Annual Monitoring Report on Integration 2012 The cover image shows Irish immigrant construction workers take a lunch break on a steel beam atop the RCA Building at Rockefeller Center, New York, Sept. 29, 1932. In the background is the Chrysler Building. The photograph depicts men eating lunch, seated on a girder with their feet dangling 256 meters (840 feet) above the New York City streets. The men have no safety harness, which was linked to the Great Depression, when people were willing to take any job regardless of safety issues. Annual Monitoring Report on Integration 2012 Authors Frances McGinnity1 Emma Quinn1 Gillian Kingston1 Philip O’Connell2 1. Economic and Social Research Institute 2. UCD Geary Institute, University College Dublin Frances McGinnity is a Senior Research Officer at the Economic and Social Research Institute (ESRI) Emma Quinn is National Programme Co-ordinator, European Migration Network (EMN) Ireland Gillian Kingston is a Research Assistant at the ESRI Philip O’Connell is Director of the UCD Geary Institute, University College Dublin. The views expressed in this report are those of the authors and while the report was reviewed in both The Integration Centre and the ESRI, the views do not necessarily represent those of either body or the Geary Institute. Previous reports in this series: McGinnity, F., Quinn, E., O’Connell, P. and Donnelly, N. (2011) Annual Monitoring Report on Integration 2010. Dublin: Economic and Social Research Institute and The Integration Centre. McGinnity, F., Quinn, E., Kingston, G. and O’Connell, P. (2012) Annual Monitoring Report on Integration 2011. Dublin: Economic and Social Research Institute and The Integration Centre. © Economic and Social Research Institute and The Integration Centre, June 2013 Graphic Design Advancedesign.ie ISBN No. 9780707003542 Annual Monitoring Report on Integration 2012 1 Welcome to the third annual Integration Monitor published by The Integration Centre, and written by an excellent team of researchers at the Economic and Social Research Institute (ESRI) and the Geary Institute. We are glad to note that the Monitor has become a well- regarded resource for policy makers, researchers, service providers and community groups in Ireland as well as in Europe. This series offers a bird’s eye view of integration in Ireland, not only for a specific year but also as the situation evolves over time, through the lens of four indicators: employment, active citizenship, social inclusion and education. It is important that the findings and possible policy implications receive the necessary attention as failure to address issues of integration may have serious long-term consequences for Irish society. Some of the key findings and policy recommendations of the 2012 Integration Monitor are considered below. Employment In the last four years employment among non-Irish nationals fell by 23 per cent, compared with a fall of 13 per cent for Irish nationals. In 2008, 6.6 per cent of non-Irish nationals were unemployed; by 2012, this figure had risen to 18.4 per cent. Unemployment among Irish nationals rose to 14.4 per cent in 2012. We know that migrants show an interest in training and up-skilling opportunities but their needs are not always met. Language provision is particularly important, especially for vulnerable groups. Recommendations • � Review the effectiveness of activation programmes such as community employment schemes to ensure that only those producing tangible outcomes will be funded and replicated. • � Monitor subsidised education training programmes (Springboard, Back to Education, Momentum) with a view to assisting the immigrant population effectively. • � Reverse the decision to close down the Adult Refugee Programme (an intensive language and integration programme designed mainly for refugees). Active Citizenship An increasing number of non-EU nationals receive citizenship through naturalisation: 4,969 in 2010, 9,529 in 2011 and an estimated 23,200 in 2012. This increase is due in part to improved waiting times and a lower rejection rate. Citizenship enables migrants to vote and stand in national elections (residents who are not citizens can take part in local elections). Although, regrettably, the level of participation remains low, there are positive signs. The Opening Power to Diversity project managed by Crosscare has successfully matched migrant interns with TDs. In addition, The Integration Centre has begun working with political parties, migrant organisations and academic institutions in a European project that aims at helping parties engage, recruit and retain more migrant members, voters and candidates. Recommendations • � Re-launch voter registration drives by local authorities in collaboration with community groups. • � Design programmes to help political parties to reach migrant communities. Social Inclusion Poverty is increasingly affecting immigrants: one-third are deprived of basic needs such as affording a morning, afternoon or evening out or replacing worn-out furniture. Inability to afford to socialise outside the home affects the ability of non-Irish nationals to participate in society. Non-EU nationals are far more disadvantaged than other groups: around 6 per cent were affected by consistent poverty (a combination of income poverty and lacking basic needs) in 2008. This rate went up to 10 per cent in 2009 and 12 per cent in 2010. Recommendations • � Adopt a more flexible approach to help immigrants with young children, particularly single parents, to re-enter the labour market through training and tailored employment skills courses and affordable childcare. • � Extend the use of trained mediators to all areas when offering services for migrant communities, particularly for vulnerable groups. Education It was shown in previous Integration Monitors that children who do not speak English at home often perform poorly in school. This Monitor points out that a significant one-third of migrant pupils in secondary schools received the lowest scores in reading. Despite this, money spent on English language support for children decreased by 19 per cent in 2012. On a more positive note, The Integration Centre welcomes the transfer of school patronage in 23 towns, which creates more choice in schooling. However, with migrant pupils being concentrated in specific schools, reforming enrolment policies and dealing with over-subscription in urban areas remain important tasks. Recommendations • � Encourage closer collaboration among secondary schools (e.g. summer camps, sharing teachers, after-school programmes) with the help of the new Education and Training Board to achieve a more resource-efficient solution in language support. • Remove waiting lists for school places. • � Outlaw the use of religious preference in admission policies. Attitudes to Immigrants and Immigration The special focus of this Monitor clearly illustrates worsening attitudes towards migrants in recent years. The fact that attitudes have deteriorated to a greater extent than is the case in other countries experiencing a similar recession is telling. Discrimination across a variety of life situations, ranging from shops, housing, pubs and transport, is a serious issue that needs to be addressed. Preface, The Integration Centre Preface Annual Monitoring Report on Integration 20122 Recommendations • � Communicate the economic benefits of migration to the wider public. • � Promote existing anti-racism initiatives in schools and create a nationwide resource that can be used in the classroom. • � Continue to support local integration and intercultural forums that bring together local community groups and services. Conclusion On the whole, while there have been positive steps taken, we believe that the Office for the Promotion of Migrant Integration should be funded and empowered to play a more active role in the co-ordination of integration in Ireland. This role would include advising on policy and measures affecting the migrant population, and co-ordinating dialogue between government departments, as well as between government departments and migrant organisations. Most importantly, the Government needs to name integration as an important objective of its economic and social policies, rather than deferring dialogue until such a time as large-scale problems evolve. Preface Annual Monitoring Report on Integration 2012 3 Authors’ Acknowledgements This Integration Monitor benefited from the comments and assistance of a number of people, and we would like to take this opportunity to thank them. We owe a particular debt of gratitude to Brian Ring from the Central Statistics Office for providing data from the Quarterly National Household Survey for Chapters 2 and 3; Kieran Walsh also supported this process. Officials from the Office for the Promotion of Migrant Integration and the Department of Education and Skills provided information and very useful comments on the draft report. Staff from the Irish Naturalisation and Immigration Service supplied the data on citizenship and long-term residence permits, and gave observations on the final draft. Fidèle Mutwarasibo from the Immigrant Council of Ireland also provided useful input. ESRI colleagues gave very helpful comments on their specific areas of expertise, in particular Corona Joyce, Bertrand Maître and Dorothy Watson. The report was also improved following the constructive comments of an anonymous ESRI reviewer. Thanks, too, to Jennifer Armstrong, who copy-edited the report. Finally, we are grateful for the support of The Integration Centre throughout the research process. While others have given generously of their time and comments, responsibility for the contents of the report rests with the authors. Authors’ Acknowledgements Annual Monitoring Report on Integration 20124 Annual Monitoring Report on Integration 2012 5 Preface, The Integration Centre............................................................ 1 Authors’ Acknowledgements................................................................ 3 List of Tables and Figures........................................................................ 6 Glossary: Abbreviations and Irish Terms........................................... 7 Executive Summary.................................................................................. 8 Chapter 1 Introduction, Policy and Context.........................12 1.1 The Challenges of Measuring Integration........................ 12 1.1.1 Defining Integration.................................................................................12 1.1.2 The Integration Monitor..........................................................................12 1.1.3 � � Challenges of Monitoring Outcomes Among Immigrants..................................................................................14 1.2 Overview of Main Trends in Migration in Ireland........... 14 1.3 Overview of Irish Migration Policy and Legislation....... 20 1.4 Integration Policy....................................................................... 24 1.4.1 EU Integration Policy: Update........................................................ 24 1.4.2 Irish Integration Policy.................................................................... 24 1.4.2.1 Office for the Promotion of Migrant Integration (OPMI).......................................................................... 25 1.4.2.2 � UN Committee on the Elimination of Racial Discrimination (UNCERD)................................................... 26 1.4.2.3 Irish Human Rights and Equality Commission............................. 26 1.4.2.4 ECRI Report on Ireland – Fourth Monitoring Cycle 2013........................................................................................ 26 Chapter 2 Employment and Integration...............................27 2.1 Employment, Unemployment and Activity Rates......... 28 2.2 Self-Employment....................................................................... 31 2.3 Summary of Employment Indicators.................................. 32 Chapter 3 Education and Integration...................................34 3.1 Educational Outcomes for Adults in Ireland.................... 