Between integration provision and selection mechanism. Party politics, judicial constraints, and the making of French and Dutch policies of civic integration abroad

European Journal of Migration and Law

Volumn 12, Issue 3, 2010, Pages 299-318

  Bonjour, Saskia ^a  

^a UNIVERSITÉ LIBRE DE BRUXELLES   (Belgium)

Author keywords

Civic integration policies; France; judicial review; political parties; right to family life; the Netherlands

Indexed keywords

EID: 77955901111     PISSN: 1388364X     EISSN: 15718166     Source Type: Journal    
DOI: 10.1163/157181610X520382     Document Type: Article

References (106)

1. K. Groenendijk, 'Integratie en uitsluiting in het Nederlands vreemdelingenrecht', in P. Boeles & G.G. Lodder (eds), Integratie en Uitsluiting (Den Haag: SDU Uitgevers, 2005), pp. 9-32 on 12.
2. Wet van 22 december 2005 tot wijziging van de Vreemdelingenwet 2000 in verband met het stellen van een inburgeringsvereiste bij het toelaten van bepaalde categorieën vreemdelingen (Wet Inburgering in het Buitenland).
3. Loi n° 2007-1631 du 20 novembre 2007 relative à la maîtrise de l'immigration, à l'intégration et à l'asile.
4. D. Jacobs & A. Rea, 'Open Forum: The End of National Models? Integration Courses and Citizenship Trajectories in Europe', International Journal on Multicultural Societies 9/2 (2007), pp. 264-283;
5. S. Goodman, 'Integration Requirements for Integration's Sake? Identifying, Categorizing, and Comparing Civic Integration Policies', Journal of Ethnic and Migration Studies (forthcoming).
6. The French data was collected from the Dossier Legislatif on Loi n° 2007-1631 on the website of the Assemblée Nationale (http://www. assemblee-nationale.fr/13/dossiers/immigration-integration-asile.asp), the Dutch data from the parliamentary online search engine (http://parlando.sdu.nl/), under Kamerstuknummer 29700 and through complementary keyword search.
7. D.A. Schön & M. Rein, Frame Reflection: toward the Resolution of Intractable Policy Controversies, New York: BasicBooks 1994;
8. M. Hajer, 'Discours-coalities in politiek en beleid: De interpretatie van bestuurlijke heroriënteringen in de Amsterdamse gemeentepolitiek', Beleidswetenschap 3/3 (1989), pp. 242-263;
9. P.A. Hall, 'Policy Paradigms, Social Learning, and the State. The Case of Economic Policymaking in Britain', Comparative Politics 25/3 (1993), pp. 275-296.
10. Assemblée Nationale (further: AN), Amendement No 59, 14 September 2007.
11. Tweede Kamer (further: TK) 28375 (5): 15-16, 3 July 2002.
12. AN, plenary debate 10 February 2004;
13. AN, Question orale No 81, 23 October, 2002.
14. TK 29700 (6): 4, 6 December 2004; TK 29700 (3): 17, 21 July 2004.
15. AN, plenary debate 10 February 2004.
16. TK 29700 (6): 47, 6 December 2004.
17. TK 27083 (44): 6 and 9, 21 June 2004; TK 28198 (5): 6, 4 October 2002.
18. AN, plenary debate 19 September 2007.
19. Code de l'entrée et du séjour des étrangers et du droit d'asile (CESEDA) L211-2-1 & R311-30-1 through R311-30-11; Arrêté du 1er décembre 2008 relatif à l'évaluation dans lEUr pays de résidence du niveau de connaissance, par les étrangers, de la langue française et des valEUrs de la République et aux formations prescrites dans ces domaines conformément aux articles R. 311-30-1 à R. 311-30-111 du code de l'entrée et du séjour des étrangers et du droit d'asile (partie réglementaire).
20. The Agence nationale de l'accEUil des étrangers et des migrations (ANAEM), which was initially entrusted with this mission, merged into the OFII in 2009.
21. Projet de loi No 57 relatif à la maîtrise de l'immigration, à l'intégration et à l'asile, 4 July 2007.
22. AN, Rapport No 160 fait au nom de la Commission des lois constitutionnelles, de la législation et de l'administration générale de la République sur le projet de loi relatif à la maitrise de l'immigration, à l'intégration et à l'asile, 12 September 2007.
23. Sénat, plenary debate 3 October 2007.
