Professional Documents
Culture Documents
Ayşe Özbabacan
Bosch Fellow, Transatlantic Academy
© 2009 Transatlantic Academy. All rights reserved.
No part of this publication may be reproduced or transmitted in any form or by any means without permission
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Chosen from the fields of public policy, business administration, economics, journalism, and NGOs/civil
society, Bosch Public Policy Fellows are in residence at the Transatlantic Academy from one to two months.
During their fellowship, they interact with the Academy’s long-term fellows, conduct their own research, write a
short paper for the Academy website, and make presentations to audiences of analysts and government officials
in the Washington area.
Immigrant Integration at the Local Level:
Comparison between Stuttgart
and Selected U.S. Cities
July 2009
Ayşe Özbabacan
Bosch Fellow, Transatlantic Academy
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Integration policies in Stuttgart and selected U.S. cities: good-practice examples . . . . . 4
Conclusions and Recommendations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
This comparative report has been prepared by the generous funding of the German Marshall Fund of the United States
and the Robert Bosch Foundation in Germany within the framework of the Transatlantic Academy established in October
2008 by the GMF, Robert Bosch Foundation, ZEIT and Bradley Foundation. The aim is to bring together American and
European scholars from different disciplines to share experiences on migration and integration issues and thus to strengthen
the transatlantic relationship.
I would like to thank the staff of the TA, of GMF, and in particular Stephen Szabo, the director of the TA, Anna Murphy, the
program associate, and Erica Cameron for their support and assistance for the organisation of the city visits and meetings
with different people engaged in immigrant integration. Thanks also to the TA fellows Dietrich, Ines, Rey, Jeroen, Jonathan
and Rahsaan for giving me the opportunity to get an insight in their research work and the valuable support during my
stay in the Uinted States. Finally, I once again want to thank the Robert Bosch Foundation in Germany for their financial
support for this report and their involvement in the TA.
1 Introduction
Immigration is one of the central challenges facing • How do cities and municipalities cope with
the 21st century. Europe and North America have these circumstances?
received a significant share of net migration and
will continue to do so in the next few decades. • What can they do to further develop their
Metropolitan cities, and cities with strong economies policies and strategies to manage diversity
in particular, attract people from all over the world. and integrate long-established residents and
Across the globe newcomers into the social, economic, and
about 200 million Across the globe about 200 million people born
abroad currently live in cities on both sides of cultural life?
people born
the Atlantic. This often substantially changes the • What can they do to keep a balance between the
abroad currently
composition of the local population and results original cultural identities of immigrants and
live in cities on
in the challenge for cities to integrate a highly communicate a sense of belonging to the host
both sides of heterogeneous and culturally diverse population
the Atlantic. country?
into the local community. Integration of immigrants
takes place primarily at local level—hence, it is the • What efforts are made to involve immigrants
cities that have depth of experience in developing into the process of integration?
and implementing strategies for the integration and
participation of immigrants into public life. Even • The answers to these and other fundamental
though the cities and municipalities are not in the questions are important for future strategies and
position to regulate immigration flows themselves initiatives of cities to promote social cohesion
and depend on national and federal legislation in all and equal opportunities for all and to attract
immigration related issues, they have to pay the price highly-skilled newcomers in the competition for
for failing integration processes. the best brains in the world.