34 3.1.1 Highest Educational Attainment................................................... 34 3.1.2 Early School Leavers Among Adult Immigrants........................... 36 3.2 Immigrant Children in Irish Schools.................................... 36 3.3 Summary of Findings on Educational Attainment........ 38 Chapter 4 Social Inclusion and Integration..........................41 4.1 Income and Poverty.................................................................. 41 4.1.1 Household Income.......................................................................... 41 4.1.2 Poverty Rates................................................................................... 42 4.2 Health Status............................................................................... 44 4.3 Home Ownership....................................................................... 45 4.4 The Experience of Discrimination........................................ 46 4.5 Summary of Inclusion Indicators......................................... 47 Chapter 5 Active Citizenship.................................................49 5.1 Citizenship.................................................................................... 49 5.1.1 Recent Changes to Naturalisation in Ireland................................ 49 5.1.2 Citizenship Indicators..................................................................... 51 5.1.3 Profile of Naturalised Citizens 2011............................................... 52 5.2 Long-Term Residence............................................................... 54 5.2.1 Long-Term Residence Indicator...................................................... 54 5.3 Voting and Elected Representatives................................... 55 5.3.1 Political Participation Indicator..................................................... 55 5.4 Summary of Findings on Active Citizenship.................... 57 Chapter 6 Changing Irish Attitudes to Immigrants? Evidence from the European Social Survey 2002–2010......................58 6.1 Changing Ireland....................................................................... 59 6.2 Irish Attitudes: Change Over Time....................................... 61 6.2.1 Attitudes to Immigrants and Immigration 2002–2010.................... 61 6.3 � � How Does Ireland Compare with Other Countries in terms of Attitudes to Immigrants in 2010?.................. 67 6.4 � � Variation in Attitudes by Personal Characteristics – Education, Age and Citizenship.......... 71 6.5 Conclusion.................................................................................... 75 Chapter 7 Issues for Policy and Data Collection...................76 7.1 Policy Issues................................................................................. 76 7.2 Issues for Future Data Collection......................................... 76 References...............................................................................78 Appendix 1 �Common Basic Principles for Immigrant Integration Policy in the European Union........82 Appendix 2 Definition of Indicators......................................83 Contents Contents Annual Monitoring Report on Integration 20126 Tables Table A1 Employment (working age) 2012................................................ 8 Table A2 Education 2012................................................................................... 8 Table A3 Social inclusion 2010........................................................................ 9 Table A4 Active citizenship end-2011........................................................... 9 Table A5 Key indicators at a glance............................................................... 11 Table 1.1 � � Outline of core indicators, broadly equivalent to those proposed at Zaragoza.................................................... 13 Table 1.2 � Overview of recent policy/legislative developments..................................................................................... 20 Table 1.3 Beneficiaries of OPMI funding 2008–2012............................... 25 Table 2.1 � Key employment indicators by national groups Q1 2012.................................................................................. 30 Table 2.2 � Key employment indicators by age group Q1 2012........................................................................... 31 Table 2.3 Key employment indicators by gender Q1 2012................... 31 Table 2.4 Self-employment rates by nationality Q1 2012...................... 32 Table 3.1 Highest educational attainment by nationality..................... 34 Table 3.2 Share of early school leavers by nationality............................. 36 Table 3.3 � Mean reading and mathematics scores in PISA 2009 by immigrant/language status, 15 year olds in Ireland...................................................................................... 37 Table 4.1 � Household income and household equivalised income 2010................................................................ 42 Table 4.2 � At risk of poverty, deprivation and consistent poverty rates 2010....................................................... 43 Table 4.3 Consistent poverty rates by nationality 2009 and 2010.................................................................................... 44 Table 4.4 Self-assessed health status 2010.................................................. 45 Table 4.5 Home ownership by households 2010...................................... 46 Table 5.1 � Annual citizenship indicator (non-EEA nationals aged 16 and over): rate of naturalisations to resident non-EEA population........................................................ 51 Table 5.2 � Cumulative citizenship indicator (non-EEA nationals aged 16 and over): ratio of non-EEA nationals who ‘ever’ acquired citizenship to the total estimated immigrant population...................................... 52 Table 5.3 � Non-EEA nationals aged 16 and over who acquired citizenship during 2011...................................... 52 Table 5.4 � Non-EEA nationals aged 16 and over who acquired citizenship during 2011 by age group.................... 52 Table 5.5 � Non-EEA nationals aged 16 and over who acquired citizenship by naturalisation during 2011 by nationality of applicant.................................................. 52 Table 5.6 � Non-EU population aged 15 and over by nationality 2006........................................................................... 53 Table 5.7 � Long-term residence indicator (non-EEA nationals aged 16 and over).......................................................... 54 Figures Figure 1.1 � Share of foreign-born population among the total population in selected OECD countries 2010......................... 15 Figure 1.2 � Immigration, emigration and net migration 1987–2012............................................................................................ 15 Figure 1.3 � Nationality breakdown of immigration flows 2000–2012................................................................................ 17 Figure 1.4 � Nationality breakdown of emigration flows 2006–2012................................................................................ 18 Figure 1.5 � Breakdown of GNIB (police) residence permissions, year-end 2008–2011 (non-EEA nationals aged 16 and over).............................................................................. 19 Figure 2.1 � Key employment indicators by Irish and non-Irish 2011 and 2012................................................................. 29 Figure 3.1 Share of 25–34 age group with tertiary education............... 35 Figure 3.2 � Students at each reading proficiency level in PISA 2009, 15 year olds in Ireland................................. 38 Figure 6.1 Unemployment rates (ILO) in Ireland 2000–2010.................. 59 Figure 6.2 Immigration flows to Ireland 2000–2010.................................. 60 Figure 6.3 � Mean scores in attitudes to impact of immigration on the economy 2002–2010.......................................................... 61 Figure 6.4 � Mean scores in attitudes to impact of immigration on cultural life 2002–2010.................................... 62 Figure 6.5 � Mean scores in attitudes to whether immigrants make Ireland a better or worse place to live 2002–2010.................................................................................... 63 Figure 6.6 � Overall attitudes to immigration scale 2002–2010................................................................................. 63 Figure 6.7 � Overall attitudes to allowing immigrants of the same race/ethnic group as majority to come and live in Ireland.................................................................. 64 Figure 6.8 � Overall attitudes to allowing immigrants of different race/ethnic group as majority to come and live in Ireland.... 65 Figure 6.9 � Overall attitudes to allowing immigrants from poorer countries outside Europe to come and live in Ireland.......... 66 Figure 6.10 Overall openness to immigration scale..................................... 66 Figure 6.11 � Cross-country comparison: immigrants make the country a better or worse place to live 2010........................... 67 Figure 6.12 � Cross-country comparison: mean scores in attitudes to impact of immigration on cultural life 2010....................... 68 Figure 6.13 � Cross-country comparison: mean scores in attitudes to impact of immigration on the economy 2010................... 69 Figure 6.14 � Cross-country comparison: overall attitudes to immigration scale 2010.............................................................. 69 Figure 6.15 � Cross-country comparison: proportions who say ‘allow many’ from same ethnic group as majority to come and live here 2010............................................................ 70 Figure 6.16 � Cross-country comparison: proportions who say ‘allow none’ from same ethnic group as majority to come and live here 2010............................................................ 70 Figure 6.17 � � Cross-country comparison: openness to immigration scale 2010................................................................... 71 Figure 6.18 � � Mean scores in attitudes to immigration by education level................................................................................... 72 Figure 6.19 � Mean scores in attitudes to immigrants by age group........ 73 Figure 6.20 � � Mean scores in openness to immigration by age group....................................................................................... 