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,historyandurbanlife
Localpoliticsandpoliticalparticipation
Localpoliciesofmigrationanddiversity
Superdiversecities
Dividedcitiesandbordercities.

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

2 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

1 introduction
Tiziana Caponio, Peter Scholten and Ricard Zapata-Barrero

1

PART I

Migration, history and urban life
Introduction by Peter Scholten

9

2 Migration: a historical perspective. european port cities as a case study
Paul van de Laar

12

3 urban migration histories
Marlou Schrover

22

4 learning from history: city governance of migration and diversity in
britain and germany
Sarah Hackett

5 creating successful, diverse cities: what role can cultural institutions play?
Peggy Levitt
6 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

7 Participation of migrants in european cities: patterns of civic and political
engagement
Katia Pilati and Laura Morales

77

8 local politics and immigration: mobilising immigrant associations beyond
small-scale cities
Juan Carlos Triviño-Salazar

93

9 Political systems, parties and diversity: the case of amsterdam
Floris Vermeulen

104

10 how do 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

2
4
67
80
81
82
83
84

85
86
87
89
112
186
207
258
259
259
260

261


Figures

24.1
24.2
25.1
25.2
25.3
26.1
26.2
26.3
26.4
26.5
26.6
30.1
30.2

examples of “Tarjetas ciudadanas” (citizens’ cards)
homicide rate in bogotá (1980–2016)
indonesia and majority religion distribution
bhinneka Tunggal ika Parade in Monas crossways
212 protest in Monas
evolution in the legally resident foreign population, lMa, 2008–2016
factor one – socio-economic structure, lMa
factor two – asian and brazilian migrants and poor housing conditions, lMa
factor three – ageing and dependency on welfare, lMa
factor four – african immigrants and social marginality, lMa
factor five – informal housing, lMa

Migrant arrivals by boat detected across the central Mediterranean sea route
arrivals, asylum applications, deportations in italy (January–october 2015)

x

293
295
301
308
309
315
320
321
322
323
324
366
367


Tables


9.1
9.2
9.3
10.1
10.2
11.1
11.2

13.1
14.1
20.1
21.1
21.2
21.3
24.1
24.2
25.1
25.2
25.3
26.1
26.2
27.1

Percentage turnout of immigrant-origin voters in amsterdam, 1994–2014
immigrant-origin city councillors in amsterdam, 1990–2014
number of position holders of surinamese, Turkish and Moroccan origin in
amsterdam, 2002–2014
characteristics of the three cities
Promotion of civic participation in the three cities
foreigners in Poland in the years 2004–2016
number of employers’ declarations on the intention to entrust employment to a
foreigner in a given work position with breakdown into nationality, registered in
local labour offices in the years 2007–2016
overview of perspectives on governance in multilevel settings
city immigrant affairs offices in the united states, 2016
Typology of cities of migration based on degree of diversification and degree of
migration

Main standards, by category
general data by dimension: index of governance
Results of Reci cities by categories and dimensions
“cultura ciudadana” actions
actions in public spaces and the image of the city
ethnic composition of Jakarta
governors of Jakarta: 1945–present
Political movements on digital–urban space
variables used for factor analysis
Rotated component matrix factor analysis
Taxonomy of institutions operating at the local level

xi

108
109
110
119
121
132

133
159
176
245
255
257
260
294
295

303
304
307
316
318
335


conTRibuToRs


Editors
Tiziana Caponio is associate Professor in the department of cultures, Politics and society at the
university of Turin, and fellow at collegio carlo alberto and fieRi. she is co-chair of the
imiscoe standing committee on “The Multilevel governance of Migration and integration Policy”
(www.imiscoe.org). her recent publications include: “Theorizing the ‘local turn’ in the governance of immigrant policy” (editor, with R. Zapata-barrero and P. scholten), International Review of
Administrative Sciences, 83( 2), 2017; “Theorising migration policy in multilevel states: the multilevel
governance perspective” (editor with M. Jones-correas), JEMS, online august 2017; “immigrant
integration beyond national policies? italian cities’ participation in european city networks”, JEMS,
online august 2017; “Research on the multi-level governance of migration and migrant integration: reversed pyramids”, with ilke adam, in s. bonjour, a. Weinar, and l. Zhyznomirska (eds),
Handbook on the Politics of Migration in Europe, london: Routledge, forthcoming.
Peter Scholten is Professor in Public administration at erasmus university of Rotterdam,
specialising in the dynamics of migration and diversity policies. his research focuses on, amongst
others, the governance of migration and migration-related diversity, multilevel governance,
comparative public policy, and the relationship between knowledge and power in the field of
migration. Peter is director of iMiscoe, europe’s largest academic research network on migration, integration, and social cohesion. he is also editor-in-chief of the journal Comparative
Migration Studies (cMs) and member of the editorial board of the Journal of Comparative Policy
Analysis. he has carried out various research projects on “research-policy dialogues” in the field
of migration and diversity, as well as participated in research-policy dialogues in various roles.
for more information, see www.peterscholten.net.