2 Transatlantic Academy
for development in the international city. The Pact and Tucson, AZ. These examples highlight the
for Integration is based on the idea that integration contributions and efforts of various institutions,
has to be understood as the active creation of a initiatives, and people interviewed to immigrant
common basis for mutual understanding and integration. The study provides examples of
thus is a two-way process. The precondition for best practices in the fields of language support,
this is the ability and the willingness of both education, civic participation, naturalization,
immigrant and the native population to follow this refugee resettlement, empowerment, Muslim
course. Thus the process of successful integration integration, and racial discrimination that The Pact for
concerns all aspects of life in society and needs can contribute influence a future national and Integration is
to involve partners from the public and private immigration integration policy in Germany and the based on the idea
sector and the civil society in particular immigrants United States. that integration
and their organizations in the co-creation of an
It should be noted that the findings of this paper has to be
intercultural city society. Such an approach requires
are the result of a five-week public policy fellowship understood as the
a thorough rethinking of the implemented policies
and measures of integration. In this respect, the at the Transatlantic Academy (TA) in Washington, active creation
city started to review the programs designed for DC and cannot be considered a comparative of a common
immigrants: Do the programs respond to the scientific report of different approaches to basis for mutual
different needs of various immigrant groups? immigrant integration between the city of Stuttgart understanding
Do they provide the same quality as that one for and the U.S. cities. However, it is an attempt to and thus is a
the native population? To capture more precisely compare the policies and strategies of a European two-way process.
the setting of measurable goals to improve the city with American cities and thus initiating a The precondition
initial situation, the city is currently working on a platform for sharing information and experiences,
for this is the
monitoring system in order to better document and which will further the learning process on both
ability and the
evaluate the measures offered. sides of the Atlantic.
willingness of
The process of integration is a “learning process.” In recent years in the United States, state and both immigrant
For this reason, Stuttgart, like other cities and local governments have faced challenges similar and the native
municipalities, has a genuine interest in successful to those in Europe and have increased their focus population to
local integration practices. Since 2006 the city has on immigration issues and started initiatives for follow this course.
been actively involved in the European network of immigrant integration. However, there seems to
“Cities for Local Integration Policies for Migrants” be a general consensus in both Europe and the
(CLIP) which is made up of 32 European cities. The United States that immigrants in America are
aim is to learn from each others’ good practices better incorporated and are more accepted as part
and pursue more effective integration policies of the American society than the immigrants in
for immigrants on the regional, national, and Europe. They also have fewer difficulties finding
European level. a job, moving up the social ladder, and their
kids do better in school and higher education.
The following report is an attempt to present Furthermore, Muslims in America are better
the approaches and good practice examples of integrated than those in Europe. What is it that
immigrant integration in the city of Stuttgart, makes immigrants incorporate more easily into
and compare it with the approaches and practices American society and feel like an “American” more
of the U.S. cities of Washington, DC; New York easily than the immigrants in European cities such
City, NY; Albany, NY; St. Louis, MO; Detroit, MI; as Stuttgart?
A short overview of the integration policy a multi-layered system of programs and projects
in Stuttgart supporting integration has been developed over the
years. For a long time, however, there has been no
The city of Stuttgart is located in the south of wide-ranging integration strategy for integrating
Germany and is the capital of the federal state “foreigners.” It is only recently that Germany has
Baden-Württemberg. Due to immigration, Stuttgart introduced a more open citizenship law, in 2000,
has kept its population stable at around 593,000 and, in 2005, adopted an Immigration Act that
For a long time, inhabitants and is Germany’s sixth largest city. acknowledges the importance of a comprehensive
however, there With its automotive industry, Stuttgart is one integration strategy.1
of the strongest industrial regions in Germany.
has been no
Companies such as Daimler, Porsche, Bosch, Today Stuttgart is a truly international city. Nearly
wide-ranging
Hewlett-Packard, IBM and almost 45 percent of a quarter (22 percent) of the population is made up
integration Baden-Württemberg’s research and development of foreigners (people without a German passport).
