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Summary
The objectives of this paper
are to identify obstacles to integration of young foreigners in the Walloon
region and more generally in Belgium as a whole. The paper seeks to present in a
critical manner the actions undertaken by the local and/or regional actors and
the public policies aimed at overcoming these obstacles. Since the 1960s, North
Africans, Turkish and Sub-Saharan immigrants and their families have constituted
the major component of non-European inflows into Belgium. These groups suffer
from a general inability to integrate into Belgian society and the most recent
wave of immigrants have been confronted by problems of racial discrimination.
Finally, it has been proved that youths of immigrant descent, in the absence of
positive parental role models, often experience difficulties in breaking into
the work arena. General initiatives that address the entire population groups
experiencing difficulty with employment are inadequate as far as the social
integration of foreigners is concerned. In order to go beyond local pilot
initiatives and the experimental phase, the Walloon Region has set up
integration policy measures for foreigners in the framework of the Centres
régionaux d'intégration (CRI) , created under the Decree of 4th July 1996.
The vocation of these centres is three-fold: an active local role (to permit
those concerned to optimise their potential); training of professionals coming
into contact with foreigners; coordination between the different administrative
actors (initial reception, social services, teaching and professional training
institutions and, enterprises). The action of professional social integration
handled by the CRI gives an impression of vagueness in the accomplishment of its
role: frontline or rearguard, socio-professional or general integration, local
or "trans-regional work".
1. Introduction and presentation of the
population groups concerned
The objectives of this paper
are: (1) to identify the obstacles to job market access for young foreigners
and young people of foreign descent, of both sexes, in the Walloon Region
(French speaking part of Belgium) and, more generally, in Belgium as a whole;
and (2) to showcase local and/or regional initiatives, along with public
policies to help overcome these obstacles. The reference population groups are
primarily North African, Turkish and Sub-Saharan immigrants and their
families.
These three groups account
for the bulk of the inflows into Belgium since 1960, as well as for most of
the country’s non-European immigration. Turks and North Africans were part of
the last wave of migrant workers recruited prior to 1974, when all massive
immigration was theoretically halted. The migratory patterns through which
sub-Saharan Africans (hereinafter “Africans”) entered Belgium were more
diverse. These different groups show similarities and differences in their
interactions with the Belgian job market, the analysis of which can help to
assess the overall strategies that immigrants use to break into employment,
but also the various barriers to their entry (Manço, 2001).
Based on statistics of the
number of persons holding Moroccan, Algerian and Tunisian citizenship (150 000
people in Belgium as a whole), and in the light of certain patterns in the
acquisition of Belgian citizenship by these people and their families, it can
be estimated that nearly 225 000 persons of Moroccan, Algerian or Tunisian
descent are living in Belgium, representing a quarter of the population of
foreign descent which itself accounts for one out of ten of the Kingdom’s
residents (Targosz and Manço, 2000). The gender balance of this population
group is relatively even. The immigrants in this group settled in Belgium
relatively recently and on the whole are very young, since half of them are
below 25 years of age. More than half of Belgium’s North African population
lives in Brussels (Kesteloot, 1990). In 1998, it is estimated that some 35 000
North Africans or persons of North African descent were present in the Walloon
Region. According to a summary of the occupational status of Moroccans in the
Region by Targosz and Manço (2000), the activity rate of young people aged 19
to 35 was 64% (in the overall adult Moroccan population in Belgium the rate
was 71%, 22% of the workers being women). Amongst Moroccans in the workforce,
71% were working. These survey data are consistent with the situation of the
overall Moroccan population as shown in the Belgian census of 1991: the
unemployment rate is therefore substantial and has been stable over a decade.
Over 70% of Belgium’s Moroccan workers are unskilled, the proportion being 65%
for Moroccan women.
