number regularised |

Italy

1998—White card Green card | 370,000 228,000 | 370,000 220,000 |

Year | Number of applicants | Number regularized |

2001 | 368,000 | 228,000 |

1986-1987 | 118,700 |

Italy

1990 | 235,000 |

Year | Number of applicants | Number regularized |

1995-96 | 256,000 | 238,000 |

1986-1987 | 118,700 |

1998-99 | 308,000 | 193,200 |

1990 | 235,000 |

2002 | 700,000 | 634,700 |

1995-96 | 256,000 | 238,000 |

France

1998-99 | 308,000 | 193,200 |

Year | Number regularised |

2002 | 700,000 | 634,700 |

1981-82 | 121,100 |

France

1997-98 | 77,800 |

Year | Number regularised |

Spain

1981-82 | 121,100 |

Year | Number of applicants | Number regularised |

1997-98 | 77,800 |

1985-86 | 44,000 | 23,000 |

Spain

1991 | 135,393 | 109,135 |

Year | Number of applicants | Number regularised |

1996 | 25,000 | 21,300 |

1985-86 | 44,000 | 23,000 |

2000 | 247,598 | 153,463 |

1991 | 135,393 | 109,135 |

2001 | 350,000 | 221,083 |

1996 | 25,000 | 21,300 |

2005 | 690,679 | 500,000 (estimated) |

2000 | 247,598 | 153,463 |

Portugal

2001 | 350,000 | 221,083 |

Year | Number of applicants | Number regularised |

2005 | 690,679 | 500,000 (estimated) |

1992-93 | 80,000 | 38,364 |

Portugal

1996 | 35,000 | 31,000 |

Year | Number of applicants | Number regularised |

2001 | 170,000 |

1992-93 | 80,000 | 38,364 |

Source: The Regularisation of Unauthorized Migrants: Literature Survey and Country Case Studies. Amanda Levinson, Centre on Migration, Policy and Society, University of Oxford 2005.

1996 | 35,000 | 31,000 |

3,703,845 persons have been regularised in these five EU countries since the early 1980s. This does not necessarily concern an equal number of irregular migrants, as the same person may have been subject to different regularisation procedures (if after a period of time the person has fallen once again in irregularity). Other EU countries have also used regularisations in the past. Regularisation figures point to a fundamental dysfunction in the system for admission of migrants in many EU Member States: Migrants enter irregularly to fill the gaps in the labour market because legal ways to do so are very limited and ineffective. Usually, irregular migrants work in the ‘hidden’ economy, as evidenced by the latest Spanish regularisation campaign.

2001 | 170,000 |

These are estimates provided by non-official EU sources. The Commission is aware that there is a need for comprehensive and reliable data in the field of immigration and asylum. In order to dispose of comparable and reliable data, and to foster information sharing and policy debate within the Member States of the EU in immigration and asylum issues, it has recently put forward in particular two proposals for legislation:

Source: The Regularisation of Unauthorized Migrants: Literature Survey and Country Case Studies. Amanda Levinson, Centre on Migration, Policy and Society, University of Oxford 2005.

46. Proposal for a Council Decision on the establishment of a mutual information procedure concerning Member States’ measures in the areas of asylum and immigration, COM(2005)480 final;

47. Proposal for a Regulation of the European Parliament and of the Council on Community statistics on migration and international protection, COM(2005)375 final.

46. Proposal for a Council Decision on the establishment of a mutual information procedure concerning Member States’ measures in the areas of asylum and immigration, COM(2005)480 final;

[1] Schlussfolgerungen des Europäischen Rates, Anhang I, Abschnitt III, Ziffer 1.4.

47. Proposal for a Regulation of the European Parliament and of the Council on Community statistics on migration and international protection, COM(2005)375 final.

[2] Nähere Angaben zu allen Instrumenten, auf die dieses Dokument Bezug nimmt, sind der Bibliografie zu entnehmen.

[3]http://europa.eu.int/comm/justice_home/news/consulting_public/economic_migration/news_contributions_economic_migration_en.htm

[1] European Council conclusions, Annex I, § III 1.4

[4] EP: A6-0286/2005; SOC/199 (CESE 694/05 ); ECOS-045

[2] For details of all instruments referred to in this document, see bibliography

[5] Seit 1999 wurden vier Richtlinien – auf der Grundlage von Art. 63 Absätze 3 und 4 – mit Bestimmungen über den Zugang zum Arbeitsmarkt (langfristig Aufenthaltsberechtigte, Familienzusammenführung, Studenten, Forscher) und mehrere Mitteilungen verabschiedet.

[3]http://europa.eu.int/comm/justice_home/news/consulting_public/economic_migration/news_contributions_economic_migration_en.htm

[6] ILO-Bericht 2004; Bericht der Weltbank 2005; EU-Wirtschaftsbilanz 2005.