strategy for capacities have all settled in the Stuttgart region. In The real picture of cultural diversity, however, is
integrating addition, the city is one of the federal republic’s top even greater: since many immigrants have been
“foreigners.” It educational locations and is known as a place with naturalized and are now statistically counted as
is only recently a very high quality of life. Germans, around 40 percent of the population
that Germany has a migration background (people with a non-
has introduced Since the mid 1950s, Stuttgart has attracted a German citizenship, naturalized Germans, ethnic
large number of people from all over the world, Germans and children with at least one parent
a more open
especially “guest workers” (Gastarbeiter) from with migration background).2 People come from
citizenship law,
southern European countries such as Greece, Italy, more than 170 nations and represent 120 linguistic
in 2000, and, in Spain, Portugal, and Turkey. In the 1970s, it became
2005, adopted an and cultural traditions. Of the foreign population,
apparent that Stuttgart’s migrant workers were not Turkish citizens make up the largest migrant group,
Immigration Act going to return to their native countries as was followed by citizens from Italy, Greece, Croatia,
that acknowledges previously expected. Instead, they were staying in Serbia and Montenegro, and ethnic Germans from
the importance of Stuttgart and bringing their families to live with the former Soviet Union. The population with a
a comprehensive them. At the end of the 1980s, a new phase of migration background is constantly increasing.
integration migration history began with the fall of the Iron Today, more than half of the children living in
strategy. Curtain. A large number of immigrants from the Stuttgart have a migration background. According
Eastern European countries came to Germany, a to demographic predictions, by the year 2030 this
large group of asylum seekers and refugees during figure will rise to 50 percent of the people living
the Balkan crisis in the early 1990s and also many in Stuttgart.
ethnic Germans, the so-called Spätaussiedler. In
recent years, Stuttgart’s immigrants have come This is a challenge but, at the same time, a chance
to the city for economic reasons—rather than to adapt to changing circumstances. Since the
political ones. beginning of the new century, the city of Stuttgart
has explicitly considered immigration as normal
As in most German cities, immigrant integration and desirable for the development of the region.
in Stuttgart has primarily taken place by opening The large percentage of people with a migration
up the core institutions, such as the education
system and the labor market, and by including 1
http://www.bamf.de/cln_101/nn_1034446/EN/Migration
the immigrants in the welfare system. In addition, 2
Microcensus 2005
4 Transatlantic Academy
background is seen as a benefit and resource for The aim is the establishment of integration as a
the city as a whole. Thus, the city committed itself cross-departmental task and responsibility. To
to promote social and cultural integration and to support this aim, an International Committee has
assure equal opportunities in central areas like been established to be in charge of counseling
access to education, professional life, healthcare, the municipal council and the administration
housing, political participation, and recreation to concerning all matters of integration and diversity.
all of its inhabitants. Consequently, the municipal The committee is made up of 13 members from
integration policy has been reoriented toward a the municipal council and 12 informed immigrant According to
resource approach. residents chosen from suggestions made by the the Pact for
Lord Mayor. Integration,
In 2001, the city council adopted a comprehensive
integration policy concept in the form of a The operative implementation of these goals integration has to
“Pact for Integration” to promote participation is undertaken in 12 fields of activities covering be understood as
and equal opportunities for everyone, peaceful language support for newly arrived and established the active creation
cohabitation and social cohesion, and the immigrants, equal opportunities in schools, of a common
capitalisation on cultural diversity to extend education and professional life, the intercultural basis for mutual
competences within the international municipal orientation of the municipal administration, understanding
society. This pact, developed in a top-down process, integration and participation in neighborhoods, and hence as a
is a coalition between the public sector (politics and and urban planning and housing policies, to name two-way process.
administration), the private sector (special interest few. All activities are organized and offered in The precondition
groups and businesses), and the civil society cooperation with other municipal bodies such as for this is the
(associations, sport clubs, community groups, and schools and NGOs.
ability and the
NGOs). Hence, this coalition consists of partners
The measures offered within the various activities willingness of both
strongly committed to integration and aligned
in network structures. According to the Pact for have to focus on the needs of immigrants, cover the immigrant
Integration, integration has to be understood as intercultural and cross-national services, and, and native
the active creation of a common basis for mutual here in particular, focus on the quality of services population to
understanding and hence as a two-way process. in order to be successful. follow this course.
