1

Lessons from ALpo projectRecommendations and good practices

for early stage services for immigrants

2

Ministry of Employment and the EconomySeptember 2014

Printed by: Edita Prima OyLayout: Edita Publishing OyPublished: 10/2014

3

ContentsPreface 4

To the reader 6

1. Introduction 8

2. Basic information, advisory and guidance services 12

2.1 Basic information offered nationally and locally 122.2 Advisory and guidance services 142.3 Development of advisory services in ALPO projects 162.4 Development of guidance services in ALPO projects 22

3. Initial assessment and referral 26

3.1 Initial assessment and integration plan 263.3 Initial assessments and integration plans in ALPO projects 273.3.1 Recommendations from projects for the organisation of initial assessments 273.3.2 Initial assessment tools and models 30

4. Other integration promotion measures 33

4.1 Language, culture and societal information 334.2 Development of services, processes and competencies 354.3 The formulation of strategies and integration programmes and the development of networks 36

5. Promotion of employment 37

5.1 Employment promotion measures 375.2 Promoting entrepreneurship 38

6. Conclusions and recommendations on follow-up development measures 40

6.1 Conclusions 406.2 Recommendations on follow-up development measures 44

APPENDIX 1: ALPO PROJECTS 52 APPENDIX 2. BACKGROUND TO THE ALPO PROJECT: THE GOVERNMENT INTEGRATION PROGRAMME (SUMMARY) 55

4

The ACT on the Promotion of Immigrant Integration, or the Integration Act, entered into force on 1 Septem-ber 2011. The premise of the act is to enable immigrants to participate in Finnish society as its full members. For this to be possible, they should have access to the fol-lowing tools of inclusion: information about Finnish so-ciety, language skills and labour market skills. These key tools i.e. the services for the promotion of integra-tion are defined in the Act. The aim is for each immi-grant to have access to a set of services suitable for his or her individual needs during the first stage of immigration. The key elements are advice, guidance and counselling, especially during the first weeks and months.

The reform of the Integration Act arose out of the same observations that led to the development of the ESF/ALPO programme, although the ALPO projects were launched some years before the legislative re-form. It was known that immigrants’ entry into the la-bour market took too many years. It was known that many immigrants struggled in the maze of services offered by the authorities. Finally, immigrants were known to have a strong motivation to integrate into so-ciety in the early stage of the immigration process, but many had to wait too long for information, training and guidance.

preface

In order to rectify these problems, on the one hand, the Integration Act creates a framework for the immi-grant service process for roughly the first three years after their entry into the country. The tools provided by the Act for these years are advisory services, the as-sessment of individual starting points, an integration

Phot

o: M

ikae

l Ahl

fors

Each immigrant is the subject of his or her own integration

process and has the right to make his or her own decisions to

build a life in Finland – based on accurate information.

5

plan, and integration education and training. Informa-tion about Finnish society, language skills and labour market skills are keys for engaging in society and the labour market.

On the other hand, the Integration Act sets out the responsibilities of different authorities. Even though the local authority and the employment and economic development office (TE office) play key roles at the local level, all government authorities have the duty to pro-vide advice and guidance to immigrants and to design their services so that they are suitable for immigrants as well. Efforts to promote integration require strong partnerships and clearly defined responsibilities. The integration programme of the local authority and the national integration programme at the central govern-ment-level are tools for which cooperation and respon-sibilities need to be agreed upon.

At the time of writing, the Integration Act has been in force for three years. Many important projects from the previous EU funding period for the promotion of in-tegration are drawing to a close, e.g. the ESF/ALPO sup-port structure for the development of advisory, guid-ance and counselling services for immigrants. Together, the new legislation and numerous important projects have laid the foundation for strong development efforts across Finland. An impressive number of projects have also produced established practices from proven forms of delivering the contents of the Integration Act.

The main objective of this publication is to highlight key recommendations for continued development of the early immigration process and the associated ser-vice system by drawing from the project experiences. In addition, practical measures, experiences and les-sons learned in the ALPO project network are also de-scribed. However, the publication is not intended as a comprehensive summary of the ALPO projects; rather, it is aimed at highlighting key topics for continued de-velopment. It can, nevertheless, be used as an introduc-tion to the wider field of ALPO projects. Readers can seek more detailed information about individual pro-jects, their activities and outcomes.

The work for the promotion of integration is continu-ous. The work is based on the fundamental principle of the act and the ALPO projects: services are provided to support immigrants, but each immigrant is the subject of his or her own integration process and has the right to make his or own decisions to build a life in Finland – based on accurate information. This ensures the crea-tion of genuinely equal opportunities in Finland.

Kristina StenmanDirector, Migration Department

Ministry of Employment and the Economy

+ The motivation for social integration is at its strongest

at the early stage of the immigration process.

6

ALpo - the support structure for guidance and the de-velopment of skills for immigrants arriving in Finland has coordinated the activities of regional development projects across Finland. This task has included work-ing on the advisory and guidance services for the early stages of the immigration process, managing the coop-eration of these projects, and supporting the exchange of experiences as well as networking. The objective was to identify best practices and refine them into a na-tional advisory and guidance system for the first stage of the immigration process in order to promote the flex-ible and efficient integration of immigrants in Finland. One of the cornerstones to the success of the ALPO pro-ject was the fact that it was closely linked to the prepa-ration and implementation of the Integration Act.

The implementation of the act was done in conjunc-tion with its preparation and drafting, with leverage from the European Social Fund (ESF). During the struc-tural funding period 2007–2013, European Social Fund projects were launched in Finland under different de-velopment programmes. The objective was to avoid the isolation which had been a problem in earlier ESF projects: efforts were made to bring together projects working on the same topic in different parts of Finland and to create a network that facilitates communication and the exchange of experiences and ideas. At the same time, the idea was that the authorities coordinating the development programmes would be able to immediate-ly harvest the good practices, innovations and models produced in the projects.

The implementation of the development programme for the initial-stage guidance and advisory services for immigrants was allocated to the Ministry of the Inte-rior and the Ministry of Education and Culture. In ear-ly 2012, responsibility for the development programme was transferred from the Ministry of the Interior to the Ministry of Employment and the Economy along

To the reader

with other integration matters. The national coordina-tion and support tasks of the development programme were allocated to the ALPO support structure, which is administered by the Ministry of Employment and the Economy, and the AIKIS development project for lan-guage education of adult immigrants, which is coordi-

Phot

o: S

iiri H

uttu

nen

+ One of the cornerstones to the

success of the ALPO project was the

fact that it was closely linked to the

preparation and implementation of

the Integration Act.

7

nated by the Ministry of Education and Culture. The for-mer was responsible for developing the first-stage guid-ance and advisory services, and the latter was tasked with modelling electronic language learning tools.

This publication describes a process which lasted a total of seven years. The participating projects have de-veloped various electronic and other services e.g. for integration training purposes (e.g. the Koulutusportti data system for immigrants’ training for the employ-ment and economic development offices (TE offices), and the Testipiste system for the initial evaluation and testing of language skills), and as support tools for low-threshold advisory services (the ALPO register of visits by clients to immigrant guidance services) In addition, the projects have also experimented and tested various integration promotion methods. It is not possible to dis-cuss all of these projects in this publication, but final re-ports are available for all projects, and they are worth a read.

The ALPO project has produced a Welcome to Fin-land publication as required by the Integration Act. The guide is available in twelve languages and it is distrib-uted by police authorities, register offices and Finnish embassies abroad to migrants moving to Finland. Other outputs worth mentioning include various publications produced by the project on initial assessment, adviso-ry services, factors affecting immigrants’ employment prospects, and recognition of prior learning or quali-fications. These are discussed in further detail in this publication.

As the ALPO support structure project now draws to a close, the project participants would like to express their sincere thanks to all the countless partners, net-works and people who have made invaluable contri-butions to the project. I have been closely involved in the world of ESF projects during three funding periods. During these years, a lot of learning and progress has taken place in immigration and integration matters. We have become better and more professional. I dare say that ESF projects have played a major role in this pro-gress.

I am also convinced of the great benefits of project development work in the new funding period. On the other hand, “institutional amnesia” is always a threat in project activity. It is important that the findings and outputs of projects from previous periods not be forgot-ten. The ALPO project is fortunate in that many of its achievements will be passed on for further refinement by the Centre for Integration Expertise, which operates under the Ministry of Employment and the Economy. We hope that the ideas produced in ALPO will continue to find fertile ground in the future!

Hannu-Pekka HuttunenProject Manager

ALPO/ESF - Support structure for guidance and devel-opment of skills for immigrants arriving in Finland

Ministry of Employment and the Economy

+ The ALPO project is fortunate in that many of its achievements will be

passed on for further development by the Centre for Integration Expertise,

which operates under the Ministry of Employment and the Economy.

8

The ALpo - Support structure for guidance and the development of skills for immigrants arriving in Fin-land project was aimed at improving the guidance avail-able for newly arrived immigrants in Finland. ALPO has been one of a number of national support structure pro-jects under the ESF Programme for Continental Finland (European Social Fund) during the 2007–2013 funding period. The project will conclude at the end of 2014.

Administered by the Ministry of Employment and of the Economy (TEM), the ALPO project has coordinated and supported development activities which have tak-en place in projects, created contacts and generated discussion between projects and different levels of ad-ministration. The purpose of the support structure was to develop a labour market-oriented operating model for immigrants that effectively responds to the needs of individuals and society at large. Key components of the operating model include:

• basic information about integration, Finnish so-ciety and the service system both at the national and local level,

1. Introduction

• low-threshold advisory and guidance services, • various initial assessment and guidance models,• services and measures to promote integration,• electronic services and solutions for early stage

guidance and language education.

ALpo In A nuTsheLLIn the period from 2007–2014, a total of 52 projects were implemented across Finland by local authorities, TE offices, educational institutions and third-sector organisations. The overall objective of the projects under the ALPO support structure was to develop early-stage services and integration measures.

The ALPO project worked in close cooperation with the Osallisena Suomessa (Participative Integration in Finland) project for the development of education for immigrants and the MATTO development programme for labour migration. The implementation of ALPO has also included cooperation with the AIKIS development project for the language education of immigrants and the Opin Ovi national coordination project for the development of career guidance and counselling for adults.

+ ALPO has been one of

a number of national support

structure projects under the ESF

Programme for Continental Finland

(European Social Fund) during the

2007–2013 funding period.

9

In addition to creating, developing and enhancing these operating models, the projects under the ALPO support structure have included diverse work to pro-mote language learning, employment and integration. The total number of projects in 2007–2014 was 52, and some of them were follow-up projects. Projects were implemented around Finland, and the focus areas were determined by the requirements of local authorities and other actors. The contents of the projects were di-verse, and they were delivered by various actors includ-ing local authorities, employment and economic devel-opment offices (TE offices), educational institutions and third sector organisations. The project lead was a local authority in 23 projects, an educational institution in 15

TAngIbLe ouTpuTsMany practices discovered in the projects have since been adopted permanently at a local or regional level. Good practices have been compiled and they will be presented in various sources, including the kotouttaminen.fi website of the Centre for Integration Expertise. Some of the highlights of the outputs of the ALPO project and support structure network include:

• Close connection with the preparation and implementation of the Integration Act

• Establishment or development of advisory services for immigrants around Finland

• The development and implementation of initial assessments

• The establishment of a network of native-language advisors and their training

• The development and deployment of the ALPO register of customer visits at advisory services for immigrants

• A guide to Finnish society distributed to people moving to Finland as required by the Integration Act (Welcome to Finland guide)

• The immigrant education information system (Koulutusportti)

• The information system for initial language assessment and tests (Testipiste)

• Publications supporting the work carried out by project actors

+ The total

number of projects in

2007–2014 was 52.

10

projects, the central government (central government agencies, ELY centres and TE offices) in 9 projects, and other organisations in 5 projects. Naturally, almost all projects involved collaboration among a number of dif-ferent actors.

As a whole, the work carried out in ALPO projects has made a significant contribution to the early stage services and integration of immigrants. The total frame-work budget was €27,200,000, of which TEM was allo-cated €22,600,000 and the Ministry of Education and Culture €4,600,000.

The main objective of this publication is to highlight key recommendations for the continued development of the early stage service system for immigrants based on the experiences gained in the projects. The ALPO network’s activities and lessons learned will also be de-scribed. However, the publication is not intended as a comprehensive summary of all the work carried out in ALPO projects; rather, it provides an introduction to the projects as a whole. Readers can use the publication to seek detailed information about individual projects or practices of interest.

A comprehensive list of ALPO projects is provided in the appendix. Further information about individual projects can be obtained from the structural fund infor-mation service at https://www.eura2007.fi/rrtiepa/ us-ing the appropriate project code. The structural fund information service is an online service maintained by the Ministry of Employment and the Economy, which was the authority responsible for structural fund pro-grammes in 2007–2013. The service can be used to search for information about all ERDF and ESF projects implemented in Finland during that period.

One of the characteristics specific to the ALPO pro-ject – and a key factor in its success – was that it was closely linked to the preparation and implementation of the Act on the Promotion of Immigrant Integration (KotoL, 1386/2010). Many practices discovered in the projects have since been adopted permanently at a lo-cal or regional level.

The main outline of the publication follows the con-tent structure of the Integration Act. Chapter 2 de-scribes project work related to the dissemination of ba-sic information as well as advisory and guidance ser-vices. Chapter 3 provides an overview of project work related to the initial assessment and referral of im-migrant customers. Chapter 4 highlights the diverse forms of integration work that have been developed in the projects with regard to language training, social and cultural knowledge. Chapter 5 describes project work aimed at improving immigrants’ ability to find a job and their employment opportunities. Chapter 6 con-tains conclusions and development suggestions for fu-ture projects based on the experiences gained in ALPO projects. A summary of the government integration programme, including key policies related to integra-tion, is provided as an appendix in addition to a list of ALPO projects.

Various publications, especially those of the ALPO support structure and the reports of ALPO projects were utilised for this publication. The publication has been authored by Risto Karinen (Ramboll Management Consulting), Hannu-Pekka Huttunen and Outi Kallio (ALPO support structure/MEE).

11

ALpo pubLICATIons

• Welcome to Finland guides and leaflets (twelve language versions, MEE Publications/ Brochures 2014, www.lifeinfinland.fi)

• Getting to the right place with the right advice. Recommendations and good practices for the development of advisory services for immigrants (MEE Publications, Employment and entrepreneurship 5/2014)

• In aid of initial assessment - Examples of best practices for initial assessment compliant to the Act on the Promotion of Integration (MEE Publications, Employment and entrepreneurship 11/2012)

• Obstacles to the employment for immigrants - towards proactive and influential interaction through networks (Ministry of the Interior publications 13/2011)

• Making the knowledge and skills of immigrants visible - ideas for mapping out vocational competence in the integration programme (Ministry of the Interior publications 6/2011)

• Invandrares kompetenser ska synliggöras - idéer för kompetenskartläggning inom integrationsprogrammet (Ministry of the Interior publications 6/2011)

• Final report of the Maahanmuuttajien omakieliset palvelut (Native-language services for immigrants) project (Ministry of the Interior publications 17/2010)

12

2. basic information, advisory and guidance services2.1 Basic information offered nationally and locally

one of the objectives of the Integration Act is for more immigrants to receive support for their personal as well as their family’s integration upon their arrival in Finland when the need for information and support is at its most acute. The projects under the ALPO sup-port structure were designed to facilitate both individ-ual service and a rapid start to the integration process.

