(W2418) Guest Workers in Germany PDF

Paderborn University
Faculty of Business Administration and Economics

Economics
SEMINAR PAPER
GUEST WORKERS IN GERMANY:

MEASURES TO INTEGRATE IMMIGRANTS
INTO GERMAN SOCIETY
Presented to
Prof. Dr. Jungblut
Date of submission:
March 31st, 2017
Presented by
Hanh Nguyen
Study Program: W2418 International

Socio-Economic Studies
Matriculation No.: 6799848
Hanh Nguyen: Guest Workers in Germany: Measures to Integrate Immigrants into German Society
TABLE OF CONTENTS
INTRODUCTION ....................................................................................................... iii
CHAPTER 1: TERMS & HISTORICAL BACKGROUND .....................................1
1.1. Terms .......................................................................................................................1
1.1.1. Guest worker program ..................................................................................1
1.1.2. Guest workers ................................................................................................1
1.1.3. Integration .....................................................................................................1
1.2. Historical background............................................................................................2
1.2.1. West Germany ...............................................................................................2
1.2.2. East Germany ................................................................................................3
1.2.3. After 1973 ......................................................................................................3
CHAPTER 2: MEASURES TO INTEGRATE IMMIGRANTS INTO GERMAN
SOCIETY .......................................................................................................................5
2.1. Current situation of migration to Germany ........................................................5
2.2. Measures to integrate immigrants into German society .....................................6
2.2.1. Integration courses ........................................................................................6
2.2.2. Integration projects .......................................................................................8
Appendix: Difficulties in integrating into Japanese society ......................................9
SUMMARY ..................................................................................................................13
REFERENCES ..............................................................................................................v
SIGNED DECLARATION ....................................................................................... viii
ii
INTRODUCTION
During 1950s-1960s, Germany received its first immigration flow, which were guest
workers from Italy, Turkey, Poland, etc., due to a serious lack of labour after the World
War II. Since then, the number of immigrants moving to Germany has been raising
dramatically, from more than 100,000 immigrants in 1950s to over 2 million in 2015
(Destatis, 2017). They enter every aspect of life. Regarding education, in 2015 about
one third of children and adolescents under the age of 20 had a background of migration.
Concerning labour market, the figure of people having a migration background made up
nearly 20% of the labour force. Also in the year 2015, around 6 million eligible voters
were immigrants or immigrant descendants. (Destatis, 2016) That is to say, migration is
an important factor in the erosion of traditional boundaries like languages, cultures,
ethnic group, and nation-states. Even if you are not part of migration, you are affected
by movements of people in or out of your community, and consequently change.
In the context of worldwide integration, being given the topic Guest workers in
Germany, I would like to investigate how immigrants can integrate into a society, or
into German society in particular, for migration is not only a single act of crossing a
border, but also a lifelong process that affects all aspects of the lives of those involved.
This paper attempts to give basic information on the history of guest workers in
Germany as they are considered to be the first immigrants to move to this country, and
to list some efforts of Germany as a whole to integrate immigrants into the society. And,
as part of the course/program, a section on obstacles to with immigrant integration in
Japan is attached at the end of Chapter 2. Although Japan currently does not bear the
burden of a massive influx of immigrants, the country is gradually accepting foreign
workers because of its rapidly aging population.
The structure of the paper is as follows:
Chapter 1: Terms and historical background
Chapter 2: Measures to integrate immigrants into German society
Appendix: Integrating foreign workers into Japanese soceity
Summary
I would like to give special thanks to Prof. Dr. Jungblut for the valuable program with a
lot of interesting fieldwork trips, through which the participants are able to enrich their
knowledge about the history of Germany and build their own perspective on currently
iii
controversial issues. However, due to the time limit as well as personal restrictions,
mistakes are unavoidable. Hence, all comments or remarks on the paper are highly
appreciated.
iv
CHAPTER 1: TERMS & HISTORICAL BACKGROUND

