The routledge handbook of the governance of migration and diversity in cities

The RouTledge handbook of The goveRnance of MigRaTion and diveRsiTy in ciTies how have immigration and diversity shaped urban life and local governance? The Routledge Handbook of the Governance of Migration and Diversity in Cities focuses on the ways migration and diversity have transformed cities, and how cities have responded to the challenges and opportunities offered strengthening the relevance of the city as a crucial category for the study of migration policy and migration flows, the book is divided into five parts: • • • • • Migration, history and urban life Local politics and political participation Local policies of migration and diversity Superdiverse cities Divided cities and border cities grounded in the european debate on “the local turn” in the study of migration policy, as contrasted to the more traditional focus on the nation-state, the handbook brings together contributions from north america, south america, asia and the Middle east and contributors from a wide range of disciplines a valuable resource for students and scholars working in political science, policy studies, history, sociology, urban studies and geography Tiziana Caponio is associate Professor in the department of cultures, Politics and society at the university of Turin and fellow at collegio carlo alberto Peter Scholten is Professor in Public administration at erasmus university of Rotterdam Ricard Zapata-Barrero is full Professor at the department of Political and social sciences, universitat Pompeu fabra, barcelona, spain The RouTledge handbook of The goveRnance of MigRaTion and diveRsiTy in ciTies Edited by Tiziana Caponio, Peter Scholten and Ricard Zapata-Barrero first published 2019 by Routledge Park square, Milton Park, abingdon, oxon oX14 4Rn and by Routledge 711 Third avenue, new york, ny 10017 Routledge is an imprint of the Taylor & Francis Group, an informa business © 2019 selection and editorial matter, Tiziana caponio, Peter scholten and Ricard Zapata-barrero; individual chapters, the contributors The right of Tiziana caponio, Peter scholten and Ricard Zapata-barrero to be identified as the authors of the editorial material, and of the authors for their individual chapters, has been asserted in accordance with sections 77 and 78 of the copyright, designs and Patents act 1988 all rights reserved no part of this book may be reprinted or reproduced or utilised in any form or by any electronic, mechanical, or other means, now known or hereafter invented, including photocopying and recording, or in any information storage or retrieval system, without permission in writing from the publishers Trademark notice: Product or corporate names may be trademarks or registered trademarks, and are used only for identification and explanation without intent to infringe British Library Cataloguing-in-Publication Data a catalogue record for this book is available from the british library Library of Congress Cataloging-in-Publication Data a catalog record has been requested for this book isbn: 978-0-815-36370-5 (hbk) isbn: 978-1-351-10847-8 (ebk) Typeset in bembo by Wearset ltd, boldon, Tyne and Wear conTenTs List of figures List of tables Notes on contributors ix xi xii introduction Tiziana Caponio, Peter Scholten and Ricard Zapata-Barrero PART I Migration, history and urban life Introduction by Peter Scholten Migration: a historical perspective european port cities as a case study Paul van de Laar 12 urban migration histories Marlou Schrover 22 learning from history: city governance of migration and diversity in britain and germany Sarah Hackett creating successful, diverse cities: what role can cultural institutions play? Peggy Levitt Migrant entrepreneurs and cities: new opportunities, newcomers, new issues Robert C Kloosterman v 39 51 63 Contents PART II Local politics and political participation Introduction by Ricard Zapata-Barrero 75 Participation of migrants in european cities: patterns of civic and political engagement Katia Pilati and Laura Morales 77 local politics and immigration: mobilising immigrant associations beyond small-scale cities Juan Carlos Triviño-Salazar 93 Political systems, parties and diversity: the case of amsterdam Floris Vermeulen 104 10 how local actors promote civic participation of immigrants? approaches to integration and local dynamics Teresa M Cappiali 116 11 Warsaw: a new immigration city in search of its integration policy towards newcomers Maciej Duszczyk, Dominika Pszczółkowska and Dominik Wach 130 PART III Local policies of migration and diversity Introduction by Tiziana Caponio 143 12 global cities and multilevel immigration governance in latin america Felipe Amin Filomeno 145 13 Two worlds apart? Multilevel governance and the gap between national and local integration policies Peter Scholten 157 14 city immigrant affair offices in the united states: taking local control of immigrant integration Els de Graauw 168 15 city networks and the multilevel governance of migration: towards a research agenda Tiziana Caponio 182 vi Contents 16 city governance of migration and diversity: interculturalism as a city policy paradigm Ricard