Intercultural policies in Europeancities: Good practice guide

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European cities – key players inintercultural policy

European cities, and particularly cities with a strongeconomic base, attract immigrants from all over theworld. Over the past few years, cities across Europehave become increasingly diverse in ethnic, culturaland religious terms. The changing nature of urbansocieties presents opportunities in terms of culturalinnovativeness and international competitiveness. Atthe same time, diversity challenges the ability of citiesto establish and maintain peaceful and productiverelations between different segments of thepopulation. Consequently, influencing and managingintergroup relationships among an increasinglydiverse local population is a major challenge for cities.

The European Network of Cities for Local IntegrationPolicy for Migrants (CLIP) defines local interculturalpolicies as the specific policies, programmes andactivities of local authorities and organisations thataim to influence the social interaction, commu-nication and mutual understanding between nativeand migrant populations and to bridge differencesbetween ethnic and religious groups in a city. TheCLIP project aims to identify and analyse interculturalpolicies that contribute to enhancing positiveintergroup relations and foster the integration processof migrants and ethnic and national minorities.

Intercultural policies aim to influence relationshipsbetween groups with different behaviours due tovalues, norms, worldviews, interests and ideas.

Managing and improving intergroup relationsincludes achieving higher social cohesion of the localcommunity by managing relationships betweennative and migrant groups; migrant groups ofdifferent ethnicity, culture and religion; localauthorities and native as well as migrant and minoritygroups.

To support the exchange of experience and learningbetween cities, the third research module of the CLIPnetwork examines the intercultural policies andpractices of 31 European cities. It explores the majorneeds in intergroup relations between municipalauthorities and minority groups, the responses ofcities and migrant organisations to meet these needsand the measures taken by cities to improve attitudesand relations between majority and minority groups.Given the growing problem of radicalisation in recentyears in both majority and minority populations andits threat to social cohesion, the research exploreshow cities deal with the radicalisation process andwhat measures they have put in place to counter it.While the CLIP project covers relations between allgroups living in the cities that make up the network,this research module places a particular focus on theexperiences of Muslim communities, as Islam is thelargest ‘new’ religion in CLIP cities. The reportIntercultural policies in European cities presentsdetailed findings of the research (Council of Europeand Eurofound, 2010). This guide to good practiceoutlines the key findings of the research and presentsthe main recommendations for policymakers atEuropean, national and local levels.

‘We should learn to extend our feelings of belonging beyond our local and national communitiesand to add to our traditional allegiances a new sense of belonging; we must learn to becomecitizens of Europe.’

Ján Figeľ (former European Commissioner for Education, Training, Culture and Youth), Reflecting on theEuropean Year of Intercultural Dialogue, ZEI Discussion Paper. No. 187, 2008

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1 Council of Europe, White Paper on Intercultural Dialogue: Living together as equals in dignity, launched by the Council of Europe Ministers of ForeignAffairs at their 118th Ministerial Session, Strasbourg, 2008.

Policy context

Intergroup relations and intercultural dialogue are acentral issue in the ongoing European, national andlocal debates. Concern about, and interest in,relations between different groups in cities arereflected, at the political level, in discussions onintercultural dialogue. It is therefore an importantpolicy issue from the point of view of many Europeanactors: the European Union, Council of Europe,intergovernmental organisations and non-governmental organisations (NGOs).

The EU – and particularly the European Commission– is an influential policy driver in the field ofintercultural dialogue. European legislation is animportant foundation for intercultural dialogue. TheEU Charter of Fundamental Rights guarantees by lawcertain political, social and economic rightspertaining to equality and freedom for EU citizensand residents. By designating 2008 as the EuropeanYear of Intercultural Dialogue, the EU initiated andsupported a number of projects at European andnational levels involving and mobilising civil society.

