PRO M OTING R E FU G E E I NT E G RAT I O N A ND I NC LU SI ON : E M P OW E R I N G M U N I C I PA L I T I E S AC R OSS E U R OP E Endnotes 1 2 3 4 13 Visegrad Countries National Integration Evaluation Mechanism For UNHCR, the term inclusion refers to the practice of ensuring that forcibly displaced and stateless persons have access to and are included in host government systems on par with nationals and have equal access to the services and protection that these systems afford to their citizens. This encompasses access to affordable housing, documentation, decent work, education, health, social protection and social care services, housing, finance, entrepreneurship, and skills recognition, and wider economic opportunities. In terms of integration, UNHCR continues to rely on ExCom Conclusion No. 104, which defines integration as “a dynamic and multifaceted two-way process leading to full and equal membership in society. This includes preparedness by refugee communities to adapt to host societies without giving up cultural identity, and the receiving communities and institutions equally ready to welcome refugees and meet the needs of a diverse population. The process is complex and gradual, comprising legal, economic, social, and cultural dimensions.” This policy brief uses the terms integration/inclusion interchangeably for two reasons: While integration is a durable solution for refugees—and implies a permanent stay in the host country—the inclusion of forcibly displaced and stateless persons upon arrival to a host country will limit the negative effects of dependency, facilitate eventual local integration or enable them to live with dignity and a degree of normalcy pending an eventual return to countries of origin. For the purpose of this policy brief, the term ‘refugee’ may include refugees, subsidiary protection holders, temporary protection holders, asylum seekers and other persons in need of international protection. While the primary target group are refugees, many aspects of this brief equally apply for the inclusion of internally displaced and stateless persons. See: UNHCR statistics in Europe Coverage of the decline in the size of working population of most countries of the European Union, among other factors, is discussed in: The Loss of Workforce Potential | Population Europe (population-europe.eu). For a summary of the crucial role refugees and migrants have played in sustaining the world of work in Europe, see Cities welcoming refugees and migrants (UNESCO, 2016) (p. 12-15) ‘’Local’’ level is understood as municipal administration or actor, however regional levels will be highlighted where relevant. 5 Türkiye continues to be one of the largest refugee-hosting countries worldwide, with 3.3 million refugees by end-2023. Germany is the second largest refugee-hosting country in the Europe region and the fourth largest globally, hosting 2.6 million refugees by the end of 2023. See Europe | UNHCR 6 UNHCR Global Trends Report 2023 7 8 9 P R O MOT IN G R E FUGE E IN T EG R ATIO N AN D IN C LUSIO N : EMP OWE R IN G MUN IC IPAL ITIES ACROS S EUROPE The diverse achievements of local authorities, civil society and refugee-led groups amidst complex contexts have been richly documented by scholars examining city/municipal case studies in Milan, Barcelona, Utrecht, Thessaloniki and different locations of Wales, to name only a few. The Urban Agenda for the EU: Multilevel Governance in Action also summarizes several examples. ‘’Local Multilateralism’’ and ‘’City Diplomacy’’ are relatively recent concepts reflecting the increased collaboration of cities across networks that resemble global governance organizations. These are often led by mayors seeking direct interaction with international peers and greater representation and influence for their constituents over high-level discussions and policymaking on areas such as sustainable development, infrastructure, public safety, migration and climate change. See Council on Foreign Relations and Consultation Mechanisms - United Cities & Local Governments See: Impacts of Territorial Flows of Refugees on Europe (2019) p. 121-122, Europe’s Refugees: Refocusing on Integration (McKinsey, 2018), & Cities and Refugees - The German Experience (Brookings, 2016) 10 The most recent example being refugees from Ukraine, most of which have remained in large urban agglomerations. See The State of Regions and Cities, 2023 Annual Report (p. 18) 11 Whole-COMM is a multi-year research and policymaking initiative on integration in small and medium-sized towns and rural areas in the EU. A recent output is a policy brief setting out a series of recommendations to enable small and medium-sized towns and rural areas in the EU to overcome obstacles to meaningfully participate in EU policy design, access funding schemes, and strengthen the technical capacity of local authorities on integration, among other key areas 14 Programme Emile was developed as a cross sectoral initiative to encourage both French and migrant residents to move out of the Paris region. 