The precondition for this is the ability and the Good practices in Stuttgart
willingness of both the immigrant and native
population to follow this course. Consequently, the Language support for newcomers and established
target groups of the municipal integration policy immigrants
are newly arrived immigrants, long-established
immigrants as well as the indigenous population. The ability to communicate is a prerequisite for
integration and the key for equal participation
Following this approach, Lord Mayor Dr. Wolfgang in society and central areas of civic life. Stuttgart
Schuster made integration policy top priority has put in place language and integration courses
and established the Department for Integration financed and organized by the Federal Office
Policy. The department is directly responsible to for Migration and Refugees (BAMF). However,
the Lord Mayor and has a central coordinating language support has to take into account the
function. It supports and connects municipal and living circumstances and educational background
non-municipal bodies that carry out integration of immigrants. This requires sufficient, accessible
and diversity measures in their own rights.
6 Transatlantic Academy
opportunities. In this context it is very important Stuttgart are trained to become intercultural
that there is a close cooperation between schools mediators. To better reach out to their fellows they
and the neighborhoods, together with for example offer informative events in German and migrants’
cultural and sports associations, to strengthen native tongues in the fields of health promotion
these efforts. There are several projects promoting and prevention.
the children’s language abilities, additional tuition
with elderly people, students or former pupils Another agency working within this field of
acting as mentors for the teenagers, as well as the action is the Specialist Counselling for Migration
Integration
intercultural orientation of schools. (Fachberatung Migration), which belongs to the
happens in
Office for Social Services. Its aim is to enhance
Intercultural opening of the city administration the legal and social integration of immigrants
practical, everyday
and to contribute to the intercultural orientation. situations—the
Many departments with direct contact to clients Counselling is offered for employees of municipal places where
such as the health office, youth welfare office offices and other agencies such as informative immigrants and
or office for social services have recruited bi- events and vocational training. Immigrants can locals meet on
and multilingual staff to ensure the access to approach the counselling service with questions a daily basis: at
appropriate services for the diverse needs of concerning illegality, refuge, asylum or return to the kindergarten,
migrants. In addition the city also provides an their country of origin. schools, sport
interpreting and translation service for people
clubs, social clubs,
with poor language skills to remove structural Integration and participation in neighborhoods
barriers. About 200 interpreters are available to
round tables and
translate in about 60 languages. Moreover, leaflets Integration happens in practical, everyday also in political
and informational brochures are edited in several situations—the places where immigrants and locals institutions
languages in a simple, understandable manner to meet on a daily basis: at the kindergarten, schools, such as local
assure that the entire population is reached by their sport clubs, social clubs, round tables and also in committees. To
services. The departments also provide training political institutions such as local committees. To bring people
in intercultural competence for their staff to react bring people together within the various districts together within the
more sensitively to intercultural contexts in their is another important approach that the city uses in
various districts is
work environment which has lead to an awareness response to diversity.
another important
of the demand for a diverse workforce with approach that
House 49
respective skills in the public services. Intercultural the city uses
guidelines for the respective departments are A good example of immigrant integration in in response
another instrument which strengthens awareness at neighborhoods is the multicultural neighborhood
to diversity.
the senior level in particular. center House 49. House 49—originally designed
for social work with adolescents—has grown into
A good example of intercultural opening is an international community center with programs
demonstrated by the Health Office with its various and information for citizens of Stuttgart with
projects for immigrants. As an outer sign of its various national and ethnic origins. It is sponsored
intercultural orientation, it has welcome messages by Caritas, and employs five full-time employees
in different languages written on the walls of its in addition to various other volunteer workers.