A core objective of the Council of Europe is to activelypromote intercultural dialogue. In 2008, it publishedthe ‘White Paper on Intercultural Dialogue’.1 Thepaper highlights the aims and conditions ofintercultural dialogue, mutual respect andunderstanding, and makes five general suggestionsfor policy approaches. It defines ‘interculturaldialogue’ as ‘an open and respectful exchange ofviews between individuals and groups with differentethnic, cultural, religious and linguistic backgroundsand heritage, on the basis of mutual understandingand respect’.

In addition, intercultural dialogue is a topic of focusfor intergovernmental organisations. The UnitedNations – particularly the UN Educational, Scientificand Cultural Organization (UNESCO) – has promotedthe importance of intercultural dialogue for decadesand considers it even more relevant nowadays in thelight of a globalising world.

Findings from the research

Overview of local intercultural relationsWithin the CLIP cities, urban intercultural relations areambiguous. On the one hand, it is possible to identifya peaceful coexistence characterised by limited andpartial cooperation between different ethnic, religiousand cultural groups, with pragmatic and friendlyrelations between these groups, only a small numberof major and violent conflicts, a low degree ofradicalisation from both sides and an emerging legalframework of anti-discrimination.

On the other hand, there appears to be a lowinvolvement of migrants in the governance ofintercultural policy, insufficient resources for migrantorganisations, a lack of personal intercultural

competences on both sides, strong spatialsegregation in many cities, dissatisfaction on bothsides over specific issues, a lack of awarenessregarding relevant topics in several cities, as well asperceived tensions between various minority groups.

Many cities report a widespread perception ofdiscrimination in relation to important structuraldimensions of quality of life such as employment,housing, and education. In some cities, reportedlygood intercultural relations go hand-in-hand withperceived and experienced discrimination. However,while day-to-day conflicts are a part of interculturalrelations, major and violent conflicts rarely occur.Nevertheless, imported conflicts from migrants’countries of origin play a role in several cities.

Key findings• Most CLIP cities deal with intergroup relations and

intercultural policies within the framework ofintegration policies. Other cities frame theirpolicies in terms of diversity strategies, while theeastern European cities have implementednational minority policies.

• Empowering and establishing a sense ofbelonging among migrant organisations isconsidered to be crucial. Some cities report usingcapacity-building programmes, others reportestablishing umbrella organisations and someimplement good practice projects involvingcommunity leaders in intercultural policies.

• Many cities regard intercultural events as a way ofcountering ethnic and racial stereotypes andpromoting social cohesion. Therefore, most citiesinitiate or support such events – usually incooperation with both migrant and localmainstream organisations.

• It is recognised that developing intercultural skillscan help to reduce cultural misunderstandingsand improve peaceful intergroup relations. AllCLIP cities make an effort to raise the interculturalcompetence of their residents – for example,through intercultural and language training.

• The majority of cities have initiated municipal pro-grammes and campaigns to fight discriminationand racism, set up anti-discrimination offices andrun anti-racism and anti-discrimination projects.

• Some cities have explored initiatives to increaseintercultural awareness and competence amongthe police force. Other cities have organisedinformation campaigns on police-related topics formigrants. These efforts aim to encourageinteraction between the police and migrantgroups and thus reduce fears and prejudice.

• Most cities have implemented policies aimed atmeeting religious needs, including the need forplaces of worship. Some cities do not consider thesupport of buildings for religious migrant com-munities a municipal responsibility, while other

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cities actively support initiatives for the con-struction or maintenance of religious buildings.

• In many cities, the issue of Islamic burial groundshas been highlighted. Most cities have reserved aspecial cemetery or part of an existing cemeteryfor Muslim residents. However, in most cities, thequestion of burial rites is not yet resolved and willhave to be approached in the near future.

• Some cities are involved in a basic interreligiousdialogue covering faith issues, such as differencesand commonalities between religions. Othersbring together representatives of differentreligions to discuss issues concerning theinteraction of religious groups in everyday life aswell as political, social or societal topics.