73 Figure 6.21 � � Mean scores to question on cultural life by citizenship........................................................................................74 Figure 6.22 � �Overall attitudes to immigration by citizenship 2010............................................................................74 Tables and Figures Tables and Figures Annual Monitoring Report on Integration 2012 7 ACIT Access to Citizenship and Its Impact on Immigrant Integration An Garda Síochána Police force of Ireland CBP Common Basic Principles for Immigrant Integration CSO Central Statistics Office Dáil Éireann Lower house of parliament (house of representatives) DG Directorate general EAL English as an additional language ECRI European Commission against Racism and Intolerance EEA � European Economic Area, which comprises the EU Member States plus Iceland, Liechtenstein and Norway EFTA European Free Trade Association, which comprises Iceland, Liechtenstein, Norway and Switzerland EMN European Migration Network EPIC Employment for People from Immigrant Communities ESRI Economic and Social Research Institute ESS European Social Survey EU European Union EU12 � EU Member States that acceded in 2004 and 2007: Bulgaria, Cyprus, Czech Republic, Estonia, Hungary, Latvia, Lithuania, Malta, Poland, Romania, Slovakia, Slovenia EU13 � ‘Old’ EU15 Member States excluding Ireland and the UK: Austria, Belgium, Denmark, Finland, France, Germany, Greece, Italy, Luxembourg, Netherlands, Portugal, Spain, Sweden EUDO EU Democracy Observatory on Citizenship EU-SILC EU Survey on Income and Living Conditions FLAC Free Legal Advice Centres Gardaí Police GNIB Garda National Immigration Bureau HEA Higher Education Authority HRC Habitual residence condition HSE Health Service Executive IBC/05 Irish Born Child Scheme 2005 ILO International Labour Organization INIS Irish Naturalisation and Immigration Service MCRI Migration and Citizenship Research Initiative MIPEX Migrant Integration Policy Index NAPS National Anti-Poverty Strategy NCCRI National Consultative Committee on Racism and Interculturalism NGO Non-governmental organisation OECD Organisation for Economic Co-operation and Development Oireachtas Parliament, which comprises the President, Dáil Éireann and Seanad Éireann OPMI Office for the Promotion of Migrant Integration ORAC Office of the Refugee Applications Commissioner PISA Programme for International Student Assessment (OECD) PPSN Personal public service number PRSI Pay-related social insurance QNHS Quarterly National Household Survey Seanad Éireann Upper house of parliament (Senate) TD Member of parliament TFEU Treaty on the Functioning of the European Union UNHCR United Nations High Commissioner for Refugees VEC Vocational education committee Glossary: Abbreviations and Irish Terms Glossary Annual Monitoring Report on Integration 20128 Introduction This is the third in a series of annual Integration Monitors that measure migrant integration in four life domains: employment, education, social inclusion and active citizenship. The core indicators closely follow those proposed in the Zaragoza Declaration: they are comparable across European Union Member States, based on existing data and focused on outcomes. Most indicators are derived from the latest available survey data and compare outcomes for Irish and migrant populations in each domain. This report also contains a special theme: ‘Changing Irish Attitudes to Immigrants’, which is based on original analysis of data from the European Social Survey. Producing nationally representative indicators means we have valid, reliable indicators that allow monitoring of change over time. However, it should be noted that there are some drawbacks:. • �As the report is largely based on statistical indicators, it does not measure how people experience integration, or indeed the lack of it. • � A range of different nationalities are combined for many indicators, so variation within groups may be hidden. • � Relying on existing data sources that are not specifically designed or intended to measure migrant integration poses challenges to adequately representing migrant groups. • � Some differences between Irish and non-Irish groups in these indicators are the result of other differences between the groups such as age, gender, educational background or experience, rather than differences in nationality. Accounting for this by using multivariate statistical models is beyond the scope of this Monitor, although the possible role of these factors is generally acknowledged, where relevant, in the text. Throughout the report we refer to different groups of EU countries. EU13 refers to the ‘older’ Member States, prior to enlargement in 2004, excluding Ireland and the UK.1 EU12 refers to the ten Member States that joined the EU in 2004, plus Bulgaria and Romania, which joined in 2007.2 Integration Monitor: Key Findings Employment Indicators The chapter on employment presents core labour market indicators for the working-age population in early 2012: employment, unemployment and activity rates (see Table A1). In early 2012 employment rates were similar among Irish and non-Irish nationals, although immigrants had somewhat higher labour market activity rates than the Irish population due to their smaller share of inactive groups such as students, retired people or people with home duties Table A1 Employment (working age) 2012 Irish (%) Non-Irish (%) Employment rate 58.2 58.9 Unemployment rate 14.7 18.5 Activity rate 68.2 72.3 Source: �Quarterly National Household Survey (QNHS), Quarter 1 (Q1) 2012, for employment indicators. Ireland is currently in a deep and prolonged recession. Overall, immigrants have been harder hit by the recession, and the unemployment rate for non-Irish nationals is higher than for Irish nationals. African immigrants have the highest rate of unemployment, followed closely by UK nationals, and then immigrants from the ‘Rest of the World’, including non-EU Europeans. Among non-Irish nationals, the unemployment rate is lower for EU13 nationals and North American and Australian nationals. The youth (15–24 years) unemployment rate is higher for Irish nationals, compared with non-Irish nationals. For prime-age and older workers, the unemployment rate is higher for non-Irish nationals. For both Irish and non-Irish groups, the unemployment rate is considerably higher for men than for women, which reflects higher job losses in sectors where male employment has traditionally been predominant. Education Indicators The first part of the chapter on education compares educational qualifications among adults (see Table A2). Table A2 Education 2012 Irish Non-Irish Share of 25–34 age group with tertiary educational attainment (degree level or higher) 48.1% 53.5% Share of early leavers from education (20–24 age group) 10.5% 16.8% Mean achievement scores for 15 year olds in English reading (2009) 501.9 With English: 499.7 With other language: 442.7 Share of students achieving Level 1 or lower in English reading (2009) 15% 31% (first generation) Sources: QNHS Q1 2012; achievement scores are based on PISA 2009 data. 1. �EU13: Austria, Belgium, Denmark, Finland, France, Germany, Greece, Italy, Luxembourg, Netherlands, Portugal, Spain, Sweden. 2. EU12: Bulgaria, Cyprus, Czech Republic, Estonia, Hungary, Latvia, Lithuania, Malta, Poland, Romania, Slovakia, Slovenia. Executive Summary Executive Summary Annual Monitoring Report on Integration 2012 9 Comparing the proportions with tertiary education among 25–34 year olds in 2012, a higher proportion of non-Irish nationals have third-level education. Comparing educational disadvantage, a higher proportion of young non-Irish adults have left school before finishing second-level education than young Irish adults (20–24 age group); this is particularly true of EU12 nationals. Turning to academic achievement scores of 15 year olds in 2009, one striking finding from the Programme for International Student Assessment (PISA) is that while 15 per cent of Irish nationals achieve Level 1 or lower in reading, this is true of 31 per cent – almost one-third – of first-generation immigrants. Social Inclusion Indicators We use income, poverty, home ownership and health as core indicators of social inclusion (see Table A3). Table A3 Social Inclusion 2010 Irish Non-Irish Median annual net income (needs adjusted) €18,709 €17,731 ‘At risk of poverty’ rate 14.5% 16.4% Consistent poverty rate 6.1% 7.8% Share of population (aged 16 and over) perceiving their health as good or very good 82.6% 89.7% Proportion of households that are property owners 77.9% 28.0% Source: EU-SILC 2010. Once income is adjusted for household needs (the number of children and adults in the household), the median income of non-Irish nationals was slightly lower than that of Irish nationals in 2010. The ‘at risk of poverty’ rate and the consistent poverty rate were both somewhat higher for non-Irish nationals than for Irish nationals.3 The consistent poverty rate is 12.4 per cent among non-EU nationals – over twice the rate for Irish nationals – and this gap has increased since 2009. Non-Irish nationals report better health, on average. This is at least in part due to their younger age profile. UK nationals do not differ from Irish nationals, but all other groups report better health outcomes. Rates of home ownership are much lower among non-Irish than Irish nationals, as was the case in previous Integration Monitors. Active Citizenship Indicators Three indicators were proposed at the Zaragoza ministerial conference to assess active citizenship: the share of immigrants who have acquired citizenship; the share of immigrants holding permanent or long-term residence permits; and the share of immigrants among elected representatives (see Table A4). Constructing these indicators has been challenging in an Irish context because of data constraints, and the results should be seen as tentative. Table A4 Active citizenship end-2011 Annual naturalisation rate (aged 16 and over) 7.4% Ratio of non-EEA nationals who ‘ever’ acquired citizenship to estimated immigrant population of non-EEA origin (aged 16 and over) 21.2% Share of non-EEA nationals aged 16 and over with ‘live’ residence permissions who hold long-term residence 6.0% Share of immigrants among elected local representatives 0.2% Sources: �Citizenship and long-term residence indicators: Irish Naturalisation and Immigration Service (INIS), Eurostat. Political participation indicator: Immigrant Council of Ireland. During 2011, 9,500 non-EEA nationals acquired Irish citizenship. This number represents 7 per cent of the adult non-EEA population at year- end 2011. Taking a longer term perspective, 34,500 non-EEA adults acquired Irish citizenship between 2005, when records began, and year- end 2011. This represents 21 per cent of the estimated adult immigrant population of non-EEA origin, resident at year-end 2011. The estimate assumes that those naturalised in this period did not leave Ireland, and also excludes naturalisations pre-2005 as no data are available. Ireland does not have a statutory long-term residence status, although one is expected in the forthcoming revised Immigration, Residence and Protection Bill. Under the current administrative scheme, an estimated 6 per cent of non-EEA nationals held long-term residence permits at year-end 2011. Special Focus on Attitudes to Immigrants and Immigration The special theme in this Monitor is ‘Changing Irish Attitudes to Immigrants’. The best available European attitudinal data (European Social Survey) were used to examine the attitudes to immigrants and immigration of the majority Irish population in the period 2002–2010. The analysis suggests significant changes in Irish attitudes to immigrants and immigration between 2002 and 2010. Views on the contribution that immigrants make to the economy changed more than those on their contribution to cultural life or making Ireland a better place to live. The combined index of attitudes to immigrants shows a clear rise in positive attitudes from 2002 to 2006, before they become more negative in 2008 and again in 2010. In terms of openness to immigration (measured through three separate questions about willingness to accept immigrants of the same race/ethnicity, a different race/ethnicity and from poorer countries outside Europe), openness was higher in the early years of the decade, then fell in 2008 and again in 2010. These changes are statistically significant, although modest. The evidence suggests that the economic recession and associated rise in unemployment played a role in changing attitudes. Positive evaluations peaked in 2006 before falling in 2008 and again in 2010, at a time when unemployment was rising rapidly. The suggestion that attitudes become 3. �The ‘at risk of poverty’ rate, which refers to the percentage of a group falling below 60 per cent of median equalised income, is the official poverty threshold used by the Central Statistics Office (CSO) and agreed at EU level. Consistent poverty combines ‘at risk of poverty’ with enforced deprivation of at least two of a range of 11 items. Executive Summary Annual Monitoring Report on Integration 201210 Executive Summary more negative as the number of immigrants rises receives less credence, at least during the economic boom. It is perhaps more plausible that the growth in the immigrant share of the total population followed by the economic recession resulted in increased concerns about, and resistance to, immigration. Investigating in more depth the role of recession, immigrant flows and the changing composition of the population on attitudes to immigrants would require further detailed analysis using statistical modelling Turner (2010), in his analysis of ESS data from 2002 and 2004, found that Irish attitudes to immigrants were among the most liberal in