The current Integration Act is aimed at extending services and measures so that they are available to all immigrants based on their individual requirements, re-gardless of the grounds on which the person has ar-rived in Finland. According to section 7 of the Integra-tion Act, immigrants are provided with information about their rights and obligations in Finnish working life and society. Immigrants are also provided with in-formation about the service system and the measures

The Welcome to Finland guide can be read and printed in Finnish, Swedish, English, Russian, Estonian, French, Spanish, Arabic, Somali, Persian, Thai and Chinese on the lifeinfinland.fi website.

13

promoting integration. The Welcome to Finland guide, which was produced and coordinated by the ALPO pro-ject, is an information package about Finnish society as meant by the Integration Act. The guide was written in cooperation with different actors, including authori-ties, advisors and users. Various local guides and the experiences of different individuals offering advisory services were discussed when drafting the guide.

The guide is available electronically in twelve differ-ent languages. The Welcome to Finland guide and its different language versions have been published online at www.lifeinfinland.fi. The printed version is available in basic Finnish, Swedish, English and Russian. In ad-dition, a printed leaflet which instructs the reader to access the full language version of the guide at lifein-finland.fi has also been printed in the twelve languages.

The guide is given to all individuals moving to Fin-land in conjunction with a residence permit decision, the registration of a right of residence, the issuance of a residence card, or the registration of domicile or popu-lation register information; i.e. at police stations, regis-ter offices or Finnish embassies or consulates abroad. Currently, the distribution of the guide is somewhat in-consistent across the country. Efforts were made to im-prove the distribution by improving the guidelines in conjunction with the 2014 update of the guide.

According to the Act, authorities who apply the Inte-gration Act are also responsible for producing and up-dating the guide contents. TEM is responsible for col-lating and editing the content, translations and distri-bution. This task has been implemented by the ALPO project during the project period. In 2015, the respon-sibility will be transferred to the Centre for Integration Expertise which operates within TEM.

The Welcome to Finland guide is complemented by information produced at the regional and local level. A number of ALPO projects have produced informa-tion both in paper and electronic formats. Local guides have been produced by projects including Pointti (Mik-keli and Savonlinna), Vastaanottava Pohjois-Savo (Kuo-pio), Palo (Turku), Palapeli (Jyväskylä), Verso (Rovanie-mi), Alipi (Lahti) and the project for the development of immigrant advisory and guidance service system in the Hämeenlinna region). Many similar guides have also been produced for local needs outside the ALPO sup-port structure.

In addition, the way information about immigration is collected and distributed electronically has been de-veloped through various measures in recent years. One of the primary national information services, the Info-

Project manager Pia Hägglund at the Vaasa Welcome Office advisory service.

Phot

o: S

ami P

ulkk

inen+ One of the objectives of

the Integration Act is for more

immigrants to receive support for

their personal integration as well

as that of their families upon their

arrival in Finland when the need

for information and support is at

its most acute.

+ The Welcome to Finland

guide, which was produced and

coordinated by the ALPO project,

is an information package about

Finnish society as intended by the

Integration Act.

14

pankki website www.infopankki.fi, has been expand-ed to provide a one-stop service for national, regional and local information. The Infopankki publishing office is located within the City Executive Office of Helsinki. The information is updated in cooperation with partici-pating local authorities. In addition, the www.workin-finland.fi website, which is administered by the TE Of-fices to support employment-based immigration, was launched in early 2014.

2.2 Advisory and guidance services

Advisory and guidance services for newly arrived immi-grants are important in order to promote integration, to accelerate job prospects, and to help immigrants progress and stay on track on the education path. The experiences of ALPO projects have shown that immi-grants continue to need advisory and guidance services long after their entry into the country.

According to the Integration Act, municipalities, em-ployment and economic development offices (TE offic-

es) and other authorities shall provide immigrants with appropriate guidance and advice concerning measures and services promotion integration and working life (section 8).

The purpose of the Integration Act is to strengthen authorities’ general duty to provide advice in matters related to immigration (section 8 of the Integration Act, section 8 of the Administrative Procedure Act). An au-thority shall provide to its customers the necessary ad-vice, within its competence, for taking care of admin-istrative matters; as well as respond to questions and queries on its service. The advice shall be provided free of charge.

If the matter does not fall within the competence of an authority, it should direct the customer to the com-petent authority. With regard to the Integration Act, other competent authorities include e.g. the Immigra-tion Service, the Social Insurance Institution of Finland (Kela), occupational health and safety authorities, and the tax administration.

The terms “advice” and “guidance” can have slight-ly different meanings depending on the context and users. Commonly used terms are “advisory services”, “service advice”, “guidance service”, and “service guid-ance”. The exact content of these terms depends on the type of administrative framework, personnel resourc-es and qualifications that are involved in the provision of advice and guidance in the organisation in question.

In the ALPO projects, advice usually means advisory services given to customers in order to refer them to relevant information or service. The service promise of advisory services can be formulated as follows: To give the customer advice and guidance in a matter or prob-lem at hand. In addition, customers will be referred to another part of the service system, if necessary. Advi-sory services are not about resolving specific problems; rather, they are often about providing the right infor-

+ The service promise

of advisory services can be

formulated as follows: To

give the customer advice

and guidance in a matter or

problem at hand.

+ As a whole, advisory and guidance services for immigrants are

comprised of various different elements: basic materials with national,

regional and local information offered online and in print, different types of

physical advice centres which can be designed specifically for immigrants

or for the entire population, and online advice. More in-depth personal

guidance is also offered alongside these services.

15

mation. However, the service is often difficult to limit to advice only, as it can involve a more guidance-orient-ed approach. Guidance usually involves a working ap-proach designed to empower the customer and it can include long-term dialogue. It is about more in-depth, personal guidance.

Whether the guidance approach is adopted in - or ex-cluded from - the advisory service depends partly on lo-cal task allocation. It is important to map the tasks and roles of different actors and determine the links of ad-visory services to other service providers within a local authority. A guidance approach is occasionally needed, but there should nevertheless be clear lines between the service guidance offered by social services, the ad-vice related to education, career guidance, and immi-grant advisory services.

As a whole, advisory and guidance services for im-migrants are comprised of various different elements: national, regional and local basic information materi-als offered online and in print, different types of physi-

cal advice centres which can be designed specifically for immigrants or for the whole population, and online advice. More in-depth personal guidance is also offered alongside these services.

There are several types of "advising agents"; in addi-tion to authorities (local authorities, TE offices and oth-er authorities), educational institutions and NGOs also offer a significant amount of advisory services. Howev-er, it is important to note that local authorities have the obligation to organise low-threshold advisory services for immigrants as part of the general basic-level advi-sory services provided to local residents.

Coordination and cooperation between different ac-tors, both locally and regionally, is essential. In prac-tice, the provision of guidance and advice to immi-grants and the information offered about the services require new, flexible procedures and efficient commu-nication between different authorities. In particular, concrete cooperation between the local authority and the TE office is important. Customer reach is impor-tant; in other words, it should be possible to reach all individuals who need advice and guidance through dif-ferent channels.

In the ALPO project, efforts have been made to en-sure that all immigrants have access to equal, good-quality advisory services, regardless of where they live, what languages they speak and on what grounds they have arrived in Finland. The aim was to make adviso-ry services for immigrants part of the normal opera-tions of local authorities, rather than a separate activ-ity funded through projects.

ALPO projects have been utilised to launch and de-

Advice and guidance at the Tampere immigrant information service Mainio. Native-language advisor Stela Entcheva at work.

Phot

o: L

aura

Ves

a + Local authorities

have the duty to

organise low-threshold

advisory services for

immigrants as part

of the general basic

advisory service

provided to local

residents.

+ The aim was to

make advisory services for

immigrants part of the normal

operations of local authorities,

rather than a separate activity

funded through projects.

16

4 %

16 %

30 %

18 %

21 %

11 %

velop advisory services. In addition, the ALPO support structure produced a practical guide for the develop-ment of low-threshold advisory services titled “Getting to the right place with the right advice. Recommenda-tions and good practices for the development of adviso-ry services for immigrants”1.

Advisory and guidance services have also been de-veloped in other programmes with project funding. Dur-ing the previous programme period, employment-based immigration was supported with the MATTO support structure. Some of these projects included advice and guidance for employment-based immigrants in Finland. The Participative Integration in Finland project, which ended in 2013, was especially targeted at immigrant groups that typically do not enrol in integration cours-es or who do not have access to them. In regional and local sub-projects, there have also been measures to de-velop advisory and guidance services, for example for stay-at-home mothers at maternity clinics and through various measures in public day care centres.

2.3 Development of advisory services in ALPO projects

The broad field of different advisory and guidance ser-vices is well represented in the contents of the ALPO projects. Some projects were specifically focused on developing low-threshold advisory services, while in many other projects advisory services were just one of the development areas. The projects have largely devel-oped the advisory and guidance services on the basis of local or regional needs. For example, there has been a lot of variation in the locations, resources, available languages and target customer groups of advice cen-tres. Immigrants who had arrived in Finland for differ-ent reasons needed advice and advice was given on a range of different topics. Low-threshold advisory ser-vices were highly frequented, which demonstrated the

high need for the advice. Not only did recently arrived immigrants need advice: those who had lived in Fin-land for a long time accessed it as well.

The register of visits to clients by immigrants' guidance services, i.e. the ALPO registerOriginally developed as part of the Pointti project, the ALPO register was quickly adopted by several advice centres across Finland. The ALPO register is a central database of immigrants’ visits to advice centres. Cur-rently 17 advice centres nationwide are included in the register. The register provides information about the customer base of advice centres, trends in immigra-tion, and migration in general. The information can be used for forecasting, monitoring and research purpos-es. The database can be utilised by central and local government officials and planners. The ALPO register has been administered by the ALPO support structure, and the responsibility will transfer to the Centre for In-tegration Expertise under the Ministry of Employment and the Economy when the support structure is closed at the end of the year.

Customers and their needs in advisory servicesThe advice centres who used the ALPO registered in

Customers by duration of residence in Finland (data from the ALPO register, collated by Minna Hallikainen, the Pointti project, Mikkeli)

1 Oikeilla neuvoilla oikeaan paikkaan, Suosituksia ja hyviä käytäntöjä maahanmuuttajien neuvonnan kehittämiseen. Publications of the Ministry of Employment and the Economy. Employment and entrepreneurship, 5/2014.

Customer contacts by length of stay in Finland 2011-2013

Not living in Finland 4% Less than 1 year 16%1-3 years 30% 3-5 years 18%More than 5 years 21% No data 11%

17

0 2000 4000 6000 8000 10000 12000 14000 16000 18000 20000

Completion of formsClarification of a decision or process

Contact with an authority or other bodyReturn migration/immigration

Permit matters, registration, citizenshipSocial matters

The Social Insurance Institution of FinlandHealth care

HousingFamily matters (children’s schooling, day care, personal relationships)

Financial matters (taxation, debt, household bills, banking and consumer matters)

Police and legal matters (crime, disputes, etc.)

Crisis situationsWork and employment

Finnish language studiesEducation mattersCareer counselling

Hobbies and recreationOther everyday situations

Other

0 1000 2000 3000 4000 5000 6000 7000 8000 9000

Unions/labour protectionAttorney and legal aid services

Housing/property services, council housingNGOs and associations

The Social Insurance Institution of FinlandBoard of Education (general education)

Crisis servicesMunicipal social and family services

Services for immigrantsThe Immigration Service (Migri)

Register officeEducational institution

PoliceProjects

ParishHealth services

CustomsTE office

Tax administrationJoint services point

24724917

20432469

62825004

103721295

21254887

46637804

43516804

811612145

197311507

1858113041

1024

332777

6230140

2646547

25645551

42981866

48112001

7643345

8907912

11834317

2406

+ The advisory services have played an important role in referring

customers to other services or authorities.

Topic queried 2011-2013

Cooperation or customer referral 2011-2013

Reasons for seeking advice (data from the ALPO register, collated by Minna Hallikainen, the Pointti project, Mikkeli)

Cooperation and customer referrals (data from the ALPO register, collated by Minna Hallikainen, the Pointti project, Mikkeli)

18

2011, 2012 and 2013 have logged over 60,000 contacts with customers. The number of unique customers was over 27,000. Over half of the contacts were from cus-tomers age 25-44. The main reasons for immigration among the customers were family ties, refugee sta-tus and employment. Nearly three fourths of the con-tacts were with customers from ‘third countries’. Com-mon countries of origin were Russia, Estonia and Iraq. The customers’ educational backgrounds varied great-ly, from those with little or no education to those with higher education degrees. In addition to unemployed customers and customers participating in labour mar-ket training, there were also a high number of custom-ers who were in employment. About half of the custom-ers had lived in Finland for less than three years.

Common reasons for contact included queries re-garding different types of decisions and processes, as-sistance with the completion of forms and permit mat-ters, registration and citizenship.

The advisory services have played an important role in referring customers to other services or authorities. Cooperation agencies were typically KELA, municipal social and family services and TE offices.

Diverse forms of advisory service in different localitiesLow-threshold advisory services and service points

were developed by a number of different ALPO projects. Many localities already had advisory points or centres before the ALPO projects. In these localities, the ser-vices were developed further, but in several places, the ALPO project was the first step to launching advisory services for immigrants.

Helsinki Metropolitan AreaThe NEO-SEUTU project was focused on developing cooperation in advisory matters across municipal bor-ders in the Helsinki metropolitan area. The main idea was to organise services across local authority borders and create agreement-based forms of cooperation be-tween different partners. In December 2012, the may-ors of Helsinki, Espoo, Vantaa and Kauniainen signed an agreement on advisory services for foreign nation-als. The cities offer advisory and guidance services on the services provided by local authorities, the Finnish service system and the immigration process in gener-al to customers originating from other countries, based on the principle of reciprocity. The advisory service functions of different cities can also have a joint ser-vice promise. Customers can visit the general service points of all four cities regardless of which city they live in. The service points have access to the contact infor-mation of all advisory services and key local services of the Helsinki metropolitan area. The aim is for all local

Project manager Hua Lei from the Click project working at the Virka Info advice service point in Helsinki.

Phot

o: M

oham

ed A

bdul

lahi

+ The advisory service functions of different local authorities in the Helsinki

metropolitan area also have a joint service promise. Customers can visit the

general service points of these cities regardless of what city they live in.

+ Common reasons for

contact included queries

regarding different types

of decisions and processes,

assistance with the completion

of forms and permit matters,

registration and citizenship.

19

advisory services to be able to advise foreign nationals who may live in another city in the area and refer them to the right service. Consistent quality of advice is en-sured through joint training and tools for staff. As a re-sult of the cooperation, the professional skills of advi-sors were also developed in a concrete way.

Turku and TampereOne section of the Palo project in Turku developed the Infotori service. Infotori is a low-threshold advisory centre administered by the City of Turku Welfare Divi-sion. The majority of service languages were purchased from Sondip, the Union of Multicultural Associations in Southwest Finland. In the Tampere region, the ALMA project developed immigrant advisory services, which are now established as part of the operations of the City of Tampere.

