Politici de integrare a migranţilor

Work Integration Social Enterprises¹
Devices for the promotion of social inclusion and labour activation of the most vulnerable immigrants. The case of the Basque Country

ESTHER ARETXABALA
[University of Deusto]

Abstract:
This article highlights the role played by Work Integration Social Enterprises as mechanisms which offer jobs to people with difficulties entering the ordinary labour market through social and employment programmes which promote the employability of beneficiaries, some of whom are international immigrants. Despite their quantity, which now amounts to more than 5.7 million in Spain – the 12.2% of its population-, they make up a group that is specially exposed to social risks and levels of poverty. Such entrepreneurial devices, as transition companies for the labour activation and the social inclusion of the most vulnerable immigrants, contribute to the attainment of a more inclusive and cohesive society. We shall define the work of the Work Integration Social Enterprises in the Basque Country where the international migration is rated in the 6,6% in 2011.

Keywords: Labour activation; Social inclusion; International immigrants; Work Integration Social Enterprises; Social and Solidarity Economy; Basque Country

Introduction¹

The recent evolution of poverty and inequality in Spain is defined by two major phenomena of economic and social transcendence. On the one hand, by the consolidation of the country as immigration destination in the last decade and, on the other hand, the abrupt variation in the economic cycle in 2008, following a long boom in  production and employment. Specifically, the most remarkable change in the first decade of the 21st century of all the deep transformations in the economic and social structure of Spain is perhaps higher immigration, which has made Spain  an important receiver nation of  migratory flows². In other words, while Spain fed the migratory flows towards the American continent in the 19th century and to other European countries in the following century, it has now become a favourite destination for new international migrations. More than 5.7 million residents of foreign origin have settled in Spain ( cf. date .1.1.2001, National Statistics Institute).

The impact of immigration in Spain is also evaluated by the proportion of  foreigners as a whole compared to the total population, now representing 12.2%. This figure is almost twice the average of the European Union in 2010 (6.4%)  (cf. Eurostat, 2010). Until recent times, Spain has been a country of emigrants, since its trajectory as a country includes both important flows of emigrants towards foreign countries- mainly Europe and America- and internal movements from the farming areas to industrial regions- Catalonia, the Basque Country and Madrid. Therefore, the change in the trend of the exterior migratory balance, with the arrival of immigration to Spain was quite new and can be attributed to specific factors, such as the political, social and economic changes that have transformed the country.  Examples include its entry in the European Union and the welfare state, the rapid drop in the birth rate and the resulting ageing of its population and the need for a work force³. This means that these migratory flows to Spain have taken place mainly due to two reasons: firstly, the attraction of the legal and submerged Spanish economies which had grown in the last years and demanded a work force and secondly, owing to the conditions causing these people to leave their native countries (poverty, insecurity…), The rapid economic growth in the first years of the 21st century, a stronger labour market,  the importance of the submerged economy in some sectors, Spain’s geographical proximity to  some sender countries-mainly the Maghreb- and the historical links with certain countries which are potential  senders  - i.e Latin America- are some of the factors that have contributed to making Spain a destination for immigrants. It is a fact that Spain is currently one of the European Union member nations receiving the highest number of foreign immigrants and also ranks high worldwide, making it difficult to assimilate such a drastic change in the trend of the exterior migratory balance. Therefore, Spain has undergone the transformation from being a sender nation to become a receiver nation of immigrants, according to the events of the last five year periods.

The number of foreigners registered on the census in Spain between 2000 and 2010 increased to almost five million, with three million of them being non EU citizens. This nuance should be pointed out, since the social and economic situation of EU and non EU foreigners is quite different. This means that the Spanish migratory system has been characterized by an intense flow in a short period of time. 

Likewise, the Basque Autonomous Community has its own trajectory and features regarding immigration. Although immigration is not a new issue in the Basque Country, after the waves of internal migrants who arrived, attracted by the industrial boom, and  was a distinctive feature of the demographic evolution of the sixties. The Basque Country started to register a negative migratory balance in the nineties, coinciding with high jobless rates. However, at the end of the 20th century, when immigration was again a significant factor for the first time after many years, the migratory balance was positive in the 2001 census. Unlike the migratory movements in the second half of the 20th century, made up mainly of Spaniards, immigration in recent years shows many foreigners entering the country, when it was difficult to find native workers to fill jobs in certain activities and professional categories.