Europe. Our brief comparison of Irish attitudes to those in four other countries (Germany, Netherlands, Spain and the UK) in 2010 reveals a different picture: in terms of both attitudes to immigrants and resistance to immigration, Ireland shows some of the more negative attitudes among the five countries considered, albeit no more negative than the UK. There is a marked variation in attitudes within the Irish population. The highly educated, particularly those with a university degree, tend to have more positive attitudes to immigrants and immigration. Other education groups are less positive in their attitudes. Younger adults – those under 45 years of age – tend to show more positive attitudes to immigrants and immigration, whereas the over 65 group have the most negative attitudes. Policy Issues The Integration Monitor is primarily concerned with assessing outcomes for immigrants. In Chapter 7 of this report we discuss a number of issues for policy emerging from the analysis of outcomes. These policy issues include: • � As unemployment is substantially higher among non-Irish nationals, it is important that labour market programmes are implemented to ensure the integration of vulnerable groups. • � Given that almost one-third of first-generation immigrants are below the basic Level 1 proficiency in English reading, continuing cuts in the education budget for supports for English language provision may have damaging long-term consequences. • � There has been a rapid rise in the size of the naturalised population since 2010. Notwithstanding ongoing issues such as the absence of administrative appeal and wide-ranging ministerial discretion on decisions, recent progress in processing applications is very positive. • � A clearly defined, widely accessible long-term residence status would ensure naturalisation is not the only way for long-term migrants to achieve security of immigration status. Yet, continued delays in the enactment of the Immigration, Residence and Protection Bill mean that Ireland remains without a statutory long-term residence permission. • � There was a substantial decline in the level of funding allocated to the Office for the Promotion of Migrant Integration for 2011 and 2012. Budget cuts have hit most government departments, with consequences for mainstreamed integration initiatives. In addition, philanthropic foundations are likely to wind down funding in the medium term. The loss of this important source of funding for non-governmental organisations that support migrant integration through a range of measures and advocacy activity is likely to have negative implications for the integration of migrants. At both EU and OECD levels, the issue of monitoring the integration of immigrants has received increasing prominence, with some work focusing on implementing indicators that monitor integration. The value of such monitoring indicators will only be as good as the data on which they are based. The adequate representation of non-Irish nationals in social surveys is crucial for a monitoring exercise of this nature. In the short term, it is very important that continued efforts be made to encourage the participation of non-Irish nationals in the EU-SILC and QNHS surveys. In the medium term, immigrant or ethnic minority boost samples would go a long way to addressing the persistent issue of small sample sizes. The sizeable group of immigrants who now possess Irish citizenship means that measuring integration on the basis of nationality will miss an increasing number of naturalised citizens, and strengthens the case for including ethnicity in social surveys. In terms of recording immigrants in official statistics, the fact that non-EEA nationals aged 16 and under are not required to register with the Irish Naturalisation and Immigration Service or Garda National Immigration Bureau is an ongoing problem. It means that the registration data on the non-EEA population is incomplete (i.e. only for the adult population). It is hoped that the revised Immigration, Residence and Protection Bill will address this issue. Table A5 brings together the core indicators in the domains of employment, education, social inclusion and active citizenship. Annual Monitoring Report on Integration 2012 11 Executive Summary Notes: � � This table summarises data presented in Chapters 2 to 5. The data sources are diverse and vary in quality and coverage. The relevant section of the report should be consulted for further details of measurement and definitions. Note the small sample of non-Irish nationals in the EU-SILC data used for social inclusion indicators. Sources: � QNHS Q1 2012, for employment and education indicators (except achievement scores, which are based on PISA 2009 data); EU-SILC 2010 for social inclusion indicators. Statistics from the Department of Justice and Equality for active citizenship indicators (except elected representatives estimate, which is based on data supplied by the Immigrant Council of Ireland). See Appendix 2 for further details of sources. Irish Non-Irish 1 Employment (working age) 2012 Employment rate 58.2% 58.9% Unemployment rate 14.7% 18.5% Activity rate 68.2% 72.3% 2 Education 2012 Share of 25-34 year olds with tertiary educational attainment 48.1% 53.5% Share of early leavers from education (20–24 age group) 10.5% 16.8% Mean achievement scores for 15 year olds in English reading (2009) 501.9 With English: 499.7 With other language: 442.7 Share of students achieving Level 1 or lower in English reading (2009) 15% 31% (first generation) 3 Social inclusion 2010 Median annual net income (needs adjusted) €18,709 €17,731 ‘At risk of poverty’ rate 14.5% 16.4% Consistent poverty rate 6.1% 7.8% Share of population (aged 16 and over) perceiving their health as good or very good 82.6% 89.7% Proportion of households that are property owners 77.9% 28.0% 4 Active citizenship end-2011 Annual naturalisation rate (aged 16 and over) 7.4% Ratio of non-EEA nationals who ‘ever’ acquired citizenship to estimated immigrant population of non-EEA origin (aged 16 and over) 21.2% Share of non-EEA nationals aged 16 and over with ‘live’ permissions who hold long-term residence 6.0% Share of immigrants among elected local representatives 0.2% Table A5 Key indicators at a glance Annual Monitoring Report on Integration 201212 Chapter 1 - Introduction, Policy and Context The integration of immigrants is high on the policy agenda of many OECD countries (OECD, 2012b) and has gained increased prominence among EU policy concerns in recent years. Integration allows immigrants to contribute to the economic, social, political and cultural life of the host country and is crucial for social cohesion. Integration is also important for facilitating acceptance of immigrants by the host country population; this challenge becomes greater during periods of economic recession, such as that currently experienced in Ireland, when access to jobs and resources becomes more limited. This series of annual Integration Monitors aims to measure the integration of immigrants into Ireland in four key domains or policy areas: employment, education, social inclusion and active citizenship. This report is the third in the series and updates core indicators from the 2010 and 2011 Integration Monitors as well as presenting a special theme on ‘Changing Irish Attitudes to Immigrants’. This chapter provides an introduction to and context for the indicators. In Section 1.1 we discuss the challenges of measuring and monitoring integration. Section 1.2 outlines the main trends in migration in Ireland. Section 1.3 presents an overview of Irish migration policy and legislation, and Section 1.4 examines integration policy in Europe and Ireland. In addition, Box 1.1 presents selected results from Census 2011 and Box 1.2 considers access to family unity and family reunification. 1.1 The Challenges of Measuring Integration 1.1.1 Defining Integration Defining integration is not easy. At a very basic level, when immigrants move to a country they have to find a place in that society in the practical sense (e.g. a home, a job and income, and access to education and health services) and also in the social, cultural and political senses. Integration might thus be defined simply as ‘the process of becoming an accepted part of society’, both as an individual and as a group (Penninx, 2010). Most commentators agree that a number of aspects of life need to be considered. For example, while recognising that the needs of immigrants vary significantly with the length of time they have lived in Ireland and their personal experiences, The Integration Centre defines integration as achieved when immigrants enjoy economic, political, social and cultural equality and inclusion.4 In July 2011 the European Commission proposed a new European agenda for the integration of non-EU migrants.5 This policy focus has been accompanied by an awareness of the need to monitor integration, and this series of Integration Monitors is in keeping with, but independent of, that development. One of the Common Basic Principles for Immigrant Integration Policy6 (see Appendix 1) is that developing clear indicators is necessary to adjust policy and evaluate progress on integration. These indicators should be based on existing and comparable data for most Member States, limited in number, simple to understand and focused on outcomes.7 This series of annual Integration Monitors follows the recommendations for key indicators, with some adaptations for Ireland. 1.1.2 The Integration Monitor This Integration Monitor series aims to provide a balanced and rigorous assessment of the extent of integration of immigrants in Ireland using the most up-to-date and reliable data available. The framework for that assessment is based on the set of integration indicators proposed at the fourth EU Ministerial Conference on Integration held in 2010, known as the ‘Zaragoza indicators’.8 A number of key principles guided the choice of the Zaragoza integration indicators. Here we consider some of their strengths and limitations. First, the indicators are focused on outcomes. For each indicator, outcomes for immigrants are compared with those for the native population, in this case the Irish population, which means that the focus is on the difference between the Irish and the immigrant populations. The two exceptions to this principle of comparing outcomes are the indicators concerning citizenship and long-term residence (see Table 1.1), which describe the context and opportunities for integration rather than measure empirical outcomes. Second, there are a limited number of indicators, which are largely based on nationally representative data sources that already exist and are comparable. This approach makes them cost-effective and, in principle, highly comparable, but it does have some disadvantages: (i) �The existing comparable data sources may not be designed to represent and measure outcomes for immigrants. This is discussed further in Section 1.1.3. Chapter 1 Introduction, Policy and Context 4. �See www.integrationcentre.ie/getattachment/80044718-9b30-4c50-a93f-fc230c69bdf3/Executive-Summary.aspx 5. See http://ec.europa.eu/home-affairs/news/intro/docs/110720/1_EN_ACT_part1_v10.pdf 6. �Council of the EU (2004), adopted following agreement among EU Member States about the need for more dynamic policies to promote the integration of third-country nationals in Member States. 7. �Swedish presidency conference conclusions on indicators and monitoring of the outcome of integration policies, proposed at the European Ministerial Conference on Integration, Zaragoza, Spain (April 2010). Hereafter these indicators are referred to as the Zaragoza indicators. 