Upper Savonia and SatakuntaIn Upper Savonia, the Vastaanottava Pohjois-Savo pro-ject created a foundation for advisory services, and the work has since been continued by a roving immigration advisor who covers the Upper Savonia region. The rov-ing advisor model was developed in the ALKU project in Satakunta as well. The project also established an advi-sory service point for immigrants.

Mikkeli, Savonlinna, Vaasa, Hämeenlinna and KotkaIn Mikkeli and Savonlinna, advisory services were de-veloped by the Pointti project. In the Vaasa region, the Welcome Office (in cooperation with Bothnia Integra-tion) formulated a regional model for advisory services. In Hämeenlinna, advisory services were developed by

the project for the development of immigrant adviso-ry and guidance service system in the Hämeenlinna re-gion. The employees of the Kastelli advice centre in Hä-meenlinna visited different sites, especially education-al institutions, on a rotating basis. In Kotka, the Minfo project developed advisory services that are closely linked to the service system. The focus was on integrat-ing advisory and guidance services to the overall inte-gration process. This means that the service as a whole comprises initial-stage advice; initial assessment; guid-ance on integration measures and services relevant to the individual’s life situation and needs; the monitoring and assurance of sufficient and fast access to services and integration measures; and the development of such measures in cooperation with service providers, such as educators. The city leveraged the project outputs to launch Virkaneuvo, a service centre which provides re-gional guidance and advisory services for recently ar-rived immigrants.

Lahti, Oulu and KemiIn the Lahti region, the already established develop-ment activities were continued by the Alipi project, which has extended the guidance and advisory servic-es for immigrants across the region. In the advice mod-el of Lahti and some other localities, employees can ac-company customers on visits to different local services, if necessary. In Oulu, advisory services were developed under the Homelike Oulu project for immigrant guid-ance and advisory services. After the project had con-cluded, the administrative responsibility was trans-ferred to Villa Victor, the city's multicultural centre.

In the southern Oulu region, initial-stage guidance and advisory services were developed as part of a pro-ject which launched an immigrant advocacy service. Based on a need identified in the project, the Haapave-si Folk High School patrons’ association (Haapaveden

+ In the Tampere region, the

ALMA project developed immigrant

advisory services, which are now

established as part of the operations

of the City of Tampere.

+ The city of Kotka leveraged

the outputs of the Minfo project to

launch Virkaneuvo, a service centre

which provides regional guidance

and advisory services for recently

arrived immigrants.

20

Opiston kannatusyhdistys ry) also carried out a prelim-inary survey of employer needs with regard to the cre-ation of a joint operating model for multicultural advi-sory and guidance services. The survey was focused on the requirement and implementation of a joint guid-ance and advisory service for immigrants and employ-ers.

In Kemi, the Silmu project launched an advisory ser-vice point. Like in other regions, the advisory service in Kemi was aimed at having an impact on customers as well as promoting accurate advice in order to ensure the appropriate use of local authority resources.

Lappeenranta and KajaaniIn Lappeenranta, an extensive project titled “Maahan-muuttajaresurssit käyttöön!” (“Effective Use of Immi-grant Resources”) developed Momentti, a low-thresh-old advisory, guidance and information centre that incorporates several different services and service pro-viders. The operations of Momentti have become an es-tablished part of the services of the City of Lappeenran-ta. In Kajaani, the Juuret ja Siivet (“Roots and Wings”) project developed the Monika centre for low-threshold everyday advice and guidance for the immigrant popu-lation; it also serves as a meeting place and promotes cooperation with NGOs. The Monika centre offers per-sonal advisory services, information services and cul-tural representative activities.

Establishment of advisory centresAs demonstrated above, the advisory centres created by the ALPO projects are now well established. Centres that were founded and/or developed as part of a project have since become permanent services in several plac-es including Iisalmi/Upper Savonia, the Kotka region, Oulu, Lahti, Tampere, Espoo and Hämeenlinna. In Hel-sinki, regular advisory services were already in place.

Electronic services and solutions supporting advi-sory and guidance servicesGuidance and advice needs are also served by elec-tronic services and solutions which many projects have

been developing. The NEO-SELMA and InfoFinland.fi projects created an online search portal for Finnish lan-guage courses (www.finnishcourses.fi), which was first adopted in the Helsinki metropolitan area and is now also available in the Tampere region. The course search portal is a user-friendly and up-to-date online service and an integral part of the overall educational guidance service for immigrants. The service offers course pro-viders a free channel for publicising and maintaining information about courses. The work of the course data administrators is part of the information model. In addi-tion to online communications, the coordination model created in the project includes organisation of custom-er events and the coordination of up-to-date informa-tion.

Service advisor Hamed Shafae responds to customers’ questions via Infochat at the Virka Info centre in Helsinki.

Phot

o: K

alev

i Ket

oluo

to

+ Novel solutions for advisory

services were also developed in

the Click project for the Helsinki

metropolitan area, which is piloting

a chat-based online advisory service.

+ In Oulu, advisory services were developed under the Homelike Oulu

project for immigrant guidance and advisory services. After the conclusion

of the project, the administrative responsibility was transferred to Villa

Victor, the city’s multicultural centre.

21

CityPercentage of immigrants of the total population

Function Number of employees Language offering Other

Iisalmi-Upper Savonia/Roving immigrant advisorapprox. 1.2%

Local vitality services ➔ immigrant advisory services

One employed by the city of Iisalmi, the other six local authorities buy the service from Iisalmi. Each local authority has its own cooperation network and an appointed coordinator

English, Finnish, Russian, Estonian

Roving immigrant advisory service of Upper Savonia, the local authorities pay Iisalmi based on the size of their population

Kotka region/Virkaneuvoapprox. 7.2%

Welfare services ➔ social work division ➔ immigrant service

Two full-time + a regional coordinator

English and Russian (Swedish, French, Spanish and Italian)

Regional service in the Southern Kymenlaakso area

Oulu/Oulu10approx. 2.25%

Corporation services part-time (paid by the hour) advisors at the interpreting centre

Chinese, Arabic, Thai One language/day

Lahti/Alipiapprox. 2%

Welfare services ➔ social services ➔ Immigration services, regional integrated service centre

Three service advisors, official consultation available from the Manager of Immigrant Affairs

Finnish, Georgian, English, Swedish and Russian (moderate German and Spanish) Interpreters used if necessary

A service centre which includes e.g. a customer referral unit for the elderly and other service units.

Tampere/Mainio information centre for immigrantsapprox. 3.9%

City of Tampere/Welfare services/Adults’ social services(operates as part of the Tampere region interpreting centre)

One coordinator + two part-time employeesservice languages are purchased from service providers

English, Shona, Swedish, Persian, Dari, Kurdish, Bulgarian, French, Spanish, Russian, Estonian, Arabic, Thai, Laotian, Chinese, Somali and Finnish

Advisory services are purchased in, i.e. the advisors are businesses / operate through another business

Espoo/In Espooapprox. 10%

Social and health care services / Immigration services

Two full-time service advisors

Finnish, Swedish, English and Russian

Helsinki/Virka Infoapprox. 12.2%

City of Helsinki, the City Executive Office, IT and communications

Ten service advisors + a supervisor (six immigration specialists, four general advisors), two project workers, and subsidised employees

English, Russian, Arabic, Estonian, French, Chinese, Berber, Kurdish, Somali, Turkish, Dari, Persian (Farsi) and Bulgarian

A general information service of the City of Helsinki, located at the city hall and serving all Helsinki residents. Also offers specialist advice on immigration matters.

Hämeenlinna/Kastelliapprox. 2.5%

Part of the immigration services (Health and Functional Ability), but is physically located as part of the Kastelli service point which offers various services

Three part-time employees (two native advisors (one is an external service provider), one 60% advisor who also works in communications and multicultural tasks)

Finnish, English, Turkish, Dari, Persian, Kurdish dialects, Azeri

Turku/Infotorica. 9.2%

A city-run project administered by the welfare division in 2014. The goal is to make the activity permanent at the end of 2014; it will then be supervised by the group administration in 2015.

In 2014, one fixed-term city employee, three advisors with subsidised salaries. In 2015, the goal is to have one permanent service advisor.

Albanian, Arabic, Dari, English, Finnish, German, Italian, Kurdish, Pashto, Persian, Russian, Somali, Spanish and Thai

Some of the advisory languages are procured from The Union of Multicultural Associations in South-West Finland, Sondip

(collated 4/14 by Sirpa Vainio, the Palo project/Triangeli project, Turku)

Permanent advisory service functions

22

Novel solutions for advisory services were also de-veloped in the Click project for the Helsinki metropoli-tan area, which is piloting a chat-based online advisory service (Infochat). The project has also sought to com-bine online advice with personal advice available in the partner cities. The chat also facilitates the exchange of information between the cities’ advisors, since they can use it to contact colleagues to check information. Shared information sources, the Infopankki informa-tion portal, the websites of key operators and city ad-ministrations, and joint training activities ensure the high quality of advisory services.

In addition, projects such as Koulutusportti worked on Error! Hyperlink reference not valid., which offers materials for immigrant customers of TE offices in mul-tiple languages. For example, the videos and brochures provide information about what it means to be a TE of-fice customer, the customer process of immigrants, and the rights and duties of TE office customers. The videos provide information needed by immigrants in a highly illustrative form. The videos and brochures also help to harmonise information provided to immigrants. Illiter-ate customers can also get information from the videos and watch them again as needed. The Finnish-language brochure is written in basic Finnish. The language ver-sions are translated from the basic Finnish version. The brochure is in a Q&A form and written on the premise that a recently arrived immigrant is not familiar with Finnish society or, for example, the function of the TE office and the purpose of becoming its customer.

New challengesIn the future, as the ALPO and MATTO projects draw to a close, all forms of “general advice” directed at all municipality residents, as well as existing advice cen-tres directed at immigrants, must better respond to the needs of immigrants, including employment-based im-migrants and their families. Not all localities have had ALPO or MATTO projects, which is why this need has already had to be addressed in regions and munici-palities where advisory services have not been devel-oped through separate projects. On the whole, advisory services must be developed to respond to immigrants’ needs in all areas.

2.4 Development of guidance services in ALPO projects

Guidance beyond advisory services has been developed

and implemented in numerous ALPO projects. In prac-tice, guidance has been implemented as part of longer customer processes which are designed to promote in-tegration, employment and education in ALPO projects implemented by educational institutions, local authori-ties and TE offices.

JyväskyläLong-term guidance services were developed and im-plemented on a large scale in projects such as Palapeli in Jyväskylä. The Palapeli2 project ran a guidance ser-vice that offered support to immigrants in integration and career planning and questions related to language learning, education and working life. Customers were supported especially in the transition stage, with re-gard to education applications, and in questions relat-ed to learning problems. Each customer’s situation and progress on educational paths were also monitored to ensure that the support had been as accurate as pos-sible. Guidance service employees conducted a coun-selling session with each student enrolling in the Pala-peli course on the topics of integration, education and future plans. Interpreters were used when needed. In practice, the counselling session started a long-term guidance process that continued as long as the immi-grant needed it. Building a confidential guidance rela-tionship was of key importance. In addition, the Pala-peli2 project developed group-based contact guidance and advisory services which offered immigrants basic information about Finland. Native-language service was facilitated through cooperation with regional im-migrant associations. In these cases, a cultural inter-preter attended the guidance session in order to help the immigrant understand cultural differences as well. The project also produced guidance process descrip-tions.

Salo, Oulu, Tampere, Turku and SatakuntaThe Monikulttuurinen Salo project run by the Salo Re-gion Adult Education College developed guidance ser-vices for immigrants. Guidance was accessed by refer-ral of a TE office employee or an educator, or through direct personal contact. Guidance services were imple-mented in cooperation with the TE office and the city’s immigrant service.

The Homelike Oulu project aimed to create a ho-listic guidance service model for the city of Oulu. Job coaching services were also implemented. Immigrant service counsellors from social and health care servic-

23

es delivered the job coaching model for adults by help-ing customers formulate a personal plan. Career work-shop models for young people were also developed in the same project, and the activity was continued by the city’s youth services.

The MANO project was focused on the implementa-tion and development of guidance services for young immigrants. Special attention was paid to information transfer practices in transitional stages between differ-ent levels of education. The education guidance service for young immigrants has since been made a permanent service in Oulu. The MANO project provided guidance to young people ages 16-25 who had moved to Finland at a relatively late stage, for example as teenagers. The MANO guidance was voluntary for young people and it did not have a fixed duration. In most cases, young peo-ple accessed the MANO guidance service in transition-al stages between levels of education, or in the early or late stage of a particular level of education. The MANO guidance service was aimed at helping young people be in the right place at the right time. Another objective

was to promote young people’s progress on educational paths at the right level. Accurate placement on the edu-cation path benefits not only young people themselves but also educational institutions, as it helps to create student groups with similar ability levels.

Personal guidance was also developed in a number of other projects. For example, the Tampere Adult Edu-cation Centre implemented a project titled “Guidance and Job-Seeking Services for Immigrants”, which devel-oped group and individual guidance services aimed at helping immigrants find jobs or education opportuni-ties. The consideration of each customer’s individual situation (work experience, education, language skills, personal goals, social capabilities, family relationships and cultural background) was emphasised in the guid-ance service. Ohjuri, which was part of the Palo project, developed and implemented service guidance for immi-grants.

The Satakunta Educational Federation implement-ed the VOIMA project which produced models for guid-ance and advisory service practices as a follow-up to

CAse: permanent adoption of advisory service for immigrants:

Roving advisor in upper savoIn August 2009, an early-stage immigrant advisory service was launched in Iisalmi and Upper Savo by the Vastaanottava Pohjois-Savo (“Welcome to Northern Savo) project. Customer service began in autumn 2009 with the recruitment of five immigration advisors who

worked with customers in three participating towns.

When the project ended, Iisalmi in cooperation with other municipalities in Upper Savo made a decision to adopt the service and continue it as a municipal service in the form of a roving advisory service. The advisor, who started in early 2012, has fixed appointment times and locations in a number of other municipalities. In this model, which is implemented jointly by the municipalities, a roving immigration advisor travels the area administered by the funding municipalities and offers early stage advisory services to immigrants. The advisor’s salary costs are shared by the municipalities on the basis of population size, which also enables smaller municipalities to participate in the service.

The Vastaanottava Pohjois-Savo project was implemented under the ALPO support structure.

Phot

o: L

eila

Pie

tikä

inen

The Iisalmi and Upper Savo immigrant advisor Kaja Rahkema provides counselling in Finnish, Estonian, Russian and English.

24

CAse: permanent adoption of the advisory service for immigrants:

native-language advisory service as part of the oulu10 public service point of the City of oulu

In Oulu, native-language advisory services are currently available at Oulu10, the city’s offi-cial advisory service point. The native-language advisory service was launched in 2010 by the Homelike Oulu – Oulu omaksi project for the de-velopment of advisory and guidance services for immigrants, which was partly funded by ESF (2008–2011). After the conclusion of the project, the administrative responsibility was transferred to Villa Victor, the city’s multicultural centre.