24. AN, Commission des lois constitutionnelles, de la législation et de l'administration générale de la République, Compte rendu No 7, 25 July 2007.
25. TK 29700 (6): 2, 6 December 2004.
26. TK 29700 (3): 5-6, 21 July 2004; TK 29700 plenary debate: 4002, 22 March 2005.
27. TK 29700 (3): 6 and 11, 21 July 2004.
28. S. Carrera & A. Wiesbrock, Civic Integration of Third-Country Nationals. Nationalism versus Europeanisation in the Common EU Immigration Policy, CEPS report, October 2009 (available online on www. ceps.EU), pp. 14-15;
29. Y. Pascouau, 'Integration Measures in France: An Evolving Process between Integration and Migration Issues', in: R. van Oers, E. Ersbøll & D. Kostakopoulou (eds.), A Re-Definition of Belonging? Language and Integration Tests in Europe, Leiden: Brill, 2010, pp. 153-183 on 174.
30. AN, plenary debate 18 September 2007.
31. AN, Commission des lois constitutionnelles, de la législation et de l'administration générale de la République, Compte rendu No 7, 25 July 2007.
32. AN, Rapport No 160 fait au nom de la Commission des lois constitutionnelles, de la législation et de l'administration générale de la République sur le projet de loi relatif à la maitrise de l'immigration, à l'intégration et à l'asile, 12 September 2007.
33. AN, plenary debate 19 September 2007.
34. Sénat, plenary debate 3 October 2007; cf. AN, plenary debate 18 September 2007.
35. TK 29700 (3): 2-4, 21 July 2004.
36. TK 27083 (44): 24, 21 June 2004.
37. TK 29700 (3): 13-14, 21 July 2004.
38. TK 29700 (6): 43, 6 December 2004.
39. TK 29700 (3): 14-15, 21 July 2004.
40. TK 29700 (3): 6, 21 July 2004.
41. Jacobs & Rea, supra note 4 at 278;
42. cf. R. Brubaker, Citizenship and nationhood in France and Germany, Cambridge: Harvard University Press, 1992;
43. S. Castles, 'How nation-states respond to immigration and ethnic diversity', New Community 21/3 (1995), pp. 293-308;
44. A. Favell, Philosophies of Integration: Immigration and the Idea of Citizenship in France and Britain, Basingstoke/New York: Macmillan/ St. Martin's Press, 1998;
45. H. Ent zinger, 'Changing the rules while the game is on; From multiculturalism to assimilation in the Netherlands', in: M. Bodemann & G. Yurdakul (eds), Migration, Citizenship, Ethnos: Incorporation Regimes in Germany, Western Europe and North America, New York: Palgrave MacMillan, 2005, 121-144.
46. R. Koopmans, P. Statham, M. Giugni & F. Passy, Contested Citizenship. Immigration and Cultural Diversity in Europe, Minneapolis/London: University of Minnesota Press, 2005, pp. 31-73.
47. Koopmans et al., supra note 36, pp. 31-73; H. Entzinger, 'The Rise and Fall of Multiculturalism: The Case of the Netherlands', in C. Joppke & E. Morawska (eds), Towards Assimilation and Citizenship: Immigrants in Liberal Nation-States, Basingstoke/New York: Palgrave Macmillan, 2003, pp. 59-86.
48. Castles, supra note 36 at 301.
49. Ibid., pp. 297-298; cf. R. Brubaker, Citizenship and Nationhood in France and Germany.
50. C. Joppke, 'Beyond National Models: Civic Integration Policies for Immigrants in Western Europe', West European Politics 30/1 (2007), pp. 1-22 on 19.
51. E. Guild, K. Groenendijk & S. Carrera, 'Understanding the Contest of Community: Illiberal Practices in the EU?', in: E. Guild, K. Groenendijk & S. Carrera (eds), Illiberal Liberal States. Immigration, Citizenship and Integration in the EU, London: Ashgate 2009, pp. 1-25 at 16.
52. Cf. T. Bale, 'Turning round the telescope. Centre-right parties and immigration and integration policy in Europe', Journal of European Public Policy 15/3 (2008), pp. 315-330;
53. T. Perlmutter, 'Bringing Parties Back in: Comments on "Modes of Immigration Politics in Liberal Democrat Societies"', International Migration Review 30/1 (1996), pp. 375-388.
54. TK 29700 plenary debate: 3885 and 3901, 16 March 2005.
55. TK 29700 plenary debate: 3895, 16 March 2005; TK 29700 plenary debate: 4028, 22 March 2005.
56. TK 29700 plenary debate: 3886, 16 March 2005.
57. TK 29700 (25), 22 March 2005.
58. AN, plenary debate 18 and 19 September 2007;
59. Sénat, plenary debates 2 and 3 October 2007.
60. AN, plenary debate 18 September 2007.
61. AN, plenary debate 19 September 2007.
62. AN, plenary debate 18 September 2007.
63. AN, Amendement No 162, 17 September 2007;
64. Sénat, plenary debate 3 October 2007.
65. AN, Amendement No 91, 17 September 2007;
66. Sénat, plenary debate 4 October 2007.
67. With the exception of the centre-Left Groupe du Rassemblement Démocratique et Social Européen in the Sénat, which voted 7 in favour, 8 against and 1 abstention. AN, Analyse du scrutin No 33, 23 October 2007; Sénat Scrutin No 15̧ 23 October 2007.
68. R.B. Andeweg & G.A. Irwin, Governance and Politics of the Netherlands, second edition, Basingstoke/ New York: Palgrave Macmillan, 2005, pp. 220-235.
69. T. Bale, 'Politics matter: a conclusion', Journal of European Public Policy 15/3 (2008), pp. 453-464 on 457.
70. T. Givens & A. Luedtke, 'The Politics of European Union Immigration Policy: Institutions, Salience, and Harmonization', The Policy Studies Journal 32/1 (2004), pp. 145-165 on 152;
71. M.A. Schain, 'The extreme-right and immigration policy-making: Measuring direct and indirect effects', West European politics 29/2 (2006), pp. 270-289 on 287.
72. S. Bonjour, Grens en gezin. Beleidsvorming inzake gezinsmigratie in Nederland, 1955-2005, Amsterdam: Aksant, 2009, pp. 243-244.
73. Synovate/De Politieke Barometer, Archief weekpeiling 2004. Retrieved 3 May 2010 from http://www. politiekebarometer.nl/peilingen.cfm?jaar=2004.
74. Rapport d'information No 3502 déposée par la délégation de l'Assemblée Nationale pour l'Union Européenne sur les politiques d'intégration des migrants dans l'Union Européenne, présenté par M. Thierry Mariani.
75. N. Sarkozy, Déclaration sur le bilan de la politique de l'immigration et l'aide au développement, Marseille, 5 March 2007. Retrieved 26 January 2010 from: http://discours.vie-publique.fr/notices/ 073000867.html.
76. P. Lafitte, 'Avant de rejoindre votre conjoint . . . apprenez le français d'abord'. France 24, 18 December 2008. Retrieved 26 January 2010 from: http://www.france24.com/fr/20081218-francais-pays-origineregroupement- familial-immigration-anaem-pays-bas-turquie-maroc-mali.
77. AN, Amendement No 64, 14 September 2007; AN, Amendement No 84, 17 September 2007.
78. AN, Amendement No 70, 17 September 2007; AN, Amendement No 83, 17 September 2007.
79. AN, plenary debate 19 September 2007.
80. Directive 2003/86/EC.
81. S. van Walsum, 'Recente ontwikkelingen - Vreemdelingenrecht en gezinsleven. Deel I: Internationaal recht', Migrantenrecht 19/4 (2004), pp. 136-146.
82. Doubts have been raised by law scholars as to the compatibility of the obligation of result imposed by the Dutch civic integration abroad policy with Article 7 of the Directive, which stipulates that 'Members states may require third country nationals to comply with integration measures', especially since the Dutch government does not offer courses. The European Court of Justice has yet to pronounce itself on this question (K. Groenendijk, 'Family REUnification as a Right under Community Law', European Journal of Migration and Law 8/2 (2006), pp. 215-230 on 224). In a report of 2008, the Commission - without directly criticising the Netherlands - affirmed that integration measures should serve no other purpose than 'to facilitate the integration of family members' and expressed doubts as to the admissibility not so much of an obligation of result, but of 'high fees excluding low-income families' and the absence of procedural safeguards to ensure the right to appeal negative decisions (Report from the Commission to the European Parliament and the Council on the application of Directive 2003/86/EC on the right to family rEUnification, COM(2008) 610 final, pp. 7-8).
83. Conseil Constitutionnel, Décision 93-325 DC, 13 August 1993, sub 70 and 74. The Constitutional Council derives the right to live a normal family life from the tenth paragraph of the preamble of the 1946 Constitution which states that: 'La Nation assure à l'individu et à la famille les conditions nécessaires à lEUr développement', i.e. 'the Nation provides the individual and the family with the conditions necessary for their development'.
84. K. Groenendijk, European Journal of Migration and Law 8/2 (2006), p. 219.
85. H. Labayle, 'Le droit des étrangers au regroupement familial, regards croisés du droit interne et du droit Européen', Revue Française du Droit Administratif 24/1 (2007), pp. 101-119 on 105-106 and 114.
86. TK 29700 (6): 6, 6 December 2004.
87. TK 29700 (6): 18, 6 December 2004;
88. TK 29700 plenary debate: 3886-3887 & 3897, 16 March 2005.
89. TK 29700 (3): 17, 21 July 2004; TK 29700 (6): 47-48, 6 December 2004.
90. TK 29700 (4): 6, 13 April 2004.
91. Pascouau suggests that, beside this constitutional norm, the EU Directive 2003/86 on the right to family rEUnification also worked as an 'obstacle'. Whether Article 7, paragraph 2 of the Directive allows for an obligation of result is subject to debate (see footnote 66). Pascouau states that 'on the basis of these legal assessments and uncertainties', the French government chose to refrain from imposing an obligation of result (Pascouau, supra note 24 at 176). I have found no support for this view in the parliamentary debates: on the contrary, the government and the rapportEUr emphasised on several occasions that the Directive allowed for an obligation to pass the test, and that the Commission had confirmed this view (AN, Rapport No 160, 12 September 2007, p. 66;
92. AN, plenary debate 19 September 2007; Sénat, plenary debate 3 October 2007). It may be that doubts about the conformity of an obligation of result with the Directive did play a role in the decision-making process within the government, but that the government chose to deny this in public, either out of solidarity with the Dutch government, or out of unwillingness to acknowledge that European judicial norms were constraining the sovereignty of the French state in matters of migration. My data do not allow me to confirm or disprove this hypothesis.
93. C. Joppke, 'Why liberal states accept unwanted migration', World Politics 50/2 (1998), pp. 266-293;
94. cf. W.A. Cornelius, P.L. Martin & J.F. Hollifield, 'Introduction: The Ambivalent Quest for Im mi gra tion Control', in: W.A. Cornelius, P.L. Martin & J.F. Hollifield (eds), Controlling Immi gration: A Global Perspective (Stanford: Stanford University Press, 1994), pp. 3-41;
95. V. Guiraudon, Les poli tiques d'immigration en Europe: Allemagne, France, Pays-Bas, Paris: L'Harmattan, 2000;
96. C. Jopp ke, Immigration and the nation-state: the United States, Germany, and Great Britain, Oxford/ New York: Oxford University Press, 1999;
97. J.F. Hollifield, 'The Politics of International Migration. How Can We 'Bring the State Back In'?', in C. Brettell & J.F. Hollifield (eds), Migration Theory. Talking Across Disciplines, New York/ London: Routledge, 2000, pp. 137-186.
98. Joppke, supra note 76 at 270-271.
99. Y. Soysal, Limits of citizenship. Migrants and postnational membership in Europe, Chicago: University of Chicago 1994, pp. 149-151;
100. S. Sassen, 'Beyond Sovereignty: De-Facto Transnationalism in Immigration Policy', European Journal of Migration and Law 1/2 (1999), pp. 177-198.
101. Guiraudon, supra note 76 at 220-221.
102. Bonjour, supra note 57 at 312-317.
103. T. Koopmans, Courts and Political Institutions. A Comparative View, Cambridge: Cambridge University Press 2003, pp. 23-24, 35, 69-84.
104. A. Lijphart, Patterns of Democracy. Government Forms and Performance in Thirty-Six Countries, New Haven/London: Yale University Press, 1999, p. 226.
105. Koopmans, supra note 81 at 84.
106. TK 29700 plenary debate: 4021, 22 March 2005.