Zapata-Barrero and Ted Cantle 193 17 The local governance of immigrant integration in europe: the state of the art and a conceptual model for future research Maria Schiller 204 18 Municipal immigration policymaking in canadian cities: the state of the art Kristin R Good 216 PART IV Superdiverse cities Introduction by Peter Scholten 229 19 The governance of superdiversity: a tale of two north american cities Jill Simone Gross 231 20 cities of migration: towards a typology Peter Scholten 242 21 spanish intercultural cities: indexing governance Ricard Zapata-Barrero 251 22 between superdiversity and nationalism: the culturalisation of everyday life in amsterdam Paul Mepschen and Jan Willem Duyvendak 23 delhi’s superdiversity: a historical understanding Sheetal Sharma 265 275 PART V Divided cities and border cities Introduction by Tiziana Caponio and Ricard Zapata-Barrero 287 24 assembling a fragmented bogotá: migrations, local polices and urban dynamics Fabiola Pardo 289 25 Jakarta, on the brink of being a divided city? ethnicity, media and social transformation Riwanto Tirtosudarmo and Aulia Hadi 301 vii Contents 26 urban diversity, inequality and residential processes: The role of immigration in the socio-spatial organisation of the lisbon Metropolitan area Jennifer McGarrigle and Maria Lucinda Fonseca 27 urban citizenship in times of emergency: the impact of national control policies on the incorporation of precarious migrants in Tel aviv/Jaffa Adriana Kemp 28 lampedusa: dynamics of bordering and “encampment” Marie Bassi 313 329 343 29 local impacts of the global north’s blackmail concerning transit migration: the cases of Tijuana and istanbul Giovanna Marconi 353 30 Making and unmaking migrant irregularity: a border city during italy’s “migration crisis” Simon McMahon 364 Index 375 viii figuRes 1.1 1.2 6.1 7.1 7.2 7.3 7.4 7.5 7.6 7.7 7.8 7.9 9.1 15.1 17.1 21.1 21.2 21.3 21.4 21.5 cities analysed in this handbook factors and processes that shape the city governance of migration and diversity schematic presentation of the mixed embeddedness model engagement in organisations by migrants across european cities engagement in organisations by migrants from specific ethnic groups across european cities engagement in organisations by migrants from specific groups compared to natives and second generations across european cities Percentage of migrants who voted in the last national or local elections across european cities Percentage of migrants from specific groups who voted in the last national or local elections (including eligible voters only) Percentage of migrants of specific groups, of natives, and of second generations who voted in the last national or local elections across european cities (only eligible voters) engagement by migrants in at least one extra-electoral political activity across european cities engagement by natives, migrants and second generations in at least one extra-electoral political activity across european cities Percentage of migrants from specific groups who voted in the last national or local elections (including individuals with no voting rights) Percentage of voters with surinamese, Moroccan or Turkish background who voted for Pvda during amsterdam elections, 2002–2014 analytical framework for the analysis of cns as instances of Mlg analytical model for research on the government/governance of integration policies index of governance of every city, in general and by category Results of categories of Reci cities Position of Reci cities by intercultural governance categories grouping of Reci cities and categories of intercultural governance The process of intercultural governance, according to Reci cities’ practices ix 67 80 81 82 83 84 85 86 87 89 112 186 207 258 259 259 260 261 Making and unmaking migrant irregularity the border has been crossed It does so by focusing on the Italian port city of Siracusa, in Eastern Sicily, during the so-­called Mediterranean migration crisis of 2015, to show how border cities such as this are contested spaces in which the status of migrants is repeatedly negotiated, made and unmade (Mainwaring, 2016; Schuster, 2005) It is useful to focus our attention on cities for at least two main reasons: on one hand, specific approaches to the governance of migration can develop within cities Local authorities may have specific competencies and responsibilities in policy implementation which mean that they can develop their own approaches (Borkert and Caponio, 2010) Regarding the governance of irregular migration in particular, arbitrary or discretionary decisions and outright corruption among border enforcement and local administrations can also affect the way that migrants are treated, giving rise to localised “grey areas” of migration control which preclude some individuals from the right to a legal resident status or form of international protection (Amit, 2015; Barsky, 2015; McMahon, 2015, 2016) On the other hand, in cities there is also a concentration of varied social, political and economic dynamics (Amin and Thrift, 2002; McMahon, 2015; Sassen, 2005) This can produce localised assemblages of actors and resources, understood as loosely organised structures of diverse and distinct elements which come together and function in particular ways according to the shifting connections and affiliations among them (Deleuze and Guattari, 1987) Social movements, solidarity networks and civil society organisations may be able to draw on local resources and opportunities in cities to mobilise in response to the specific challenges that are posed there (Sassen, 2005; Uitermark et al., 2012) Migrants can also draw on these assemblages to adapt to or contest their assigned status Consequently, although national legal frameworks formally define the boundaries between migrant categories, focusing on the level of cities can foreground the processes through which the status of migrants is negotiated through their encounters with state representatives, border enforcement, street-­level bureaucrats, activists, lawyers or civil society solidarity networks (De Genova, 2016; Mainwaring, 2016) The chapter draws on data collected in Siracusa and surrounding locations in Eastern Sicily from October to December 2015 Since the first declarations of a migration crisis in Italy, in 2011, hundreds of thousands of people have crossed the Mediterranean Sea from North Africa to get there, with many of them disembarking in Sicily In response, and amidst rising demands across many European countries for increased control of irregular migration, the Italian government established an elaborate, multi-­tiered and spatially differentiated system of migrant and refugee reception (Caponio and Cappiali, 2017), with the aim of distinguishing people who were considered to have a right to remain in the country from those who were not Alongside this system, however, many new arrivals resided in an irregular status and in informal spaces, such as mosques, churches, cultural centres, squats, warehouses and train stations Interviews were carried out with 75 people who had crossed the Mediterranean Sea by boat to Eastern Sicily during 2015 and 10 local stakeholders working with migrants in the local area, as well as benefiting from observation in formal reception centres, ports and locations of informal accommodation of migrants This dataset is a small part of the MEDMIG database, which carried out 500 interviews with migrants and refugees and over 100 with key stakeholders in Greece, Italy, Malta and Turkey Where relevant, the chapter also draws on observations that were made during a return field trip in May 2016 The chapter begins by situating the city of Siracusa in the context of Mediterranean migration and Italy’s migrant and refugee reception system It then examines the production of irregular statuses in the city during 2015, before taking a closer look at the ways that the city’s assemblage of support networks enabled migrants in an irregular status to reside there, continue their journeys or contest the legal status that they had been assigned It finishes by drawing out some conclusions on the importance of cities for the making and unmaking of irregular migration 365 S McMahon Situating Siracusa Migration across the Mediterranean Sea towards Italy is not a particularly new phenomenon Up to 2009, the scale of irregular migrant arrivals by boat detected on Italy’s shores remained fairly constant before increasing in scale from 2011 (see Figure 30.1) More recently, arrivals across the Mediterranean Sea repeated a similar pattern year after year, with increasing arrivals in the summer, less during the winter months and fairly small variations in scale over the course of each year These patterns have been the product of a combination of established migration routes from the African continent and further afield to the countries of North Africa and Southern Europe, as well as the dramatic social and political changes in the countries of North Africa since the so-­called Arab Spring of 2011 (McMahon and Sigona, 2016) It should be noted, however, that in the latter half of 2017, the scale of migration declined significantly against the backdrop of agreements of the Italian government with the Libyan authorities and militia groups in Libya to intensify restrictions on departures of migrant boats The fact that migration routes across the Mediterranean were already known and patterns of arrivals repeated year-­on-year challenged the notion of it representing an immediate, unpredictable and unresolvable “crisis” in 2015 Moreover, although in Italy an emergency had already been declared back in 2011, through 2015 there was an increasing sense of urgency amidst rising public concern about deaths at sea and against the backdrop of the EU’s agenda on migration This renewed urgency inspired a widespread reorganisation of the governance of border control and refugee reception in the Mediterranean (Crawley et al., 2017; McMahon and Sigona, 2016) The result in Italy was a complex, spatially differentiated system of containment, identification, relocation and removal of migrants and asylum seekers at sea and after arrival Whereas in 2011 boats carrying migrants could arrive directly on Italian shores such as on the island of Lampedusa or the southern coasts of Sicily, since 2014 this became much rarer Boats would instead be $UULYDOVUHFRUGHG&HQWUDO0HGLWHUUDQHDQ