[4] EP: A6-0286/2005; SOC/199 (CESE 694/05 ); ECOS-045

[7] KOM(2005)525.

[5] Since 1999, 4 directives – based on Art. 63 (3) and (4) EC – containing provisions on access to work (long-term residents, family reunification, students, researchers) and several Communications have been adopted

[8] Die Eurostat-Reihe von Bevölkerungsvorausschätzungen ist eine von verschiedenen Szenarien der Bevölkerungsentwicklung, die auf Annahmen der Fruchtbarkeit, Sterblichkeit und Migration basieren. Das Trendszenario berücksichtigt keine zukünftigen Maßnahmen, die demografische Trends beeinflussen könnten, und enthält vier Varianten: die „Grundlinie“-Variante, deren Ergebnisse hier dargelegt werden, sowie die Varianten „hohe Bevölkerung“, „niedrige Bevölkerung“ und „Null-Migration“. Daten aus STAT/05/48.

[6] ILO report 2004; World Bank report 2005; EU Economy 2005 review

[9] Die saisonbereinigte Arbeitslosenquote der EU25 belief sich im September 2005 (wie im August) auf 8,6 % und variierte zwischen 4,3 % (Irland) und 17,7 % (Polen). Im September 2004 betrug sie 9,0 % (Eurostat: 141/2005).

[7] COM(2005)525

[10] Entscheidung des Rates vom 12. Juli 2005 über Leitlinien für beschäftigungspolitische Maßnahmen der Mitgliedstaaten.

[8] The Eurostat set of population projections is one among several scenarios of population evolution based on assumptions of fertility, mortality and migration. The trend scenario does not take into account any future measures that could influence demographic trends and comprises four variants: the ‘baseline’ variant, the results of which are presented here, as well as 'high population', 'low population' and 'zero-migration' variants. Data from STAT/05/48

[11] Die Mitgliedstaaten berücksichtigen Anträge auf Einreise in ihr Hoheitsgebiet zur Ausübung einer Beschäftigung nur, wenn die in einem Mitgliedstaat angebotenen Stellen nicht mit Arbeitskräften des eigenen Landes und anderer Mitgliedstaaten oder mit Arbeitskräften aus Nichtmitgliedstaaten, die auf Dauer und legal ihren Wohnsitz in diesem Mitgliedstaat haben und dem regulären Arbeitsmarkt dieses Staates bereits angehören, besetzt werden können (Entschließung des Rates vom 20. Juni 1994 zur Verordnung (EWG) Nr. 1612/1968 des Rates). Zu beachten ist, dass die Beitrittsverträge vom 16. April 2003 und 25. April 2005 Arbeitskräften mit der Staatsangehörigkeit eines Mitgliedstaats Vorrang vor Arbeitskräften aus Drittstaaten geben, soweit der Zugang zu den Arbeitsmärkten der Mitgliedstaaten betroffen ist.

[9] The EU25 seasonally adjusted unemployment rate was 8.6% in September 2005 (as in August) ranging from 4.3% (IE) to 17.7% (PL). It was 9.0% in September 2004 (Eurostat: 141/2005)

[12] KOM(2005).

[10] Council Decision of 12 July 2005 on guidelines for the employment policies of the Member States

[13] Mit Ausnahme von Forschern.

[11] Member States will consider requests for admission to their territories for the purpose of employment only where vacancies in a Member State cannot be filled by national and Community manpower or by non-Community manpower lawfully resident on a permanent basis in that Member State and already forming part of the Member State’s regular labour market (Council Resolution of 20 June 1994, in connection with Council Regulation (EEC) n°1612/1968). It should be noted that the Treaties of Accession of 16 April 2003 and 25 April 2005 give preference to workers who are nationals of the Members States over workers who are nationals of third countries as regards access to Member States’ labour markets

[14] Bericht CARIM 2005 (S. 21).

[12] COM(2005) 642

[15] Siehe Fußnote 1.

[13] Other than researchers

[16] KOM(2005)390.

[14] CARIM 2005 Report (p. 21)

[17] Richtlinie 2004/114/EG.

[15] See note 1

[18] Anhang III.

[16] COM(2005)390

[19] http://europa.eu.int/eures

[17] Directive 2004/114/EC

[20] http://europa.eu.int/eracareers

[18] Annex III

[21] Europäischer Rat von Laeken.

[19] http://europa.eu.int/eures

[22] KOM(2005)606.

[20] http://europa.eu.int/eracareers

[23] Genauere Informationen sind dem Dokument KOM(2005)389 zu entnehmen.

[21] Laeken European Council

[24] KOM(2005)597.

[22] COM(2005)606

[23] For details: COM(2005)389

[24] COM(2005)597

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