• None of the CLIP cities have formulated an explicitstrategic concept specifically geared towardsMuslim communities. In practice, however, severalcities organise various projects and initiatives toimprove relations with Muslim groups. Most ofthe other cities also acknowledge the importanceof Islam for intergroup relations and conductindividual projects aimed at Muslim communities.

• Migration and integration have becomepoliticised in many European cities, with radicalanti-immigrant groups being formed among themajority population and radical religious–politicalgroups among immigrants. A majority of CLIPcities, however, do not report relevantradicalisation processes of either kind.

• Measures reported by cities to prevent anti-immigrant movements are mostly in response toconcrete actions and events. Anti-radicalisationpolicies targeting religious–political radicalisationare more complex, individual and group centred.

Recommendations for Europeanpolicymakers

This section presents recommendations drawn fromthe CLIP research for policymakers at EU level. TheEuropean Commission, Council of Europe and otherEuropean bodies place considerable emphasis ondeveloping intercultural dialogue as part of theprocess of integrating legal migrants.

Highlight interculturalism in policy documentsIn its 2005 common agenda for the integration ofthird-country nationals in the EU, the Commissionhighlights the importance of frequent interactionbetween migrants and citizens of the receivingsociety, mentioning explicitly in this context ‘sharedforums, intercultural dialogue, education aboutimmigrants and immigrant cultures’ (EuropeanCommission, 2005).2 Some of the recommendedactions were taken up by cities during the EuropeanYear of Intercultural Dialogue in 2008. The Com-mission further recommended setting up forums to

support a joint understanding of interculturalism inEurope and reinforcing the importance of intercul-tural policies in future EU strategic policy documents.

Establish strategic leadership at EU levelCurrently, three separate Directorate-Generals of theCommission (notably the DGs responsible forEmployment, Social Affairs and Equal Opportunities;Education and Culture; and Justice, Freedom andSecurity) deal with different aspects of interculturalrelations and intercultural policies. In addition, theBureau of Economic and Social Advisers (BEPA) has astrong interest in keeping contacts with repre-sentatives of various religious communities in Europe.CLIP recommends establishing a strategic leadershipin the Commission in order to combine the variousstrands more closely.

It is further suggested to continue the jointcooperation between the Commission and theCouncil of Europe on intercultural dialogue, with afollow-up programme that would support learningand exchange of experience between European cities.

Monitor anti-discrimination lawThe EU Agency for Fundamental Rights (FRA) and theEuropean Commission against Racism andIntolerance of the Council of Europe (ECRI) shouldcontinue to monitor incidences of discrimination,racism and xenophobia. Both institutions should notonly monitor implementation of anti-discriminationlaw at national level but should develop regional andlocal monitoring instruments.

Provide EU funding for intercultural policiesThe European Commission funds various pro-grammes for improving the integration of migrants.It is advised to mainstream the improvement ofintercultural relations systematically with the guide-lines for implementing these programmes. Europeaninstitutions should also financially support projectsthat enhance intergroup relations at a local level.

Improve cooperation with private foundationsSeveral private foundations in Europe – Soros,Bertelsmann Stiftung, Fondation Roi Baudouin,Robert Bosch Stiftung, Network of EuropeanFoundations – carry out significant activities in thefield of intercultural policies. It is recommended toimprove cooperation with these foundations in orderto coordinate operational activities, avoid doublefunding and join forces in various dialogue activities.

Reinforce de-radicalisation strategyCLIP research shows that ‘soft’ policies of de-radicalisation and anti-radicalisation are a keyingredient in a successful preventive anti-terrorismpolicy in the EU. It is recommended that the offices ofthe anti-terrorism coordinator of the Council ofMinisters consider the importance and effectivenessof innovative local programmes for a holistic, multi-level and preventive de-radicalisation strategy.

2 European Commission, ‘A common agenda for integration. Framework for the integration of third-country nationals in the European Union’,Communication from the Commission, COM(2005) 389 final, 2005.