In recent years, the foreign population has steadily increased, adding up to 145,000 people registered in the Basque Country, accounting for 6.6% of the total population in 2011⁴. The abovementioned increase can be also seen on the Basque labour market, which has registered significant growth in the number of immigrants employed. The number of foreign workers affiliated to the Social Security has undergone sharp increases, with 31,744 registered in 2005, practically tripling the 10,690 registered in 2001. Figures rose again in 2009 to reach 49,412, accounting for 5.31% of foreign workers compared to the total number of employees registered in the Basque Social Security system⁵.

As a result of the marked increase in immigration from other countries, Basque society has become a plural one. This is not simply a quantitative issue, but also a qualitative one, and the process is not likely to be reversed. The origin of the foreign population in the Basque Country is mainly Latin American (42.4%) followed by people coming originally from EU member nations  (24.9%) – being the Romanian nationality the most numerous, with 16,220   living in the Basque Country- with people born in the Maghreb (15,2%) ranking third⁶. All these aspects have meant not only an increase in the population at a quantitative level, but have also generated increased cultural and ethnic heterogeneity, since they have brought with them more than one hundred different nationalities and a multitude of languages, habits, religions, beliefs and new phenotypes that have brought about deep changes in the social fabric, which is another process that is not likely to be reversed..    

Nowadays, after years of a progressive increase of the foreign population, a new stage has been reached where real equality of immigrants has to be achieved compared to the native population, evolving from an instrumental view of immigration ( there is immigration because it is needed and is contributes to the economic growth of the country).  The new approach emphasizes the fact that immigrants are citizens and individual subjects with legal rights, since a democratic society which aims to be a fair one has to combat exclusion and in the case of the immigrants, there is a great contrast between their considerable contribution to economy and society and the unequal treatment and even discrimination some of them are subjected to⁷. 

Chiaroscuros in the Spanish migratory process

It should noted that integration in a new society is a very complicated process and calls for efforts in several fields, because it includes accessing the work market, housing, public services (especially the ones in the fields of welfare and education), private services (banks, insurances etc), setting up social and cultural relationships with the community, participation in  political processes and, even in some cases, learning a new language. The transformation of new residents into citizens with full rights, in such a way that they can become part of the society, while also maintaining their cultural features, is the complex goal which must be achieved to succeed in the challenge of their integration and⁸ is essential to inclusion and social cohesion⁹. In fact, the group of international immigrants make up a group which is especially exposed to social risks, because of their difficult social and labour integration ( this is, in certain cases due to problems with the language, to  insufficient training compared to the native population or because of difficulties in having their qualifications recognised..) and for having greater probabilities of suffering from the repercussions of the unemployment and the work¹⁰ and wage¹¹ precariousness owing to the fact that they have spent less time in the country and have fewer accumulated rights, since both their vulnerability on the labour market and their exclusion from citizenship go against them¹². Although entering the labour market appears to be the main reason explaining the arrival of immigrants, the importance of employment is such that finding employment appears to be the main pillar of   normalization, since employment is the best safeguard against exclusion and the main mechanism of acquisition of rights in our society.  Therefore, it is urgent for the immigrants to get a job, not only to have available income, but also with an view to  regularizing his legal  situation¹³.  However, the labour market has distinctive features within the reference framework for  labour insertion of immigrants. If we analyze the specific features of the jobs they get, not all but most of them are concentrated in some activities  with the worst work conditions or the highest work accident rates and we can understand the way they have been defined as the „three P jobs”: the most painful, the most perilous and the most precarious. In this way, immigrants suffer from three types of discrimination on the job market: firstly, institutional discrimination, which means the one created by public regulations in force and from the restrictive administrative practices in the interpretation or application of those regulations; secondly,  structural discrimination, from the general devices of the labour market, which offer indirect routes through statistical evidence and thirdly, the discrimination in the company¹⁴. For instance, the working conditions of foreigners have been characterised by precariousness in Spain, since 60.4% of  immigrants had  temporary contracts between 2003 and 2007¹⁵. All these factors worsen the discrimination of the foreign workers and their lack of opportunities to develop their skills in the same conditions as the native inhabitants to achieve  satisfactory work conditions and social insertion¹⁶. Hence, it is this vulnerability in  the field of work which  leads immigrants to social exclusion¹⁷ and, therefore it  is not surprising that immigrant populations show rates of poverty remarkably higher than the ones of the native population¹⁸, when, for instance, in the year 2010 the unemployment rate among immigrants almost doubled that of native (29.8% versus 18.0%) (INE, 2010).

Work Integration Social Enterprises. Contextualization in the Social and Solidarity Economy

It is on this scenario that the Social Economy receives more prominence because it offers a new and innovative method of active inclusion to socially underprivileged groups, generating employment and promoting employability from a space different from the State and traditional market. 