Ricard Zapata-Barrero is full Professor at the department of Political and social sciences,
universitat Pompeu fabra (barcelona-spain). his main lines of research deal with contemporary
issues of liberal democracy in contexts of diversity, especially the relationship between democracy, citizenship, and immigration. he is director of gRiTiM-uPf (interdisciplinary Research
group on immigration) and the Master in Migration studies at uPf. see more details about
publications: />xii


Contributors

Authors
Marie Bassi is currently Maître de conférences at the université nice sophia antipolis in the
department of Political science and Member of the french school of Rome (efR). she holds a
Phd in Political science from the centre for international studies (ceRi) of the Paris institute of
Political studies (sciences Po Paris). her research interests regard the outsourcing of the management of reception and holding centres for asylum seekers and irregular migrants in france and italy,
italian and eu migration and asylum policies, collective mobilisations and processes of borderisation. she has published several articles in french and english in scientific journals and collective
books (for example, “Politiques de contrôle et réalités locales” in L’Espace Politique, 2015 and “The
christian support networks for immigrants in Palermo” in Partecipazione e Conflitto, 2014).
Ted Cantle is director of the icoco foundation in the uk and is a visiting professor at the
university of nottingham and the nottingham Trent university. The icoco foundation
(www.icocofoundation.com) specialises in the development of interculturalism and community
cohesion and builds upon the concept of community cohesion which Ted established in 2001
with his review of race riots in england and the work of the institute of community cohesion
which he established in 2005. his publications include Community cohesion: a new framework for
race and diversity (2008) and Interculturalism: for the new era of cohesion and diversity (2012), both
published by Palgrave Macmillan. for full list of publications, see above website.
Teresa Cappiali is currently a Postdoctoral fellow at collegio carlo alberto in Turin, italy.
between 2013 and 2016, she was a visiting fellow at university of Toronto, european university
institute, and cornell university. she specialises in comparative politics and the sociology of
migration, focusing on immigrants’ political integration, the politics of migration, and social
movements. her research addresses several dimensions of the dynamics that transform immigrants

and ethnic minorities into active political citizens, particularly in european cities. her forthcoming book, entitled Immigrant political participation and allies: coalitions, conflicts and racialization in
hostile environments, is under contract with Routledge and examines the efforts immigrant activists
and their allies make to resist state criminalisation and production of exclusion through political
activism and grassroots mobilisations in italy. her work has appeared in the Journal of Ethnic and
Migration Studies, Ethnic and Racial Studies, International Migration Review and Southern European
Society and Politics and various edited volumes.
Els de Graauw is associate Professor of Political science at baruch college, the city university of new york. her research centres on the nexus of immigration and immigrant integration,
civil society organisations, urban and suburban politics, and public policy. she is the author of
Making immigrant rights real: nonprofits and the politics of integration in San Francisco (cornell university Press, 2016). her research also appears in Politics, Groups, and Identities, Journal of Immigrant
and Refugee Studies, Journal of Ethnic and Migration Studies, WorkingUSA, Politics & Society, American Journal of Sociology, Annual Review of Political Science, Daedalus, Hérodote, and various edited
volumes. she earned her Phd degree in Political science from the university of california at
berkeley. she has been a researcher at the harvard kennedy school of government and cornell
university. in 2012, she co-founded the section on Migration and citizenship of the american
Political science association.
Maciej Duszczyk is Professor and vice-Rector for Research and international Relations,
university of Warsaw, member of the board of centre of Migration Research, member of the
xiii