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Recommendations for nationalgovernments

This section presents recommendations for policy-makers at national level. Governments play a key rolein supporting intercultural and interreligious dialogueand tackling discrimination and segregation ofmigrants.

Support inclusive intercultural dialogueCLIP advises all national governments to organise aconsultation of government representatives, membersof parliament and their committees, together with allrelevant local stakeholders representing the variousminority groups, on intercultural relations and thescope of local intercultural policies for migrants.Representatives of local and regional authorities andof other relevant organisations like churches, NGOsand the social partners could also be included.

Maintain interreligious dialogueIn many Member States, it would be worthwhile forgovernments to maintain continuous dialogue withrepresentatives of Muslim communities on religiousand general integration issues. In addition, nationallegislation should set out the conditions for theinstitutionalisation of new religious communities.

Include intercultural policies in national plansMany Member States have developed and politicallyagreed national integration plans, which define amedium strategy for the successful integration ofmigrants into the receiving society. It is recom-mended that Member States include interculturalpolicies systematically in their national plans andconsider incorporating the improvement ofintercultural relations into all main components ofnational integration policy.

Implement EU anti-discrimination lawAs many EU Member States have so far failed toimplement existing European anti-discriminationlegislation, governments should put more emphasison a speedy and systematic introduction of thislegislation, as well as monitoring implementation atlocal level. Moreover, cities with a high level ofimmigration should be supported by nationalgovernments in setting up local anti-discriminationoffices and informing migrants about them.

Support migrant umbrella organisationsExperience shows that the existence of migrantumbrella organisations strengthens cooperationbetween member associations, supports members indeveloping competences and increases theassociations’ influence on integration policy.Therefore, Member States should promote andsupport the establishment of these organisations andmaintain regular contact with them.

Encourage political participation of migrantsMember States are advised to foster the political andcivic participation of migrant groups by easingmigrants’ naturalisation, encourage active andpassive voting rights of people with a migration

background and increase migrants’ awareness abouttheir political rights.

Combat anti-immigrant radicalisation tendenciesNational economic, social and integration policyshould introduce preventive measures against theradicalisation of certain groups in the majority societyby combating the issues leading to ethnic, racial andcultural radicalisation. These activities may be basedon a broad alliance of all democratic forces, whichparticipate actively in the national dialogue onintercultural policy.

Foster exchange of good practiceTo improve coordination between actors involved inintercultural policies, national governments shouldcreate opportunities and funding for an exchange ofexperiences regarding intercultural policies amongcities and set up an effective coordination processbetween local and national levels.

Recommendations for cities

The following recommendations for local policy-makers are based on specific experiences in variousCLIP cities, as well as innovative ideas explored.

Define remit of intercultural policiesCLIP recommends that cities organise a jointconsultation of the responsible departments andpolitical bodies of the city together with all relevantlocal stakeholders – natives and migrants – to discusstheir understanding of culture, intercultural relationsand the scope of local intercultural policies. Involvingexperienced consultants or experts in theconsultation process could be beneficial.

Findings from the research indicate that cities shouldtry to reach agreement on a concrete definition ofculture and intercultural relations between all parties,including the creation of specific categories, norms,values, practices, rituals, symbols, worldviews, ideas,discourses and ideologies. Cities should avoiddefining cultural differences and identities only byproxy using ethnicity, religion, country of birth,nationality or language as indicators.

City councils should embrace a broad view ofintercultural policy – one that goes beyond theorganisation of music, folkloristic and culinaryexchanges of experience between minority groups.It may be useful to gear local intercultural policiestowards: ethnic organisations; improving attitudesand relations between groups and individuals;improving relationships between the police andmigrant groups; meeting religious needs; supportinginterreligious dialogue; de-radicalisation.