Specifically, the Social Economy, as opposed to the Traditional Economy, integrates new and Solidarity concepts, including social commitment. Despite the fact that the term Social Economy is commonly used, there is widespread debate about what it means and encompasses. There are in fact several terms used in an alternative way including „social economy” „Solidarity economy” „third sector” and so on. However, it is increasingly common to find reference to the „Social and Solidarity Economy”¹⁹. The Solidarity Economy was created from the common trunk of the Social Economy and marks an attempt to rethink   economic relationships from different parameters. However, it is advisable to point out some elements and dynamics which cause the coexistence of these two terms to undergo a process of continuous review. In debates the extreme institutionalization of some companies belonging to the classic Social Economy is constantly criticized together with the loss of the core values of cooperativism and associationism which cause some firms in the Social Economy to keep only the name, but not the essence. In addition, the Social Economy is more agile at integrating thematics and undertakings which broaden the interests of the Social Economy as an economic discipline and as catalyst of  social change, although  solidarity should be interwoven through intersectorial alliances and strategies with a broader social and political depth (Lewis and Swinney, 2007). This differentiated sector of the economy has become a crucial element, regarding social innovation, economic innovation and a means of active inclusion, supported from the context of the EU²⁰. These firms, set up in every sector of the economy, mean major transformation for the most underprivileged groups,   far-reaching changes  in  access to employment and society in general²¹. This also has repercussions  on   migration  since labour  vulnerability and  social inequality affect immigrants in particular,  being a group which is more prone to  social exclusion. This is due to the accumulation and interrelation of social fragility factors which characterize  them and hinder their participation in  spheres of the social life under conditions enjoyed by native inhabitants  and according the dominant normative scheme as we have mentioned before²².

If the inclusion of immigrants and ethnic minorities in society is a priority in the successive European agendas and hence, of the member states, because immigrants are one of the groups which have been considered to be a priority for social cohesion (European Commission, 2010a, 2010b), The European Union  has also been interested in this other way of forming enterprises, characterized mainly by the incorporation of social elements  such as cohesion, inclusion, creation of employment, antidiscrimination, integration, participation and so on which are promoted from  companies in the Social and Solidarity Economy. This type of economic sector is based on the main principles of the European social and welfare model and plays a key role in the preserving and strengthening this model. The most recent proof of this acknowledgment can be found in the Resolution of the European Parliament of September 8, 2010 which urges the European Union and the member states to take into account Social Economy enterprises and the different  types of enterprises in  future employment policies²³. Likewise, it is encouraged to make the most of the potential of the Social Economy from the emblematic initiative of the „European platform against poverty and social exclusion” to achieve integral growth within the strategy Europe 2020 (European Commission, 2010b).

Therefore, the acknowledgement from the member states and several international organizations allow us to state that Work Integration Social Enterprises also perform an institutional role as a factor for endogenous development. They are inclusive entrepreneurial models which promote the generation of opportunities with the goal of improving the standard of living of those people suffering from social exclusion, since the Work Integration Social Enterprise must be understood in a broad sense, as an organization which aims to create  social value through an economic activity²⁴. In Spain, in the recently passed Law on Social Economy 5/2011, of March 29, a pioneering law worldwide, it is defined as the whole of economic and entrepreneurial activities, which are carried out in the private sphere by those entities whose aim is either the collective good of their members or the general common economic or social interest or both. Apart from this, cooperatives, mutualities, foundations, associations which perform economic activities are also included as social economy entities. This includes Work Integration Social Enterprises, special employment centres, fishermen’s guilds,  farming businesses for processing, and the singular entities created by specific regulations which are ruled by the principles set up in this new Law. This means that it is  shaped by different agents who act in very different settings, but with the common core of identity  being private organizers which carry out an activity whose primary goal is to meet the needs of people, rather than pay or cover capitalist investments,  Not in vain, Social Economy entities are developed with the goal of fostering the development of employability among underprivileged social groups.  They include a wide range of organizations and companies which, in turn, form a dynamic and ever-evolving group of players guided by the principles of solidarity and participation, producing goods and services while they pursue and share economic and social objectives as values and principles of action, seeking a balance between  economic success, equity and social justice. Therefore, in qualitative terms, the Social and Solidarity Economy is productive in: generating  social cohesion and  integrating people suffering from or at serious risk of social and job exclusion. They approach globalization from a sustainable perspective, with a strong commitment to local aspects, something which is more essential today than ever to brake the increasing relocation of firms. Human rather than financial capital is the priority. These types of economic sectors are providing answers and solutions to issues such as  labour and personal support for immigrants, the disabled, ex drug- addicts, ex inmates and other at the risk of exclusion. This is a way to contribute to the creation of a less exclusive and more democratic society.

