EMN inform examines early integration measures for applicants for international protection

The EMN inform “Early integration of applicants for international protection” examines the early integration measures available to applicants for international protection, the mode of delivery and funding sources, and the authorities and other actors responsible for them. The inform is based on national contributions from 25 EMN Member and Observer Countries, including Serbia and Ukraine. Most European countries provide integration measures already during the asylum procedure. Language courses, civic and cultural orientation, and vocational or labour market orientation are among the most common measures, but EMN Countries differ in the way how early support is provided, who delivers the measures, and how they are link to monitoring of subsequent integration.

For the purpose of the inform, early integration measures refer to activities that enhance the integration prospects and self-sufficiency of applicants for international protection during the asylum procedure and reception, before a final decision is made on their application. Among other things, an aim of the inform is to address a knowledge gap in an area that, unlike integration measures for beneficiaries of international protection, is rarely systematically documented or monitored. Of the participating countries, 22 EMN Member Countries and Serbia report implementing early integration measures during the application process for international protection.

Language courses, civic and labour market orientation in focus

The most common measures are language courses, civic or cultural orientation, vocational or labour market orientation, and education for children. Other measures include health-related support, psychological and mental health support, digital skills and case management.

Language learning is provided by 20 EMN Member Countries and Serbia and, where offered, is free of charge or funded through reception or integration systems. In most countries, participation is voluntary, although compulsory elements exist in some countries.

Sixteen EMN Member Countries and Serbia also report adapting early integration measures based on factors such as age, gender, vulnerability, qualifications or level of education. These measures are tailored to, for example, children, women, unaccompanied minors and people with health or psychosocial needs, to better address their needs.

Sweden is among the countries that adapt measures to the circumstances and needs of different target groups. Swedish examples include targeted language and labour market preparation activities for women with limited prior labour market participation. Sweden also provides literacy-oriented language training for applicants with limited educational backgrounds.

Different pathways to early integration in EMN Countries

EMN Countries organise early integration measures in different ways. Several examples illustrate how language learning, labour market participation and engagement with local communities can be linked.

In Bulgaria, a National Programme combines Bulgarian language lessons with a 300-hour training programme leading to obtain a first level professional qualification. Upon completion, participants can access subsidised full-time employment for up to 12 months.

In the Netherlands, so-called Participation Desks, are available at certain reception locations. They support applicants for international protection in finding volunteering, work opportunities and other activities in the local community.

Approaches to coordination also vary. In Luxembourg, an interministerial platform brings together key national stakeholders to develop a more structured pathway towards the labour market for applicants for international protection. It aims to improve employability, facilitate access to paid activities, support financial independence and promote social integration.

Monitoring remains a challenge

Although early integration measures are widespread, knowledge about their long-term effects remains limited. Five EMN Member Countries and Serbia assess early integration measures as part of broader integration evaluations. Only Germany and Latvia report specific systems for systematically assessing the impact of early integration measures.

Sweden does not measure the long-term integration outcomes of early integration measures specifically for applicants granted international protection. Instead, Sweden assesses the combined effects of early integration measures alongside with those provided after the international protection is granted. The Swedish Public Employment Service conducts broader analyses of labour market and integration outcomes.

Countries also report several common challenges in delivering early integration measures. These include insufficient or unstable funding, staffing shortages, organisational and logistical challenges, and long waiting times. Fluctuations in the number of applicants for international protection and other external factors can also affect the delivery of consistent and effective early integration measures.

Cooperation is central to the Swedish approach

In Sweden, both national and local actors are involved in early integration measures. The inform describes municipalities and NGOs as playing an important role in implementing these measures, alongside national bodies involved in their provision and coordination.

The Swedish County Administrative Board, which are responsible for allocating funds for early integration measures, emphasise strong and stable cooperation between key actors, such as local authorities and experienced civil society organisations. They also highlight the importance of providing applicants for international protection with early, clear and accessible information.