Given the strategic importance of interculturalpolicies for a successful local integration policy, it issuggested that a visible, high-profile political leader-ship is adopted by the Lord Mayor of the city, the citycouncil and the heads of the relevant minoritygroups, and representatives of key organisations ofthe majority society (such as the social partners,churches and sports associations).

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Consider role of intercultural policies inintegration policy

Cities should reflect on the role and importance ofintercultural policies within the strategic context of alocal integration and social inclusion policy formigrants. In this context, it will be necessary toconsider how important intercultural relations are forthe overall social cohesion of the city and of certainneighbourhoods, against a background of increasingcultural, ethnic and religious diversity. Thus, each cityshould examine the various strategic elements of itsintercultural policy, firstly by assessing the impact ofthe policy on existing diversity.

Policymakers should monitor the development ofintercultural policies over time, checking whetherthere is consistency over a long period or frequentchanges in policy direction, for example after localelections. They should also consider whether policyintervention is driven by events or based on a morelong-term approach, and whether its reach is narrowor more broad and inclusive.

Cities should assess how intercultural policies relateto local policies in order to improve the structuralintegration of migrants in employment andeducation, as well as access to social services andhousing. It will be important to consider whether allstakeholders agree that there is room for anintercultural policy alongside more structuralintegration policies.

Allocate the necessary resources

Cities need to determine the extent of resources(budgetary and human) necessary for a successfuland sustainable local intercultural policy, especially ata time when the budgets of local authorities all overEurope are extremely stretched. One part of thediscussion should look at how the resourcing ofintercultural policies is related to the resourcing ofstructural integration policy. Another element of thediscussion may focus on which component ofintercultural policies is allocated most or leastresources and for what reason.

Setting a budget for intercultural policies shouldinvolve questioning whether there is a case forintegrating the resourcing for these policies into awider social cohesion and social developmentbudget. Cities should discuss how to mobilise thenecessary resources in conjunction with otherfunding organisations – for example, public–privatepartnerships or the participation of privatefoundations.

Adopt effective policies for ethnic groups

Different components of intercultural policies

Local intercultural policies towards ethnic organ-isations may include the following components:mapping and recognition; funding; provision ofspace for meetings; empowerment; and developing ashared vision. Despite the fact that most cities do notpractise all of those components in conjunction, it isrecommended to consider all components as part ofa good practice intercultural policy.

Effective mapping as a starting pointAny local intercultural policy should be based on asystematic mapping of intercultural conditions, ananalysis of motives and objectives of the relevantorganisations, observed intercultural relations andexisting cultural, ethnic, religious and interculturalorganisations in the city. Cities should explorerelevant cultural differences between migrants andnatives and their importance for local integrationconditions and policies. Accordingly, cities should tryto bridge existing knowledge gaps in this exercise.

Recognition as a basic componentOfficial recognition of migrant organisations and theirheritage is one of the most crucial issues affectingintergroup relations in many European cities. Policiesof recognition may include establishing a consultativebody of migrant representatives to advise the citycouncil and its committees in all matters of localpolitics relevant for the integration of migrants;respect for ethnic, cultural and religious customs,symbols and holidays; mutual invitations tomunicipal, religious or cultural events; andcontinuous informal contacts between the city andmigrant organisations.

Providing the necessary supportCities can support migrant organisations throughdirect financial support, which can be organised via apublic–private partnership, or by providing space foractivities and/or rent allowances. Some cities promotethe collective use of buildings to encourage day-to-day cooperation and increased intercultural relationsbetween minority groups. Cities could consider howmuch overall direct and indirect funding should beprovided, what kind of activities should receivefunding and what kind of projects should beexcluded (for example, activities connected withcommercial or religious interests).

Empowering migrant organisationsCLIP identified four different kinds of activities thatpotentially contribute to the empowerment andsense of belonging of migrant organisations:

1. organising capacity-building programmes;

2. involving migrants as ‘multipliers’ in the imple-mentation of specific programmes for their ethnicand religious communities;

3. establishing ethnic, religious or migrant umbrellaorganisations to strengthen cooperation betweenmember associations;

4. involving community leaders from differentmigrant groups in intercultural policies.