A population of immigrant Turkish workers was
established in Belgium by as early as 1961 (Morelli, 1992), foreshadowing the
far greater movements of labour that continued to grow until 1974. From 1975,
the numerical growth of Belgium’s Turkish population was maintained by the
arrival of women, family reunification and childbirth. Driven by this natural
momentum, the number of Turkish citizens in Belgium eventually peaked at over
88 000 in the early 1990s, before beginning to decline, as it still is, due to
naturalisations. However, experience has shown that the vast majority of
people who become naturalised maintain both their traditional lifestyles and
very close ties with the immigrant Turkish community, continuing to
participate in their original cultural networks, etc. They also continue to
have special relations with Turkey, as well as particular difficulties finding
jobs in Belgium (Manço U., 2000). Half of Belgium’s Turkish community has
settled in Flanders, and a quarter is concentrated in the underprivileged
neighbourhoods of north Brussels. The remaining quarter (30 000 people) live
in the Walloon Region. The process of assimilation, and linguistic
assimilation in particular, is slower for Turkish families than for North
Africans. North African families can thus be credited with having made a
considerable effort with regard to their children’s schooling (Feld and Manço,
2000): while the educational level of the fathers of young North Africans is
hardly any higher than that of Turkish parents, students from North African
families seem to have bridged much of the schooling gap between them and most
of the other (European) immigrant groups in Belgium. This situation has an
obvious impact on the success of entry into working life: indeed, 37% of the
Turkish workforce is unemployed, and the situation is even more troubling in
the Walloon Region (40%) which is experiencing an employment crisis[1].
These facts illustrate the originality of the vibrant Turkish population,
which despite a handicap in terms of schooling is working hard to break its
way into the community, in particular through increasingly active involvement
in commercial and associational activities (Manço, 2000).
According to the National
Statistics Institute, there were 7 000 Africans living in the Walloon Region
in 1990. Since then, growth in the number of Africans in Belgium and the
Walloon Region has slowed due to a number of factors, including
naturalisation. Today in the Walloon Region, there are some 7 500 persons from
black African countries, naturalised and non-naturalised alike. In all of
Belgium, they number 26 000. But a regularisation process for illegal
immigrants, which is currently under way, could double that figure (Gatugu,
Manço and Amoranitis, 2001). The Walloon Region’s resident African population
comprises over 30 nationalities, representing almost every country in Africa.
For several decades, however, citizens of the Democratic Republic of Congo,
Rwanda and Burundi have accounted for over 60% of Belgium’s resident African
nationals. They have emigrated to Belgium for a wide variety of reasons
(study, internships, political asylum, business travel, etc.), and their
population group includes few immigrant workers. Thus, in contrast to other
foreign population groups, very few Africans show up in the unemployment
statistics. This constitutes a slanted view of the occupational reality of
these people who in fact encounter severe employment difficulties despite a
very high level of education—half of the adults being graduates of
institutions of higher learning. It is a fact that persons in the
“non-European Union” category encounter enormous administrative difficulties
obtaining jobs or having their diplomas recognised if they have not attended
secondary school in Belgium or if they do not belong to the pre-1974 immigrant
worker population. A number of paradoxical situations exclude Africans from
subsidised employment because they are not entitled to unemployment benefits.
There is a considerable waste of skills and experience among these people, who
are forced into under-employment in sectors such as cleaning and catering. In
such situations, self-employment is sometimes the only economic way out. As a
result, there are approximately 200 self-employed Africans residing in the
Walloon Region, 60% of whom are Congolese or Cameroonian. Half of these
self-employed persons work in retailing. Others are upgrading their skills:
70% of the African population of the Walloon Region are enrolled in training
programmes.
2. Specific barriers to the employment of young
people of immigrant descent
In industrialised countries,
most of the workforce is potentially at risk from the economic difficulties
arising from a changing world and new ways of working (Rea, 1997). But in
these countries, workers of immigrant backgrounds experience additional
problems because of their status as foreigners or descendants of foreigners (Feld
and Biren, 1994). These obstacles to employment are varied, even if it must be
noted that the difficulties are not absolute and do not affect all foreign
job-seekers to the same degree.