The purpose of the native-language advisory service is to provide personal advice about life and services in the city to immigrants who are unable to fully access services due to a lack of language skills or knowledge. The service tar-gets the main foreign language groups (Chinese, Turkish, Vietnamese and Thai). Native-language

advisory services in each language are availa-ble 2h a week. The service is directed at cus-tomers who are typically not entitled to the in-tegration period services offered to immigrants by social and health care services. In practice, these people have usually moved to Finland as the result of marriage, employment or studies. The advisors are full-time or freelance community interpreters employed by the Northern Finland Interpreting Service. The full-time service advi-sors of Oulu10 have also supported the work of native-language advisors. The Northern Finland Interpreting Service and the Oulu10 service point have been actively involved in the development of the native-language advisory service.

The Homelike Oulu project was implemented under the ALPO support structure.

Phot

o: M

argu

erit

e G

uibe

rtAdvisor Heng-Qing Zhu works at the Oulu10 advice centre in Oulu. In 2014, Oulu10 offers Chinese-language advisory services twice a week.

25

the ALKU project. The guidance pilot model included personal study plans formulated with an education provider, group guidance sessions and personal discus-sions during the training. A guidance model for immi-grants’ preparatory training for vocational education was also developed. The advice centre and the informa-tion, advisory and guidance services produced by the VOIMA project made the educators’ work easier.

Lahti, Hyvinkää, Riihimäki, Nurmijärvi and RovaniemiJob coaching was used and developed in a number of ALPO projects. The Alipi project in Lahti developed em-ployment advice and job coaching services. Job coach-ing models and guidance videos were also produced, for example, in the Mosaiikki projects, which developed career guidance, advisory and job coaching services for recently arrived immigrants. Advisory and guidance services were developed for the sub-regional units of Hyvinkää, Riihimäki and Nurmijärvi. One key output was the Ohjaamo guidance and advice centre. Ohjaamo is a low-threshold guidance and advice centre concept which was piloted jointly by three projects. The centre provided a one-stop service to both Finnish and immi-grant customers. Career guidance was also developed in the Juuret ja Siivet (“Roots and Wings”) project. In this project, a counsellor assessed the customer’s cur-rent situation, hopes and needs, discussed different al-ternatives with him or her and, if necessary, referred the customer to the appropriate agency. Language sup-port was used as needed.

The Mosaiikki project developed a number of practi-cal tools, such as a description of the education system and the associated language proficiency requirements, a model for a job coaching process, and a job seeker’s checklist. In addition, online materials and videos for job coaching providers and those involved in multicul-tural job coaching were produced.

Guidance on the joint application system was devel-oped in the Rovapolut project in Rovaniemi. A model

(Rovaniemen koulutusportaat/“Education Steps in Ro-vaniemi”) was created for educational path guidance, which is designed to help people with an immigrant background to understand the educational offering, the level of language proficiency required in different lev-els of education, and how the Finnish education system works. The model was described in a figure of steps, and it included text descriptions of each level of edu-cation (basic information about the programme, entry requirements, application instructions and contact in-formation) and the language proficiency requirement for new students. The step diagram is a useful tool in guiding immigrants towards a suitable level and type of education, and it helps immigrants understand the educational offering, the level of language proficiency required in different programmes, and how the Finnish education system works. As another guidance tool, the Rovapolut project produced a guidance plan which pro-vides a transparent description of the roles and tasks of different actors specific to the guidance of immigrant students in different stages of the educational path. The plan illustrates the guidance and support meas-ures offered to immigrant students during their stud-ies, and it can also help teachers identify what types of tools, methods and cooperation partners the student’s educational path may involve.

Recognition of prior learning The recognition of prior learning was also a topic in some ALPO projects. The ALPO support structure com-missioned a publication entitled Maahanmuuttajien os-aaminen näkyväksi – virikkeitä ammatillisen osaamis-en kartoittamiseen kotoutumisohjelmassa (Making the knowledge and skills of immigrants visible – ideas for mapping out vocational competence in the integration programme).2 The purpose of the publication is to de-scribe models for mapping out vocational competence to help clarify people’s study and employment plans within the context of integration guidance.

2 Maahanmuuttajien osaaminen näkyväksi -virikkeitä ammatillisen osaamisen kartoittamiseen kotoutumisohjelmassa. Ministry of the Interior publications 6/2011.

26

3. Initial assessment and referral

The InTegRATIon Act identifies initial assessment as a key tool in ensuring that immigrant customers can access suitable services for their individual needs. The ALPO projects have played an important national role through the development of effective models for initial assessment that ensure that customers’ needs are rec-ognised and that they are referred to an appropriate service.

3.1 Initial assessment and integration plan

According to the Integration Act, the initial assessment is the preliminary assessment of the immigrant’s pre-paredness concerning employment, study and other aspects of integration and the need for language train-ing and other measures and services promoting inte-gration.

The initial assessment involves, to the extent neces-sary, the examination of the immigrant’s previous ed-ucation, training, employment history and language skills and, if necessary, other matters influencing his/her employment prospects and integration. The aim is to provide flexible and needs-based guidance to im-migrants to help them identify services and measures which can help them becoming active members of Finnish society.

The initial assessment and the associated language proficiency assessment provide a good foundation for formulating the integration plan and for the immi-

grant’s access to integration training. A successful ini-tial assessment means that the immigrant can be re-ferred to appropriate learning groups without delay. The initial assessment can be used as an admission cri-terion before enrolment and as a level indicator during the education programme.

The integration plan supports immigrants in becom-ing equal members of society, especially in the early stage following arrival in Finland. The integration plan is a customised, personal plan designed to support in-tegration that is drawn up by the immigrant in coopera-tion with local government agencies (the municipality

+ The initial assessment refers

to a set of measures to assess

the immigrant’s preparedness

for employment, study and other

aspects of integration and the

need for language training and

other measures and services

promoting integration.

+ The initial assessment and the associated language proficiency

assessment provide a good foundation for formulating the integration plan

and for giving immigrants access to integration training.

27

and/or TE office). The integration plan includes details of services and measures that will help the immigrant learn Finnish or Swedish or offer him/her other skills and knowledge needed in society and working life.

According to the Integration Act, an immigrant has the right to an integration plan if he/she is an unem-ployed job seeker or if he/she is receiving social as-sistance on a non-temporary basis (section 12). An in-tegration plan may also be drawn up for other immi-grants if, on the basis of the initial assessment, they are deemed to be in need of a plan promoting integration, for example for students, employed people or a stay-at-home parent. The need for an integration plan takes into account the immigrant’s individual requirements and needs.

The first integration plan is drawn up for a maximum period of one year. The maximum period entitling the immigrant to an integration plan is three years from the signing of the first integration plan. The period may be extended if the immigrant needs special integration measures. For example, periods of illness or parental leave are not included in this period.

3.3 Initial assessments and integration plans in ALPO projects

The tools and contents of the initial assessment and the associated process have been developed around Finland both within funded projects and through other means. The number of initial assessments carried out by municipalities is still relatively low, but the ALPO projects have played an important role in the develop-ment of initial assessment processes in many munici-palities. Some projects have also held a key role in im-plementing assessments or parts of them. The Osalli-sena Suomessa (“Participative Integration”) project also included the development of initial assessments. Imple-mented in 2011-2013, the project was aimed at develop-

ing immigrant education, and alternative course deliv-ery methods were trialled in municipalities’ local devel-opment projects around Finland. For example in Vaasa, the Osallisena Suomessa project developed an elec-tronic assessment service to facilitate the sharing of in-formation among different actors in the area. The pro-jects highlighted the need to development some type of online solution which could facilitate service provision, for example, when an immigrant moves to another city. This was also highlighted by the ALPO projects.

In recent years, various regional and local solutions have been created in Finland for the implementation of initial assessments, the formulation of cooperation be-tween the local authority and the TE office, task alloca-tion and the associated roles. Experiences gained about initial assessments both in the ALPO and Osallisena Suomessa projects and in other areas will provide a good foundation for the harmonisation of the contents and the process of initial assessments through the use of best practices. In this continued development, the main focus should be on electronic solutions and on im-proving the exchange of information among local au-thorities, TE offices and educational institutions.

3.3.1 Recommendations from projects for the organisation of initial assessments

Many ALPO projects were directly involved in the de-velopment of initial assessments. Based on the experi-ences, the ALPO support structure published a guide entitled “To help in the early assessment - Examples of good practices in the early assessment in compliance with the Integration Act”3 which provides a thorough

+ The integration plan is a customised, personal plan designed to

support integration that is drawn up by the immigrant in cooperation with

local government agencies (the municipality and/or TE office).

3 Alkukartoituksen avuksi, esimerkkejä kotoutumislain mukaisen alkukartoituksen hyvistä käytännöistä. Publications of the Ministry of Employment and the Economy. Employment and entrepreneurship, 11/2012.

28

and illustrative description of projects’ experiences and joint recommendations. Key recommendations are pre-sented below.

Importance of native-language informationThe importance of native-language information has been highlighted in projects. The tests and interaction in the initial assessments should be carried out in the immigrant’s native language or another strong com-mon language. In other words, language should not be a barrier in the initial assessment.

Assessment requires special expertiseAnother point highlighted by the projects was that as-

Networking has produced results. Jarno Ruotsalainen, Lea Savolainen and Ilona Korhonen from the Koulutusportti project and Kristel Kivisik from the Testipiste project have come to the same table.

Phot

o: P

aula

Oja

nsuu

+ Based on the experiences,

the ALPO project published a guide

entitled “To help in early assessment

– Examples of good practices in early

assessment in compliance with the

Integration Act” which provides a

thorough and illustrative description

of the initial assessment measures.

29

sessment requires special expertise. Assessors should be experts in the topics and their assessment (e.g. lan-guage teachers or psychologists). Experts should also work in cooperation with each other. Assessments should be broad in the sense that immigrants’ language proficiency is assessed as a whole and not only in terms of verbal output. By creating different types of early as-sessment models, different kinds of assessment needs can be addressed, for example by having a basic assess-ment model and another more comprehensive model which can be chosen based on the customer’s needs.

Early assessment is part of a wider processA third point highlighted by the projects is that the ear-ly assessment should not be an isolated measure. The assessment should be seen as part of the integration process as a whole. It is important that the results of the early assessment be genuinely used in the formu-lation of the customer’s integration path. The informa-tion provided by the early assessments should be avail-able when drawing up the integration plan. After the assessment, guidance should be provided by a compe-tent professional. The advisor should be familiar with different educational options and other opportunities available so that the customer can be appropriately re-ferred and, for example, not automatically instructed to enrol in a labour market training course in Finnish re-gardless of individual needs. Integration plans should be kept up to date and a monitoring process also has to be in place.

Customer-oriented approach as the starting pointThe fourth point highlighted in the publication of the ALPO support structure was that the early assessment should be adapted to the customer’s individual needs as much as possible. Furthermore, the assessment should cover topics which benefit the customers and can be genuinely utilised when planning further meas-ures. The initial assessment must meet statutory re-quirements (the act and the decree) and the detail of its content should be designed to meet the customer’s individual needs. Some customers need more detailed measures than others.

Cooperation agreementsThe fifth point was that the best suitable early assess-ment models and practices must be agreed on locally or regionally. The implementation and contents of the as-sessment should not vary between different authorities or staff members. Joint practices should be agreed on at the local and regional level. Jointly agreed measures are especially important between local authorities and TE offices. In small municipalities, early assessments can be organised at suitable intervals, whereas in some other municipalities the assessment service should be continuously available. Furthermore, many local au-thorities could cooperate with each other to organise early assessments so that they can be arranged without unnecessary delay from the customer’s point of view.

Clear communicationsThe sixth point highlighted by the ALPO projects was that communication regarding the initial assessment must be planned carefully to ensure that the immi-grant understands the contents of the assessment cor-rectly, and that completing the assessment will genu-inely benefit him/her. Basic Finnish, translations and, if necessary, interpreting should be used in communica-tions. The objectives and content of the initial assess-ment should be explained to the customer in order to avoid giving the impression that he or she is being “se-

+ It is important that the

results of the early assessment

be genuinely used in the

formulation of the customer’s

integration path.

+ The best suitable initial assessment models and practices must be

agreed on locally or regionally.

30

cretly” tested. Transparent and clear communication about the objectives and content of the initial assess-ment helps disperse suspicion.

3.3.2 Initial assessment tools and models

Koulutusportti training information systemAt the project-level, Koulutusportti developed tools and methods for the early guidance of immigrants by re-gional TE offices. The main purpose of the project was to design and commission an electronic, browser-based information system which can be used to book train-ing places for immigrants and to manage their informa-tion. For example, previously there were no statistical data available about the waiting lists for labour market training courses, and the only way to manage the infor-mation was by Excel-based lists drawn up by adminis-trators or by using the URA database. Furthermore, in-formation between Finnish language teachers and the TE office was communicated by letter, fax or email. The Koulutusportti system can be used to make language test appointments, to send the test results to the TE of-fices, to reserve places in labour market training cours-es, to notify the TE office when a customer enrols in a course, completes or drops out of a course, and about future plans of course participants. The Koulutusportti system has been deployed by many TE offices around the country.

The Koulutusportti system collates real-time infor-

mation about initial language tests, upcoming training courses and the number of places available. The sys-tem also serves as a real-time, secure channel for shar-ing students’ information (notifications on course en-rolment, completion or discontinuation, future plans) between educators and the TE office. TE office adminis-trators can print the details of test dates or course reg-istrations for customers in different languages. Kou-lutusportti also facilitates the management of wait-ing lists based on recommendations on entry level and method of progress, and it collects statistical data about the associated information, such as course recommen-dations issued after tests, course waiting times, etc. The system as a whole and its individual functions are an improvement on the earlier methods of managing course information and sharing information between TE offices and assessors/educators. In addition, Kou-lutusportti provides data that support education plan-ning with regard to detailed information that was not previously available (e.g. course waiting lists). The abil-ity to print multilingual notifications of course and test locations considerably improves the service for non-Finnish speaking immigrants (previously, only URA let-ters in Finnish or Swedish were available).

TestipisteThe Testipiste test facility was developed as a response to inconsistent practices in initial assessment and the rising number of immigrants. It was felt that a stream-lined initial assessment process for immigrants was

+ The objectives and content of the assessment

should be explained to the customer.

+ For example, before Koulutusportti, there were no statistical data

available on the waiting lists for labour market training courses, and

the only way to manage the information was by Excel-based lists drawn

up by administrators or via the URA database.

31

needed so that resources could be used effectively and so that immigrants could be assessed according to equal and fair principles. The Testipiste customers are unem-ployed immigrant adults whose initial assessment and integration plan is drawn up by the TE office. The test customers are referred to the service by the TE office. The test appointment is booked via the Koulutusportti system when an immigrant registers as a job seeker or when the integration plan is drawn up. The customer receives an invitation and directions to the test facility in Finnish and in his or her mother tongue. In conjunc-tion with the appointment reservation, the customer signs a consent of disclosure form which enables the sharing of information between Testipiste and the TE office. Like Koulutusportti, the initial assessment mod-el of Testipiste has also been adopted at many localities across Finland. In order to address the need for a lit-eracy assessment discovered in the Testipiste project, another project called Lähtöruutu was launched to de-velop criteria for referral to different modules as well as test sets and an initial assessment model.

TurkuAn initial assessment model was developed in the Palo project. The model, which is called Testori, comprised of an initial interview, testing and a feedback discus-sion. Test materials and an assessors’ guide were drawn up in the project. The Testori activity with customers ended in May 2012, when the contract was awarded to a service provider, who then continued to provide the initial assessment service based on the measures de-veloped in the project. Since then, the City of Turku has adopted the Testori model for the initial assessment of its immigrant customers. The model is being used by Luuppi, the multicultural department of Turku Adult Education Centre.