The efforts of local authorities should be matched byproactive behaviour of migrant organisationsthemselves to enhance their effectiveness (ownfinances) and efficiency (better internal organisation).

Shared vision and inclusive identityTo avoid or resolve conflicts between various groups,cities may strive for a shared vision or an overarchinggoal that can be reached only through a commoneffort. To reach this goal, cities should develop

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strategies and measures that aim to ensure thateveryone has a sense of belonging in the city. Withinthis context, cities may consider propagating aninclusive identity strategy with the aim of creating a‘we’ feeling among local residents irrespective ofnationality. This collective local identity (for example,‘We Amsterdammers’, ‘Yours Istanbul’ or ‘Belongingto Dewsbury’) is meant to exist in parallel with ethnicidentities (for example, being a Muslim or of Turkishorigin).

Improve intergroup relations

Promoting intercultural dialogueCities could consider institutionalising interculturaldialogue between the representatives of minoritiesand of the majority society. This should be based onan open and respectful exchange of views betweenindividuals and groups with different ethnic, cultural,religious and linguistic backgrounds and heritage. Inorganising consultative bodies for migrants, localauthorities can choose between group representationversus individual representation of migrants,committees that include only foreigners versus mixedcommittees of foreigners and natives, or committeeswith either elected or appointed members.

Intercultural dialogue within city councils can beenhanced by encouraging and supporting theelection of members of minorities to the councilboard. The provision of voting rights for migrantswith long-term residence should also be considered.

Establishing informal contactA successful intercultural policy involves creatinginformal contact between members of variousgroups, reducing stereotypes and prejudice betweengroups, as well as increasing contact among andknowledge about other groups. Cities shouldtherefore establish initiatives to create opportunitiesfor different groups to meet and build relationships –for example, through informal cookery sessions,library projects or joint sporting activities, as well asefforts to encourage migrants’ participation in localmajority organisations.

Diversity through art and cultureCultural activities remain a key component ofsuccessful intercultural policies. Experiencing diversitythrough art and other cultural activities can get helppeople to get rid of ethnic and racial stereotypes, aswell as promoting ethnic and religious heritages,diversity and internationality. Cities should thereforesupport a wide variety of such events and activities;examples include the Chinese New Year, the Feast forBuddha, the Turkish children’s festival ‘23 Nisan’ orthe end of Ramadan.

Improving intercultural competencesIntercultural competence can help to reduce culturalmisunderstandings and improve peaceful intergrouprelations, while also constituting a valuable resourcefor the local economy. For these reasons, Europeancities should make an effort to raise the interculturalcompetence of their residents – for example, through

intercultural training of administrative staff and policeofficers, projects for intercultural education in schoolsand youth clubs, as well as programmes to improvemigrants’ linguistic competence.

Anti-discrimination activitiesIn order to overcome racism and discrimination andin line with EU-wide anti-discrimination legislation,cities should establish municipal programmes andcampaigns to fight discrimination and racism, set upanti-discrimination offices, or run anti-racism andanti-discrimination projects, often in cooperation withNGOs and the social partners. The existence of ananti-discrimination office and its activities should bepromoted among the minority communities, as manypeople do not know about it or have no trust in it.

Professional media strategyPublic communication and media reporting exert aninfluence on public opinion making and politicalagenda setting. Therefore, it is recommended todevelop strategies on how to report on minorities,diversity and intergroup relations in a systematic,continuous and professional way. These strategiesmay include providing municipal information invarious languages, cooperating with local media andimproving journalists’ intercultural competences, aswell as presenting the diverse population and itsactivities in a positive way.