The main obstacles to the
employment of foreigners are contextual and tied in with historical, economic,
social and geographical aspects of migratory patterns in Belgium and the
Walloon Region. As in other European countries, the immigration of workers to
Belgium was geared essentially, in the wake of World War II, to the
recruitment of unskilled and freshly “de-ruralised” labour, working
essentially in the coal and steel-making sectors. But the radical
transformations that began in these industries in the 1970s seriously
jeopardised the employability of the generations of immigrant descent, most of
whom had settled in regions—such as Belgian Hainaut, for example (Francq,
1996)—that were affected severely by these socio-economic changes (Morelli,
1992). This situation has led to a mismatch between the skills (e.g., language
ability) of workers of immigrant descent (skills acquired to some extent in
Belgium) and the job market’s changing expectations. At the same time, certain
skills acquired abroad have also proven difficult to market in the immigrants’
adopted country.
It has also been noted that
legal issues of residency and employment are becoming increasingly complex.
Even so, the main problem is that of an overall lack of integration into
Belgian society: the lack of networks of contacts and information (of
relevance to the world of work) of immigrant communities constitutes a real
handicap to access to employment in their host region. Workers encounter a
variety of difficulties, depending on the particular factors that prompted
them to emigrate (economic reasons, family reunification, political asylum,
etc.) (Berry, 1987).
Another factor would also seem important: ethnic
discrimination against workers belonging to recent waves of immigration.
Research (Castellain-Kinet and Es Safi, 1997) has shown that in Belgium, as in
neighbouring countries, a great many employers apply discriminatory non-hiring
policies against job-seekers belonging to immigrant minorities (the study in
question dealt with Belgian job-seekers of Moroccan descent)[2].
Another research study (Brion and Manço, 1999) confirms this same finding,
based on data from the most recent general population census (1991); it shows
that workers of Turkish and Moroccan nationality are statistically far more
likely to be unemployed than Belgian or other European workers with the same
level of schooling (diplomas obtained in Belgium only). For his part, Martens
(1997) shows that employment in government service is virtually closed to
persons who have been naturalised.
Lastly, other obstacles to
job market access are psycho-sociological. A number of studies (Manço, 1998)
show that young people of foreign backgrounds, from families that are also
disadvantaged vis-à-vis employment, experience severe difficulties breaking
into the job market. The lack of positive parental role models and/or a fear
of betraying one’s own people by achieving occupational success are realities
revealed by a vast quantity of clinical literature (Manço, 1999). The public’s
negative perception of certain immigrant communities can induce in them an
identity-positioning reaction entailing substantial acculturative stress
(Berry, 1987), anguished pessimism (Sayad, 1991) and an attitude of
anticipated rejection (Bourhis and Leyens, 1994). At the same time, being
jobless in their land of exile is a profoundly paradoxical status for
immigrants forced to emigrate for economic reasons (Sayad, 1991). A variety of
researchers (Aycan, 1999) have been able to measure the impact of protracted
unemployment, the lack of occupational advancement prospects and
underemployment (employment beneath workers’ actual qualifications) on the
general level of integration and the psycho-social welfare of immigrants.
3. General and specific integration initiatives
In the Walloon Region, there
are a large number of institutions striving to combat economic discrimination
and promote the socio-professional integration of persons from ethnic or
immigrant minorities. They can be placed into two groups: general initiatives
and specific ones.
General initiatives are ones
that address the entire population group experiencing difficulty with
employment. They involve vocational training and school-to-work transition
policies, policies to reduce unemployment (subsidised jobs, limitation of the
tax burden for certain low-skilled categories, etc.) and guidance for active
job-seekers (job search workshops, decentralised information services, online
services, etc.). There are also programmes and assistance for persons wishing
to start their own businesses. These initiatives are implemented by public
institutions such as the Walloon Office for Employment and Training (Office
wallon pour l’emploi et la formation, FOREM) or socio-professional
integration associations such as work-training workshops, literacy networks,
the Union des Classes Moyennes, etc.