Therefore, the impact of the Social and Solidarity Economy on immigrants is unquestionable, since it makes  social integration of underprivileged groups in general easier,  thanks to their insertion in the labour market²⁵. In the case of certain immigrants with fewer skills,   Social and Solidarity Economy entities in general and Work Integration Social Enterprises specifically, are a means to access the labour market and also a new link for the development of personal competences. This is a space which is not dependent on social benefits favoured by official institutions and the very mechanisms of the traditional labour market. Social companies not only help their beneficiaries to attain  alternative of social insertion, but help them to reinforce their   integration in society and eliminate the risk of social exclusion. Work Integration Social Enterprises, among other firms in the range of Social and Solidarity Economy entities are instruments run from non-profit entities which develop social and work incorporation programmes, allowing people in the process of insertion to acquire competences, skills and responsibilities in an entrepreneurial environment, as a stepping stone to the work market. In fact, Work Integration Social Enterprises are structures which produce goods and services, with the additional objective of the social integration of their workers. They act as transition companies where people experiencing difficulties achieving social and work insertion develop the necessary skills (employability) to perform work through „learning by working”²⁶. That is, they are based on a model of insertion through work, an economic one, based on the design of implementation and customized itineraries.  Therefore, they are a new model of action opposed to what we could call „passive elements” offered from the States’ social protection systems. They approach exclusion from an active point of view for those specially sensitive groups at risk of being excluded from the social fabric²⁷. These Work Integration Social Enterprises work in sectors where the labour force required is not highly qualified: recycling, residues, carpentry, bricklaying, courier services, customized services and so on. Their methodology is rounded off by a customized itinerary of work insertion which aims to monitor the person in his/ her process of insertion with practical training in a real work environment. This is the main innovation of Work Integration Social Enterprises. We are therefore referring to initiatives which generate synergies in  society, integrating vulnerable groups of people:  At the same time, they are generating an impact in the economic field because they are breaking the rules of the economic and entrepreneurial model in force and showing the will to train  people. They develop  their skills, guiding  them to the work market, since they are defined as a transitory tool for normalized social inclusion²⁸.

The case of the Basque Country

Work Integration Social Enterprises within the Social and Solidarity Economy  are playing an increasingly important role.  The origins of  Work Integration Social Enterprises date from the mid-seventies in France.  Isolated cases arose in Spain   in the eighties, although it was not until the beginning of the 21st century that they were given a boost²⁹. Specifically in the Basque Country, Work Integration Social Enterprises were acknowledged at the beginning of the 21rst century when the Basque Government created the Register for Work Integration Social Enterprises in 2001. However,  it was actually in  2002 that the subsidies programme  for creation and maintenance of these companies started. Data reflect an increase in the number of Work Integration Social Enterprises, and by 2009 there were already 47 registered companies, marking a considerable increase over t10 existing in the year 2004³⁰. In the Basque Autonomous Community, insertion companies are regulated both by national law, mainly by  State Law 44/2007 and  the Royal  Decree 49/2010; and the autonomous legislation: Decree 182/2008 which  regulates Work Integration Social Enterprises,  the procedure to create and register them and  Law 18/2008 on  Guarantee of Income and Social Inclusion. The  exclusion suffered by certain people is acknowledged by both laws to offer them a process focused on work insertion in the labour market and, to sum up, social normalization. Therefore, this is their main mission, apart from meeting the enrepreneurial goals in their  specific business sectors. Likewise, Work Integration Social Enterprises must include stakes of least  51% of firms developing social inititiatives specialized in the field of  social and work inclusion. Hence, the Work Integration Social Enterprises which are active in the Basque Country are currently supporting  many  experiencieng difficulties on the job market due to the issues of the social and work insertion.

When offering a definition that can illustrate what  Work Integration Social Enterprises are, we should note that Work Integration Social Enterprises are those organizations producing goods or services with the goal of incorporating those groups at risk of social exclusion  in the labour market. In many cases, Work Integration Social Enterprises function as the mechanisms through which these underprivileged  people can have access to employment by following programmes of work and social integration which enable them to acquire competences, skills, abilities and responsibilities. People in a situation of social exclusion, those who are unemployed and have major difficulties entering the job market, as well as people belonging to the next group: ex- drug addicts, inmates in penitentiary centres and unemployed ex- inmates, young people who have not completed their compulsory education and are unemployed, ethnic minorities, immigrants or people who are the only breadwinner in the family may take advantage of this job preparation. The programmes are based on a model of insertion through work thanks to the implementation, design and customized itineraries, operating according to the principles of co-responsibility of every social sector.  Their cross-cutting features foster integral and horizontal solutions, working closely with cases of social inequality in order to reduce it. These enterprises work  in   sectors where the labour force is not highly qualified, such as recycling, residues, carpentry, bricklaying, courier services, serves in general and so on. Therefore, in the best of cases, their beneficiaries stop being passive and dependent on social protection systems. Speaking graphically, we can compare insertion companies to a bridge towards social and work inclusion for underprivileged groups since they generate welfare and employment, promoting employability to achieve inclusion in the normalized job market.