lobby. Furthermore, the Health Office participates Even though it is open to all citizens of Stuttgart,
in the health project MiMi (With Migrants—For it is used almost exclusively by people with a
Migrants), in which about 30 immigrants from
8 Transatlantic Academy
of Stuttgart, the Office of Cultural Affairs supports the successful integration initiatives and develop a
a variety of initiatives and cultural organizations. better network for Stuttgart’s development projects,
One of these organizations is the Forum of the as well as aiming to raise public awareness for the
Cultures,5 an umbrella association for 270 non- necessity of aid to the so-called “third” and “fourth”
German organizations and intercultural institutions worlds. The city of Stuttgart is currently working
that promote cultural diversity and networking. It on a concept to establish a “Stadtmuseum” (City
organizes different events covering world literature, museum) to emphasize and value the cultural
theatre, movies, music and offers workshops and diversity and contributions of immigrants to Peaceful
seminars on topics such as association law, how the society. intergroup
to build a governing board for an organization relations in the
or how to apply for grants. The association also Religious dialogue
city coincide
organizes an annual summer festival of cultures and Peaceful intergroup relations in the city coincide with peaceful
produces a monthly magazine called Intercultural with peaceful cohabitation of the different religious cohabitation
Stuttgart—Encounter of the Cultures. Another groups. In order to improve tolerance, a Round of the different
active body in this field is the German–Turkish Table of Religions was established in 2003. This religious groups.
Forum6 which fosters the cultural integration of initiative brings together all religious communities
immigrants through organising cultural events in to promote intercultural and interreligious
addition to arranging additional tuition for pupils dialogue and to increase the awareness of each
and parents. In 2007, budget funds to the amount group’s responsibilities toward the whole city
of almost 700,000 euro were made available for community. In 2004, the religious communities
supporting intercultural activities. Besides direct adopted the “Manifesto for peaceful and active
financial support, the Cultural Office also provides Cooperation of the Religions” 9 and committed
rent allowances and supports activities and projects in a seven-point program to partner and support
by providing municipal rooms to organizations the integration work of the city in different
for free. Furthermore, the city’s library provides spheres of daily life such as schools and the work
material for learning languages, books and place. Muslims represent the biggest religious
newspapers in foreign languages, information group in Stuttgart with 60,000 inhabitants. To
on where to learn German, and it also organizes respond to the education of Muslim children, a
multilingual events. In 2007, the city signed the pilot project has been initiated, offering Islamic
Diversity Charter,7 an initiative of companies religious instruction in the German language
in Germany, committing to continue to promote at grammar schools. Furthermore, the police
diversity within the city and to create a working involve Muslim citizens in their prevention
environment and combat prejudice. Stuttgart is activities, incorporating representatives of
also engaged in development cooperation, having mosque associations into youth services, and thus
established the Stuttgart Partnership One World8 providing them with the opportunity to participate
in 2005. This organization aims to bring together in the development of their neighborhood. In
order to strengthen interreligious dialogue but
5
http://www.forum-der-kulturen.de go beyond discussing religious issues, the city
6
http://www.dtfstuttgart.de has started a young leadership program entitled
7
http://www.charta-der-vielfalt.de/content/downloads/Charter_
en.pdf 9
See Manifesto for the peaceful and active co-operation of the
8
http://www.stuttgart.de religions in Stuttgart http://www.stuttgart.de
10 Transatlantic Academy
information and experiences on the integration Good practices in the United States
and participation of immigrants over several years,
which will enable local authorities to learn from Immigrant integration is also an issue in U.S.
each other and, as a result, deliver a more effective cities—in the new gateways in particular—as they
integration policy for immigrants.11 face similar challenges and problems. Hence,
many cities have started initiatives and programs
In cooperation with five research centers of to promote immigrant integration. As outlined in
the IMISCOE network,12 since 2006 CLIP has the introduction, it is believed that immigrants are
Of New York City’s
conducted and published two case studies on better incorporated and are more accepted as part
eight million
housing and segregation as well as diversity policy of the American society than the immigrants in
in about 32 European cities from 19 countries different European member states. Furthermore,
inhabitants,
in different parts of Europe including medium Muslims in the United States are better integrated 37 percent are
sized and larger cities with different migration than those in Europe. Why are immigrants more foreign born.