Contributors

national science congress board, Ministry of science and higher education. in 2008–2011 he
was member of the board of strategic advisers to the Prime Minister of Poland; in 2011–2013,
head of Task force for Migration Policy in the chancellery of the President of Poland; in
2014–2015, visiting Professor at the Martin luther university of halle-Wittenberg and friedrich schiller university of Jena. he is also member of the Transatlantic forum on Migration
and integration.
Jan Willem Duyvendak is distinguished Research Professor of sociology at the university of amsterdam, after having been director of the verwey-Jonker Research institute for
social issues (1999–2003) and Professor of community development at the erasmus university Rotterdam. he received his master’s degrees in both sociology and philosophy at the
university of groningen, and did his doctoral research, which dealt with new social movements, at the university of amsterdam. his main fields of research currently are the transformation of the welfare state, belonging and feeling at home, and nativism. his latest books
include European states and their Muslim citizens: the impact of institutions on perceptions and

boundaries (cambridge university Press, 2014, co-edited with John bowen, christophe bertossi, and Mona lena krook), New York and Amsterdam: immigration and the new urban landscape (nyu Press, 2014, co-edited with nancy foner, Jan Rath, and Rogier van Reekum),
Players and arenas: the interactive dynamics of protest (amsterdam university Press, 2015, coedited with James M. Jasper), Breaking down the state: protestors engaged (amsterdam university
Press, 2015, co-edited with James M. Jasper), and Culturalization of citizenship: belonging and
polarization in a globalizing world (Palgrave Macmillan, 2016, co-edited with Peter geschiere
and evelien Tonkens).
Felipe Amin Filomeno is assistant Professor of Political science and global studies at the
university of Maryland, baltimore county, usa. he holds a Phd in sociology from the Johns
hopkins university, usa. his research examines development issues affecting latin america
and is currently focused on the governance of international migration. he was awarded the
early career Prize of the economics and Politics section of the latin american studies association in 2015 and is author of Monsanto and intellectual property in South America (Palgrave Macmillan, 2014) and Theories of local immigration policy (Palgrave Macmillan, 2017). his publications
have also appeared in several academic journals, including the Urban Affairs Review, Comparative
Politics, and the Journal of Politics in Latin America.
Maria Lucinda Fonseca is Professor of human geography and Migration studies and President of the institute of geography and spatial Planning (igoT), universidade de lisboa. she
is also the director of the Phd Program on Migration studies and the coordinator of the
Research cluster MigRaRe – Migration, spaces and societies at the centre for geographical
studies (ceg) of the same institute. her current research activities focus on migration dynamics
and migrant transnationalism, migration, mobilities and urban transformation and migration,
demographic change and regional development. currently, she is coordinating the Portuguese
team of the Mobile Welfare Project, European Welfare states in times of mobility, sponsored by the
noRface Research Programme on Welfare state futures.
Kristin R. Good is associate Professor in the department of Political science at dalhousie
university. her books on local immigration policies and governance include Municipalities and
multiculturalism: the politics of immigration in Toronto and Vancouver (2009) and the co-edited (with
luc Turgeon and Triadafilos Triadafilopoulos) volume Segmented cities? How urban contexts shape
xiv


Contributors

ethnic and nationalist politics (2014). With co-editor, Martin horak, she is editor of the McgillQueen’s Studies in urban governance book series.

Jill Simone Gross is an associate Professor and director of the graduate Program in urban
Policy and leadership at hunter college of the city university of new york, and was chair
of the urban affairs association (2015–2017). she has a Phd in Political science from the
graduate center of the city university of new york and an Msc from the london school of
economics, and was a fulbright-schuman scholar (2011–2012), researching migrant integration. she works primarily on comparative urban governance and policy and has most recently
published in Urban Affairs Review, Journal of Urban Affairs, Cities, and Urban Research and Practice.
“Migrants and the Right to the city” was published in y. beebeejaun (ed.) The participatory city
(berlin: Jovis verlag gmbh, 2016). she is coauthor of Governing cities in a global era (Palgrave
Macmillan, 2007), and Constructing metropolitan space: actors, policies and processes of rescaling in world
metropolises (Routledge, 2018).
Sarah Hackett is Reader in Modern european history at bath spa university, uk. her
research interests focus upon european Muslim immigration in the post-1945 era, particularly
to britain and germany. her book (Foreigners, minorities and integration: the Muslim immigrant
experience in Britain and Germany, Manchester university Press, 2013) examines the impact that
britain’s relatively liberal immigration policy and germany’s rigid guest-worker rotation system
have had on the long-term integration of Muslim immigrants at a local level. her other research
interests include european city-level migration and integration policies, migration and religion,
and islam in europe in historical perspective. her research has been funded by the german
historical institute in london (ghil) and the german academic exchange service (daad).
she also held a doctoral fellowship at the university of durham. she acts as an editor for the
Journal of Migration History.
Aulia Hadi is a junior researcher at the indonesian institute of sciences. Pursuing her Master
degree in new Media and communication studies at the university of Twente, the netherlands (2013), she wrote about the ways migrants use different types of interactive communication for bonding and bridging communities. she continuously conducts research on media,
identity, rural–urban space and local politics. in 2014 she had the opportunity to present her
paper about the interconnection of digital–urban space for the labour movement at the asia
Research institute, national university of singapore (aRi-nus). she (as co-author) recently
published a book chapter entitled “urbanisation and social transformation: the case of Java’s
north coast cities” (2017).
Adriana Kemp is a political sociologist and head of the department of sociology and anthropology at Tel aviv university. her research interests focus on two main areas: intersections
between labour and forced migration, citizenship and civil society, and scholarship on the rescaling of politics and urban governance. she has published on these topics in journals such as