The Law 44/2007 provided the legal regulation for Work Integration Social Enterprises and moreover,  it is regulates the employment relationship between workers in a situation of social exclusion and the Work Integration Social Enterprises  they render  services for. Common employment relationships with several peculiarities were chosen³¹. Likewise, in order to achieve their main objective, Work Integration Social Enterprises offer  people at  risk of social exclusion an employment contract with a duration  of 6 to 36 months, under the protection of the sector’s collective agreement the Work Integration Social Enterprises is included in,. They offer customized monitoring which includes support, follow up and training taught by expert staff. This makes acquisition of necessary social and work habits  for inclusion in the normalized job market easier, since they improve the employability of the people  participating in them and  are esential for their social inclusion. The requirement in the Basque Country for a person to have access to Work Integration Social Enterprises is  an Insertion Agreement signed by the  corresponding  basic social services. These people change their situation and are no longer recipients of the guaranteed social  income,- a periodical economic benefit offered by the Administration assigned to persons integrated in groups  who do not have enough available income – and have an insertion job, Therefore, Work Integration Social Enterprisess are an outstanding new entrepreneurial model for the attainment of active inclusion through training and employment³².

In 2009, there were 365 insertion jobs available, on a full time basis, a figure which marks an increase of 7% compared to the previous year (341 insertion jobs in 2008). It is worth mentioning that out of  the 288 people who finished the insertion process in 2009, 65% found a job in the normalized labour market³³. These data clarify the image offered by  Work Integration Social Enterprises, which provide a  bridge to achieve a regular and normalized situation in ordinary companies for people who are excluded at a social and work level, precisely the groups that are targeted for their task. In the alternative framework set up by Work Integration Social Enterprises within agents of the Social Economy sector to assist those groups who are in a precarious or underprivileged social situation,  at  risk of social exclusion or  experiencing great difficulties accessing  an ordinary job position,  the case of the work and good practices implemented by those Work Integration Social Enterprises should be highlighted. Their contribution to promoting social inclusion through helping the most underprivileged immigrants find jobs, both young people and adults, women and men, with difficulties and low employability levels.  The number of foreigners employed in Work Integration Social Enterprises has increased from 5% at the beginning of the 21th century to approximately 40% in 2010.

Conclusions

We would like to conclude with a summary of the main features of Work Integration Social Enterprises,   and their work for  laobur activation and  social inclusion  for the most vulnerable international immigrants:
• They are a sustainable tool to fight against exclusion: These enterprises do not consume social resources in an unsustainable manner. Public investment in Work Integration Social Enterprises yields benefits to society from a large amount of the money invested as taxes ( company taxes,  Personal Income Tax from payrolls and so no) and at the economic level ( reducing the number of people receiving social and unemployment benefits). This money activates the economy by providing economic resources to people who do not have them and so on)  (BBK, 2008).
• They are productive structures: non-profit organizations that produce goods and services with the aim of integrating people in risk of exclusion.
• They are instrumental:  Work Integration Social Enterprises are  social and work interventions with the aim of training their workers to integrate them in the job market.
• They are transitory: Their aim is to train people for their transit to the ordinary job market and they are defined as a transitory devices for social inclusion. According to present regulations, the maximum stay for people in the insertion process in an enterprise of this kind is 3 years maximum.

To sum up, their features makes them different from other initiatives of this type, since they enable access to normalized employment for groups of people with special difficulties, following a period of monitoring and through a job position. We might highlight that this system is widely used by the most vulnerable immigrants in the Basque Country as a device to achieve an optimal level of integration. This has repercussions in the attainment of a higher level of social justice in favour of the construction of a more inclusive, cohesive and plural society.

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ESTHER ARETXABALA– After graduating in Political Science and Sociology from the Complutense University in Madrid 1989 and studying an International Master’s degree in Leisure and Human Potential at the University of Deusto (Bilbao) in 1991, Mª Esther Aretxabala received her PhD in Philosophy and Education Sciences from the University of Deusto (Bilbao) in 1997. She is currently a member of the research team „Social and Cultural Challenges in a Changing World” at the „International Migrations” department of the University of Deusto (Bilbao).

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