Ramboll proposes a more 'flexible' approach to forming groups for language courses and determining their duration for emigrants with different initial levels of knowledge. The latter should be determined by independent examiners. According to the results of this 'entrance' test and progress during the course itself, its duration should vary from the currently mandatory 600 to 900 hours. A longer training period is intended for those who have not previously studied German, the illiterate, as well as young people whose future success in the labor market largely depends on their language proficiency. In addition, the experts proposed measures to tighten control over attendance and penalties for refusal to attend. These include: introducing additional mandatory testing after the courses, and using reductions in social benefits and unemployment benefits as sanctions. To this end, according to Ramboll, not only the foreign affairs offices but also social services should have the right to oblige emigrants to attend language courses.
The introduction of integration courses in Germany is to some extent a continuation of traditions practiced in other European countries. For example, in France and Great Britain, attendance at courses is voluntary; in the Netherlands, Finland, Denmark, and Austria, it is mandatory for everyone; and in Sweden, only for certain groups of emigrants. The threat of reduced social assistance, fines, and deterioration of residence status serve, in the case of mandatory attendance, as both sanctions and incentives for unconscientious foreigners.
The integration program in Germany consists of two parts: an introductory course (basics of law, culture, and history of the country) and a language course. Attendance can be either voluntary or compulsory (mainly for emigrants who have lived in Germany for less than two years, or by decision of the Foreigners' Office). The state either fully covers the corresponding costs (as in the case of those receiving unemployment benefits) or partially (course participants pay €1 per hour of instruction, i.e., a total of €630 for 600 hours of language course and 30 hours of introductory course).
Even before the Immigration Act came into force last year, the draft regulation on integration courses was criticized by various refugee and emigrant initiative groups, social services, and charitable associations. The terms 'integration courses' and 'promotion of language skills' themselves were borrowed from the lexicon of pedagogy for children and the disabled and, according to critics, are discriminatory. The initially set goal of achieving a 'B1' level of knowledge among foreigners after completing the 600-hour language course, approximately equivalent to the level of 9th grade in German secondary school, turned out to be illusory. Although in the first year of the courses, most emigrants attended them voluntarily, the proportion who successfully passed the test at the end was only about 8%. Therefore, the conclusions reached by Ramboll in its report were not surprising.
Currently, they are being reviewed by a working group on the integration of emigrants, specially created in the summer of last year. One of the main demands put forward by its members is the introduction of stricter sanctions for those who avoid integration into German society, including expulsion from the country. This primarily concerns those who receive unemployment benefits. Even the question of making appropriate changes to the Residence Act (Aufenthaltsgesetz) is being considered.
The Turkish community in Germany has already criticized the planned tightening. Such pressure, in its view, will inevitably provoke even greater resistance from emigrants, so participation in integration courses should not be imposed but rather stimulated and encouraged. Particular concern is also raised by the possibility of misuse of integration measures and test results as a mechanism to identify emigrants unwilling to integrate and as a basis for applying sanctions.
By July 1, 2007, the German Foreign Ministry plans to present a report on integration courses to the Bundestag. The conclusions and proposals of Ramboll and the working group on the integration of emigrants are to be reflected in it.
Elena GROMOVA.
Russkaya Germaniya