However, a number of studies
such as the ones cited above show the unsuitability and/or inadequacy of
available programmes to promote the socio-professional integration of persons
of foreign descent having particular difficulties finding work. Actually, most
of the initiatives currently taken in this area are limited to integration
goals within established frameworks, pursuing a greater or lesser degree of
assimilation of the foreign worker within an employment market considered
uniform and restrictive in its treatment of cultural differences. It can also
be seen that general programmes attract few young people from underprivileged
or foreign backgrounds, and women in particular. Increasingly, then, pilot
initiatives are taking targeted approaches to employment-disadvantaged
immigrants, even if such programmes are still in a minority and have scant
resources.
For example, an initiative
undertaken by FOREM (1998-2001) in Hainaut (the Symbiose project in
connection with the European Social Fund) has enabled participating
job-seekers to come to two understandings: first, of their place and their
possibilities in the job market—which, for most of them, is tantamount to
acquiring fresh motivation and renewed confidence; and second, of the
possibilities in terms of systematic job-search procedures offered by
placement agencies—possibilities that had been largely unknown to most
participants. Another essential contribution of the approach was to (re)vitalise
networks of solidarity and information for foreign job seekers. Participants
were introduced to persons of similar backgrounds who had achieved
“occupational success” and given access to other, more institutional,
resources. A spill-over effect can also be seen, with new training projects
and job opportunities for most participants in the initiative in question. It
is also important to note that some participants who had been victims of
job-market discrimination were oriented productively towards strategies for
making the most of their special skills and intercultural capabilities. They
therefore strive to harness their own values to serve the common good. Such an
attitude can gradually break down barriers and other examples of mutual
prejudice between non-native job-seekers and native employers. The strategy
involved is one of proper positioning within the host country labour market,
as an alternative to normative and labour-driven entry. The initiative also
gave economic integration professionals a deeper understanding of the
difficulties and special resources of persons of foreign descent in the labour
market and enabled them to adapt their instruments and support processes
accordingly.
Thus, the hypothesis that
cultural differences can be a source of enrichment within business enterprises
is an idea that is beginning to be borne out by research and the practical
results of initiatives. In this area, the Liege-based Institut de Recherche,
Formation et Action sur les Migrations (IRFAM) is striving to contribute
to the development and transposition of innovative experiments in aiding and
guiding immigrants through employment difficulties and thus to contribute to
the training and awareness of persons who work with them (teachers, social
workers, trainers, neighbourhood leaders, local representatives, mediators,
officials of community associations, etc.).
In contrast to the prevailing
trend, the innovative objective here is to try to capitalise on cultural
differences in the area of employment. This leads not to general placement
actions but to assistance with strategic positioning in the labour market.
IRFAM, for instance, proposes to develop a programme of ongoing training for
employment “counsellors” in a placement methodology for workers from immigrant
backgrounds called Valorisation Identitaire et Professionnelle (VIP),
which seeks not to “overcome”, but rather to put forward and exploit the
immigrant’s identity and socio-cultural originality. First, this entails
dynamic exploration of the job-seeker’s identity (evaluation of personal,
family and community potentialities, etc.). Ultimately, this results in the
setting of specific occupational objectives. Second, job market opportunities
and assistance mechanisms for social and occupational integration, new
business creation, etc., must systematically be envisaged so that they can be
harnessed for individual projects (synergy with general integration
programmes, etc.). Here, the development of information and solidarity
networks is an important point for the “VIP” action, which must itself fall
within a framework of a local partnership involving a variety of parties
active in socio-professional promotion and local organising.