histories. The city case studies, two overview easily able to assimilate into American society and Including children
reports with good-practice examples and policy feel “American” than immigrants in European cities raises the figure
recommendations for the European Union, such as Stuttgart? to two-thirds of
national governments and local policymakers have the population.
been published and are available for download Below are good examples into the approaches
Immigrants make
on the website of the European Foundation.13 and policies of New York City, NY; Washington,
up 43 percent of
Stuttgart’s involvement in CLIP enabled the city DC; Albany, NY; St. Louis, MO; Detroit, MI;
and Tucson, AZ toward immigrant integration
the labor force.
to bring together the various departments within Of the estimated
the municipality to exchange their experiences and compared with the policies of the City of Stuttgart.
12 million
implement integration as a cross-departmental MOIA—Mayor’s Office of Immigrant Affairs, undocumented
task and responsibility and to further improve its New York City immigrants living
strategies and measures towards the integration of
immigrants.14 New York City (NYC) is one of the oldest
in the United
immigration gateways, with Ellis Island being the States, it is
11
http://www.eurofound.europa.eu/areas/populationandsociety/ symbol of immigration to the United States. Each estimated that
clip.htm; http://www.stuttgart.de/integrationspolitik 500,000 live in
year, the city attracts thousands of newcomers to
12
Centre on Migration Policy in Society (COMPAS), Oxford;
Institute for Migration and Ethnic Studies (IMES), Amsterdam; live and work there. NYC and are part
Centre for Ethnic and Migration Studies (CEDEM), Liège; of the workforce.
Institute for Urban and Regional Research (ISR), Vienna; and Of New York City’s eight million inhabitants,
the European Forum for Migration Studies (efms), Bamberg.
37 percent are foreign born. Including children
13
http://www.eurofound.europa.eu/areas/populationand society/
clip.htm)
raises the figure to two-thirds of the population.
Immigrants make up 43 percent of the labor
14
Stuttgart Case Study on Housing and Diversity Policy,
retrieved at: http:// www.stuttgart.de /integrationspolitik; force. Of the estimated 12 million undocumented
Overview Report on Housing and Integration of migrants in the immigrants living in the United States, it is
EU, retrieved at: http://www.eurofound.europa.eu/publications/
htmlfiles/ef0794.htm estimated that 500,000 live in NYC and are part
of the workforce. About 62 percent of the city’s
then every mayor has adopted this policy into an executive order, United States.
see http://www.nyc.gov/html/imm/html/home/home.shtml
12 Transatlantic Academy
including the use of telephonic interpretation, oral increase of out of status immigrants. This group
or written translation services, and translation includes immigrants who have come to NYC by
of essential public documents into the top six obtaining a travel visa and overstay their visa
languages spoken by New Yorkers: Spanish, or immigrants who crossed the U.S.–Mexico
Chinese, Russian, Korean, Italian, and French border. Currently, half a million undocumented
Creole. In addition, an Interagency Taskforce on immigrants live in NYC and are part of the
Language Access has been established to promote workforce. As there is a high demand for both
the exchange of information and good practices highly-skilled as well as unskilled labor, NYC NYC has always
among the city agencies to ensure language access is trying to address the issue at the national been a gateway
and cultural competency. Furthermore, in order to level, aiming to adjust the status of out of status for newcomers
facilitate access to services an info-line number, immigrants so that they may become permanent and thus has lots
311, is provided and available for all New Yorkers legal residents of the country and eventually
of experience
and visitors to receive information and access to become eligible for U.S. citizenship. The city
managing
city government services in over 170 languages 24 is also addressing the need to hold employers
hours a day. accountable to respect the rights of workers and not
immigrant
to exploit them. integration in
Like many U.S. cities, NYC celebrates the different fields
“Immigrant Heritage Week.” This is an official Another barrier to providing effective services to of economic,
annual celebration of the vibrant immigrant immigrants is the lack of financial resources. