CITIES AND LABOUR IMMIGRATION Research in Migration and Ethnic Relations Series Series Editor: Maykel Verkuyten, ERCOMER Utrecht University The Research in Migration and Ethnic Relations series has been at the forefront of research in the field for ten years. The series has built an international reputation for cutting edge theoretical work, for comparative research especially on Europe and for nationally-based studies with broader relevance to international issues. Published in association with the European Research Centre on Migration and Ethnic Relations (ERCOMER), Utrecht University, it draws contributions from the best international scholars in the field, offering an interdisciplinary perspective on some of the key issues of the contemporary world. Other titles in the series Moving Lives Kathy Burrell ISBN 0 7546 4574 6 Globalizing Migration Regimes Edited by Kristof Tamas and Joakim Palme ISBN 0 7546 4692 0 Migration, Regional Integration and Human Security: The Formation and Maintenance of Transnational Spaces Edited by Harald Kleinschmidt ISBN 0 7546 4646 7 Cities and Labour Immigration Comparing Policy Responses in Amsterdam, Paris, Rome and Tel Aviv MICHAEL ALEXANDER University of Haifa, Israel © Michael Alexander 2007 All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, mechanical, photocopying, recording or otherwise without the prior permission of the publisher. Michael Alexander has asserted his moral right under the Copyright, Designs and Patents Act, 1988, to be identified as the author of this work. Published by Ashgate Publishing Limited Ashgate Publishing Company Gower House Suite 420 Croft Road 101 Cherry Street Aldershot Burlington, VT 05401-4405 Hampshire GU11 3HR USA England Ashgate website: http://www.ashgate.com British Library Cataloguing in Publication Data Alexander, Michael Cities and labour immigration : comparing policy responses in Amsterdam, Paris, Rome and Tel Aviv. - (Research in migration and ethnic relations series) 1. Alien labor - Case studies 2. Urban policy - Case studies 3. Minorities - Social conditions - Case studies 4. Municipal government - Case studies I. Title 305.5'62'091732 Library of Congress Cataloging-in-Publication Data Alexander, Michael, 1963- Cities and labour immigration : comparing policy responses in Amsterdam, Paris, Rome and Tel Aviv / by Michael Alexander. p. cm. -- (Research in migration and ethnic relations series) Includes bibliographical references and index. ISBN 0-7546-4722-6 1. Alien labor--Government policy--Europe--Case studies. 2. Alien labor--Government policy--Israel--Tel Aviv. 3. Immigrants--Employment--Government policy--Europe--Case studies. 4. Immigrants--Employment--Government policy--Israel--Tel Aviv. 5. Urban policy--Case studies. I. Title: Cities and labor immigration. II. Title. III. Series. HD6300.A44 2006 331.6'2--dc22 2006007243 ISBN-10: 0 7546 4722 6 ISBN-13: 978-0-7546-4722-5 Printed and bound in Great Britain by Antony Rowe Ltd, Chippenham, Wiltshire Contents List of Figures vii List of Tables and Boxes ix Preface xi 1 Strangers at the City Gates 1 1 Labour Immigration and Local Policy Responses 1 2 The Gap in Existing Theory 7 3 A Theoretical Framework for Understanding Local Policies toward Migrants 12 2 Host-Stranger Relations in Theory and Practice 25 1 Different Types of Strangers, Different Host-Stranger Relations 25 2 Modern and Postmodern Attitudes toward Strangers 27 3 Linking Host-Stranger Relations and Local Policies toward Labour Migrants 32 3 Local Policies Toward Migrants – a Typology 37 1 Defining ‘Local Policies toward Migrants’ 37 2 The Typology 40 4 Rome: From Non-Policy to Delegation 55 1 Introduction 55 2 