International Migration Review, Gender and Society, Political Geography, IJURR (International Journal
of Urban and Regional Research), Law and Society Review, Ethnic and Racial Studies and Social Problems. she is the author of more than 20 refereed book chapters, the co-editor of two collected
volumes and the co-author of a book on Migrants and workers: the political economy of labour migration in Israel (in hebrew). she is currently leading a three-year research titled “do papers
matter?”, dealing with the impact of legal liminality on the life-course of migrant workers and
refugees’ children in israel, funded by the israeli national science foundation.
xv


Contributors

Robert C. Kloosterman is Professor of economic geography and Planning at the university
of amsterdam. his research is guided by questions about how the social, economic and cultural
transition of advanced urban economies that gathered pace after 1980 has affected cities and why
different outcomes have emerged. he has published extensively in english language journals on
urban issues such as labour market developments in urban areas, migrant entrepreneurship, and
on cultural industries, especially music and architectural design, and planning issues related to
cultural amenities. he is head of the research group geographies of globalisations.
Peggy Levitt is chair of the sociology department and the luella laMer slaner Professor in
latin american studies at Wellesley college and co-director of harvard university’s Politics
and social change Workshop. her most recent book, Artifacts and Allegiances: How Museums Put
the Nation and the World on Display, was published by the university of california Press in July
2015. Peggy has received honorary doctoral degrees from the university of helsinki (2017)
and from Maastricht university (2014). she is currently a guest Professor and Robert schuman
fellow at the european university institute (2017–2019). she has held visiting professorships at
Queen Mary university of london, Tel aviv university, the lebanese american university,
the national university of singapore, oxford university, and the american university of
cairo. her books include Religion on the Edge (oxford university Press, 2012), God Needs No
Passport (new Press, 2007), The Transnational Studies Reader (Routledge, 2007), The Changing
Face of Home (Russell sage, 2002), and The Transnational Villagers (uc Press, 2001).
Giovanna Marconi, architect (2001), has a Phd in urban Planning and Public Policies (2012);

since 2008 she has been a researcher at the ssiiM unesco chair on the social and spatial
inclusion of international migrants, based at the university iuav of venice. her main research
topics include: south-to-south international migration, transit migration, urban inclusion of
international migrants and the governance of migration in small–medium sized cities. she has
coordinated and collaborated on a number of international (action) research projects related to
these issues and is author of several scientific articles and book chapters on the urban dimension
of international migration.
Jennifer McGarrigle holds a Phd in urban studies from the university of glasgow, uk. she
is currently assistant Professor of human geography in the institute of geography and spatial
Planning (igoT) and researcher in the centre for geographical studies, at the universidade de
lisboa. her research interests lie at the intersection of migration and urban studies. she has
conducted extensive research on residential processes, housing and religious minorities in the
uk and Portugal. her current research focuses on new forms of international residential mobility and impacts in urban areas, with a particular focus on investment and lifestyle migration.
Simon McMahon was a Research fellow at the centre for Trust, Peace and social Relations
at coventry university from 2014 to 2018. he has a Phd from king’s college london and has
been a visiting researcher at the european university institute (italy), the Pompeu fabra university (spain) and the colegio de la frontera sur (Mexico). he is a co-author of Unravelling
Europe’s migration crisis: journeys over land and sea (Policy Press, 2017), author of Immigration and
citizenship in an enlarged European Union (Palgrave, 2015) and co-editor (with leila Talani) of The
handbook of international political economy of migration (edward elgar, 2015).
Paul Mepschen is a postdoc at the university of amsterdam (uva). he teaches courses on religion, gender, politics, and ethnographic methodology. he received his Phd degree from the
xvi