The purpose of the programme
is to train placement officers and social workers in local institutions (such
as youth centres) in a methodology for guiding job-seekers. The aim is to make
employment counsellors more sensitive to the needs and problems of people from
different cultural backgrounds and to project those differences in a positive
light on the job market. The principle is to give foreign job-seekers and
those from foreign backgrounds a positive and aggressive attitude that seeks,
in a crowded job market, to harness and spotlight those of their individual
characteristics they feel to be unique, relevant and distinctive. In practice,
this entails supplying guidance for vocational initiatives and individual
projects. It means instituting a participatory and interactive
socio-psychological conditioning exercise: it is not only possible but also
effective to highlight one’s cultural identity as a distinguishing argument in
the labour market or some of its segments (import/export, social action,
intercultural endeavours, development co-operation, trade in various products,
language-related occupations, tourism, transport, etc.). Moreover, one of the
effects of the initiative is to help develop a culture within placement
agencies—and, more generally, beyond—that attaches a positive value to the
identity and projects of their clients from diverse backgrounds.
4. Conclusion:
towards a special policy of occupational integration for persons of foreign
descent?
In order to go beyond local
pilot initiatives and the experimentation phase, an institutional framework is
required. In the Walloon Region (Belgium’s French-speaking south), the main
policy instruments for the job-market integration of foreigners and persons of
foreign descent are the seven “Regional Integration Centres” (Centres
Régionaux d’Intégration, or CRI), created and licensed under the Decree of
4 July 1996 concerning the integration of persons of immigrant descent, which
develop co-ordination, incentives, regulatory and evaluation activities for
local social and occupational integration projects and mechanisms for the
Region’s immigrant communities.
In 1997, the CRIs jointly
framed a policy of regional actions to promote the socio-professional
integration of foreigners and persons of foreign descent. Their actions, in
their entirety and until 2003, fall under the European Social Fund’s
Employment initiative (the “Integra” and “Now” strands), and will subsequently
be conducted as part of the Fund’s “Equal” initiative. These actions,
formulated in synergy with public bodies (such as FOREM) and private research
centres (such as IRFAM), seek to institute ad hoc systems of training,
guidance, counselling and employment.
The actions to be developed
within this general framework seek to promote the socio-professional
integration of disadvantaged persons into the Walloon Region’s urban
communities. The concept of socio-professional integration is used here in its
most comprehensive sense, as a cross-cutting and multi-dimensional notion
encompassing all facets of the social and economic life of immigrant
communities in the industrial areas of the Walloon Region. These actions are
presented in a spirit of “research and development” and can be seen as
“rearguard” initiatives, i.e. as activities for the co-ordination, support,
mobilisation and evaluation of local projects and mechanisms for the social
development, training and guidance of persons of foreign extraction. The CRIs’
work is therefore almost exclusively involved with “front line” institutions,
associations and socio-cultural workers actively promoting the welfare and
socio-professional integration of immigrant groups. These actions address
three political priorities: the socio-professional integration of persons of
foreign extraction; the training of professionals in contact with such
persons; and support for local efforts to promote their integration. The
proposed actions are therefore inspired by four basic postulates, enriched by
observation and extensive experience of the Walloon Region’s migratory
context.
First, it would seem
absolutely necessary to make a clean break with a certain culture of handouts
that in the past has all too often characterised policies for the integration
of immigrant communities. Immigrants striving for integration must henceforth
assume and proactively promote their identity, harnessing their experience and
individual abilities (especially those related to their culture of origin)
within the framework of integration projects geared towards the host society.
Immigrant communities and their many groupings should be involved in the
design and implementation of social and economic policies: through this
context of negotiation—of which the CRIs can constitute one of the most active
links—workers can be allowed to put forward their potentialities (pedagogy of
the socio-professional project).
Second, the institutions that
are supposed to facilitate the general and socio-professional integration of
persons with foreign backgrounds would seem ill-suited to the particular needs
of the population groups that have settled recently in the Walloon Region.
Moreover, a substantial number of these institutions are requesting ad hoc
services for information, awareness-building and training (in intercultural
transactions, the cross-disciplinary nature of occupational practices, and so
on).