At the start of the Palo project, the initial assessment period in Testori lasted three weeks and required one interview and three test days. In spring 2011, a one-week assessment schedule was adopted, which was

found to be problematic especially with regard to book-ing interpreters and the overall time spent by the asses-sor on the assessment, e.g. on checking and marking. In autumn 2011, a two-week test schedule was adopted, which includes 2 discussions and 1-3 test days.

Jyväskylä The Palapeli2 project developed and led various early stage integration services. The project organised ini-tial assessment and offered various forms of early stage training, guidance and advice. The purpose of the ini-tial assessment model was to identify a suitable form of integration training for each immigrant. The project developed the initial assessment activities gradually as part of the training arrangements in the project. Pre-viously, initial assessment was carried out throughout the 10-week learning period in Palapeli: immigrants' knowledge, skills, experiences and capabilities were assessed continually during their language learning period. Based on these experiences, actual develop-ment of the initial assessment model started in 2010. The components of the model as it exists today have been tested in various groups and with different types of learners over the years. The initial assessment eval-uates the immigrant's capabilities with regard to writ-ing in the native language, mathematical skills, memo-ry and perception, learning abilities, reading the Latin alphabet, and speech.

In the Jyväskylä model, initial assessments are ar-ranged 4–5 times per year (4–9 h over 2–5 days). The immigrant gets information about the assessment from the TE office, the immigration service of the City of Jy-väskylä, or from the project website. The immigrant completes the registration form and is given an assess-ment date. Based on applicants' information, they are divided into two groups on the basis of individual re-quirements: in the “long” or “short” assessment group. The short assessment is offered to immigrants who have a high level of education, have studied several lan-guages, have a good command of Finnish and are as-

+ Since then, the City of Turku has adopted the Testori model

for the initial assessment of its immigrant customers. The model

is being used by Luuppi, the multicultural department of the

Turku Adult Education Centre.

32

sumed to have good studying capabilities. The long as-sessment is offered to immigrants whose studying ca-pabilities need to be assessed. The initial assessment starts with an information session attended by both groups (with interpreter services provided). The groups are told why the assessment is being carried out, what it entails and what the assessment schedule is.

In the short assessment interview, the immigrant’s prerequisites for study or work are determined, and, if the immigrant has studied Finnish, his or her written and oral skills are evaluated. The results of the initial assessment are collected into learner-specific forms. The forms are reviewed in a meeting attended by all experts involved in the initial assessment. In the meet-ing, a recommendation is made for each immigrant on the most suitable form of integration training. The rec-ommendation is logged in the customer database of the TE office. The initial assessment results are also used in the long-term guidance of immigrants in the Palapeli2 project.

In the Jyväskylä model, immigrants were referred to a language test by the TE office or the guidance servic-es operated by the Palapeli2 project. The language test includes an assessment of speech, listening compre-hension, reading comprehension, writing and, if neces-sary, the ability to read the Latin alphabet. The assessor submits the assessment result (and a possible recom-mendation on training or other measures) to the TE of-fice or the guidance service instructor. Language test-ing was also used for immigrants who were looking to apply for vocational education. In these cases, tests can indicate whether the applicant has sufficient command of the language to start vocational training. If not, the customer is advised which area of language proficiency he or she should improve before applying for vocation-al education, and he or she can be referred to a suita-ble language course. The project also developed a form for passing on the information to appropriate bodies (teachers and authorities) with the learner’s consent.

South OstrobothniaThe ERKKI project for a centre of consultation for im-migration in South Ostrobothnia worked with munic-ipalities, authorities, educational institutions and oth-er stakeholders to develop different types of support models for immigration measures, including e.g. work by a local immigration commission, an integration pro-gramme template, a model for Finnish language stud-ies, and the implementation of the initial assessment.

In ERKKI, the competence assessment includes five meetings with the target group within a three-week pe-riod. Each meeting lasts four hours and includes lec-tures, discussions, interviews, activities and group as-signments. Each group has 6-10 members. If possible, the participants should be from different countries and have basic language skills. Alternatively, the initial as-sessment can be conducted in English or, if all group members are from the same country, in their native lan-guage with the help of an interpreter. Different activi-ties and cooperation with different types of experts are aimed at evaluating each immigrant’s background, ed-ucation, (specialist) qualifications, (work) experience, strengths, motivation and learning style.

Tampere regionThe ALMA project included measures to develop an ini-tial assessment model and disseminate it throughout the region. In Tampere, initial assessments are carried out by the immigrant advisory service. The initial as-sessment and language tests were also introduced at the Valkeakoski Vocational College. The assessment form included in the initial assessment model has also been adopted by several municipalities outside the Tampere region. The Tampere model combines low-threshold guidance and advisory services offered in a range of languages and the initial assessments. The ini-tial interviewed carried out by the advisory services is conducted by trained native-language advisors, which eliminates the need for interpreters and provides a fa-miliar setting to many immigrants. The initial interview takes 2-3 hours. Customers who need further assess-ment are referred to appropriate cooperation bodies.

Development measures in other areasInitial assessment measures were also developed by the Bothnia Integration project. The project imple-mented a three-day programme. On the third day, an in-tegration plan was drawn up in cooperation with dif-ferent actors. The MaTTi project also developed meas-ures related to initial assessment in the South Karelia region. In the MINFO project, initial assessment meas-ures were developed as part of a wider integration pro-cess, which also included competence assessments and regional integration service packages designed to facil-itate personalised integration paths. Initial assessment measures were also addressed by the project for the de-velopment of an advisory and guidance system for im-migrants in the Hämeenlinna region.

33

4.1 Language, culture and societal information

MAny pRojeCTs created “introductory periods” for integration training measures, which could be im-mediately available to recently arrived immigrants or in situations where an immigrant is waiting to start an integration course organised by the TE office or if other suitable measures or training services are not available in practice.

Quick start to integrationIn Rovaniemi, the Verso partnership project implement-ed various measures designed to help immigrants im-mediately upon their arrival in Finland or those who are waiting to get in an integration course or for some reason are unable to take the course. The main outputs of Verso, the “integration start”, different types of work-shops (Kahvila and Taikuri), language learning services (a discussion club, practical Finnish and remote learn-ing), a workshop held at a workplace, and associated materials and tools were all well designed and formu-lated.

The measures of the Palapeli2 project as a whole were designed to create a holistic start to integration by combining advisory services, guidance, assessments and various measures. The native-language, early stage guidance and training offered by Palapeli were provid-ed in a 60-hour course which included instruction and guidance in English or via an interpreter in other lan-guages. The group met in 1.5-hour sessions three times a week. The course is offered to participants of Finnish language courses and those who haven’t yet received a place. An additional 30-hour guidance period for ref-ugees includes guidance given to families both in and outside the home. The aim is to help immigrants under-stand how Finnish society works as soon as possible af-ter their arrival. The measures also help to build trust in the authorities. Peer support plays an important role.

The course was implemented in cooperation with im-migrant associations and authorities. In the Pointti pro-ject, the labour market and integration coaching ser-vice offered to immigrants in their native languages also contained similar elements. Pointti organised the training of native-language coaches as well.

Language learning supportLanguage learning measures were developed in var-ious ways in the ALPO projects. Language training was arranged for different target groups in many dif-ferent forms. For example, the Palapeli basic language course offered to local immigrants by the project of the same name gave immigrants the chance to study the basics of Finnish along with other topics that support integration. The aim was to offer language training as soon as possible after arrival in the country. Learning took place in four groups of different levels based on the learners’ Finnish language proficiency, educational background and learning capabilities. The average du-ration of learning in the project was 2.5 months (1 peri-od). The learning opportunity offered by Palapeli is not integration training per se; according to the Integration Act, it is considered self-directed learning. After the ‘0'-level Palapeli course, immigrants usually continue to labour market integration training. In other words, the course is designed to complement labour market training and reduce the waiting times. The model uti-lises the fact that immigrants are highly motivated to learn the language immediately after their arrival in the country. They can also utilise their existing learn-ing capabilities or get support to improve them. This is designed to make language learning and integration faster and more effective.

In the Jyväskylä model, after the initial assessment immigrants whose language proficiency was below the A1 level of the Common European Framework of Refer-ence were referred to the Finnish '0' course implement-

4. other integration promotion measures

34

ed by the project. The course started one week after the initial assessment. Participants were divided into groups based on the assessment results. The learners studied in three groups which were formed on the ba-sis of their learning capabilities. If necessary, another group was formed for participants with primary illit-eracy or secondary illiteracy and for the semi-literate. The course contents were customised to the group’s needs. A general objective was to learn vocabulary and expressions for early stage integration and day-to-day life. The main emphasis is on verbal expression and in-teraction. In addition to language skills, the course de-velops learning capabilities, especially in the basic-lev-el and slow learning groups. The course also included other topics that support integration, such as excur-sions around the new home city, IT, food-related cours-es and mathematics. These topics are customised to the group’s needs and integrated in the language stud-ies on a group basis.

Low-threshold language courses and language clubs were developed and implemented for different tar-

get groups by several projects (e.g. Verso, Homelike Oulu, Juuret ja siivet, Hämeenlinnan seudun maahan-muuttajaneuvonta ja -opastusjärjestelmän kehittämin-en). Many projects experimented with intensive “Finn-ish start-up courses” which complement the language course offering of the TE office and other operators. For example, the Juuret ja Siivet project organised in-teractive early stage Finnish language training for im-migrants who did not have access to a course or other opportunities for language learning. The Alipi project organised an intensive Finnish course for returning mi-grants. Literacy training and language training related to job-seeking was organised by projects such as Both-nia Integration. The Elävä Kieliketju model produced by the SATAKOTO project was based on voluntary conver-sation and language practice offered by NGOs. The Sil-mu project supported self-directed learning, organised guidance on the Finnish language and various activity groups. Immigrants with low-level reading skills were offered training in the VOIMA project.

The AIKIS project developed employment-oriented

Phot

o: P

aula

Oja

nsuu

35

Finnish and Swedish learning materials which includ-ed vocabulary from different vocations. The materials were offered online to adult immigrants. The service in-cludes reading and writing exercises and Finnish and Swedish for everyday life. The service is free to users. It also includes a self-assessment component which im-migrants can use to test their language skills. The on-line service is produced in cooperation with dozens of educational institutions, and the scripting was done by approximately 100 teachers. The service is adminis-tered by the National Board of Education, and the ser-vice is updated as often as possible.

Developing the role of NGOsLike in some of the ALPO projects, the Osallisena Suomessa experimentation projects also developed co-operation between local authorities and NGOs. In par-ticular, the role of NGOs was developed to support re-cently arrived immigrants. The experiences of the ALPO projects also showed that NGOs play an important role in the early stage of the integration process, both “with-in” formal integration training and in various activities that support integration in informal ways. When pos-sible, early stage native-language guidance and advice supports integration in the form of peer support re-ceived from the immigrant’s own ethnic group (immi-grant associations).

Culture as a tool of integrationALPO projects also developed the role of culture-relat-ed measures in integration. In Rovaniemi, the Kultti project formulated a cultural integration plan and ac-tion plan. The Taide Kotouttaa (“Art Integrates”) project was aimed at developing and trialling art-based inte-gration methods. Different types of multicultural train-ing programmes were organised by a number of ALPO projects.

4.2 Development of services, processes and competencies

In practice, some ALPO projects have made a major contribution to the development of national, region-al and local processes related to immigration and in-tegration. For example, the Koulutusportti system has had an effect on the task allocation and roles of dif-ferent operators. In addition to instruction materials, the project produced a recommendation on a custom-er process model. Similarly, Testipiste has influenced the task allocation of different operators. The creation of online services and solutions has played an impor-tant role in many projects. Online services were devel-oped around various different themes. Language edu-cation and learning were supported through collabora-tion measures in the AIKIS project for the coordination of language training development for immigrants. The project produced a nationally significant online Finn-ish and Swedish learning service which can be used by immigrants and teachers. InfoFinland.fi continued the work of Infopankki/NEO-SELMA by implementing a multilingual, up-to-date online information service for available Finnish language courses. Online services and solutions were also produced as part of a number of other broad-based projects. Originally developed as part of the Pointti project, the ALPO register was quick-ly adopted by several advice centres across Finland, which then also influenced the way activities were ar-ranged in practice.

In Kainuu, the Juuret ja Siivet project of Nuotta creat-ed a model for eNeuvokki, a virtual online service with language support which facilitated the provision of ad-visory services in sparsely populated areas to comple-ment advisory services offered in a physical setting. Customer service terminals were installed in libraries. The advisory service was implemented as a video meet-ing with advisors who offered the service during their regular working hours. This way, the service was more widely available to the population of the region. The system could also be used to offer language support to public service providers in customer service situa-tions. The project also developed a proactive Russian-language advisory service via Skype.

Services and processes were developed in many dif-ferent ways. Projects such as Homelike Oulu and Info produced models and process descriptions for the in-tegration service system. The NEO-SEUTU project de-scribed and analysed the entry processes of immi-grants in Helsinki, Espoo and Vantaa. In the Pointti

+ The experiences of the ALPO

projects showed that NGOs play an

important role in the early stage of

the integration process.

36

project, cross-departmental guidance and advisory ser-vices to support integration were modelled holistically. According to the approach used in the project, these included culturally aware and multilingual information services, low-threshold advisory and guidance servic-es, third-sector peer support and native-language ad-vice, native-language integration training, reception of employment-based migrants, culturally aware official assistance in services, professional community inter-preting, service guidance in integration training, the consideration of the interim stage between integration training and vocational education, service guidance in vocational education, support measures for vocational education, employment services, and the expert net-works of government agencies. The Pointti project pro-duced a quality indicator for the integration measures of local authorities that is currently being developed into an electronic self-assessment tool for local author-ities. The tool will be administered by the Centre for Integration Expertise, and once completed, it will be available on the kotouttaminen.fi website.

The VAIKO project of Lapland ELY centre developed processes and customer guidance services related to integration. For example, this included a description of the supported integration service process. The purpose of the process description was to improve the accura-cy of guidance, i.e. appropriate referral of customers to different integration services and measures at different stages. The process description would serve as a “map” for officials working with customers, facilitate custom-er guidance and the drawing up of goal-oriented inte-gration plans.

Enhanced inclusion of immigrants' customer per-spective in the development of services was trialled in some projects. For example, the Bothnia Integration and Satakoto projects trialled the use of immigrant panels.

The experts working in the ALPO projects have op-erated locally and regionally offering their expertise in various situations from individual customer cases to broader service development contexts. Project team members have also implemented various educational events designed to enhance the competencies of differ-ent service providers in immigration matters. In addi-

tion, ALPO projects have been extensively involved in the development of municipal services, by offering con-sultation and support and by acting in steering groups and expert groups of other projects. Nearly all ALPO projects have provided training and organised training events. Some of the projects have played key roles in local areas as educators; for example, the SATAKOTO development project for immigration and integration organised a number of educational events. In addition, the projects have published a wide range of guides, manuals and other materials.

4.3 The formulation of strategies and integration programmes and the development of networks

Many ALPO projects have played an important role in the formulation and monitoring of local and regional in-tegration programmes, immigration policy programmes and immigration strategies. Objectives, measures and task allocation were agreed on in these programmes and strategies.

