Muslim Youth and Women in the West: Source of Concern or Source of Hope?

Appendix V: Keynote Address of Rikke Hvilshøj, Danish Minister of Refugee, Immigration, and Integration Affairs

Introduction

Ladies and Gentlemen, I am very pleased to be here today among you at this highly interesting conference. I am also very pleased to be able to share some of my thoughts on current integration issues with an audience of such diverse backgrounds and experiences.

I would like to thank Mr. Tlili and the Center for Dialogues for making this impressive event possible and Dr. Plassnik and Mr. Schaden for having Austria and the beautiful city of Salzburg host this conference.

Conference Themes and Focus

Integration policy is high on the political agenda in most of our countries. Challenges, experiences, and policies differ from country to country, and we can all learn from each other. There is currently a growing interest in and need for exchange of information, ideas, and best practices, which is why I find this conference very relevant and useful.

The aim of the conference is to put the focus upon Islam in the West. It aims, in particular, to look at Muslim youth and women in the West, and it raises the basic question of whether Muslim youth and women are a source of concern or a source of hope. This is an interesting and important question. I would like to stress generally that we are facing fundamental and urgent problems in the integration area.

On the other hand, these problems can be solved. But it requires that we acknowledge the challenges and do not ignore the problems as was the tendency some years ago. It also requires that we be—politicians and other authorities, civil society, immigrant organizations, religious leaders, and so on—ready to debate even the most controversial issues and contribute to finding solutions. For example, the practice of forced marriages among some immigrant groups is a controversial and complicated question. We should not avoid debating this issue because of cultural sensitivity, and we should not accept it as part of some immigrant group’s traditional culture. The right of young people to freely decide whom they want to marry is fundamental and nonnegotiable. There is no excuse for forced marriages. We need to make this very clear. Fortunately, I think we are already seeing signs of positive developments—developments that we can build on. But still, there are many unsolved challenges ahead of us. We do still need to intensify our efforts.

I would like to address two issues today. Firstly, I would like to say a few words on Danish integration policy. What are the main challenges and what are the main aims? As this conference pays special attention to the position of Muslim youth and women, I would like today to give you a more detailed picture of how Denmark seeks to promote integration and participation—in particular of immigrant youth and women. Secondly, I would like to say a few words on how Denmark aims to accommodate cultural and religious diversity. In recent decades, Denmark—like many other Western European societies—has seen a growing number of immigrants with cultural traditions and religions that differ from the mainstream. I would like to say a few words on how we seek to respond to this diversity.

Danish Integration Policy

Danish immigration history has in many ways followed the same path as the immigration histories of many other Western European countries. Although Denmark has a long history of immigration, larger scale immigration and the influx of immigrants with Muslim backgrounds is a relatively new phenomenon dating back to the 1960s. In the 1960s and early 1970s, immigration was promoted as a valuable source of labor. The immigrants were seen as guest workers, and they were expected to return to their home countries if they were no longer employed. However, many stayed in Denmark even though the need for labor diminished. Many lost their jobs. And in the following decades, Denmark additionally experienced a rise in refugees and family–related immigration with no affiliation to the labor market. In Denmark today, it is generally acknowledged that we made a mistake in the past by not realizing that immigration requires an active immigration and integration policy. Some of the conflicts and challenges we are facing today could have been avoided or minimized if we had given them our attention at the appropriate time.

Thus, we learned two lessons. Firstly, we need to manage and control immigration. This will in general ensure that we have the necessary resources to promote the integration of both newcomers and long–term immigrants. In Denmark, we recognize that there is a close link between immigration and integration policy. Secondly, we learned that we must actively promote the integration of immigrants in Denmark. We must provide immigrants with opportunities and incentives in order to ensure a successful process of integration.

So, what are the main challenges that we face today? Although many immigrants and refugees have been successfully integrated, the unemployment level among immigrants and their descendants is too high when compared to the rest of the population. Too many immigrants do not enroll in school or do not complete the education in which they enrolled. Moreover, many immigrants, even immigrants who have been in Denmark for many years, lack sufficient knowledge of the Danish language.

Introduction to Program, Labor Market, and Educational System

These challenges have necessitated that language teaching and integration into the labor market and the educational system have become main aims of Danish integration policy.

In 1999, a three–year introduction program aimed at newly arrived refugees and their families was introduced. The program is offered for free and includes Danish language courses, labor market training, and classes on Danish society. Immigrants coming to Denmark for work or study are also entitled to Danish language courses for three years. The Danish government has also introduced initiatives aimed at promoting labor market integration. Thus, a step–by–step approach to active participation on the labor market has been introduced. The immigrant or refugee is, firstly, offered short–term education, then on–the–job training, and finally recruitment with a wage subsidy before moving into the ordinary labor market. We have launched several additional initiatives aimed at drawing immigrants into the labor market and educational system, including mentoring schemes and diversity management programs.

Youth and Women

Immigrant youth and women are special focus groups in Danish integration policy. Immigrant youth in Denmark—many of whom were born or have grown up in Denmark—in many cases seem to inherit their parents’ problems: high unemployment, little or no education, and an insufficient knowledge of the Danish language. Young immigrants need support. They need role models and positive goals for their future. We have therefore established the campaign “We need all youngsters.” The campaign is aimed at raising awareness among immigrants about the educational system and awareness among employers about the qualifications and potential of immigrant youth. The campaign makes use of role models—young immigrants who have had success professionally or in their educational choices. Of special importance is the involvement of their parents. Immigrant parents are in some cases not familiar with the active parenting role that is required in our society and educational system today. Furthermore, many immigrant parents are fighting their own social or integration battles and may not have the resources to support their children. It is therefore important that we motivate the parents—with both sticks and carrots, so to say—to assume responsibility for bringing up their children and supporting their educations. It is the duty of the parents to make an effort to integrate and learn the language so they can better fulfill this role.