The National Context: Italian Responses to Labour Immigration 56 3 The Local Context 59 4 Local Migrant Policies in Rome 67 5 Summary: From Ignoring to NGO-ing? 80 5 Tel Aviv: The Limits of Liberalism in a Guestworker Regime 83 1 Introduction 83 2 The National Context 84 3 The Local Context 89 4 Local Migrant Policies in Tel Aviv 96 5 Summary: ‘As Long As They Are Here …’ 109 6 Paris: A Century of Assimilation 115 1 Introduction 115 2 The National Context 116 3 The Local Context 121 4 Urban Policy in Paris: 150 Years of Distancing the Other 130 vi Cities and Labour Immigration 5 Other Policy Domains 141 6 The New Integration Policy, 2001 – … 144 7 Summary: ‘Plus ça change, plus c’est la même chose’? 149 7 Amsterdam: Pluralism and its Discontents 153 1 Introduction 153 2 The National Context 154 3 The Local Context 165 4 Migrant Policies in Amsterdam 172 5 Summary 193 8 Summary and Conclusions 197 1 Introduction 197 2 Summarizing the Case Studies 198 3 Comparison and Generalization 203 4 Rethinking the Typology: A New Policy Phase? 209 5 Implications for Research and Policy 214 Appendix: List of Interviews 217 Bibliography 221 Index 235 List of Figures 1.1 The analytical framework 14 1.2 City Halls of Amsterdam, Paris, Rome and Tel Aviv 21 2.1 Host-stranger relations as expressed in local authority attitudes toward labour migrants 35 4.1 Registered foreign residents in Rome, 1991–2004 61 4.2 Registered foreign residents in Rome, by content of origin (31 December 2004) 61 4.3 Distribution of registered foreign residents in Rome, by districts (2004) 63 5.1 Development of the secondary labour market in Israel, 1956–99 87 5.2 Population of Tel Aviv-Yafo, with estimated labour migrant population 90 5.3 Estimated labour migrant population in Tel Aviv, by continent of origin, 2001 91 5.4 Labour migrant concentrations in Tel Aviv-Yafo, 1999 94 6.1 Immigration to Paris and France, 1861-1990 (% foreign resident population) 121 6.2 Foreign resident population in Paris, 1954–99 123 6.3 Foreign resident population in Paris, by country of origin, 1999 124 6.4 The croissant populaire: working class quarters in east Paris, 1990 125 6.5 The embourgeoisement of Paris and its suburbs, 1982–90 126 6.6 Distribution of foreign population in Paris, 1975–99 128 6.7 Planned renovation areas in Paris, 1938 and 1987 133 7.1 Population of Amsterdam and ‘ethnic minorities’, 1947-2004 166 7.2 Resident population in Amsterdam, by country of origin (numbers) 167 7.3 Resident population in Amsterdam, by country of origin (%) 167 7.4 Amsterdam, city districts 170 7.5 Geographical distribution of migrant/minority population in Amsterdam 170 This page intentionally left blank List of Tables and Boxes Table 1.1 Migrants/ethnic minorities in survey cities 3 Table 1.2 The case study cities 19 Box 1.1 Four city halls, four styles of governance 22 Table 3.1 A typology space for classifying local migrant policies in terms of local authority attitudes and expectations 42 Table 3.2 Typology of local migrant policies, by domains and issue areas 43 Box 4.1 The Esquilino: Rome’s ‘multiethnic quarter’ 64 Box 5.1 Neve Sha’anan: the ‘foreign workers neighbourhood’ of Israel 93 Box 6.1 Policies toward Algerians in Paris: the ‘second front’ 120 Box 6.2 Bringing order to the ‘eastern crescent’ 138 Box 6.3 The Goutte d’Or: the politics of renovation in a migrant neighbourhood 140 Box 7.1 The Bijlmer: Amsterdam’s ethnic district 171 Box 7.2 The Aya Sofya Mosque conflict 184 Box 7.3 From a ‘black school’ to a ‘Community School’ in the Pijp 190 Box 7.4 ‘Links in the chain’ of the inburgering process 192 Table 8.1 Revised typology of local policies toward migrants/ minorities 211