ALPO projects have participated in various regional and local networks on immigration and integration, and they have also led some of these networks and working groups. Many ALPO projects have also been involved in the development of new forms of network-based co-operation, either in immigration matters in general or with regard to specific issues. For example, Bothnia In-tegration was involved in the creation of a transition-stage group to address issues specific to immigrant youths. The Rovapolut project launched the Koulutus-polut (“Education Paths”) team which was tasked with streamlining guidance practices and with developing the local educational offering, advisory and guidance services, and a service network.

The responsibility for cooperation structures and forms of cooperation created within ALPO projects has since been transferred to permanent agencies. ALPO projects have therefore helped to create closer coopera-tion between permanent agencies, improved the trans-fer of information in integration networks, and aimed to eliminate any overlapping measures.

+ Many ALPO projects have made significant contributions to the

formulation and monitoring of local and regional integration programmes,

immigration policy programmes and immigration strategies.

37

5. promotion of employment

5.1 Employment promotion measures

ACCoRdIng To the experiences gained in ALPO projects, promoting contact between employers and employees has been productive and important. ALPO projects have implemented highly diverse employment promotion measures. Job search and work placement search have been central features in many projects (e.g. Maahanmuuttajaresurssit käyttöön, Alipi, and the pro-ject for promoting active job search among the immi-grant population in the Kemi-Tornio sub-region). The job seeker’s role was modelled in a project in Lappeen-ranta. In addition, ALPO projects have developed work counselling measures (e.g. Muutoksessa mukana / Muutoksessa mukana Lappi) and job coaching, which are described in the section on guidance earlier in this report. Job coach models were developed by a number of projects. For example, a project on guidance and job search services for immigrants trialled a model for two coaches working in pairs, one of whom had an immi-grant background.

In the MaTTi project, immigrants were offered job seeking services and offered courses on the job search as well as general assistance in job seeking, including work placements. In Turku, the TRIANGELI project de-veloped enterprise coordinator activities, organised pre-employment courses and provided native-language support. The project was one of the vocational rehabili-tation service providers of the Insurance Rehabilitation Association of Finland. In Vaasa, the Bothnia Integra-tion project implemented by the TE office organised subsidised work placements in cooperation with mu-nicipalities as well as training measures promoting in-tegration and employment.

In some ALPO projects, the promotion of employ-ment was one of the main tasks. For example, the pro-ject promoting an active job search among the immi-grant population in the Kemi-Tornio region was aimed

at finding work placements, jobs and educational op-portunities and developing cooperation among im-migrants, key operators and businesses through vari-ous measures. Workplace skills and employment were also supported in the Silmu project. Information about working life was disseminated using native-language brochures. Advice and assistance was given on how to complete applications and forms, coaching sessions were organised, and immigrants were supported in their search for work placements and jobs.

The cooperation with workplace organisation was developed by several projects. This involved different types of events organised with businesses, other em-ployers, NGOs and government agencies, information and communications activities, campaigns and various targeted measures. The Monikulttuurinen Salo (“Mul-ticultural Salo”) project built a vocation-based mentor-ing network with several different operators. The pro-ject cooperated with other projects including Womento which is run by the Family Federation of Finland. Pro-jects whose employees worked in TE offices or with them were also involved in the delivery of the service reform of the TE office in various ways.

The activities of educational institutions were also

+ Cooperation

with workplace

organisations was

developed in several

projects.

38

developed in various ways. These development meas-ures are described in the section on the development of advisory and guidance services of this report. A model on the qualification training of dentists was developed by a partnership project in service guidance for immi-grants (Maahanmuuttajien palveluohjauksen kump-panuusprojekti). In addition, the ALPO support struc-ture published a report on barriers to employment.4

5.2 Promoting entrepreneurshipSeveral projects implemented entrepreneurship cours-es and prepared materials on entrepreneurship (e.g. Homelike Oulu and Juuret ja Siivet). In the Juuret ja Si-ivet project, business start-up training for immigrants was implemented in cooperation with the business ad-visors of Enterprise Finland. Project advisors offered language support in different stages of training. The project also implemented Russian-language coaching sessions for immigrants who were considering starting a business.

ALPO projects have also investigated the challenges faced by immigrant entrepreneurs in Lapland (especial-ly women and children). In the KEMU project (Kestävä maahanmuuttajayrittäjyys, “Sustainable Entrepreneur-ship for Immigrants"), background information about best practices in the Nordic countries was collected on topics related to supporting immigrant entrepreneurs. In addition, immigrants were engaged in the produc-tion of information, forms of support needed by immi-grant entrepreneurs were identified, and recommenda-tions on follow-up measures were proposed.

Maahanmuuttajien yrittäjyyshanke, another project on immigrant entrepreneurship, developed a business incubator model and further guidance measures for en-trepreneurs. As part of the model, new entrepreneurs are supported by mentors who completed a coaching programme organised by the project. A business start-up guide written in basic Finnish was also piloted in the project.

4 Maahanmuuttajien työllistymisen esteet - kohti ennakoivaa ja vaikuttavaa verkostotyötä. Ministry of the Interior publications 11/2012.

39

CAse: permanent employment via the Triangeli project

Launched in 2012 and administered by the City of Turku Welfare Division, the Triangeli project helps immigrants find employment by utilising individual career counselling, work trials and co-operation with businesses. The project is part of the ALPO network. The target group is immi-grants living in Turku or neighbouring municipal-ities who have moderate command of Finnish. Four business coordinators have offered immi-grants guidance and advice on finding jobs. In 2013, 82 people found employment in the open labour market and another 172 people were re-ferred to labour market measures (e.g. work tri-als, training and subsidised employment). The project will continue until the end of 2014.

Triangeli customer Dahir Sheik is happy: “I have an employment contract for an indefinite term and I owe it all to business coordinator Marco Mikkola.” Dahir moved from Oulu to Turku in au-tumn 2011 in the hope of better employment prospects. “I was unemployed when I became Marco’s customer. I had no idea what I wanted for the future. I was interested in retail, con-struction and cleaning services. Before I came to Triangeli, I had unsuccessfully applied to vari-ous training courses organised by the TE office. Marco helped me write my CV and a job appli-cation. I had no work experience, just an empty bag,” Dahir laughs. “With Marco’s help, I got my first work placement in retail at the K-Super-market. First I had a one-month work trial peri-od, and I was able to continue working there for another four months. Marco helped me apply for vocational training in sales. I was accepted, and I also obtained a hygiene pass and first-aid card during the programme. In addition, I took the exams for an occupational health and safe-ty card and a truck lift driver’s licence through the Triangeli project,” Dahir says, proud of his achievements. “However, when the training pro-

gramme finished, I was unemployed once again. Triangeli helped me find subsidised employment for four months at the same K-Supermarket where I had done a work trial period. When the four-month period ended, I called Marco back again. He always finds a solution.” Marco sug-gested Dahir apply for a position as a peak re-lief assistant at Voimahyllytys. “We completed the online application together - I doubt I would have been able to do it right on my own,” Dahir explains. Dahir’s application was accepted and he was given a permanent position.

“It is important that the business coordinator knows the customer and is able to leverage the

customer’s personal resources in job-seeking,” says business coordinator Marco Mikkola. For Marco, the job of business coordinator is to open doors. “We tell customers about different ways to find employment opportunities. In our case, the most active employers are SMEs. We have built contacts with our business partner network over a long period. Businesses have given this a strong welcome,” Marco enthuses.

Sirpa Vainio, Triangeli project/Palo project, Turku

Phot

o: S

irpa

Vai

nio

Business coordinator Marco Mikkola and Triangeli customer Dahir Sheik.

In 2013, 82 people found

employment on the open

job market.

40

6. Conclusions and recommendations on follow-up development measures

The goveRnMenT’s integration policy is based on the government programme, the government in-tegration programme, the Future of Migration 2020 Strategy and its recently adopted implementation pro-gramme. In addition, regional and municipal measures are also based on separate migration or internationali-sation strategies as well as regional, local and munici-pal integration programmes. The objectives of different funding bodies and the programme documents of vari-ous funding mechanisms also play a key role.

A fast start to integration is important and empha-sised by the Integration Act. Fast and consistent pro-gress after arrival is supported through the provision of basic information, advisory and guidance services, ini-tial assessment, and the formulation of an integration plan. Conclusions and recommendations for follow-up development measures drawn from the experiences of ALPO projects are presented below.

6.1 ConclusionsLocal authorities are major and immediate beneficiaries of funded project activity – when there is a will and a desire for it. ALPO projects have helped to create and develop mu-nicipal services, to strengthen cooperation between local authorities and other actors, to support the per-manent adoption of measures developed with project funding and, most importantly, to support the settle-ment, integration and employment of immigrants in their home municipalities. Municipalities which have participated actively have benefited from the efforts. However, many Finnish local authorities have yet to fully recognise the needs of residents who do not speak Finnish or Swedish as their first language or fully take them into consideration in their services. It is now time for local authorities to spring into action to ensure that the early stage services for immigrants are in place and that they work efficiently with a focus on the custom-er. Local integration measures should be understood as highly cross-departmental work.

Focus on the customer means that services should be developed and implemented in such a way so as to

+ Local integration measures

should be understood as highly

cross-departemental work.

41

ensure that the measures genuinely serve the needs of all immigrants and that they are effective and mean-ingful – regardless of the individual’s reason for migra-tion. Services should be accessible to all customers and enough information should be available about them. The customer is at the core of all activities.

According to the Integration Act, municipalities have overall and coordination responsibility for the de-velopment, planning and monitoring of integration at local level regardless of the size of the local immigrant population.

ALPO projects across Finland have been very productive. In 2014, the early stage service system for immigrants looks in many ways different than it did in 2007. There are several reasons. For example, there has been a leg-islative reform, and the government integration pro-gramme has been adopted. A specific feature of ALPO projects was that they had very direct links to both the legislative reform on integration and the implementa-tion of the act which came into force in autumn 2011. Many project actors contributed to the preparation of legislation.

Legislation provided the projects with a backbone

which has been used successfully across the country. In many places, measures developed by projects have been adopted and made permanent. As a result of in-creased immigration, immigrant service needs have become more visible in municipalities. Increased ser-vice needs have been addressed, for example, through measures under the ALPO projects.

On the other hand, the operating environment of ALPO projects has been affected by the economic down-turn and pressure for public service cuts. In recent years, there have been changes in public services and organisation structures have been modified. This has affected activities in many projects, both at the practi-cal and a more strategic level. The pressure to reduce the functions of local authorities is high. It has not been easy to turn project outputs into permanent measures and services. Each and every success has been the re-sult of a lot of work by many people who believe in the cause. The work continues in different forms in differ-ent localities. Some have made a lot of progress while

Project work at immigrant information service Mainio in Tampere. ALMA project members Kristiina Teiss, Päivi Sinkkonen and trainee Jenni Ahde (University of Tampere).

Phot

o: L

aura

Ves

a

+ Networked projects have been

able to avoid overlapping activities

and leverage each other’s outputs.

42

in other municipalities, the work has only just started.There have been numerous achievements and suc-

cesses, but also some problems. Over the course of the projects, many project managers and project workers have expressed a desire for more municipalities and other actors to be active in turning the outputs funded through projects into permanent measures and servic-es. Overall, there has been a call for more attention and more resources for immigration and integration mat-ters. Many have also expressed the hope that other bod-ies and not just those dealing specifically with immi-gration would spring into action in questions related to immigration. ALPO project actors have emphasised the need for different organisations to work together to de-velop their operations from the point of view of the im-migrant, in other words, the customer, user, local resi-dent and ultimate beneficiary. Some have expressed the hope that local and regional operators would receive more support and direction from a ministry, while oth-ers would prefer not to have top-down government in matters which are better known and recognised at the grassroots level. As the ALPO project draws to a close, it is fair to say that the world is still not perfect. The work continues.

The ALPO projects have benefited significantly both from each other and from the support structure. The sharing of information, competence development, brainstorming, learning from successes and difficulties and peer support always play an important role in pro-ject activity. Many ALPO projects would not look the same if it had not been for the other ALPO projects. The results of a survey conducted in summer 2013 show that individual projects of the ALPO network have dis-seminated and leveraged the outputs and products of other projects efficiently. In quantitative terms, differ-ent types of guides and practical tools have been uti-lised the most. Undoubtedly the product utilised most effectively of all outputs of the ALPO network was the ALPO register, which is still in use at many advice cen-tres. The deployment of the register is a good exam-ple of how project-based activity can develop practical, widely useable tools without an expensive design, spec-ification and contract processes. Other significant out-puts include tools and operating models for customers’ referral to initial assessment and integration training.

Overall, the project activities have been more effi-cient compared to the previous funding period. Net-

worked projects have been able to avoid overlapping activities and leverage each other’s outputs. The ALPO projects have operated in a highly transparent and open manner. The ALPO support structure has been an im-portant factor in creating, maintaining and developing contact between different projects. Naturally, individu-al projects have networked beyond the “ALPO project family”, but the national network of people involved in the same activity has shown its strength on many oc-casions. Projects which have been active members of this peer network have benefited the most. On the oth-er hand, activities are somewhat hindered by the wide range of projects in the field of immigration and also by the high turnover of project workers. These structur-al problems highlight the importance of good coordina-tion between different actors.

Customers and issues are more important than programmes and projects.There have been many forms of contact between dif-ferent ESF development programmes, other EU funding programmes (SOLID funds, in particular the Integration Fund) and other national development programmes. The Osallisena Suomessa project which ended in 2013 was specifically aimed at developing integration train-ing services. For example, there were sub-projects for the development of initial assessment and training was organised for groups that often fall outside integration training. Many ALPO projects featured similar meas-ures to those implemented in Osallisena Suomessa pro-jects. MATTO projects have developed the early stage service system for immigrants especially from the point of view of employment-based immigrants. It was natu-ral to have joint events and meetings for the different development programmes and project to facilitate the sharing of experiences and views. And, naturally, pro-jects have also had cooperation at the local and region-al level, regardless of which development programme they were under.

One essential aspect has been to form a broad under-standing at the national, regional and local level about how the development measures implemented through funding from various different instruments can ad-vance the key issues and themes that benefit migrants, what connections there are between different develop-ment projects and, going forward, what issues require special attention. Furthermore, the evaluation of pro-ject activities, outputs and impacts requires a holistic understanding of the development field as a whole. In

43

The Welcome to Finland guide is a useful tool.

Phot

o: S

ami P

ulkk

inen

44

many localities, project-funded development measures have been successfully advanced as a whole. This has required extensive knowledge and consideration of dif-ferent customer processes and solid coordination of project-based and regular established measures. This entails a problem observed in many development pro-grammes, including ALPO, which is that from time to time, ELY centres have made decisions on projects that were factually within the scope of the support struc-ture but which were not communicated to the support structure. In some cases, no statement from the sup-port structure was requested. However, during ALPO, the situation improved over the course of the project activity.

Successful project activity is always underpinned by a genuine will to resolve the problems and issues of the ultimate beneficiary, the immigrant. Information and views on key matters should be communicated in a form that speaks to decision-makers.

ing to Finland in connection with the service of the de-cision on the residence permit, registration of the right of residence, issue of a residence card or the registra-tion of the population information and information on the municipality of residence. In practice, the material is disseminated by the police, register offices and Finn-ish embassies and consulates abroad.