15 The Western Balkans, namely Albania, Bosnia and Herzegovina, Montenegro, North Macedonia, Serbia and Kosovo* (Security Council Resolution 1244 (1999). See Strategy for UNHCR Engagement in mixed movement in the Western Balkans 16 The Government Decree No. 1756-L (12/Oct/2023) provides additional remuneration of 30% of the standard salary to refugee teachers employed in schools of Armenia, as well as an additional AMD 50,000 (USD 120) to teachers employed in specific provinces. This program targets over 1,500 teachers from the Karabakh region. Similarly, medical personnel taking up employment in medical facilities in provinces upon the referral of the Ministry of Health receive assistance in the amount of a three-fold of minimum wage for 6 months, in addition to their salary. 17 In 2023, Dunaivtsi, was selected as a grantee of the Global Cities Fund for Migrants and Refugees (GCF), the Mayors Migration Council’s instrument to channel international funding directly to cities to implement inclusive projects of their own design. See Dunaivtsi, Ukraine: A Home Away from Harm - Mayors Migration Council 18 Municipalities of Ukraine overall currently display vastly differentiated needs and local integration prospects for the country’s 3.6 million IDPs. They will require strengthened local self-government capacities and access to sustainable finance to drive the country’s eventual recovery and reconstruction. To understand how the war has affected Ukrainian municipalities, OECD proposes several categories, summarized on page 68 of the following document: Rebuilding Ukraine by Reinforcing Regional and Municipal Governance. 19 The responses of close to 100 mayors, summarized in the 2024 Eurocities Mayors Pulse Survey, provide a more detailed picture of specific needs and goals. 20 Impacts of Territorial Flows into Europe (2019, p. 79). Presentation of report, synthesis of findings and full research report and individual case studies available at the following link: MIGRARE - Impacts of Refugee Flows to Territorial Development in Europe 21 In April 2022, the Union representing mayors from 12 central cities and metropolitan areas of Poland published research findings to support calls for an urgent boost to their local budgets from the central government, highlighting that hosting refugees from Ukraine rests almost entirely on the shoulders of local self-government. 22 Research for REGI Committee - Social Challenges in Cities (europa.eu) (2022, p. 72) 23 2023 Eurocities Pulse Mayors Survey: A state of cities report through the voices of mayors, (2023, p. 17) 24 Municipal Finance for Migrants &Refugees: The State Of Play - An Overview of the Barriers Facing City Governments and a Path Forward For Building More Inclusive Cities & How the EU can work better with cities - Eurocities (2023) 25 For more general guidance, see Brief: Municipal Finance for Migrants and Refugees: The State of Play - Mayors Migration Council 26 The crisis of housing affordability and shortages has been the subject of multiple reports, regional fora, and multistakeholder urban initiatives for well over a decade now, reflecting its status as a longstanding structural problem for states throughout Europe. In 2016, 80% of people were already reporting challenges in finding affordable accommodation in major European cities. Policy Guidelines for Affordable Housing in European Cities (2018) 27 See The State of Housing in Europe, 2023 (p. 22-23). 28 The issue has continued to gain importance in the 2023 and 2024 Eurocities Pulse Mayors Surveys. When asked in the 2024 survey what they would like to see in the next EU budget, there were two noticeable differences: the added prominence of housing and the creation of quality jobs and skills. 29 Other factors include increased costs of housing development, land scarcity in major urban agglomerations, demographic changes, and rising interest rates. See: Building for a better tomorrow: Policies to make housing more affordable (OECD, 2021). 12 With a Regional Bureau in Geneva, and office presence in 36 European countries, UNHCR Europe covers 49 States, from Iceland to Azerbaijan, including 27 EU Member States, and one territory in the Europe region. 32 UNHCR REGIONAL BUREAU FOR EUROPE, AUGUST 2024 UNHCR REGIONAL BUREAU FOR EUROPE, AUGUST 2024 33