Management of public parks and spacesNeighbourhoods and other public spaces areimportant locations for meeting and interacting withothers. Because these places are enjoyed by manydifferent groups in various ways, such interactions canbe a source of conflict, which can seriouslyundermine intergroup relations. To overcome thisrisk, it is recommended to establish interculturalmediation services that can respond to neighbour-hood conflicts and complaints regarding the use ofpublic spaces. Cities should also establish policyinitiatives promoting peaceful use of public spaces –projects to resolve conflicts over behaviour in thestreets and the use of public parks and buildings.

Improve police and migrant relationsThe police force is a key player in managing urbanintergroup relations. It is recommended thatintercultural education should be an established partof the education and training of police officers. Inaddition, the police force should step up therecruitment of officers with a migration background.

Another positive step would be to set up an inte-gration liaison unit within the police force that wouldbe trained in dealing with intercultural conflicts andmigration-related issues. Hate crime preventionstrategies are recommended to improve relationsbetween the police and migrants.

It is advisable for the police and migrant repre-sentatives to hold discussions on neighbourhoodsafety issues as a means of building mutual trust.Mosque associations and other local migrant groupsare important partners in such actions.

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Accommodate different religious needs

Mapping of religious organisations in the cityCultural diversity in many European cities isinfluenced by both increasing ethnic diversity andreligious diversity. CLIP results show that several citieshave, either for legal or practical reasons, little or nodata on the religious composition of their cities.Therefore, cities have to reflect on how to devisepolicies that consider the religious needs of anincreasing religiously diverse population withouthaving basic socioeconomic data.

The city mayor, the city council and integrationofficers should not only keep regular contact withreligious organisations of the majority population butalso of minority groups. Contact should be bothformal and informal and include regular meetings aswell as common projects.

Respect for religious needs of migrant groupsSince some migrant religions have specific burial rites,it is recommended that cities respect these and adapttheir burial rules accordingly within the remits of the‘law of the land’. Given the different beliefs of somemigrant groups, food served in public institutionsshould include food that meets the requirements ofmigrant religions. It is also suggested that religiousfestivals and holidays of migrant religions should playa role in public life.

Support requests for places of worshipCities are encouraged to support Muslimcommunities in their plan or desire to build amosque. In this regard, city councils should supportthe principle that religious freedom includes the rightto have an ‘adequate’ place of worship. For instance,cities could organise an information campaign andmediation structures in neighbourhoods wheremosques are to be built.

Initiate and support interreligious dialogueIn religiously diverse populations, cities should eitherinitiate or support interreligious dialogue dealing withfaith and/or secular topics. Tense internationalrelations between Israel and Islamic states in theMiddle East continuously threaten to affect relationsbetween Jewish and Muslim groups at the local level.Therefore, it is recommended that cities establishlocal Jewish-Muslim networks to manage tensions

and improve relations. Effective interreligiousdialogue could also be supported by educating andtraining imams within the receiving countries. Suchactivities could highlight specific socioeconomic andsociocultural conditions of the receiving society andtheir importance for good intercultural relations anda fruitful interreligious dialogue.

Develop effective de-radicalisation policies

Tackle anti-immigrant radicalisation

Preventive action against radicalisation in the majoritypopulation includes tackling the reasons forradicalisation at its source: unemployment, povertyand deprivation combined with downward mobility,lack of opportunity, lack of any positive vision for thefuture and the spread of anti-human ideologies.Problematic issues in intergroup relations should bediscussed openly and responsibly and not be hiddenunder a cover of ‘political correctness’.

Curb rise of anti-immigrant groups

Changing right-wing and racist attitudes is a difficulttask and takes time. To tackle this challenge, citiesshould use social control measures against suchtendencies and actions, involving public pressure, thejudiciary and the police. Anti-discrimination offices,where victims can report discrimination, allow for theprosecution of perpetrators. Additionally, cities shouldimplement de-radicalisation programmes forindividuals – for example, opt-out programmes.