1.1. Terms
1.1.1. Guest worker program
A guest worker program, or temporary worker program, is a program in which foreign
workers are allowed to work and reside in another country, called a host country, for
a specific period of time, depending on the term of their contract/agreement. Once the
contract has expired, those foreign workers are supposed to return to their home
countries. Accordingly, they are not granted the privileges associated with citizenship.
1.1.2. Guest workers
To put it plainly, people participating in a guest worker program are called guest
workers. As explained in (1.1.1), guest workers are not considered permanent
immigrants because of the temporary nature of their contracts; therefore, the term
migrant workers can be used to replace. Article 2, Section 1 of the International
Convention on the Protection of the Rights of All Migrant Workers and Members of
Their Families (1990) defines a migrant worker as a person who is to be engaged, is
engaged or has been engaged in a remunerated activity in a State of which he or she is
not a national. However, migrant workers, in fact, has a broader meaning because
migrant workers may move within a country to seek for jobs, while guest workers are
employed from areas outside of the host country.
Other terms that have similar meaning: temporary labour migrants, overseas contract
workers. Together with migrant workers, such terms are used as synonyms for guest
workers, hereinafter.
1.1.3. Integration
Integration, according to the United Nations, has two meanings:
(1) Providing stability to a social group: Without a certain level of integration, social
organisation cannot exist. In this sense, integration includes organisational
principles like the division of labour, the public celebration of solidarity, norms and
rules, etc.
(2) Acculturation, i.e. the process of making someone equal or fitting to the rest of
society. The concrete measures to produce integration of immigrants can vary
according to the concept of culture that is being used. Nearly all concepts of
acculturation, though, implicitly assume, that native members of a host country
1
already share the same traits which the immigrants still have to attain. Acculturation
inevitably aims at reducing cultural diversity. (UNESCO, 2017)
In Benchmarking in immigrant integration (2003), Han Entzinger and Renske Biezeveld
saw integration from three viewpoints. From a cultural perspective (migrants
cultural orientation and identification), integration refers to the extent to which
individuals experience a sense of belonging to a community by virtue of sharing its
norms, beliefs and values (social identity). [] From a structural point of view,
integration refers to the participation of migrants in the host country institutions: labour
market, education, health care. In this context public policy attitudes are fundamental in
shaping the degree of migrant participation in the host country institutions. [] From a
legal and political point of view, integration means equal rights for all citizens (rights
conferred by citizenship).
1.2. Historical background
1.2.1. West Germany
The World War II resulted in a serious shortage of labour in Germany as well as in many
continental Northern European countries, namely the Netherlands, Belgium, Sweden,
Denmark, Norway and Finland. As a consequence, the Federal Republic of Germany
(FRG, BRD - Bundesrepublik Deutschland, or West Germany) signed a contract, named
Gastarbeiterprogramm or guest worker program, with Italy on 20th December
1955, and this became the first recruitment treaty.