Third, the road to economic
integration seems too often like an obstacle course, given the extent to which
the various institutions involved seem to be fenced off from each other. What
is needed is to accentuate the continuity and co-ordination between the
services that deal with arriving immigrants, general social services,
educational institutions, pre-training and training schools, the world of work
and its many structures and, lastly, businesses themselves, so as to work
together to promote economic integration and the socio-professional stability
of immigrant communities.
Fourth, lastly, and
correlatively to the first three postulates, it would seem necessary to
invigorate and generalise the mobilisation and solidarity that characterise
certain immigrant communities. For example, one of the proposals for action
formulated by certain CRIs is to establish a system of occupational tutoring
(training and guidance from local labour support units) that it is believed
could address individuals’ lack of integration into the Belgian labour
market—a shortcoming that generally affects young people from families that
have immigrated fairly recently.
Each of the CRIs endeavours
to implement a series of concrete and co-ordinated initiatives tailored to the
policy priorities and sociological postulates presented. Efforts are made to
ensure comparability and complementarity between the various local
initiatives. However, if the same spirit unites the various projects
undertaken by the CRIs, the contours of the operations take on different hues,
depending on local realities. The areas served by the Centres have different
social and institutional histories and reflect contrasting economic and
political realities. Moreover, the various CRIs comprise different bodies and
staff that are attuned to the need to match the philosophy of general policy
measures with local needs and expectations. The bibliography at the end of
this paper lists a series of publications by these institutions and from
within the Walloon Region that could provide the reader with more details.
A cross-disciplinary reading
of the CRIs’ socio-professional integration actions can convey an overall
viewpoint on the Centres’ achievements. They seem to have properly identified
their roles in providing local, institutional and intercultural impetus
(respectively co-ordination, training and promotion of cultural differences),
even if not all of them have as yet developed significant actions in each of
these fields. While the Centres have clearly defined their roles and
objectives, their achievements give an impression of vagueness, which is
partially due to administrative factors external to the Centres (e.g., the
vagueness of the 1996 decree, etc.) and eminently understandable in view of
the experimental approach that they have adopted. This lack of precision
emerges in particular in the difficulties positioning the CRIs vis-à-vis the
following dichotomies: front line or rearguard ? Socio-professional or general
integration ? Local or “trans-regional” work ? Another question concerns the
participation of persons and associations from the immigrant community in the
life and work of some of the Centres. However, the CRIs’ employment
initiatives often provide an opportunity for new dynamics and original
partnerships likely to add useful innovation to certain general approaches
that lack creativity in addressing the special employment problems facing
immigrant communities.
An illustration of this new
dynamic is given by the VITAR (Valorisation Identitaire, Transfert,
Autonomie, Réalisations) project undertaken jointly by IRFAM, the Walloon
Region’s Ministry for Social Action and the CRIs (Gatugu, Manço and Amoranitis,
2001). The VITAR project combines research, action and training in the realm
of socio-economic integration of African immigrants. The core hypothesis being
tested out is that the socio-professional integration of a number of
immigrants is possible thanks to the promotion of their diverse abilities in
employment sectors such as intercultural action, development co-operation and
new business creation. The partners plan to identify, on the basis of
preliminary research, the profiles of Africans to be promoted in connection
with professional activities related to trade, international relations and
enterprise creation. The work involves training, supervising and guiding
selected interns from employment contexts involving relations—and particularly
economic relations—between the Walloon Region and States, regions and
populations of black Africa. Moreover, it is important that the operational
procedures worked out by all of the partners be put into words and conveyed to
the organisations and businesses with which the project is to be carried out,
thus ensuring that the new practices for integrating and promoting workers of
foreign descent will be disseminated. The final objective is the creation in
the Walloon Region of an agency for developing and transferring skills.
____________________________
NOTES:
[1].
In fact, 12% of the Walloon Region’s workforce is unemployed (Office National
de l’Emploi, 1999).
[2].
In the Walloon Region, in 27% of the 201 recruiting situations examined (men,
mid-level skills), the employer gave preference to an “ethnic Belgian”
candidate rather than to a Belgian applicant of Moroccan descent, despite
strictly equal qualifications.
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