The current Integration Act is aimed at extending services and measures so that they are available to all immigrants based on their individual requirements, re-gardless of the grounds on which the person has ar-rived in Finland. It will depend on its practical imple-mentation how well the basic information material about immigrant rights, duties and available services and measures (incl. the initial assessment, the integra-tion plan and integration training) will reach individual immigrants who have little or no contact with authori-ties, depending on the reason for migration. It is there-fore essential that information (incl. the Welcome to Finland guide) be efficiently disseminated by all the dif-ferent authorities that immigrants have contact with in the early stage after their arrival. In addition to govern-ment authorities (the police, the AVI and register office, the Ministry for Foreign Affairs, embassies and consu-lates, KELA and the Tax Administration), local authori-ties' services and third sector activities are also impor-tant information channels.

In accordance with the Integration Act, the basic in-formation material should reach every immigrant. In practice, this is still not the case. Although the situa-tion has improved, there are still local and regional dif-ferences in what information is disseminated and how. The dissemination of national as well as any regional or local basic information materials (written and elec-tronic) should be improved. Moreover, the information must be up to date. The role of electronically dissemi-nated, centralised information will increase (e.g. Info-

ConCLusIons

• Local authorities are major and immediate beneficiaries of funded project activity.

• ALPO projects across Finland have been very productive.

• The ALPO projects have benefited significantly both from each other and from the support structure.

• Customers and issues are more important than programmes and projects.

+ In accordance with the

Integration Act, the basic

information material should

reach every immigrant.

6.2 Recommendations on follow-up development measures

1. More versatile and effective forms of disseminating basic informationAccording to section 7 of the Integration Act, immi-grants are provided with information about their rights and obligations in Finnish working life and society. Im-migrants are also provided with information about the service system and the measures promoting integra-tion. The basic information material (in practice, the Welcome to Finland guide) is given to all persons mov-

45

pankki, Lifeinfinland.fi, Workinfinland.fi and Finnish-courses.fi).

Different types of guides and online portals should be utilised in diverse ways by different actors, in all measures related to immigrants. If there is not enough local or regional information available, the information should be produced or collated. It should also be noted that it is not just about the technical distribution of in-formation, but it should also be communicated in a cul-turally aware manner.

A related question, and a continuing issue, is how to reach all immigrants, who have different life circum-stances and have moved to Finland for different rea-sons. This will require a great deal of good cooperation between authorities but also effective and novel forms of cooperation among authorities, NGOs and employ-ers. Proactive investigative work as well as visible and impactful communications are also needed.

2. Advice must be developed into a multi-channel service as part of the whole service systemSome of the low-threshold advisory services created and developed by ALPO projects have been adopted as permanent services by municipalities and other ac-tors. Providing the advisory service is a statutory task of local authorities. Local authorities therefore have the duty to organise low-threshold advisory services for im-migrants as part of the general basic advisory service provided to local residents. Local authorities should seek to adopt and establish services such as the low-threshold advisory service for immigrants that is cur-rently operated with ESF project funding. In municipal-ities that currently do not offer any advisory services to immigrants, the advice needs of immigrants should be taken into account in other advisory services. In addi-tion, the need for an advisory service designed specifi-cally for immigrants should be assessed and addressed, for example, physically in conjunction with another suitable service.

The status, location, cooperation partners and tasks of low-threshold advisory services for immigrants may change over the coming years as part of a broader re-

specification of public services. The customer service centres of government agencies are being developed and also centralised in some areas. Increasing coopera-tion between local authorities means that regional ser-vices will become ever more important, and this will also influence future funding models of advisory servic-es.

Since advisory service is a goal-oriented activity, it is a good idea to formulate a service promise for custom-ers. The service promise is fulfilled when the customer receives advice and guidance on a matter or problem at hand. In addition, customers will be referred to an-other part of the service system, if necessary. The aim is for all immigrants to have access to equal, good-quality advisory services, regardless of where they live, what languages they speak and on what grounds they have arrived in Finland. For the advisory services to be ef-fective, there should be a sufficient number of advisory service points throughout the country which take into account the need for versatile advisory services. Local authorities are responsible for the active provision and development of advisory services.

Since the need for advisory services is broad-based, diverse and multi-sectoral, it is important to be able to deliver the service through multiple channels (in addi-tion to physical advisory service points, other verbal and written advice and active use of the Internet and social media, for example, through various chat applica-tions). However, the physical service location is still im-portant. In the future, immigrant advice services could be located in the same facility with various other pro-viders depending on local requirements, either in con-junction with projects and NGOs working on immigra-tion matters or public service representatives who offer advice, or even in a more informal setting where differ-ent types of events and courses are organised. The im-portant point is that service centres should offer an ac-cessible, functional and pleasant environment.

From the point of view of resources, offering a full range of service languages is neither cost-effective nor sensible. For that reason, advisory service centres should be familiar with each other’s service language

+ Local authorities have the duty to organise low-threshold

advisory services for immigrants as part of the general basic

advisory service provided to local residents.

46

offering so that each individual service centre has ac-cess to a comprehensive range of languages. In today’s world, technologies offer highly flexible and effective solutions for activities such as remote interpreting, which makes it easy to have a more extensive service language offering.

Advice and guidance are terms which can have many different meanings. They can vary depending on which professional group is using them. In the ALPO projects, advice usually means advisory services given to cus-tomers in order to refer them to the right information or service. When designing general services available to all, it is important to consider immigrants' equal op-portunities, for example, in using the multi-channel ser-vices of the TE office.

Guidance usually involves a working approach de-signed to empower the customer and it can include long-term dialogue. In ALPO projects, development ef-forts have focused on advisory services, although some projects have developed more extensive guidance measures.

It is important to remember that, ultimately, it is about the public service system as a whole and how customers can access the help they need. Because the settlement and integration of immigrants requires cross-sectoral work by authorities and, in many cases, good cooperation with public operators, NGOs and em-ployers, ultimately the entire service system, service chains and networks have to work together. A service provider network is often only as strong as its weakest link; in other words, a single efficient operator cannot change the end result alone.

What is required at the practical level is good coop-eration and understanding of other operators’ servic-es and operations among the customer service func-tions of TE offices, local and central governments, as well as educational institutions and NGOs. The inter-faces of the roles, tasks and operators involved in ad-visory and guidance service provision in these organi-sations should be agreed on locally or regionally when necessary. For example, matters that have been agreed on could be recorded in local integration programmes.

3. The use of initial assessments must be increased and their effectiveness improvedExperiences from initial assessments both in ALPO pro-jects and others (e.g. the Osallisena Suomessa projects) provide a basis for harmonising the content of initial assessments and the associated process. In this contin-ued development, the focus should be on electronic so-lutions and on improving the exchange of information among local authorities, TE offices and educational in-stitutions.

The number of initial assessments remains very low, especially in those conducted by local authorities, even though the assessment has been given an impor-tant role by the Integration Act. The assessment meas-ures of local authorities should be targeted at the right group, in other words, immigrants who are outside the scope of TE office services. Depending on individu-al needs, these can include, for example, employment-based immigrants, students and stay-at-home parents.

The initial assessment is not a separate measure; rather, it should be seen as part of the wider integra-tion process. The initial assessment influences the ad-vice given to the customer about the next path and ser-vices. It is important that the results of the initial as-sessment are genuinely used in the formulation of the customer’s integration path. Information about initial assessment is given by different authorities, but work is still needed in order to increase awareness about it.

The initial assessment must meet statutory require-ments (the act and the decree) and the detail of its con-tent should be designed to meet the customer’s individ-ual needs. Language-level testing must always be car-ried out by competent professionals. The act provides that individuals can be referred to a more detailed com-petence assessment in conjunction with the initial as-sessment, but this has received little attention so far.

The information provided by the early assessments should be available when drawing up the integration plan. In the future, this will probably require an online process and appropriate harmonisation measures.

After the assessment, guidance should be provided by a competent professional. The tests and interaction

+ Ultimately, it is about the public service system as a whole

and how customers can access the help they need.

47

in the initial assessments should be carried out in the immigrant’s native language or another strong com-mon language. In other words, language should not be a barrier in the initial assessment. Interpreters should be used if needed.

The initial assessments at the local and regional lev-el must be designed with a focus on the customer. Fur-thermore, the assessment should cover topics which benefit the customers and can be genuinely utilised when planning further measures.

The implementation and contents of the assessment should not vary between different authorities or staff members. Policies on the initial assessment and the al-location of responsibility between the local authority and TE office have been agreed upon at the national level. Joint practices should be agreed on at the local and regional level in order to ensure a high standard of the assessment service. Jointly agreed measures are especially important between local authorities and TE offices. Regional and/or local initial assessment mod-els and implementation can be adapted to local needs. The actors should work together to determine the best possible model for their operating environment. Solu-tions are not issued top-down; this area will continue to require local and increasingly regional cooperation. This requires an active developmental approach from all the actors. The implementation framework and sup-port is given top-down through guidelines, but the so-lutions are implemented in practice “from the bottom up”. ELY centres should have a harmonised policy with regard to the arrangement and compensation for initial assessments.

4. Objective: a smooth and uninterrupted customer path facilitated by a holistic service offeringFor many immigrants, integration training is an impor-tant part of their settlement, integration and progress on the education or employment path. However, many immigrants do not participate in integration training.

Development work is currently underway on integra-tion training models and the associated arrangements

following the Osallisena Suomessa project which end-ed in 2013. The project, comprised of sub-projects car-ried out in different parts of the country, developed in-tegration training services for those groups that have typically fallen outside the integration training offered by TE offices. Training programmes were customised in different ways for different types of immigrant groups. If necessary, a strong, guidance-based resource was linked to the training programme. The aim was to cre-ate a procedure that encourages an independent, ac-tion-based and proactive approach among the partici-pants. The Osallisena Suomessa projects were imple-mented in a multidisciplinary cooperation and through various partnerships. Forms of cooperation were also created between different administrative branches and sectors of local authorities, for example. Some projects focused on a broad-based examination of how services and customer paths that promote integration are con-structed in the long term.

The ALPO project emphasised the high availability and dissemination of comprehensive basic informa-tion materials and an effective network of advisory and guidance services. These play a major role in ensuring that information about initial assessments and integra-tion training reaches immigrants who move to Finland for different reasons. Therefore, the success of integra-tion training is linked to an effective early stage ser-vice system. In this regard, the ALPO project has oper-ated both at the national level, benefiting everyone, and at the local level by giving special support to localities with development activities. Nevertheless, not all mu-nicipalities got involved in the ALPO projects which de-veloped, for example, low-threshold advisory services. In the future, this disparity in the active involvement of different local authorities and regions could be re-flected more widely in the integration and employment of immigrants in different areas. Furthermore, the in-volvement – or lack thereof – can influence where im-migrants arrive and settle.

An effective early stage integration process is linked to employment prospects. People move to Finland for various different reasons, and not all immigrants are

+ The success of integration training is linked to an

effective early stage service system.

48

looking to find employment immediately. However, fast and effective early stage services can influence how and at what stage immigrants will start seeking em-ployment. This link should be taken into account in all development measures, including those related to early stage services. Employment is key part of integration, and it is in the interests of both immigrants and society that they find employment quickly.

Development efforts should be focused on custom-er-oriented integration and employment paths, not on individual stages. An “introductory period” for integra-tion available to all immigrants has been formulated as part of integration training development measures. The period would be implemented in cooperation with dif-ferent operators, taking into account the needs of dif-ferent types of immigrants. In the future, instead of in-tegration services that occur consecutively as separate stages, integration development measures should in-creasingly focus on ensuring strong links between the different stages and that they are in part implement-ed simultaneously in conjunction with customer meet-ings. The holistic development of customer paths that are genuinely progressive will be important: the pro-cess should be a holistic, smooth customer process instead of a set of individual pieces or stages. This is one of the areas that will be developed further in pilots by the “Kotona Suomessa” (“At Home in Finland) pro-gramme in the new ESF period.

For each newly arrived person, there should be a body that is responsible for reviewing his or her ser-vice needs and the services available, regardless of the person's reasons for moving to Finland. It should also be noted that immigrants who have already lived in Finland for a long time may also have similar service needs. It is about identifying individual service needs. Passing the customer between different agencies does not serve the customer’s interests or the efficient and meaningful use of limited public resources. The ability to identify customer needs and provide good service de-pends on the professional competence of customer ser-vice advisors, and it should be developed continually. Attention should also be paid to the ability to recognise the victims of human trafficking.

Good customer services require general services that take into account different needs, as well as com-plementary specialist services. The service system, as it appears to immigrants, should be developed further to ensure that whenever possible, the service is a gen-eral public service that can take into account the needs

of different customer groups, such as different types of immigrants. If specialist services are needed, they should be linked to this overall service. A prerequisite for an effective service system is that the available ser-vices are communicated efficiently.

5. Forming a holistic view and developing “projectisation” competenceMulti-sectoral cooperation in integration measures re-quires more and more cooperation between different actors and the bodies that fund their project activities as well as awareness about each other’s objectives and focus areas. For example, in the field of integration it is important that projects funded by regional-level fund-ing bodies (ELY centres) and projects funded by other bodies, such as the Finnish Slot Machine Association (RAY, which funds social and health care associations), form a coherent whole and facilitate strong coopera-tion between public bodies and NGOs. In the upcom-ing structural fund period, there will probably be many links between various new development programmes from the point of view of integration development.

6. The services of TE offices must take the needs of immigrants into accountMajor changes have taken place in the organisation and services of TE offices in the last two years. The new TE office must ensure that each customer is given ap-propriate service that meets his or her needs. Immi-grants, like any other customer, can be directed to any of the service lines, as long as the service provider is able to serve immigrant customers competently. Some immigrants may find employment quickly; others may require some skill development before entering the la-

Development manager Annika Forsander (Ministry of Employment and the Economy) gives a presentation on the Centre for Integration Expertise at a training event for advisors organised by the ALPO project.

Phot

o: H

annu

-Pek

ka H

uttu

nen

49

+ Care must be taken to ensure that as electronic services become

increasingly common, customers with poor language skills in general, a low

level of literacy or without computer skills are also taken into account.

bour market; still others may require specialist support from multidisciplinary networks. Customers from all service lines may need language training.

TE offices carry out the majority of initial assess-ments, and the work of TE specialists requires the abil-ity to meet customers and the knowledge of what ser-vices are available. The Integration Act highlights the importance of early stage integration measures. The early stage service process and initial assessment mod-els have been developed in ALPO projects and oth-ers. Initial language testing is part of initial assess-ment. Testipiste, one of the ALPO projects, carried out ground-breaking development work on language test-ing. The projects have offered TE offices tools for pro-cess development, such as the Koulutusportti system, which can be used to share test information among the TE office, the assessor and educational institutions and to book places in the courses.

TE offices play a key role in the development of the early stage process so that it would be as effective as possible in supporting the use of different types of in-formation in the formulation of the integration plan and the planning of future education or employment options. The contents of initial assessments still re-quire some thought on, for example, whether the ini-tial assessment stage could be more thorough in order to ensure that information about the immigrant’s skills could be better utilised as a basis for further plans right from the beginning of the customer relationship.