However, together with social and political factors such as a reduction in working hours
and low-birth years, reconstruction after the World War II and the accompanying
economic boom called on assistance from industrial workers. Particularly in Germany,
it was said that the job supply at that time far exceeded the quantity of employable
German workers, thus the government had no choice but to recruit foreigners. In 1960,
when approximately 200,000 Italian workers were already living in West Germany, the
FRG entered into a similar agreement with Spain and Greece, and later with Turkey
(1961), the Kingdom of Morocco (1963), Portugal (1964), Tunisia (1965) and
Yogoslavia (1968). Most guest workers were low skilled and worked in construction,
mining, heavy industry and auto industry (Germany.info, n.d.).
In 1973, due to the oil crisis and the worsening economic situation, the recruitment of
guest workers was stopped. Under the bilateral recruitment contracts, work permits were
2
limited in time; the guest workers were assumed to come back to their homelands.
However, most of them came from less developed areas, while the compensation they
received in Germany was better than that of their countries of origin. As a result, poverty
and unemployment were the causes for the move to Germany. Furthermore, there was a
trend toward subsequent immigration of family members by the end of the 1960s and
the early 1970s, which accelerated the halt order in 1973. For many, their temporary
employment became a permanent stay. Migrant workers had become immigrant
workers.
1.2.2. East Germany
The division of Germany in 1949 led to a severe labour shortage in East Germany.
Likewise, since 1960s, East Germany, also known as the German Democratic Republic
(GDR) or Deutsche Demokratische Republik (DDR), recruited foreigners. Those foreign
workers were called contract workers and came from fraternal socialist countries,
primarily from Vietnam, Cuba, Mozambique, Poland and Hungary. The number of these
contract workers was, however, much smaller than that of West Germany, and nearly
all of them lived in dormitories, or even in outer-districts, in much harsher living
condition, and had little contact with Germans.
1.2.3. After 1973
Up until 1973, the number of foreigners in Germany Chart 1.1: Guest workers in
increased in terms of both numbers and their share of Germany: Countries of origin (1973)
the labour force. There were about 4 million
foreigners, occupying 6.7% of Germanys total
population (Oezcan, 2004). At the same time, the
portion of countries of origin changed. By 1973, the
most important country of origin was no longer Italy
like in 1960, but Turkey, which accounted for 23% of
all foreigners. The share of each country where guest
workers came from can be illustrated as in Chart 1.1.
(Oezcan, 2004)
The demand for foreign workers fell off in 1973, causing the guest worker program to
be halted. Whereas many guest workers were leaving, high levels of immigration stayed
due to family reunification of the remaining workers. Consequently, the number of
3
foreigners was almost constant throughout the 1980s at between 4 and 4.5 million.
Nevertheless, the labour force participation of immigrants dropped. In 1988, the 4.5
million foreigners in Germany made up 7.3% of the total population. Around 1.6 million
were wage and salary earners; another 140,000 were self-employed. By this time, a
growing share of the foreign population was being born in Germany; they are considered
the second generation (Oezcan, 2004).
4
CHAPTER 2: MEASURES TO INTEGRATE IMMIGRANTS