Immigrant youth was also the focus of a European conference held last year by The Netherlands and Denmark. We learned a lot from that conference, including that it is important to involve the group in question, that it is very important to discuss even sensitive issues like the risk of radicalization and of course the usefulness of exchange of ideas and best practices.

Turning to immigrant women, the challenge is that very often they are even more isolated from the labor market and society than immigrants in general. Due to their subservient position in many traditional immigrant cultures, it is also harder for women to become fully integrated. At the same time, we do see women breaking out of their traditional roles and moving into society. This calls for admiration and support, and the women who do successfully break from their traditional roles could become role models for others. Integration of immigrant women is therefore a top political priority in 2007 and onward. We will launch initiatives on dialogue, support to networks, upgrading of qualifications, etc. Generally, it is all about supporting immigrant women’s efforts to get out of their homes and into society.

Common Values and Accommodation of Cultural Diversity

Immigrants bring with them cultural traditions and religions that often differ from the traditions in the host society. Immigration has in many ways enriched our societies. Western societies today are culturally diverse societies, and we should value this diversity.

But immigration and cultural diversity have also raised questions as to how our societies and public policies should respond. How can our societies accommodate this diversity? To what extent should the host society adapt to immigration? And to what extent must immigrants adapt to their new society? These are difficult and often controversial questions, but I see this conference as an opportunity to discuss these issues. We have all taken different approaches reflecting differences in our national policies, histories of immigration, and our different traditions. In Denmark, we value diversity, and as a host society, we must strive to respect immigrants’ cultural and religious traditions.

We recognize that immigrants should be free to maintain their customs with regard to food, dress, religion, and recreation, for example. But we also emphasize that this freedom and diversity exist within the basic values and laws of Danish society. Democracy, equality between men and women, nondiscrimination, freedom of speech, and freedom of religion are some of these basic values. We also emphasize the right of the individual citizen to decide freely how he or she wants to live his or her life.

Some have argued that we need to put emphasis on the recognition of different cultures. These policies of multiculturalism have been criticized—rightly I believe—for eroding social solidarity and cohesion and for fragmenting our societies. Placing too much emphasis on ethnic identities at the expense of what we have in common may threaten social solidarity. In Denmark we emphasize social cohesion, inclusion, and the need to provide all citizens with equal opportunities for participation in all aspects of society.

Sharing and accepting the same common set of values is fundamental to social cohesion in our society, and we should combat the trend toward parallel societies. An important element in fostering social cohesion is dialogue and involvement. The so–called cartoon crisis of last year showed us the importance of supporting a positive dialogue with immigrant groups, in this case primarily immigrants of Muslim origin.

The Danish government holds a series of meetings with ethnic and religious groups, and we support NGOs and other organizations that sponsor local dialogue initiatives in schools, youth clubs, etc. In 2006, I launched a competition for young people encouraging them to write their own speeches for the Danish Constitution Day. Many speeches were submitted, and many youngsters with ethnic backgrounds chose to participate.

Each of the winners accompanied a minister to a Constitution Day celebration somewhere in the country and presented his or her own speech on democracy, dialogue, and integration. The contest generated a lot of media attention and provided an opportunity for more focus on integration and dialogue. Positive images of youngsters caring about and reflecting on society were widely disseminated. It was truly a very rewarding day. It is important to keep in mind that dialogue is with everybody, not just religious groups. Immigrants and their descendants in the West should be seen as individuals and not as one monolithic block. What is important is that the individuals and organizations that engage in dialogue actually do represent the groups and views they claim to represent.

Active participation and involvement creates a sense of responsibility among our citizens. Basically, participation in democratic life is open to everybody. Immigrants are entitled to participate in local elections and of course, if they become Danish citizens, they can participate in national elections. Many municipalities have set up special institutions for local representation of ethnic minorities—institutions which are then consulted about questions relating to integration, etc. We have established a national Council for Ethnic Minorities. The Council plays an advisory role and is an important dialogue partner for me as minister of integration.

International Aspects and Closing Remarks

Integration policy is still primarily a national issue and each country has its own concept of integration, but in an open society like the EU, which has abolished internal borders, immigration and integration does not stop at one’s doorstep. Integration policy should therefore also be important on the international agenda as the exchange of information, ideas, and best practices becomes more and more important, and as we realize that we face common challenges and can learn from each other. In the context of the EU, several initiatives have already been launched since the setup of National Contact Points on Integration in 2002—during the Danish presidency. The Dutch presidency held the first conference for European ministers for integration in 2004. Last week, my colleague, the German minister of the interior, Dr. Wolfgang Schäuble, convened a conference in Potsdam as a follow–up. The conference was a success, offering a chance for a good and open debate on possible future directions for European policy on integration. The focus was on sharing national experiences of best practices and intercultural dialogue. In a related context, Denmark and The Netherlands held the European conference on Integration of Immigrant Youth in 2006, which I also mentioned above.

The present conference is of a different kind and has broader focus and broader range of experiences among the participants. This allows for debates of cross–cutting issues and a free and informal dialogue and exchange of ideas between individuals, organizations, and professionals who do not come together regularly to discuss integration. I see a lot of potential in this conference, and I really hope that the outcome will be a set of concrete suggestions taking the best experiences and practices from the involved countries, organizations, etc. And in the longer run, I also hope this conference will provide the basis for networks for future dialogue.

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