TE offices purchase some of the initial assessments from external service providers. However, in order to ensure a smooth customer process, it is important that the TE office specialist have good control of the custom-er process as a whole and that the benefits of the ap-pointed advisor model be maximised. Due to the nature of the ALPO projects, the focus has been on the smooth and effective progress of the early stage of integration, but it is equally if not more important that each individ-ual’s education and employment opportunities be sup-ported in different stages using all the services availa-ble at the TE office based on the customer’s individual needs.

Care must be taken to ensure that, as electronic ser-vices become increasingly common, customers who have poor language skills in general, a low level of liter-acy or who lack computer skills are also taken into ac-count. This means the consideration of basic Finnish in the development of electronic services and having suf-ficient resources in place for face-to-face service.

7. The impact of funded project activities must be improvedProject activity should not be about reinventing same things over and over again. What is needed is the ap-plication of previously developed ideas and innovation in critical areas. Projects have contributed numerous good practices and services for the field of immigra-tion and integration. In the future, the work must be increasingly focused on both the application of existing operating models and on the development of new types of customer-oriented practices that make good use of reduced resources. In the coming years, projects can-not afford to have unnecessary overlap or ignore solu-tions that have already been developed. For example, solutions developed in ALPO projects for the digitisa-tion of services and processes must be disseminated and deployed nationwide.

Users must be included in the development process. Immigrants should be actively involved in the evalua-tion and development of services. Development efforts should be steered by the needs of end-users, the ulti-mate beneficiaries. Services must be reformed creative-ly, for example, by using the methods of service design.

Development measures should aim to create per-manent solutions. In the future, careful consideration must be given to which actor has the lead role in each development project. Establishing the measures at an organisation is easier to do from within the organisa-tion. For example, it is difficult for educational institu-tions to develop measures which would have to be es-tablished as part of the local authority organisation, and it is difficult for the local authority organisation to develop measures which would have to be established within the TE office.

50

A range of competencies should be available in pro-jects, for example with regard to municipal decision-making, budgeting and participation in decision-mak-ing.

The outputs and impacts of services created at the project-level should continue to be monitored after the conclusion of the project. The monitoring of the impact of established practices and services created in ALPO projects must continue as part of the organisations’ own monitoring and development activities. The need to demonstrate the productivity and impact of all pub-licly funded activities is a constant. It is the only thing that will facilitate the continuation, maintenance and further development of services.

The rich development activities, experiences and lessons learned of the ALPO projects, as well as prac-tices and models created by them, will be migrated to some extent to the Centre for Integration Expertise, which operates under the Ministry of Employment and the Economy. The centre is currently starting its work. In the future, it will create efficient contacts with local and regional agencies.

One of the objectives of the Centre for Integration Expertise is to develop a systematic operating model for the recognition and dissemination of good practic-es produced in the projects. The recognition of good practices and the evaluation of suitable circumstances and target groups which could help turn a good prac-tice into a best practice is the most cost-effective way to promote the application and continuity of lessons learned in projects.

In addition to the systematic recognition and dis-semination of good practices, another key activity of the Centre for Integration Expertise is the monitoring of integration and the impact of measures. This will be continued through the periodic surveys which are al-ready part of the integration monitoring system, and also through other research and monitoring activities related to trends in immigrant life circumstances.

8. Important topics for follow-up development measuresThere are a number of important topics for future de-velopment.

Firstly, although a lot of work has been done on the recognition and accreditation of prior learning, addi-tional efforts are still needed to develop these measures as part of other lifelong learning services and measures. In some respects, this area was not given enough atten-tion in ALPO. In the future, it will be addressed in the Kotona Suomessa development programme (including national principles). The recognition of prior learning is also linked to initial assessments. According to the act, competence assessments can also be carried out in conjunction with the initial assessment, if necessary.

+ The rich development activities, experiences and lessons learned of

the ALPO projects, as well as practices and models created by them, will

be migrated to some extent to the Centre for Integration Expertise, which

operates under the Ministry of Employment and the Economy.

deveLopMenT ReCoMMendATIons

• More versatile and effective forms of disseminating basic information.

• Advice must be developed into a multi-channel service as part of the whole service system.

• The use of initial assessments must be increased and their effectiveness improved.

• Objective: a smooth and uninterrupted customer path facilitated by a holistic service offering.

• Forming a holistic view and developing ”projectised” competence.

• The services of TE offices must take the needs of immigrants into account.

• The impact of funded project activities must be improved.

• The roles and cooperation of NGOs and the public sector must be developed with a long-term approach.

51

Secondly, the appropriate harmonisation of service processes that are linked to the early stage immediate-ly after the immigrant’s arrival (incl. registration and dealing with the register office and the police) is one area for follow-up work, as noted in the implementa-tion programme of the Future of Migration 2020 Strat-egy. Currently, the practices can vary in different parts of Finland. In addition to the work already done, the Centre for Integration Expertise could also be utilised in the description and development of key official pro-cesses.

Thirdly, special attention must be paid to employ-ment-based immigrants and their families. In recent years, this has mostly taken place through MATTO pro-jects, the EURES service of TE offices and the advisory services of local authorities. Some of the ALPO projects took this target group into consideration. In the future, the EURES service will be funded by ESF funding. It is important to ensure that employment-based immi-grants receive assistance that suits their needs. This means, for example, creating structures and services designed for this target group as part of the projects of the EURES service and the Kotona Suomessa develop-ment programme. Employment-based immigrants may not encounter the service system until they have been in the country for many years, for example, in the event of dismissal by the employers. Special attention must also be paid to the families of employment-based immi-grants. Families’ needs were taken into consideration in MATTO projects, but it is unlikely that they will re-ceive the same level of attention in the EURES service in the future. NGOs could probably make a significant contribution to this area of work. There are also other groups that need special attention. Some immigrants who have been in the country for a while may still have needs similar to those of immigrants who have just arrived. If necessary, special measures should target these immigrants to improve their integration and em-ployment prospects. In addition, the importance of tar-geted measures for incoming international students has been mentioned in various contexts.

+ The appropriate

harmonisation of service

processes that are linked to the

early stage immediately after the

immigrant’s arrival (including

registration and dealing with the

register office and the police) is

one area for follow-up work.

IMpoRTAnT deveLopMenT TopICs foR The fuTuRe• Recognition and accreditation of prior experience and learning.

• Harmonisation of service processes in the early stage immediately after arrival in the country.

• Special attention on work-based immigrants and their families

9. The roles and cooperation of NGOs and the public sector must be developed with a long-term approachNGOs have always played an important role in migra-tion and integration matters. One example of this is the implementation of the Osallisena Suomessa project. Several ALPO projects have touched on areas where NGOs are active. Examination of the early stage ser-vices, the dissemination of information among all im-migrants, or the provision of progressive integration measures shows that NGOs clearly have a lot to con-tribute in these areas.

However, the differences between the work and tasks of authorities and NGOs must be taken into ac-count. Authorities have statutory duties, whereas NGOs have various roles in supporting integration. The resources of NGOs also vary greatly. It is important to discuss the roles and tasks suitable for different organ-isations and examine the development and continua-tion of activities in a sufficiently long term. In practice, this will lead to project work carried out by NGOs and the associated focus areas, and in a possible fee-based service offering. In addition, NGOs naturally have their own role in promoting integration independent from authorities.

52

APPENDIX 1ALPO PROJECTS

Further information about individual projects can be obtained from the structural fund information service at https://www.eura2007.fi/rrtiepa/ using the appropriate project code. The structural fund information service is an online service maintained by the Ministry of Employment and the Economy, which was the authority responsible for structural fund programmes in 2007- 2013. The service can be used to search for information about all ERDF and ESF projects implemented in Finland during that period.

ESF code Project Primary lead organisation

S11123 ALMA, regional development project for migration

City of Tampere

S10479 AIKIS, coordination of development projects for language training for immigrants

Finnish National Board of Education

S11488 ALIPI, Regional integration service point City of Lahti

S10016 ALIPI, Regional integration service point City of Lahti

S10424 ALPO/ESF - Support structure for guidance and development of skills for immigrants arriving in Finland

Ministry of the Interior (2008-2011) Ministry of Employment and the Economy (2012-2014)

S10521 Bothnia Integration - Measures Centre for Economic Development, Transport and the Environment (ELY centre) for Ostrobothnia

S10171 Bothnia Integration, immigrant guidance centre programme

Ostrobothnia TE office

S10398 Erkki - Guidance centre for immigrants in South Ostrobothnia

Centre for Economic Development, Transport and the Environment (ELY centre) for South Ostrobothnia

S10072 Homelike Oulu - Oulu omaksi - guidance and advisory services for immigrants

City of Oulu

S10190 Development of an advisory and guidance service system for immigrants in the Hämeenlinna region

City of Hämeenlinna

S11981 Development of an advisory and guidance service system for immigrants in the Hämeenlinna region - follow-up project

City of Hämeenlinna

S11618 Development of the infoFinland.fi course search service

City of Helsinki

S10100 Juuret ja siivet - Integrating immigrants as active members of society in Kainuu

Kainuun Nuotta ry, Kajaani

S10619 Project for promoting active job search among the immigrant population in the Kemi-Tornio sub-region

University of Lapland

53

S12317 Sustainable immigrant entrepreneurship, KEMU

University of Lapland

S10776 Koulutusportti - project for the development of early stage guidance for immigrants

Centre for Economic Development, Transport and the Environment (ELY centre) for Uusimaa

S12314 Kultti City of Rovaniemi

S10764 Verso partnership project City of Rovaniemi & Rovaniemen Setlementti ry

S12268 Lähtöruutu - initial assessment of reading and writing skills

Axxell Utbildning Ab

S11630 Project for launching immigrant advocacy Haapaveden Opisto (Haapavesi folk high school)

S10013 Maahanmuuttajaresurssit käyttöön! Lappeenrannan Seudun Yrityspalvelut Oy

S10376 Guidance and job search services for immigrants

Tampereen Aikuiskoulutussäätiö/ Tampere Adult Education Centre

S10285 Partnership project for service guidance for immigrants, the labour administration’s contribution

Centre for Economic Development, Transport and the Environment (ELY centre) for Southwest Finland

S12383 Project for immigrant entrepreneurship Adult Education Centre Kouvola

S11223 MANO - Project on the guidance of immigrant youths

City of Oulu

S11963 MaTTi project Laptuote foundation

S10042 MINFO - Development of early stage guidance and advisory services for immigrants in South-east Finland

City of Kotka

S11392 MINFO II - Development of early stage guidance and advisory services for immigrants

City of Kotka

S10941 Multicultural Salo - Integration of immigrants in society and working life in the Salo region

Salo Region Educational Federation of Municipalities

S12360 Project for preliminary survey on multicultural advisory services

Haapaveden Opiston kannatusyhdistys ry

S10711 Mosaiikki - Guidance and counselling services for immigrants

HYRIA Koulutus OY, Hyvinkää

S11679 Mosaiikki 2 - Guidance and counselling services for immigrants

HYRIA Koulutus OY, Hyvinkää

S10222 Muutoksessa mukana Union for Rural Education and Culture, Oulu

S11475 Muutoksessa mukana Lappi Union for Rural Education and Culture, Kittilä

S10684 NEO-SELMA -Online services as a support tool in guidance and advisory services for immigrants

City of Helsinki

S11051 NEO-SEUTU City of Helsinki

54

S10816 Palapeli 2 Centre for Economic Development, Transport and the Environment for Central Finland / Central Finland Employment and Economic Development Office

S10243 PALO project City of Turku

S10209 Pointti - Immigrants on the way to employment in South Savo

Etelä-Savon Koulutus Oy/ South Savo Vocational College, Mikkeli

S12235 Click real-time advisory service City of Helsinki

S10408 Rovapolut - multicultural opportunities for competence development and employment in the Rovaniemi region

Rovaniemi Municipal Federation of Education/Lapland Vocational College

S12009 SATAKOTO Development project for immigration and integration in Satakunta

City of Pori

S11106 Guidance network for immigrants in Satakunta

SATAEDU - Satakunta Educational Federation/ Satakunta Adult Education Centre, Huittinen

S11158 Silmu - Project on the integration of immigrants

City of Kemi

S10729 A development project for Finnish language training referral services

City of Helsinki

S10386 A plan for the digitisation of intermediate level Finnish language tests in National Certificates of Language Proficiency

University of Jyväskylä Centre for Applied Language Studies

S12310 Taide kotouttaa Lapin taiteilijaseura ry

S11339 Testipiste - a language proficiency assessment centre for adult immigrants

Axxell Utbildning Ab

S11787 TRIANGELI City of Turku

S11680 VAIKO - a project for creating impact in integration through multidisciplinary cooperation

Centre for Economic Development, Transport and the Environment (ELY centre) for Lapland

S10323 Vastaanottava Pohjois-Savo - Welcome to Northern Savo

City of Kuopio

S11496 VOIMA - Immigrants as a resource in Satakunta

SATAEDU - Satakunta Educational Federation

55

APPENDIX 2. BACKGROUND TO THE ALPO PROJECT: THE GOVERNMENT INTEGRATION PROGRAMME (SUMMARY)

THE GOVERNMENT INTEGRATION PROGRAMMEThe Government's focus areas for 2012–2015

In recent years, immigration to Finland from abroad has seen a notable increase and become more varied. As the situation changes, multiculturalism and multilingualism will have an ever greater role in Finnish society. Currently, the unemployment rate of immigrants is three times that of the majority population, and immigrant youths face five times the risk of social exclusion compared to young people in the majority population. Growth in immigration is creating the need to develop public services, while the importance of specific integration measures is increasing.

Through the Government Integration Programme, the planning, implementation and monitoring of integration measures are being enhanced at the national level. Integration policy is strongly multidisciplinary in its content and requires close cooperation between various administrative branches. The Government Integration Programme is an extensive and concrete action plan, taking the needs of the immigrant population into account through integration in all policy sectors, especially within employment, education, housing and social and healthcare services. The programme has been aligned with other national programmes.

A general objective of the programme is to support participation by immigrants in all sectors of society while reinforcing the foundation for good ethnic relations and smooth interaction between various population groups. A successful integration policy also requires the commitment of all administrative branches to equality, non-discrimination and the prevention of racism, as well as the promotion of positive attitudes.

Promoting the employment of immigrants and support for immigrant children and young people, families and women constitute specific focus areas of the programme. Employment is being promoted, particularly by developing the services offered by the employment administration, alongside integration training, and the teaching of Finnish and Swedish in particular. Further measures include jointly supporting the increasing diversity and quality of working life alongside labour organisations.

The integration of immigrants as municipal residents forms a key foundation for integration. Immigrant families are supported by developing early childhood education, education and social and health care services. Where immigrant children and young people are concerned, it is essential to ensure sufficient language skills and other competences required for studying, as well as smooth educational paths. In addition to this, housing, sport and cultural policies promote integration in everyday life. Integration policy also emphasises the smooth and controlled movement of people under international protection towards municipalities, as well as good cooperation between the state and municipalities. The involvement of civil society and organisations in integration efforts is an important starting point for the programme.

Further information: http://www.tem.fi/files/34551/TEMjul_32_2012_web.pdf

PEFC/02-31-135

MInIsTRy of eMpLoyMenT And The eConoMyemployment and entrepreneurship departmentproject Manager hannu-pekka huttunenp.o. box 32, fI-00023 governmentfinlandTel. +358 29 516 001www.tem.fi