INTO GERMAN SOCIETY
2.1. Current situation of migration to Germany
Since the second half of the 19th century, Germany has transformed itself from a country
of emigration to a major immigrant destination, with guest workers as the first wave of
immigrant, following by the family reunification of those foreigners. There were
approximately 81 million inhabitants in Germany in 2015. 7.8 million, equivalent to
9.5%, were foreigners, of which 1.4 million did not have migration experience as they
were born in Germany. Among 17.1 million living in Germany that had migration
background, 9.3 million people held a German passport, 7.8 million were foreigners,
and about 11.5 million had migration experience. (Destatis, 2017) The data from the
United Nations and Migration Policy Institute shows that in 2015 Germany was the
second most popular migration destination in the world (after the United States) with a
number of around 12 million migrants, accounting for 14.9% of its population.
Chart 2.1: Migration to Germany, 1950 - 2015
2,250,000
2,000,000
1,750,000
1,500,000
1,250,000
1,000,000
750,000
500,000
250,000
-250,000
1950 1955 1960 1965 1970 1975 1980 1985 1990 1995 2000 2005 2010 2015
Migration surplus or deficit Immigrants Emigrants
(Destatis, 2017)
The chart above presents the figures of migrants moving to and leaving Germany from
1950 to 2015. The statistics from Destatis show that in 2015 the quantity of migrants
5
and net migration moving to Germany peaked at 2,137,954 and 1,139,402 respectively.
Also, it is reported that up until 2015, immigrants from Turkey constituted the largest
proportion of the total immigrants in Germany, at 18.20%, followed by those from
Poland (8.50%) and Italy (7.10%). Details are illustrated in the chart below:
Chart 2.2: Immigration to Germany: Countries of origin (2015)
Turkey,
18.20%
Poland, 8.50%
Other, 57.60%
Italy, 7.10%
Romania, 4.60%
Greece, 4.00%
(Eurostat, 2016)
2.2. Measures to integrate immigrants into German society
Immigrant integration is the process of economic mobility and social inclusion for
newly-arrived immigrants and their children. As such, integration touches upon the
institutions and mechanisms that promote development and growth within society,
including early childhood care; elementary, postsecondary, and adult education systems;
workforce development; health care; provision of government services to communities
with linguistic diversity; and more. Successful integration builds communities that are
stronger economically and more inclusive socially and culturally.
In an attempt to integrate a massive influx of immigrants, Germany has come up with
many courses and projects designed for different targets.
2.2.1. Integration courses
The integration courses, part of the Immigration Act 2005 and carried out by the Federal
Office for Migration and Refugees, aim to support integration in terms of social
citizenship and equal opportunities and primarily support the integration of newly-
arrived immigrants. They cover everyday topics such as the workplace, shopping, TV
and radio, and childrearing. Participants learn about dealing with administrative offices,
6
writing emails and letters, and interviewing for a job. Joining integration course,
immigrants have a chance to learn more about Germany as a country, from numerous
perspectives: culture and politics, the way people live and interact in Germany, and the
values on which German society is based, etc. Each course consists of a language course
and an orientation course. The Federal Office for Migration and Refugees also offer
special types of course in which people of the same situation, for instance: women,
parents, young adults, or people who lack literacy skills, are grouped together and learn.
Language is the key to successful integration, and thus is a necessary prerequisite. It is
the only way to make communication and mutual understanding possible. Furthermore,
language opens the door to the way in which a culture thinks and feels. The language
course consists of a basic and a follow-on course. Its modular structure enables
immigrants to begin the course in line with their current level of knowledge. The aim is
to achieve language skills corresponding to level B1 of the Common European
Framework of Reference for Languages. This level marks the first stage of independent
language use, which means that the person in question can express his- or herself simply
and coherently on familiar topics and subjects of personal interest. Language skills are
taught using topics relevant to daily situations, for example: accommodation, children
and family, work and professional life.
However, to be able to get acquaintance to a new environment, knowledge of social,
cultural and economic life is also essential. As a result, the orientation course is brought
out. It includes the modules Politics in a democracy, History and responsibility and
People and society, aiming to provide knowledge of topics such as rights and
obligations, democracy, government structure, the history of the Federal Republic of