8. See http://ec.europa.eu/ewsi/UDRW/images/items/docl_13055_519941744.pdf Annual Monitoring Report on Integration 2012 13 Chapter 1 - Introduction, Policy and Context (ii) �Attention is primarily given to the structural dimensions of integration, i.e. labour market participation and educational attainment.9 Cross-national data does not exist for many subjective indicators, such as sense of belonging, so these are not included in this core Monitor. However, the Zaragoza Declaration does suggest the use of additional indicators, and in this Monitor we present detailed analyses of attitudes to immigrants in Ireland over time. (iii) �The focus on quantitative, nationally representative data means that we miss out on elements of the lived experience of integration ‘on the ground’: this is better captured by qualitative work using interviews and case studies.10 This Monitor measures integration at a national level, although it is clear that integration often takes place at a local level and the experiences of immigrants at local level may vary across the country. Third, the indicators are designed to be comparable over time. The focus is not on comparing the change in an individual’s circumstances over time, but on changes for groups in the population. This emphasis on change is important for two reasons: from a policy perspective, the direction of change in indicators is important; and from a research perspective, comparing change over time can overcome some of the limitations of the indicators. An indicator might underestimate the proportion of an immigrant group leaving school early, but if it does so consistently over time, it will still pick up changes in that proportion. Fourth, the indicators should be simple to understand, transparent and accessible. Basing indicators on familiar concepts such as unemployment and poverty means that they should have resonance for both policy makers and the general public. This transparency requirement also means they need to be defined clearly (see Appendix 2). The publication and dissemination of a report such as this should increase the accessibility of these indicators, at least in Ireland. The clear focus on outcomes distinguishes this Integration Monitor from the Migrant Integration Policy Index (MIPEX). The MIPEX tool aims to assess, compare and improve integration policy indicators by providing ongoing assessment of policies. That said, policy forms the context for those outcomes and will be discussed briefly in this report, particularly in the access information in Boxes 1.2, 2.2, 3.1, 4.1, 5.1, 5.2 and 5.3. These boxes are not intended as a statement of entitlements, and readers should refer to the relevant official bodies for further information (some additional sources of information are also noted in the boxes). Table 1.1 sets out the indicators presented in this Integration Monitor, which draw on those proposed at Zaragoza. See also Appendix 2 for definitions and details of indicators not in the core Monitor but included in this report. Table 1.1 Outline of core indicators, broadly equivalent to those proposed at Zaragoza 1 Employment Employment rate Unemployment rate Activity rate 2 Education Highest educational attainment Share of 25–34 year olds with tertiary educational attainment Share of early leavers from education and training Mean reading and mathematics scores for 15 year olds Share of students achieving Level 1 or lower in English reading 3 Social inclusion Median net income (household income and equivalised income) ‘At risk of poverty’ rate Share of population perceiving their health status as good or very good Share of property owners among immigrants and in the total population 4 Active citizenship Ratio of immigrants who have acquired citizenship to non-EEA immigrant population (best estimate) Share of immigrants holding permanent or long-term residence permits (best estimate) Share of immigrants among elected local representatives Note: �In some instances the indicators are slightly different because of data constraints (see Appendix 2). In addition to these core indicators, each annual Integration Monitor includes a different special thematic focus. This year the focus is on ‘Changing Irish Attitudes to Immigrants’ and Chapter 6 examines how attitudes to immigrants and immigration in Ireland changed between 2002 and 2010, using evidence from the European Social Survey. The primary task of this Monitor is to present the integration indicators using the most recent data available. In most cases, this is new data released since the 2011 Integration Monitor.11 This report will not present figures in detail from the 2011 Monitor, but instead will draw 9. �Other indicators included in integration research monitor cultural participation, networks, sense of belonging, the openness of the majority society, contextual aspects of migrants, and societal aspects of integration (Heckmann et al., 2010). 10. �Examples of such studies include Gilligan et al. (2010) and MCRI (2008). 11. �The exception to this is the PISA data from 2009 used in the 2010 Integration Monitor (the PISA survey was conducted again in 2012 but the results are not yet available). The proportion of elected representatives is also unchanged as there have been no nationwide elections in the interim period. Annual Monitoring Report on Integration 201214 Chapter 1 - Introduction, Policy and Context readers’ attention to levels of change or stability, where this is relevant or interesting. Chapter conclusions will summarise any significant developments. 1.1.3 �Challenges of Monitoring Outcomes Among Immigrants Monitoring outcomes among migrants is a challenging exercise. This is related to the use of survey data, how immigrants are defined, shifting populations and monitoring change over time. This Integration Monitor aims to cover all immigrants but some are not captured in the available data sources. Aside from the active citizenship indicators, most of the indicators in this Monitor draw on survey data. Survey data need to be examined to determine how effectively information was collected on immigrants. These large, nationally representative, excellent datasets are not designed to represent and record details of immigrants. One key concern is the tendency for certain groups to be under-represented in survey data due to, for example, poor language skills. There is also a very diverse range of nationalities among immigrants to Ireland. Small numbers in particular national groups may mean they need to be combined into larger nationality groups, thus losing detail about the experience of specific nationalities. A second challenge is how to define immigrants. The general definition of immigrants in this Monitor is based on nationality. Where relevant, various sub-groups, such as refugees, migrant workers or family members, are discussed separately. The nationality definition misses second-generation immigrants and naturalised citizens, who are not typically identified using general social surveys. Most immigration into Ireland is relatively recent and the numbers are not large, but this is an area of change (see Chapter 5). In general, there are no breakdowns by ethnicity for the core integration indicators because the main social surveys do not collect information on respondents’ ethnicity.12 EU nationals are distinguished from non-EU nationals as they have very different rights and freedom of movement in Ireland. As previous research (Barrett et al., 2006) has indicated that the experience in Ireland of people from the United Kingdom differs from other EU nationals, we have distinguished UK nationals separately, where possible. EU13 nationals and EU12 nationals are also distinguished separately.13 In this Monitor, for the first time, where data permit, we distinguish non-EU nationals into the following groups: ‘Africa’; ‘North America, Australia and Oceania’; ‘Asia’, which comprises South, South-East and East Asia; and ‘Rest of Europe and Rest of the World’. A third challenge with monitoring the situation of immigrants is the shift in population size and composition each year, so that the year-on- year comparisons are not of the same groups. This is particularly true in Ireland in the current context of rapid labour market change. Recent migration flows to and from Ireland illustrate how migration patterns closely reflect economic conditions: economic growth brings strong labour demand and stimulates immigration, whereas recession and falling labour demand stimulate emigration. At such times of change the impact of immigration policy on migration flows is important – this is discussed in the next section. 1.2 Overview of Main Trends in Migration in Ireland This Monitor benefits from the publication of detailed tables from Census 2011 along with revised population and migration estimates.14 These provide a more complete and accurate picture of migrants and migration in Ireland than has been available for some years. In this section we discuss how patterns of immigration have evolved in recent years and what is now known about the resident immigrant population. Figure 1.1 presents the share of the foreign-born population in selected EU countries in 2010. The share of the foreign-born population, who are typically first-generation immigrants, is high in Ireland in 2010, compared with the other countries shown.15 At 17 per cent, those born abroad represent a significant proportion of the population of Ireland. In 2010 almost half of the foreign-born population in Ireland had arrived over the past five years (OECD, 2012a). Ireland has experienced extensive migratory change over the past two decades, linked to changing economic conditions. Prior to the mid- 1990s Ireland was a country with a long history of net emigration, but a period of economic growth from the early 1990s attracted returning Irish emigrants and other immigrants. The 2004 EU enlargement16 resulted in particularly strong net inward migration, which peaked in the year to April 2007. Economic conditions deteriorated and Ireland entered into recession in 2008. Immigration declined as a result and since 2010 Ireland has re-entered a phase of significant net emigration. As Figure 1.2 shows, the emigration flow in 2012 was almost one and a half times the size of the flow in 2006. Overall emigration is estimated to have reached 87,100 in the year to April 2012, an increase of 17,900 (26 per cent) on the 69,200 estimated for 2010. 12. �The one exception is Box 1.1, where data from the 2011 Census are used to discuss the proportion of minority ethnic groups in Ireland. 13. �EU13 comprises the older EU15 Member States excluding the UK and Ireland, i.e. Austria, Belgium, Denmark, Finland, France, Germany, Greece, Italy, Luxembourg, Netherlands, Portugal, Spain and Sweden. EU12 comprises the EU Member States that acceded in 2004 and 2007, i.e. Bulgaria, Cyprus, Czech Republic, Estonia, Hungary, Latvia, Lithuania, Malta, Poland, Romania, Slovakia and Slovenia. 14. �Following the publication of the 2011 Census results the population estimate for 2011 was revised upwards by 90,600, with smaller revisions in the years 2007 to 2010. Immigration and emigration estimates were also revised for the period 2007–2011. The CSO creates its population and migration estimates using data from the Quarterly National Household Survey (QNHS) and the Census. Estimates are also compiled against the backdrop of movements in other migration indicators such as the number of personal public service numbers (PPSN) allocated to non-Irish nationals, the number of work permits issued/renewed and the number of asylum applications. See Box 2.1 for further information on immigrant mobility. 15. �‘Born abroad’ can include both foreign and national citizens. Census 2011 showed that approximately 241,200 of the 766,770 foreign-born residents in Ireland are Irish nationals. (Over 54,000 of the total foreign-born population were born in Northern Ireland.) 