Contributors

university of amsterdam for his dissertation Everyday autochthony. Difference, discontent, and the
politics of home in Amsterdam (2016), on the politics of autochthony in the netherlands (cum
laude). his work deals with the politics of belonging, citizenship, and urban politics in Western
europe. his interests include cultural and sexual politics, migration, race and racism, sexuality
and queer theory; and religion and secularism. he is also interested in populism and the sociology

of the european left. as part of the Political sociology programme at the uva, he is currently
working on a research project on the urban politics and historical anthropology of lgbTiQ
pride, focusing on the sexual politics of “europe”. other research focuses on urban superdiversity; on masculinity; and the politics of representation concerning islam and refugees.
Laura Morales (Msc lse, Ma Juan March institute, Phd universidad autónoma de Madrid)
is Professor in comparative Politics at the university of leicester. her interests lie, especially,
in the areas of political behavior, political participation, public opinion, the politics of immigration, and comparative politics. she has published Joining political organisations: institutions, mobilisation and participation in western democracies, colchester: ecPR Press, 2009; Political discussion in
modern democracies in a comparative perspective (edited with Michael Wolf and ken’ichi ikeda),
london: Routledge, 2010; and Social capital, political participation and migration in Europe: making
multicultural democracy work? (edited with Marco giugni), basingstoke: Palgrave, 2011; as well as
a number of articles in academic international journals. she is currently the principal investigator
of the european Research council grant Responsivegov, which studies how democratic governments respond to the multiple and sometimes contradictory pressures of the public, and one
of the principal investigators of the open Research area project Pathways on the political
representation of citizens of immigrant origin in eight european democracies.
Fabiola Pardo, a dutch-colombian, has a Phd in Political science from leiden university,
the netherlands, and a Master’s degree in Political science from the university of Montreal,
canada. her pre-graduate studies are in law and Philosophy at the externado university and
national university of colombia, respectively. since 2007 she has worked as a research professor in the faculty of social science and humanities at the externado university of colombia
and she coordinates liMiTi, a research group on international migration and intercultural trajectories. some relevant publications are: Challenging the paradoxes of integration policies: Latin
Americans in the European city (springer 2018); “integration policies and practices: intercultural
urban trajectories of latin american migrants in europe”, in Migration, Stadt und Urbanität
(springer, 2017); Inmigración, multiculturalidad and políticas de integración: Colombianos en Ámsterdam, Londres y Madrid (2012); Territorialidades cívicas: Espacio público y cultura urbana en Bogotá
(externado university Press, 2008).
Katia Pilati (Phd university of Trento, department of sociology and social Research, dsRs)
is assistant Professor (RTd) at the dsRs at the university of Trento, italy. before joining
dsRs, she was a Marie curie fellow at the department of Political science at the university of
geneva, switzerland and a research fellow at the université libre de bruxelles (belgium). her
research interests include political participation and immigration, social movements and political
participation in repressive contexts, social networks. her publications have appeared in Ethnic
and Racial Studies, European Journal of Political Science, Global Networks, Journal of Ethnic and Migration Studies, and Mobilization. she is the author of two books on migrants’ political participation
(armando, 2010; Palgrave Macmillan, 2016). her Phd dissertation was awarded the first prize

for the best Phd dissertation against racial and ethnic discrimination by the national office on
Racial anti-discrimination and the conference of italian university Rectors.
xvii


Contributors

Dominika Pszczółkowska is a researcher and Phd student at the centre of Migration
Research, university of Warsaw. Previously (1998–2012), she worked as a reporter for the
Polish daily newspaper, Gazeta Wyborcza, writing about european union enlargement, Polish
migration to other eu countries and events in france, the uk, ireland and other european
countries. in 2007–2009, she was Gazeta Wyborcza’s correspondent in brussels. she studied at
the university of Warsaw and oxford university (Reuters fellow, 2004–2005).
Maria Schiller is a senior Research fellow at Max Planck institute for the study of Religious
and ethnic diversity in göttingen, germany. Maria holds a Phd in Migration studies from the
university of kent (uk) and an Ma in social and cultural anthropology from the university
of vienna (austria), with parts of her studies spent at the university of utrecht (nl). her
research interests include migration and immigrant incorporation, urban diversification and
urban life, immigrant policymaking and implementation, bureaucratic institutions, immigrant
political participation and governance networks. her research employs qualitative methods and
often takes a comparative approach.
Marlou Schrover is a Professor of Migration history at leiden university and holds the chair
of economic and social history. she has published extensively on migration: a textbook on 450
years of dutch immigration and emigration (Komen en gaan. Immigratie en emigratie in Nederland
van af 1550, amsterdam: bert bakker, 2008, with herman obdeijn); an edited volume about
gender and illegal migration (Illegal migration and gender in a global and historical perspective, amsterdam: auP, 2008, with Joanne van der leun, leo lucassen and chris Quispel); an edited
volume Gender, migration and the public sphere, 1850–2005, new york: Routledge, 2010, with
eileen yeo; Gender, migration and categorisation: making distinctions between migrants in Western countries 1945–2010, amsterdam: auP, 2013, with deirdre Moloney; and The language of inclusion
and exclusion in immigration and integration, new york: Routledge, 2014, with Willem schinkel).
she is associate editor of the five-volume Encyclopedia of Global Human Migration, published

online and in print by Wiley in february 2013, and editor-in-chief of the new Journal of Migration History.
Sheetal Sharma is assistant Professor at the centre for european studies. her research interests include social and cultural issues in contemporary europe and india and their historical
roots, multiculturalism and diversity, methodology of the social sciences, gender and empowerment of women. she writes regularly on socially relevant issues in india and europe for journals
and magazines of national and international repute. she is also interested in and writes on issues
relevant to education in india particularly higher education. she has completed a video lecture
series in sociology for cieT, nceRT’s project nRoeR (national Repository for educational Resources and Training, available on the nRoeR website). she has also been invited as
a discussant on a number of radio and television programmes. she has presented papers at a
number of national and international seminars and conferences.
Riwanto Tirtosudarmo has worked as a researcher at the indonesian institute of sciences
since 1980. he obtained his Phd in social demography from australian national university,
australia (1990). Migration, urbanisation, political demography, ethnicity and territorial politics
are his main research interests. he has received numerous fellowships, including from brown
university, nias-amsterdam, oxford university, Tokyo university for foreign studies
(Tufs), kiTlv-leiden and aRi-nus. among his recent books are From colonization to nationxviii


Contributors

state: the political-demography of Indonesia (liPi Press, 2013) and On the politics of migration: Indonesia and beyond (liPi Press, 2015).
Juan Carlos Triviño-Salazar is a Juan de la cierva post-doctoral researcher at the institut
barcelona d’estudis internacionals (ibei). he is also a member of the research group
gRiTiM-uPf (barcelona). his research engages in questions about immigration and integration, political participation and inclusion, and local politics. in 2016, he defended his Phd
thesis entitled Political parties and immigrant associations: alliances in the presence of politicized immigration conflicts: a comparative study. he has broad experience as researcher in eu-funded projects such as Transcrisis (full-time researcher), accept-Pluralism and divpol, and spanish ones
such as diversidad and candidatos Plurales. he did academic stays at the cuny graduate
center in new york and McMaster university in hamilton, canada, as well as the fegs in
caracas, venezuela.
Paul van de Laar studied economic and social history and received his Phd from the Tinbergen institute graduate school of the erasmus university Rotterdam in 1991. his academic
interest then switched over from economic history to the interdisciplinary field of urban history.
since 1997 he has been an endowed Professor of urban history at the erasmus university
school of history, culture and communication. his latest research is on comparative port

history, migration and transnational developments in relation to urban transformations. besides
his academic research and teaching, he is, as Managing director of Museum Rotterdam (the
city Museum), responsible for the new focus on city museums and their role in a changing
urban context, in particular the role of cultural heritage in superdiverse cities.
Floris Vermeulen is associate Professor and chair of the department of Political science at
the university of amsterdam. he has been co-director of the institute for Migration and
ethnic studies (iMes). his research focuses on the civic and political participation of immigrants at the local level and local integration policies and their effects on different domains. his
work has been published in different international volumes and journals such as European Union
Politics, Journal of Ethnic and Migration Studies, Nonprofit and Voluntary Sector Quarterly, Urban
Studies, West European Politics, British Journal of Sociology, Political Psychology, and Terrorism and
Political Violence.
Dominik Wach is a political analyst who specialises in migration and Middle eastern affairs.
he has been professionally involved in integration of refugees on the local level (municipality of
Warsaw) since 2008. he coordinates, on behalf of Warsaw family support centre, the pilot
programme of integration of refugees through the labour market. he is a former human rights
observer in the West bank (oPt).

xix



1

IntroductIon

the governance of migration and diversity in cities

Tiziana Caponio, Peter Scholten and Ricard Zapata-Barrero*

By 2050, the majority of the world’s population will live in cities (United Nations, 2015).

Human mobility across urban areas and the answers cities will give to migration and diversity
will be critical for their economic development and their place in an increasingly global context.
From a migrant’s point of view, nations and states are seen as mere restrictions for their personal
mobility among cities. Migration-related diversity in cities has been increasing, and in a growing
number of cities more than one-third or even more than half of the urban population has a
migration background. For migration studies this “city focus” represents more and more a key
premise for conducting research: migration is basically seen as an urban phenomenon.
Cities are the places where migration and diversity manifest themselves most clearly. Migrants
first arrive in cities, and there they find a home, go to school, search for jobs, interact with
others and thus make their first steps toward incorporation (or to onward migration or remigration), building their life expectations. This means that the governance challenges associated with
migration and migration-related diversity become usually manifest at the city level, from access
to services and socio-economic resources to the conflicts arising from social inequalities, power
relations and racisms.
The term “governance” refers to how multiple actors in specific settings attempt to manage
or solve issues such as migration and diversity (Kjaer, 2004; Colebatch, 2009); it emphasises the
growing interdependency between state- and non-state actors in addressing such societal issues,
often operating together in complex networks (Rhodes, 1997). We believe that the concept of
governance is particularly fit for the study of migration and diversity, as in this area relations
with, and sometimes even dependency on, non-state actors is likely to be very significant.
Therefore, contributions to this handbook devote particular attention to the role not only of
local governments, but also of NGOs (non-government organisations), migrant organisations,
trade unions, social movements, schools, housing corporations, health institutions, etc. It brings
together insights from various disciplines to shed further light on how cities deal with challenges, conflicts and opportunities related to migration and diversity, including contributions
from sociology, anthropology, history, policy sciences, political sciences, urban studies, geography and various others. The handbook covers a broad range of cities across the globe (see
Figure 1.1). This also involves variation in terms of cities’ types, including well-known global
cities of migration such as New York and London, smaller highly diverse cities such as
Rotterdam, and other specific types of cities that have been marked by migration and diversity,
1

T. Caponio et al.

Figure 1.1 Cities analysed in this Handbook.

such as border cities, harbour cities and cities that find themselves at the cross-roads of two
different nations or cultures.
Our focus is on migration-related diversity, even though in the cases of divided cities like
Jakarta or Tel Aviv the interaction with national minorities-related diversity is also considered.
Furthermore, most of the contributions focus on international migration, even though internal
migration is a crucial dimension that we take into account in the case of Bogotá and Delhi. The
question as to whether diversity related to international or internal migration involves cultural,
ethnic, religious, legal or any other form of diversity is defined in this book as an empirical one.
It depends on the specific local setting of a city. This also includes variation in terms of whether
only first-generation migrants or also second and later generations are considered part of
“migration-related diversity”. In other words, we believe that it is more important to capture
variation between cities in terms of diversity, and explore the consequences for (or the roots in)
governance, rather than imposing one definition of migration-related diversity that may misrepresent specific local perceptions.
However, this handbook does not aim only at providing a review of existing scholarly
research on the governance of migration and diversity in cities. As will be discussed here below,
by stimulating a dialogue between different disciplinary, theoretical and methodological perspectives, our goal is that of defining a roadmap for future research to address the complexity of
migration and diversity governance. To put it differently, our aim is to reach beyond the state
of the art on cities of migration and shape a research agenda that exploits interdisciplinary crossroads to develop a deeper understanding of the urban governance of migration and diversity.
Beyond academic debates, the handbook aims also to provide practical insights for the urban
governance of migration and diversity. Practitioners, especially those directly and indirectly
involved in the governance of migration and diversity in cities (either with government or nongovernment organisations), will find in this handbook unique material on how the challenges of
migration and diversity are managed in different cities and on the possible drivers of social
innovation and development linked to the presence of a diverse population.

2

Introduction

The local turn in the study of migration and diversity
This book focuses on the city as unit of analysis for the study of the governance of migration
and diversity and sets itself apart from a longer established tradition of research centred on the
national level in migration studies. Issues of migration and diversity often tended to be studied
in national terms, which has been described by Wimmer and Glick Schiller (2002) as a form of
“methodological nationalism”. Both the regulation of migration and the incorporation of
migrants were seen as a central national prerogative. Defining who is and who is not allowed
entry to (or exit from) a specific territory was and is often still considered a key part of national
sovereignty, although supranational institutions (such as the European Union) and international
treaties (such as the UN Refugee Convention) have at least partially limited this sovereignty
(Joppke, 1998).
This national container view has influenced policymaking as well as the development of
migration research itself. Favell (2003) refers in this regard to the development of the so-­called
“integration paradigm”, which legitimated states intervention in the incorporation of migrants
in national structures and national values and norms. As such, there was a clear coproduction
between states and academia, with the use of concepts, such as integration, that became a taken­for-granted lens of analysis in migration studies. Furthermore, early migration scholarship tended
to reproduce specific “national models of integration”, referring to historically developed and
institutionally embedded ways of promoting migrant integration in specific national contexts
(Thränhardt and Bommes, 2010; Bertossi, 2011). This national container view impeded for a
long time the development of comparative research and a more theoretical orientation to what
drives migration and diversity policies in different countries and at different levels of analysis.
Throughout the 1990s and early 2000s, migration scholarship has witnessed a rise of interest
in international and global developments (Soysal, 1994), as well as developments at the local
level (Penninx et al., 2004). What we refer to as a “local turn” in migration studies (see also
Zapata-­Barrero et al., 2017) involves “the discovery” of a local dimension of migration and
diversity, leading to efforts to theorise the relationship between specific local settings and local
processes, policies and outcomes. Such efforts aim to provide deeper insight in the local variation in migration and diversity, and help migration scholars reach beyond the container view

of national models. In this book, this local turn is developed with a particular focus on issues of
governance.
Importantly, this local turn does not mean that we replace methodological nationalism with
methodological localism. Throughout the book, we will devote attention both to multilevel
relations across various government settings (local, regional, national, supranational), as well as
to variation between (and sometimes even within) cities. Just as for nations, there is no “one size
fits all” for cities either. In fact, throughout the book, we will address various types of cities,
often facing very different governance challenges. A port city like Naples may face very different
challenges than a cosmopolitan city like Amsterdam. The importance of local variation has
become highly manifest in a broad range of studies that have over the last decade or so drawn
attention to the city as level of analysis (Jones Correa, 2001; Amin and Thrift, 2002; Alexander,
2012; Caponio and Borkert, 2010; Foner et al., 2014; Filomeno, 2016; Zapata-­Barrero, 2015).
Different cities may present very different migration patterns and have very different migration
histories. Some cities are literally “cities of migration”, as they have evolved out of migration
flows, like New York, whereas other cities define migration as a more recent phenomenon, as
is shown in this handbook by the cases of Lampedusa or Warsaw. Also in terms of diversity,
there are significant differences between cities. Some cities like London have become, as Vertovec (2007) describes it, “superdiverse” in the sense that they are marked by a high degree of
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T. Caponio et al.

complexity in terms of migration, which defies notions such as ethnic groups or “minorities”.
In other cities, diversity may take very different shapes, sometimes even leading to divided cities
where migrants and natives live largely separate lives, as pointed out in this volume by the case
of Tel Aviv or Istanbul. This book will appreciate rather than reduce the urban variation in
migration and diversity, and focus in particular on how differences between cities may correlate
with different urban approaches to the governance of migration and diversity.

Interdisciplinary crossroads: mapping a research agenda

The handbook brings together insights from a variety of disciplines. Such a multidisciplinary
design is required to develop an interdisciplinary understanding of the object of study in this
handbook. The complexity of governance of migration and diversity can only be appreciated
when done so from various disciplines. Therefore, the outline of the book has been structured
in accordance with several core governance themes that are addressed from various perspectives,
i.e. migration, history and urban life; local politics and political participation; local policies of
migration and diversity; superdiverse cities; divided and border cities.
The parts of the handbook, however, are not only representative of different research themes
in scholarly literature; taken together, they compose a map of the possible factors and processes that
influence and shape the governance of migration and diversity in cities, as shown in Figure 1.2.
The first theme addressed in this handbook builds on both historical and sociological understandings of urban governance. It shows how migration histories, and the social constructions of
these histories, matter to contemporary urban life and governance of migration and diversity.
For instance, as will be argued in this part, city specific histories of migration often remain
visible in the spatial as well as social structures of cities today. And in some cases legacies from

Histories of migration
and urban life

Local politics
and political
participation

The city governance of migration
and diversity

Local
policies of
migration
and diversity

City identity and frames of migration and
diversity, e.g. superdiverse cities,
divided cities, border cities

Figure 1.2 Factors and processes that shape the city governance of migration and diversity.

4