Prevent radicalisation among young Muslims

City councils, along with national governments, areadvised to establish trust relationships with Muslimcommunities. Cities should encourage and recogniseefforts of Muslim communities to prevent or deterradicalisation tendencies. Furthermore, cities can takeaction to alleviate frustrations of young Muslimsregarding discrimination and lack of opportunities,strengthen the resilience of Muslim communitiesagainst jihadi ideology and introduce individualintervention programmes for de-radicalising youngpeople such as mentoring, coaching, social assistanceand ideological challenge. However, cities shouldremain aware of the possible radicalisation of otherreligious groups – for example, Sikhs or Hindus – andtake appropriate measures.

Further information

Teresa Renehan, Information Liaison Officerter@eurofound.europa.eu

Intercultural policies in European cities (available July 2010):http://www.eurofound.europa.eu/publications/htmlfiles/ef1032.htm

Background to the CLIP network:http://www.eurofound.europa.eu/areas/populationandsociety/clip.htm

European Foundation for the Improvement of Living and WorkingConditionsWyattville Road, Loughlinstown, Dublin 18, IrelandTelephone: (+353 1) 204 31 00Email: information@eurofound.europa.euWebsite: http://www.eurofound.europa.eu

EF/10/33/EN

About the CLIP network

In September 2006, the Congress of Local and Regional Authorities of the Council of Europe, the city of Stuttgart,and Eurofound launched the CLIP network. The aim of the initiative was to bring together large European cities in ajoint learning process over several years. Through the structured sharing of experience, the network will enable localauthorities to learn from each other and to deliver a more effective integration policy for migrants. In addition, theanalyses will support the emerging European policy debate on integration with innovative examples of integrationpolicy at the local level.

In all, 20 European cities and five research institutes from the EU-funded International, Migration, Integration andSocial Cohesion (IMISCOE) network of excellence participated in the first module on housing. Cities that activelyparticipated in the research include Amsterdam, Antwerp, Arnsberg, Breda, Brescia, Budapest, Copenhagen, Dublin,Frankfurt amMain, Izmir, Liège, Luxembourg, Marseille, Prague, Sefton, Stuttgart, Terrassa, Turku, Vienna and Zagreb.

The first module of the CLIP network in 2007 was on housing, and involved cooperation with the Committee of theRegions and the Council of European Municipalities and Regions (CEMR), as well as the European Commission’sDirectorate-General for Justice, Freedom and Security and the Directorate-General for Employment, Social Affairs andEqual Opportunities.

The second research module of the CLIP network in 2007–2008 focused on diversity policy – a core issue of the 2007European Year of Equal Opportunities. The third module in 2008–2009 focused on intercultural and interreligiousdialogue with Muslim communities at the local level and incorporated a variety of research methods. During field visits,researchers met with 700 people, including city officials, representatives of migrant organisations, the Catholic andProtestant churches, NGOs, welfare organisations and the social partners. Interviewees included journalists, academics,police officers, teachers and participants in integration projects. The fourth module in 2009–2010 focuses on variousaspects of ethnic entrepreneurship and the role of local authorities.

For the implementation of the second research module, the network was extended to 25 cities. At the end of the thirdmodule, the overall network encompassed more than 35 cities.

CLIP European research group

Centre for Migration Policy Research (CMPR), Swansea University

european forum for migration studies (efms), University of Bamberg

European Foundation for the Improvement of Living and Working Conditions (Eurofound)

Forum of International and European Research on Immigration (FIERI), University of Turin

Institute for Migration and Ethnic Studies (IMES), University of Amsterdam

Institute for Urban and Regional Research (ISR), Austrian Academy of Sciences

Institute of International Studies (IIS), University of Wrocław

Research coordinator: efms

The findings and recommendations in this guide have been prepared by Doris Lüken-Klaßen and Friedrich Heckmann,efms, on the basis of reports compiled by researchers from the above institutes.

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