16. �Cyprus, Czech Republic, Estonia, Hungary, Latvia, Lithuania, Malta, Poland, Slovakia and Slovenia joined the EU in 2004. Bulgaria and Romania joined in 2007 Annual Monitoring Report on Integration 2012 15 Chapter 1 - Introduction, Policy and Context Note: Year to April of reference year. Source: � CSO, ‘Population and Migration Estimates’, various releases (includes revised 2007–2011 data). Figure 1.2 Immigration, emigration and net migration 1987 - 2012 Notes: � � This graph is indicative only. Foreign-born people are typically first-generation immigrants, and may consist of both foreign and national citizens. For France, the data source is Census of Population; for Ireland it is the Central Statistics Office (CSO); for the UK, it is the Labour Force Survey; and for Belgium, Denmark, Germany, Netherlands and Spain, it is the population register. Source: OECD (2012a), Figure 1.11. Figure 1.1 Share of foreign-born population among the total population in selected OECD countries 2010 Annual Monitoring Report on Integration 201216 Chapter 1 - Introduction, Policy and Context Box 1.1 Selected Results from Census 2011 In April 2011 there were 544,357 non-Irish nationals from 199 different nations living in Ireland. The non-Irish share of the population had doubled in under a decade, growing from 6 per cent in 2002 to 12 per cent in 2011 (comprising 3.5 per cent EU15 excluding Ireland, 5 per cent EU12 and 3.5 per cent non-EU). Census 2011 revealed much about the immigrant population in Ireland, including: �Some 708,300 persons recorded on Census night were born outside the island of Ireland, representing 16 per cent of the usually resident population. �Over 241,200 of Irish nationals (6.1 per cent) were born outside the State. The vast majority (178,945 or 4.6 per cent of the total Irish population) were born in the UK.17 �Polish nationals were the largest non-Irish nationality grouping recorded in 2011. The size of this group almost doubled between 2006 and 2011 from 63,276 persons (15 per cent of the non-Irish population) to 122,585 (23 per cent of the non-Irish population). UK nationals were the second largest group with 112,259 living in Ireland in 2011. �Non-Irish nationals were more likely to be of working age, with 60 per cent in the 22–44 age group, compared with 32 per cent of Irish nationals. �There were 268,180 non-Irish nationals at work in Ireland (15.1 per cent of the total workforce) in April 2011. The top five non- Irish nationalities at work were: Polish (69,473), British (46,902), Lithuanian (19,753), Latvian (10,782) and Indian (8,397). �There were 49,915 non-Irish students and pupils over the age of 15 living in Ireland in 2011. �Almost 90 per cent of Irish nationals identified themselves as Roman Catholic in the Census, compared with 52 per cent of non-Irish nationals. Just over 48,000 persons identified themselves as Muslim (1.1 per cent of the total population). �Almost 74 per cent of non-Irish nationals identified themselves as being of White ethnicity; compared with 7 per cent of Black and 12 per cent of Asian ethnicity. �Almost 40 per cent of people of Black ethnicity and 25 per cent of people with Asian ethnicity are Irish nationals. �Almost 364,000 non-Irish nationals speak a language other than English or Irish at home. �Of the non-Irish nationals who arrived in Ireland in 1990, over three- quarters indicated that they spoke English very well in April 2011. In contrast, for those non-Irish nationals who arrived in 2010, just over one-third (37 per cent) spoke English very well, while 23.7 per cent could not speak English well or at all. Spatial distribution of non-Irish nationals In terms of the geographical distribution of non-Irish nationals in Ireland in 2011, Dublin City, Fingal and Cork County were the local authority areas with the highest numbers of non-Irish nationals. Leitrim and Longford had the lowest numbers of non-Irish nationals. Non-Irish nationals were more likely to live in urban areas. As a proportion of its resident population, Galway was the most multicultural city, with 19.4 per cent of its residents recorded as non-Irish. Of these, Polish nationals were dominant. Just over 18 per cent of the resident population of Fingal were non-Irish, with Polish, British, Nigerian, Lithuanian and Latvian nationals making up more than half of these persons in 2011. One in six of Dublin City’s residents was a non-Irish national, with Polish, British, Romanian, Indian, Chinese and Brazilian nationals combined accounting for 45 per cent of these. Donegal had the smallest proportion of non-Irish nationals (8.1 per cent) in 2011, more than half of whom were UK nationals. Looking at the nationalities of residents living in towns in April 2011, Ballyhaunis in County Mayo had the highest proportion of non-Irish nationals at 41.5 per cent. This compared with an average rate of 14.9 per cent for all towns in 2011 (CSO, 2012c). Changing non-Irish household structure The composition of private households headed by non-Irish nationals in 2011 showed significant change since 2006: families with children increased from 41 per cent of all households in 2006 to 50 per cent in 2011 (CSO, 2012c). Lunn (2012) analysed Census 2011 data and found that, despite the ongoing recession, Ireland experienced ‘further net inward migration’ between 2006 and 2011. He argues that ‘young families were either less likely to leave Ireland, more likely to arrive, or both, compared with the rest of the population’. OECD data for 2009 indicate that a higher proportion of immigrant households in Ireland have children than the average for immigrant households in OECD countries (OECD, 2012b). 17. �UK includes Northern Ireland. Annual Monitoring Report on Integration 2012 17 Chapter 1 - Introduction, Policy and Context There has been a dramatic drop in immigration flows since the peak of 151,000 was reached in the year to April 2007. The flow remained fairly stable in 2011 and 2012, at around 53,000. As Figure 1.3 shows, the largest changes have been seen in the EU12 immigrant flow, which has fallen from over 85,000 in 2007 to just over 10,000 in 2012. The share of EU12 nationals in the total immigration flow decreased from 57 per cent in 2007 to 20 per cent in 2012. Figure 1.4 shows that the EU12 population in Ireland responded quickly to the economic downturn. In 2008, 35 per cent of emigrants were EU12 nationals, rising to 42 per cent in 2009. Since 2010 Irish nationals represent the largest group among emigrants, accounting for 53 per cent of the emigrant flow in 2012. Unlike other nationality groupings, the outward flow of non-EU nationals has remained relatively stable during the downturn, between 9,000 and 11,100 non- EU nationals emigrated per year in the period 2008–2012. This may reflect the fewer opportunities for onward migration available to this group. Figure 1.5 shows the breakdown of Garda National Immigration Bureau (GNIB) registrations, or residence permissions, of non-EEA18 nationals aged 16 and over from 2008 to 2011. The most recent confirmed data relate to year-end 2011, when there were 128,104 ‘live’ registrations recorded, representing a 10 per cent decline since 2008.19 The provisional 2012 year-end estimate of non-EEA nationals with permission to remain in the State is approximately 115,000, representing a 10 per cent drop in Note: Year to April of reference year. Source: � CSO, ‘Population and Migration Estimates’, various releases (includes revised 2007–2011 data). Figure 1.3 Nationality breakdown of immigration flows 2000 - 2012 18. �The European Economic Area comprises the countries of the EU plus Iceland, Liechtenstein and Norway. 19. �Non-EEA nationals who wish to stay in Ireland for more than 90 days must register with An Garda Síochána and on registration are issued with one of several immigration permissions or ‘Stamps’, depending on their particular circumstances (e.g. work permit holder/student). There are currently 11 separate categories of Stamp issued in Ireland, some more clearly defined than others. Annual Monitoring Report on Integration 201218 Chapter 1 - Introduction, Policy and Context Note: Year to April of reference year. Source: CSO, ‘Population and Migration Estimates’, 2012. Figure 1.4 Nationality breakdown of emigration flows 2006 - 2012 Annual Monitoring Report on Integration 2012 19 Chapter 1 - Introduction, Policy and Context just one year. This decline could in part reflect the recent increase in the number of migrants who have acquired citizenship (see Chapter 5). Interestingly, the Minister for Justice and Equality attributed the decline in permissions to remain in the State in 2012 to the increase in the number of people acquiring citizenship, which has impacted very significantly on the number of people who are required to hold a residence permission (Department of Justice and Equality, 2013a). Recent developments regarding processing applications for citizenship are discussed in Chapter 5. Figure 1.5 shows that the share of ‘live’ residence permissions issued for the purpose of work fell between 2008 and 2011, from 35 per cent to 23 per cent of all ‘live’ residence permissions. The number of residence permissions issued to family members grew from 12 per cent to 17 per cent.20 Year-end 2012 provisional data released by the Department of Justice and Equality (2013a) indicate that the top six nations, which together account for over half of all persons registered, are India (11 per cent), Brazil (10 per cent), Nigeria (9 per cent), China (8 per cent), USA (8 per cent) and Philippines (7 per cent). 20. �A detailed breakdown by category of Stamp is only available on the total number of such Stamps issued within the year. These data were supplied in Appendix 3 of the 2010 Integration Monitor. Although the data are relatively detailed and available back to 2004, they have the problem of being ‘throughput’ rather than ‘snapshot’, i.e. the same person could be counted twice. Since 2009 Eurostat has produced a breakdown of a ‘snapshot’ of ‘live’ Stamps at year-end at a more aggregated level, which Eurostat terms residence permits; these data are presented here. A drawback of these data is the large ‘other’ category and the fact that data are available only from 2009. Figure 1.5 Breakdown of GNIB (police) residence permissions, year-end 2008–2011 (non-EEA nationals aged 16 and over) Note: Data are not available for refugee status in 2008 and 2009. ‘Other reasons’ includes family members and siblings who qualify under the Irish Born Child Scheme. Source: Eurostat. Annual Monitoring Report on Integration 201220 Chapter 1 - Introduction, Policy and Context 1.3. Overview of Irish Migration Policy and Legislation There have been several policy and policy-related developments relevant to immigrants in Ireland since the 2011 Integration Monitor. An update of recent developments relating to four main groups of migrants – migrant workers, students, family members and protection applicants – is supplied in Table 1.2. Some of the developments, regarding immigrant entrepreneurs and patronage of primary schools for example, have been positive. However, during 2012 the Immigration, Residence and Protection Bill 2010 was again withdrawn, in part due to a large number of proposed amendments.21 A revised Bill, incorporating amendments, is expected in 2013. In November 2012 the fee charged in respect of each immigration registration certificate (issued by the Irish Naturalisation and Immigration Service to non-EEA nationals who wish to remain in Ireland for periods longer than three months) was doubled from €150 to €300.22 Where possible, an indication is given of the size of each group in Table 1.2; however, data are often available only on non-EU immigrants. A similar table was included in the 2011 Integration Monitor and a more detailed discussion of policy relating to migrants can be found in the 2010 Integration Monitor. The access of immigrants to employment, education, social welfare, citizenship and voting will be discussed in Boxes 2.2, 3.1, 4.1, 5.1, 5.2 and 5.3. 21. �This Bill constitutes a single piece of proposed legislation for the management of both immigration and protection in Ireland and has been in preparation for several years. The previous Immigration, Residence and Protection Bill 2008 also failed to complete the legislative process. 22. See www.inis.gov.ie/en/INIS/Pages/WP07000031. Annual Monitoring Report on Integration 2012 21 Chapter 1 - Introduction, Policy and Context Migrant workers Overview: Labour migrants in Ireland include: work permit/spousal or dependant permit/green card holders; intra-company transferees; certain non-EEA students; holders of an alternative immigration registration that allows access to the labour market without a permit, such as the non-EEA spouse of an EEA national; and EEA nationals. Recent trends: Unemployment remains high and the National Skills Bulletin 2012 found no labour shortages and evidence of limited skills shortages in Ireland (Expert Group on Future Skills Needs, 2012). Work permit allocations have declined sharply in recent years, falling by 23 per cent since 2011 to 4,007 in 2012. Policy update: Since April 2012, under the new immigrant entrepreneur scheme, a non-EU national may apply for residence in Ireland to pursue a high-potential start-up business provided he or she has €75,000 in financial backing and meets a number of additional requirements. Significantly there are no initial job creation targets or requirement to employ Irish/EEA nationals. Residence may be issued for an initial two-year period, renewable for three years after which the entrepreneur may then apply for long-term residence. An immigrant investor scheme was also introduced in 2012 and offers similar residence terms for third-country nationals23 who make investment of at least €500,000 in Ireland. The business permission scheme remains in place for more traditional start-up businesses in areas such as retail or hospitality. In July 2012 the Irish Government opted to cease restrictions on labour market access in respect of Bulgarian and Romanian nationals (Department of Jobs, Enterprise and Innovation, 2012). In October 2012 the Minister for Social Protection established the Migrant Consultative Forum to examine issues related to welfare that are of particular concern to migrant workers.24 In November 2012 the Minister for Jobs, Enterprise and Innovation announced plans to amend current employment permits legislation in early 2013.25 Quality and Qualifications Ireland (QQI) was established under the Qualifications and Quality Assurance (Education and Training) Act 2012, enacted in July 2012. The new authority has a range of responsibilities among which is to facilitate the recognition of qualifications gained outside Ireland – an ongoing challenge for non-EEA workers and potential employers in Ireland.26 Size of group: migrant workers (non-EEA)27 In December 2011 there were 29,693 ‘live’ residence permissions held for work-related reasons by non-EEA nationals aged 16 and over (Eurostat); 23 per cent of ‘live’ immigration residence permissions issued to non-EEA nationals had been issued for work-related reasons. Students Overview: Non-Irish students comprise EEA plus non-EEA students in primary, second-level, third-level and further education. Recent trends: The number of ‘live’ residence permissions held by non- EEA students remained stable from year-end 2009 to year-end 2011. Policy update: A new immigration regime for international students took effect from 1 January 2011. During 2012 a ‘student probationary extension’ was announced to allow students who had been continuously residing in Ireland since 2004 to transition to the new immigration regime. The extension allows eligible students to remain in Ireland for a further two years. No enrolment in a course of study is required and students are permitted to work for a maximum of 40 hours per week without requiring a work permit.28 Investing in Global Relationships: Ireland’s International Education Strategy, 2010–15, launched in 2010, contains a commitment to examine the current work concession for non-EEA students, which allows most to work for 20 hours per week in term time and 40 hours per week in holiday periods. The Irish Naturalisation and Immigration Service (INIS) announced that this review has been postponed until the full impact of the new immigration regime has been evaluated. It is expected to take place during 2013 (Joyce, forthcoming). Size of migrant group: students (non-EEA)29 In December 2011 there were 35,493 ‘live’ residence permissions held for education-related reasons by non-EEA nationals aged 16 and over (Eurostat).30 This represented 28 per cent of ‘live’ immigration permissions at that time. During 2011, 37 per cent of international students were pursuing higher education (degree) programmes, 22 per cent were taking language courses, 32 per cent were pursuing further education (non-degree) courses and 9 per cent were in the ‘other’ category (e.g. accountancy, secondary school) (Department of Justice and Equality, 2012a). 23. A national of a country or territory other than one within the EU. 24. Minister for Social Protection, response to parliamentary question, Dáil Éireann, 27 November 2012. 25. Minister for Jobs, Enterprise and Innovation, response to parliamentary question, Dáil Éireann, 22 November 2012. 26. See www.qqi.ie. 27. �It is not possible to estimate the size of these groups for EEA nationals. 28. �www.inis.gov.ie/en/INIS/Pages/WP12000012. 29. �It is not possible to estimate the size of these groups for EEA nationals. 30. �A breakdown of students in Higher Education Authority institutions by domiciliary of origin is available, however, these statistics do not cover all non-EEA students, only those who are registered in HEA institutions, i.e. all national universities and institutes of technology; the data do not include a breakdown of students in private education institutes. Table 1.2 Overview of recent policy/legislative developments Annual Monitoring Report on Integration 201222 Chapter 1 - Introduction, Policy and Context Family members Overview: Recognised refugees have a statutory entitlement to family reunification in Ireland, based on the Refugee Act 1996. Such applications are made to INIS but investigated by the Office of the Refugee Applications Commissioner (ORAC). Non-EEA family members of EU nationals also hold family reunification rights and such cases are assessed by INIS. An administrative scheme exists for the unification of family members with other groups of migrants but no data are available on the numbers admitted to Ireland under such schemes. Recent trends: The number of residence permissions held by non-EEA nationals for family-related reasons has grown steadily in recent years, up by 30 per cent since 2008 to 21,906 in 2011. Almost 1,700 new residence permissions were issued to non-EEA family members of EU citizens during 2011. INIS received applications for family reunification from 501 persons with refugee status during 2011. Approvals were issued in respect of 560 persons (Joyce, 2012a). Policy update: See Box 1.2 for information on access to family unity and reunification and recent policy developments. The Minister for Justice and Equality intends to publish a detailed policy document, including guidelines, on family reunification.31 The Court of Justice of the European Union’s ‘Zambrano’ judgment (March 2011) has the effect that an EU Member State may not refuse a parent who has minor dependent children, who are EU citizens, the right to reside and work in the Member State of residence and nationality of those children. INIS examined all cases before the courts involving Irish citizen dependent children to which the Zambrano judgment was relevant, along with cases of non-EEA nationals seeking to remain in Ireland, and by July 2012, 764 such parents had been granted Irish residency rights (Department of Justice and Equality, 2012b). Size of group: family members In December 2011, 21,906 ‘live’ residence permissions (17 per cent of all permissions) were held for family-related reasons by non-EEA nationals aged 16 and over (Eurostat). However, the data on the size of this group are problematic.32 Family members and siblings who qualify under the Irish Born Child (IBC) Scheme are not included in the ‘family reasons’ category. Instead, those who qualify under the IBC Scheme and who have not naturalised are included in the ‘other’ category. Protection applicants and protection status holders Overview: A person seeking international protection in Ireland must first seek a declaration of refugee status from ORAC. A negative decision may then be appealed to the Refugee Appeals Tribunal. If the appeal is refused, an applicant may then seek subsidiary protection. In the event of refusal of a subsidiary protection claim, the Minister for Justice and Equality will consider whether to make a deportation order or to grant leave to remain. Recent trends: Provisional figures indicate that 950 applications for asylum were submitted to ORAC in 2012. The equivalent figure for 2011 was 1,290 (Department of Justice and Equality, 2013a). The overall refugee recognition rate (comprising first instance plus appeal stages) during 2011 was 4.9 per cent. During 2012, 889 applications for subsidiary protection were made and 13 persons were granted the status (Joyce, 2012a). Policy update: Ireland does not have a single procedure for protection claims, whereby all protection claims (refugee, subsidiary protection and leave to remain) would be assessed at once. This was proposed under the Immigration, Residence and Protection Bill 2010, which was withdrawn in 2012. One anticipated impact of such a single procedure is a reduction in the number of judicial reviews reaching the Irish courts. The Courts Service’s Annual Report 2011 noted that 59 per cent of the 1,193 applications for judicial review in the High Court during 2011 related to asylum, immigration and refugees (703 cases) (Joyce, 2012a). At the end of 2012 state funding for the Adult Refugee Programme ceased. This programme offered intensive language courses and integration courses to recognised refugees. In answer to parliamentary questions on the matter, the Minister for Education and Skills stated that there are alternative education services available for refugees within existing further education programmes such as the Adult Literacy and Community Education Scheme and the Back to Education Initiative.33 Size of group: protection applicants/status holders In December 2011 there were 2,288 ‘live’ residence permissions held for protection-related reasons by non-EEA nationals aged 16 or over. Provisional figures for year-end 2012 indicate that there were approximately 4,750 persons seeking international protection accommodated in direct provision centres, some 650 fewer than at the end of 2011 (Department of Justice and Equality, 2013a). Ireland joined the UNHCR-led resettlement scheme in 1998 and 1,043 persons were resettled as ‘programme refugees’ between 2000 and 2012.34 31. Minister for Justice and Equality, response to parliamentary question, Dáil Éireann, 6 February 2013. 32. �Non-EEA members tend to hold Stamp 4, Stamp 4 EUFAM or Stamp 3 immigration permissions, depending on the status of the principal person. Stamp 4 is issued to a broad range of non-EEA nationals (including family member of refugees, parents and siblings of Irish-born children), while EUFAM is given to family members of EU nationals. Stamp 3 is granted to family members of employment permit holders. 33. �Minister for Education and Skills, response to parliamentary question, Dáil Éireann, 13 November 2012. 33. �Minister for Education and Skills, response to parliamentary question, Dáil Éireann, 13 November 2012. 