Germany, regulations, time, religious and cultural/regional diversity, view of mankind
and coexistence in Germany. The factual knowledge would enable the participants of
the course to develop a positive view of Germany, encourage them to identify with their
new home and facilitate social participation.
Two years after the Immigration Act came into force, there are indications that the
measures to integrate immigrants are working and producing successful results. Nearly
249,000 people have now attended one of about 17,000 integration courses run by
almost 2,000 course providers across Germany. More than 359,000 people have had the
opportunity to attend an integration course. On another note, two key trends can be seen
7
in the development of the integration courses. Firstly, foreigners who have been living
in Germany for several years showed great interest in the courses. They account for
58.6% of those participating in the courses. Secondly, the integration courses are
reaching its key target group, women, as they, particularly mothers, play a substantial
role in their childrens integration process. During the past two year, the amount of
female attendance of the integration courses was 63.3%.
2.2.2. Integration projects
In addition to integration courses, other local activities have been taken into account to
support immigrants.
A Culture of Welcome
The Culture of Welcome projects have volunteers supporting new immigrants as
sponsors, mentors or guides when it comes to questions and problems occurring in
everyday life. The volunteers take time, are open-minded when it comes to other
cultures, and are tolerant. They accompany individuals or families at appointments with
public authorities, to appointments with doctors, in kindergartens and schools. Others
help in finding accommodation, show immigrants around town, hold German
conversation groups and provide homework tutoring. The projects frequently also
incorporate sports, culture and other leisure activities where newly-arrived immigrants
and locals can meet each other and engage in activities together.
Leisure and sport programmes
Immigrants have the chance to meet new people and build contacts when joining leisure
activities such as music, dance, and especially sport. At the initiative of the Federal
Government, the German Olympic Sports Confederation founded the Integration
through sport programme in 1989 in the form of Sport with resettlers. The aim of the
programme, sponsored by the Federal Office for Migration and Refugees, is to allow
immigrants to participate in the life of various different associations and in training and
competitions over the long term. A wide range of sporting and leisure programmes is
offered by the clubs: apart from volleyball, handball, basketball and gymnastics, there
are also specialist courses such as Sambo, boxing and wrestling. In conjunction with
other organisations, events are organised such as street football tournaments, midnight
sports, indoor tournaments, intercultural parties and holiday leisure events. These
activities offer young people the opportunity to get to know each other better and to
8
create something new together, which breaks down prejudices and improves young
peoples skills in many different areas.
Enhancing skills
Not all juveniles with a migration background find it easy to integrate into life in
Germany. Difficulties experienced with their own identity, at school and at work or in
their social environment can make it difficult for some to cope in Germany, which may
lead to a lack of self-esteem and despondency, as well as to violence and crime.
As a result, these young people are guided with the support of social educationalists in
projects to help them develop their own ideas and implement them in a team. This
promotes drive and team spirit, independent action, endurance and discipline. The
projects also identify and nurture their personal strengths. They take responsibility for
themselves and pursue a goal which they have selected themselves. They jointly plan
and organise social activities. This enables them to gather experiences which enhance
their self-confidence, and obtain skills which are helpful for both work and social
situations.
Appendix: Difficulties in integrating into Japanese society
During the late 1980s, Japan faced the influx of unskilled foreign workers from less
developed countries. Since then, the number of foreigners living in Japan (mid to long-
term and special permanent residents) has increased steadily and reached 2,121,831
people at the end of 2014. In spite of its overall growth, the figures made up a small
portion of Japans population and remained under 1.80%.
Chart 2.3: Changes in the number of foreign residents
and the percentages to the total population of Japan
2,500,000 1.80%
1.60%
2,000,000 1.40%
1.20%
1,500,000
1.00%
0.80%
1,000,000
0.60%
500,000 0.40%
0.20%
0 0.00%
1980
2013
1955
1960
1965
1970
1975
1985
1990
1995
2000
2005
2006
2007
2008
2009
2010
2011
2012
2014
Foreign residents Percentage of the total population
(Basic Plan for Immigration Control, 2016)

