The Ethnic Diversity Challenge in Political Participation and Representation

1. The Ethnic Diversity Challenge in Political Participation and Representation Hassan BOUSETTA EMILIE Conference Berlin 25 September Migration and Diversity Challenges in Europe: Theoretical and Policy Responses

2. The Ethnic Diversity Challenge in Political Participation and Representation Research questions? How migration and ethnic diversity have influenced/modified conceptions of citizenship (rights and duties on the one hand/participatory processes on the other hand) in Europe? What kind of multicultural democracy is currently being produced through experiences of participatory citizenship by migrants and minorities?

3. The Ethnic Diversity Challenge in Political Participation and Representation Preliminary comparative observations on the structure of the political challenge debate in the 9 EMILIE countries • High degree of national variations in both empirical contexts and the intellectual framing of the debate • In old immigration countries of North West Europe where large segments of the migrant and minority population (MMP) is enfranchised or naturalised: debates tend focus on the formal process of participation and representation • In recent immigration countries of Southern, Central and Eastern Europe where MMP have had proportionately less access to citizenship/nationality debates are more focused on the conditions of access to political rights

5. The political rights of non-nationals • Political rights and naturalisation (liberal or restrictive) • Harmonisation of the political rights of EU foreign residents (Maastricht Treaty) within the EU. No similar harmonisation of the political rights of TCNs – not likely to happen in the short run • EU citizenship has given more intellectual and political legitimacy to the claim for the enfranchisement of TCNs on the basis of residence

6. The political rights of non-nationals • 4 categories of countries • Enfranchisement based on strict interpretation of EU citizenship • Broad enfranchisement • Enfranchisement on the basis of post-imperial and/or colonial links • Enfranchisement on the basis of bilateral reciprocity

8. Three comparative observations on political participation • For migrant and minorities, political participation goes far beyond electoral participation. Where large segments of MMC remain disenfranchised,significant politicalmobilization occurs through voluntary associations and/or unconventional means. • Institutional dimensions such as whether voting is obligatory or optional impact upon the degree and level of participation by MMC. In countries where voting requires registration, such as Britain, France and Denmark, ethnic minority voter registration was generally lower than among the native majority. This is also the case in countries where voting is compulsory for nationals (Belgium and Greece). • Voting behaviour data suggests the existence of lower levels of electoral participation among MMC than among nationals. It also shows that they express a strong preference for political parties positioned on the left and centre left of the political spectrum. • In France, 63% associate themselves with the Left (37% among native French) and nearly 50% with the Socialist Party (33% among native French). • An opinon poll in Germany among Turkish citizens (both enfranchised and disenfranchised) showed that 74% would vote for the Socialist Party SPD (36% among natives). • A similar trend has been observaed in favour of the British Labour Party even if the 2005 General election result indicate a decreasing support from Muslim minorities.

9. Threee comparative observations on political representation • Qualitative and quantitative data suggest that MMP remain politically under-represented (even in old immigration countries of north west Europe (Belgium, Britain, Denmark, France, Germany) but less so at local level in big cities. E.g. 15 of 643 Members of UK Parliament are of ethnic minority background - 3 per cent of 21.498 local councillors in England and Wales. • Institutional factors (i.e nature of the electoral system, openness of nationality laws) are central for considering variations in the degree of MMP political representation • Another key factor influencing the degree of multicultural political representation lies in the selection processes implemented within political parties. Political parties open to MMP representation are often found to use instrumental strategies based on tokenism.

10. Three comparative observations on political consultation • Consultative and advisory institutions at the local and sometimes at the national levels with the objective to encourage migrants’ political participation and representation. • Consultation is seen as theoretically positive but inefficient in practice (‘toothless’ instruments). Tension between the aim to increase participation and dialogue and the practical limitations associated with consultative bodies means that even though they are often assessed in rather critical terms, they remain in place in several of the countries studied (Spain, Germany, France, Denmark). • Overall, there is a tendency to consider that consultative bodies are not decisive in channelling immigrant claims. In some instances, they are reported to actually have provoked perverse effects. • E.g. The Paris Consultative Council for Foreigners is considered to have marginalised group-based ethnic demands, while in Denmark, there is a concern that consultative bodies’ lack of efficiency will in the long run have demobilisation and disillusionment effects on the migrant population.

11. Back to the initial research questions How migration and ethnic diversity have influenced/modified conceptions of citizenship (rights and duties on the one hand/participatory processes on the other hand) in Europe? What kind of multicultural democracy is currently being produced through experiences of participation by migrants and minorities?

12. Conclusion • On the ground, the citizenship of the EU has been the most important trigger for challenging the classical notion of national citizenship and re-opening the debate on the political rights of non-nationals. This involves increased interest for considering residence as a complementary way for accessing local political rights. • The political impact of MMP participation, consultation, representation tend to remain poor and more strongly influenced by institutional variables than by ethno-cultural ones: nationality laws, citizenship rules, electoral systems, voter registration requirements, etc. • Progress in terms of the political integration of MMP do not allow straightforward or naive conclusions about multiculturalism. Current debates in countries like Denmark and Belgium have been marked by a disillusionment about MMP political representation (E.g debate on dual loyalties, transnational activism, etc.) as well as on cultural integration pre-requirements.