34. See www.integration.ie/website/omi/omiwebv6.nsf/page/resettlement-overviewofrecentrefugeeresettlementprogrammes2000-2011-en. Annual Monitoring Report on Integration 2012 23 Chapter 1 - Introduction, Policy and Context Box 1.2 Access to family unity and family reunification Third-country nationals require permission to reside in Ireland and, ordinarily, this permission entails no right to be joined by family members. Statutory provisions exist that regulate family reunification for certain groups, including persons granted refugee status as set out in Section 18 of the Refugee Act 1996. The Office of the Refugee Applications Commissioner (ORAC) investigates such applications and prepares a written report for the Minister for Justice and Equality to consider before deciding upon the application.35 Family reunification for persons with subsidiary protection status is dealt with under Regulation 16 of the European Communities (Eligibility for Protection) Regulations 2006 (S.I. No. 518 of 2006). Non-EEA family members of EU nationals also hold family reunification rights under the European Communities (Free Movement of Persons) (No. 2) Regulations 2006 (S.I. No. 656 of 2006) as amended by the European Communities (Free Movement of Persons) (Amendment) Regulations 2008 (S.I. No. 310 of 2008) (Joyce, 2012b). Ireland does not have a statutory family reunification scheme available generally to third-country nationals. Becker et al. (2013) highlight the challenges facing migrants applying for family reunification, including a lack of information and long processing times. The Minister for Justice and Equality intends to publish a detailed policy document, including guidelines, on family reunification.36 Along with the UK and Denmark, Ireland has opted out of the Family Reunification Directive.37 Permission to remain in Ireland may be granted under administrative schemes to dependants of employment permit holders. In the case of work permit holders, the sponsor must have been working in Ireland for at least 12 months before applying to be joined by family members and must have an income above a certain threshold. In the case of green card holders, an immediate application for family unity may be made. Alternatively, family members may accompany the sponsor on admission into Ireland, or join later, subject to normal immigration rules. Under Irish and EU law, EU citizens may live and work in Ireland for three months without any requirement that they register their presence. After three months, an EU citizen is permitted to remain in Ireland as long as he or she is employed, self-sufficient or in education. EU citizens have a right to family unity, meaning that they are entitled to be accompanied by their spouse/partner, their children and their dependent relatives. Non-EU family members of EU citizens resident in Ireland may submit an application to INIS for residency on the basis of ‘EU Treaty Rights’. If successful they will be given an EUFAM residence permission. Accompanying non-EU family members may need an entry visa if they are moving within EU borders, but this should be granted free of charge. The right of non-EU family members to move and reside in the EU is derived from the EU citizen’s right to freedom of movement under EU law. These rights do not extend to Irish citizens resident in Ireland who may wish to be joined by non-EU family members. The High Court has held that an Irish citizen resident in Ireland is not entitled to rely on any right to family unity derived from EU law because he or she, being resident in Ireland, is not exercising his or her right to freedom of movement.38 An Irish citizen’s right to family unity is recognised by the Constitution and by the European Convention on Human Rights. This right is not absolute and the State is entitled to exclude non-Irish family members under certain circumstances or to effect their removal. 35. �Becker et al. (2013) note that the question of whether recognised refugees who subsequently naturalise retain family reunification entitlements provided for under the Refugee Act 1996 is under consideration by the Attorney General. 36. Minister for Justice and Equality, response to parliamentary question, Dáil Éireann, 6 February 2013. 37. Council Directive 2003/86/EC of 22 September 2003 on the right to family reunification. 38. �See also Court of Justice of European Union Case C-434/09, McCarthy v. Secretary of State for the Home Department, in which it was ruled that EU citizens who have never exercised their right of free movement cannot invoke EU citizenship to regularise the residence of their non-EU spouse. Annual Monitoring Report on Integration 201224 Chapter 1 - Introduction, Policy and Context 1.4. Integration Policy 1.4.1 EU Integration Policy: Update The role of the EU in relation to integration is to incentivise and support the integration of third-country nationals residing legally in Member States (Article 79.4 of the Treaty on the Functioning of the European Union [TFEU]). Harmonisation of integration laws and regulations is still explicitly excluded and integration remains a Member State competence.39 The European Commission Directorate General (DG) for Home Affairs is responsible for facilitating and supporting the promotion of integration. The DG Employment and Social Affairs and the DG Education and Culture also have a role in promoting integration. The National Contact Points on Integration are a network of designated Member State officials through which information and experience is exchanged at EU level. The EU does not define integration, but rather uses the Common Basic Principles on Immigrant Integration (see Appendix 1) to frame the debate. In July 2011 the Commission proposed a new European Agenda for the Integration of Third-Country Nationals.40 The new agenda follows from, and builds on, the 2005 Common Agenda for Integration, which is discussed in the 2010 Integration Monitor. The Commission proposes that an effective integration process should ensure that migrants enjoy the same rights and have the same responsibilities as EU citizens. Emphasis is placed on migrants’ full participation in all aspects – economic, social, cultural and political – of ‘collective life’. The new agenda identifies a number of challenges that need to be addressed if the EU is to benefit fully from migration, specifically: low employment levels of migrants, especially of migrant women; rising unemployment and high levels of ‘over-qualification’; increasing risks of social exclusion; gaps in educational achievement; and public concerns with the lack of integration of migrants. Consistent with the EU’s role of facilitation and support, strategies rather than legislation are proposed. The importance of the monitoring of results of integration policies is noted. Examples of good practice and knowledge exchange are listed in the agenda’s accompanying Commission staff working paper.41 The two main EU funds currently operational and relevant to integration are the European Fund for the Integration of Third-Country Nationals and the European Refugee Fund. Both are administered in Ireland by the Office for the Promotion of Migrant Integration (OPMI). The European Social Fund, administered by the Department of Education and Skills, is also used to fund integration activities in Ireland. The Commission plans to reorganise funding in the Home Affairs area for the period 2014–2020. Under the new system the number of Home Affairs funds and programmes will be reduced from six to two: the Asylum and Migration Fund and the Internal Security Fund. Integration would fall under the former. The ‘Proposal for a Regulation of the European Parliament and of the Council establishing the Asylum and Migration Fund’ states that the fund should promote the effective integration of third-country nationals (including asylum seekers and holders of international protection) and that the achievement of this objective should be measured by indicators.42 A more targeted approach is recommended in support of integration strategies implemented at local and/or regional level. 1.4.2 Irish Integration Policy Migrant integration touches on a whole range of policy areas. Ireland’s first targeted migrant integration strategy statement, Migration Nation, was published by the (then) Office of the Minister for Integration in 2008. Ireland pursues a policy of ‘mainstream service provision in the integration area while, at the same time, recognising the need for targeted initiatives to meet specific short-term needs’ (Department of Justice and Equality, 2013b). There have been a number of relevant developments in recent years. As a result of significant improvements in implementing policy on citizenship by naturalisation, a substantial proportion of migrants in Ireland are now Irish citizens (see Chapter 5). Naturalised Irish citizens share the same rights and responsibilities as Irish citizens by birth or descent, with clear positive implications for integration. There have also been some policy developments in relation to school patronage (see Chapter 3), which are likely to mean that school patronage in the future will be more reflective of the diversity of the Irish population. The initial time frames for targeted initiatives such as the National Intercultural Health Strategy (2007–2012) and An Garda Síochána (National Police) Diversity Strategy (2009–2012) have now ended, and follow-up at a strategic level is not yet clear.43 The Intercultural Education Strategy (2010–2015) is ongoing, however, a reorganisation of resource allocations (resources for special needs education and language support have now been combined, see Box 3.1)44 means that future monitoring of progress under that strategy will be challenging. The Immigration, Residence and Protection Bill, which, among a range of measures, should clarify long-term residence status, has been in preparation since 2007 but has not yet been enacted. A Ministerial Council on Integration was established in 2010 and convened by the then Minister for Integration. The position of Minister for Integration ceased to exist in 2011 and the future of this council is unclear.45 39. �Prior to the introduction of the Lisbon Treaty in 2009 there was no legal basis for EU involvement in Member State integration policy. A new legal provision to the TFEU, introduced by way of the Lisbon Treaty, changes this position. 40. See http://ec.europa.eu/home-affairs/news/intro/docs/110720/1_EN_ACT_part1_v10.pdf. 41. See http://ec.europa.eu/home-affairs/news/intro/docs/110720/1_EN_autre_document_travail_service_part1_v5.pdf. 42. See http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2011:0751:FIN:EN:PDF. 43. �Certain actions under the Intercultural Health Strategy continue to be progressed, for example implementation of the ethnic identifier and the development of a database of health-related translated materials. A Garda diversity strategy is currently being discussed. 44. �There has also been organisational restructuring in the Department of Education and Skills, namely subsuming of the Integration Unit into the Social Inclusion Unit within the department. 45. Minister for Justice and Equality, response to parliamentary question, Dáil Éireann, 14 February 2012. Annual Monitoring Report on Integration 2012 25 Chapter 1 - Introduction, Policy and Context The strain on public finances in Ireland is evident across government departments. Budgetary constraints noted in previous Integration Monitors remain evident in the funding of OPMI. More generally, budget cuts across departments have impacted on integration-related activities such as intercultural training for gardaí, the Adult Refugee Programme, and The Integration Centre’s drop-in clinic for refugees, all of which have been discontinued. There have also been successive cuts in the budget for English language tuition in schools. The activities of OPMI and other integration-related policy developments are discussed below. 1.4.2.1 Office for the Promotion of Migrant Integration (OPMI) OPMI is located within the Department of Justice and Equality and has a ‘cross-Departmental mandate to develop, drive and co-ordinate integration policy across other Government Departments, agencies and services’.46 Overall responsibility for the promotion and co-ordination of integration measures for legally resident immigrants rests with OPMI, while the delivery of integration services is mainstreamed. OPMI provides funding to local authorities, sporting bodies and other national, regional and local organisations to promote the integration of immigrants. It also co-funds the EPIC (Employment for People from Immigrant Communities) project with funding from the European Social Fund. Funding has also been made available to promote the uptake of citizenship among migrants in Ireland. OPMI is the responsible authority in Ireland for the administration of the European Refugee Fund and the European Fund for the Integration of Third- Country Nationals. OPMI also acts as Ireland’s National Contact Point on Integration. OPMI co-ordinates Ireland’s participation in the United Nations High Commissioner for Refugees (UNHCR) Refugee Resettlement Programme, working with UNHCR and the International Organization for Migration, Consular Services, Irish Aid and the Department of Foreign Affairs. During 2012, 49 persons (including medical cases and their families) were resettled.47 OPMI participates in the Annual Tripartite Consultations on resettlement, which is a for