9
Chart 2.4: Number of mid to long-term residents by status of residence for work
(excluding Diplomat, Official and Technical Intern Training)
220,000
17,373
200,000
24,966 16,686 7,211 10,141
21,512
180,000 10,076 15,184
10,012 10,121 Others
10,106 13,439
10,908 12,609 15,378
160,000 11,778
16,140 14,867 15,218 Instructor
14,636
140,000 33,374
30,142 33,863 33,425 Investor/ Business Manager
31,751
120,000
People
Intra-company Transferee
100,000 45,892
46,592 42,273 43,038
42,634 Skilled Labour
80,000
Engineer
60,000
40,000 Specialist in Humanities/

69,721 72,319 76,902
68,467 67,854 International Services
20,000
0
2010 2011 2012 2013 2014
(Basic Plan for Immigration Control, 2016)

According to the Ministry of Justice of Japan, in 2014 most of the mid to long-term
foreign residents stayed in Japan with the purpose of work (10.10%). This shows that
foreign nationals in professional and technical fields will be necessary and essential
human resources in the future in order to maintain and develop the vitality of the
Japanese economy and society. Japan is known to have a rapid progression in the
declining birthrate and aging population, leading to a reduced working-age population
since the mid-1990s as well as a decline in the overall population. The population in
2030 is predicted to decline more than 10 million people compared to the population in
2010. As a result, Japan is gradually opening up to foreign workers.
During the last two decades, Japan has prompted the development of integration policies
and practices. Numerous studies have focused on language support for migrant children;
however, language support for adult migrants has received less attention. Meanwhile,
the ability in a local language would facilitate integration of immigrants into the host
country. Especially in Japan, the ability to use Japanese is expected to have a substantial
impact on integration as the local language, in this case, is spoken by an overwhelming
majority of population. Nonetheless, the support and opportunities for immigrants to
10
acquire Japanese language skills have been limited. Tomiya (2009, 2010) notes that
Japanese language education of immigrants has been largely done by local volunteers
due to lack of integration policy planning by the Japanese central government.
At the national level, there are two potential ways to meet the language needs of
immigrants and to facilitate their socioeconomic integration: Japanese language
education for immigrants, and provision of information in multiple languages. There is
increased acknowledgement for the need of providing opportunities for immigrants to
acquire Japanese language skill to enable them to have independent lives in local
communities.
There are an increasing number of local governments that autonomously conduct
Japanese language education projects, sometimes with the cooperation of local
government affiliated institutions and local volunteers. However, the number of
attendees in language courses provided by local government and government-affiliated
institutions is limited in comparison to the foreign population in the municipalities.
There are three main barriers for potential attendees in entering and continuing their
studies, which are: 1) physical accessibility, 2) the lack of information about courses,
and 3) limited course offers, especially for intermediate and advanced leaners. First, the
number of venues of local governments courses is not sufficient, making them, on
average, far from migrants residences or work places. Furthermore, the courses often
take place during the daytime, and there are limited courses available during weekends
and after work times, which also makes it difficult for migrants with daytime work to
undertake studies. Secondly, it should be noted that not all potential students are aware
of the language courses, which is mainly transmitted through institutions websites and
leaflets in public libraries or town halls. Therefore, it is suggested to publicize the
information about Japanese language course more widely to make the courses more
accessible for foreign residents. Last but not least, a limited course offering is another
barrier for foreign residents who want to improve their Japanese skills through public
courses. This implies that public institutions support puts emphasis on acquiring basic
level Japanese language skill, and immigrants needs may not be sufficiently met to
reach the level at which that they can have an independent life in Japan.
Additionally, there are language courses offered and run by NGOs and volunteers.
Nevertheless, such courses have a notable drawback. It has become increasingly difficult
11
for volunteer teachers with limited training and teaching experiences to handle classes
with the increased varieties of attendees. Consequently, foreign residents are subject to
inequality of language education provisions, due to the lack of standardization of teacher
qualifications and course contents.
12
SUMMARY
In recent year, migrant crisis, especially when it comes to refugees, has been a debatable
issue all over the world. Germany, as a top destination for migrants, has proposed many
feasible actions to deal with this problem. This paper has presented factual information
about guest workers, considered to be first immigrants coming to Germany, current
situation of migration to Germany, and some remedies to integrate immigrants into the
society. Besides, struggles to integrate immigrants in Japan are introduced in the paper
as this nation is gradually accepting foreign workers. However, integration is a long-
term process with the aim of including everyone in one society on a permanent and legal
basis. I hope that the findings in this paper would, to some extent, be a source for Japan
to find a new direction for this topic.
13
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Gengo Hosho not tameni (Analysis on Community Japanese Language Education:
Toward the Guarantee of Newcomers Linguistic Rights and Participation in
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23. Tomiya, R. (2010). Newcomer to no Kyosei to Nihongo Kyoiku: Gengo Keikaku
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vii
SIGNED DECLARATION
I declare that this work has been compose solely by myself, without unauthorized
assistance from third parties and using solely the sources and help referenced on this
work. I confirm that other authors literal or content-related contributions have been
explicitly referenced on this work. I further state that no substantial part of my work has
already been submitted to other examination office for any other degree or professional
qualification.
Paderborn, 31st March 2017 Signature
Hanh Nguyen
viii

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Paderborn University

Faculty of Business Administration and Economics

GUEST WORKERS IN GERMANY:

Study Program: W2418 International

CHAPTER 1: TERMS & HISTORICAL BACKGROUND

CHAPTER 2: MEASURES TO INTEGRATE IMMIGRANTS

Migration surplus or deficit Immigrants Emigrants

Foreign residents Percentage of the total population

(Basic Plan for Immigration Control, 2016)

40,000 Specialist in Humanities/

(Basic Plan for Immigration Control, 2016)

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