Facilitating Arrival – Strengthening Social Cohesion

In recent years, large numbers of people have come to Germany, either as refugees or intra-EU migrants, some of whom have required considerable support. Once they have arrived, the respective towns and municipalities should give them every opportunity to build the best possible lives, regardless of whether they intend to stay for the long term or are there only temporarily. This is not just about their individual prospects, but is also about ensuring peaceful coexistence in our neighbourhoods and the social cohesion within our urban communities that is fundamental to democracy. Local authorities are not in a position to resolve the wider problems posed by lengthy asylum procedures or the challenges associated with the free movement of workers within an EU marked by significant disparities in prosperity and income.  What they can do, however, is to try to ensure that these problems do not come at the expense of the host community or the refugees themselves. Integration understood in these terms requires careful organisation, which in turn needs reliable structures and adequate funding. 

Integration requires an overarching strategy, not isolated measures 

The challenges of the future – shortage of skilled workers, inclusion and participation, educational outcomes, social cohesion – cannot be solved by any one government department. Integration is a cross-cutting issue. The government therefore needs to work across departmental boundaries and with clear objectives. We need an action plan that strikes an effective balance between proactive measures and support designed to promote social inclusion and participation, on the one hand, and regulatory intervention and management, on the other. 

The success of Dortmund’s comprehensive strategy for new immigration shows that integration is most effective when all the relevant areas – work, education, health, housing, residence, inclusion, participation and community life – are brought together. The key here is systematic coordination between public administration, employment services, welfare organisations and independent providers. This is because immigration affects all the major social systems: education, the labour market, housing and healthcare. If we are to make the most of the opportunities that immigration presents, we need to take all these systems into account. Complex problems require integrated solutions. These need to be closely coordinated and continuously developed and improved. The more effectively this works, the less room there is for exploitative or criminal structures. Dortmund’s experience demonstrates the success of this approach.

The modern social welfare state needs municipal one-stop services

For many immigrants, the biggest obstacle is not a lack of motivation, but the complexity of the systems they are required to navigate. These systems are difficult for almost anyone to understand and are particularly daunting for those who have only recently arrived from abroad. What is needed is a single point of contact, ideally digital and in multiple languages, providing access to employment, language support, education and training, residence permits, housing and social benefits. We need effective case management rather than simply directing people from one service to another. Services and structures must be designed around the needs of the people using them. No one should have to run from one office to the next, getting caught up in bureaucracy, only to come away without a solution. 

In Dortmund, the authorities created MigraDo, a local one-stop service that brings together advice and support for immigrants, and where the different city council departments, employment services and independent organisations work together. It forms part of an integration network that also includes local “welcome offices” providing decentralised support not only for new arrivals but also for those already living in the respective communities. The systematic interplay between centralised and decentralised structures is fundamental to successful integration, especially in larger cities. 

This ties in with the current debate on welfare state reform. Above all, this reform must focus on improving access. People should not have to struggle to access the welfare state; the welfare state should be made more accessible to them. Digitalisation is necessary but this alone is not enough. It is essential to provide local-level support for as long as people need it, based on their individual life circumstances – a need clearly borne out by the statistics. Since opening on 25 February 2022, MigraDo has provided 33,631 consultations (as of May 2026). In addition, MigraDo’s information centre, which provides quick guidance, has handled 29,810 enquiries.

Success is often decided from the moment immigrants arrive

The first few months after arrival can greatly impact the overall integration process. This is why reception facilities tailored to people’s needs are so important. In practice, this means early guidance, language support, links to the labour market right from the start, healthcare, housing advice, mentoring schemes and help navigating public administration. In short: tailor-made solutions for a wide variety of target groups. 

If the procedures used by the public authorities are not suited to the needs of the target group, their work cannot be effective either. A number of projects that are currently underway illustrate the benefits of tailoring support to people’s needs. The real challenge lies in transforming successful initiatives into permanent institutional structures. For this, local authorities need the necessary funding. And the existing legal frameworks – such as labour market support measures – must be adapted to the changing realities. Ultimately, this would benefit a great many people, not just immigrants. 

Birgit Zoerner was born in Dortmund in 1961. After completing a degree in history and communication studies/journalism, she spent six years working for the SPD in North Rhine-Westphalia, followed by 16 years with the state’s Ministry of Labour, Health and Social Affairs. In 2011, she took up the post of Head of Department for Labour, Health and Social Affairs in her home town of Dortmund. Until her retirement in 2025, she also chaired the Association of German Cities’ working group on immigration, which was established in 2012.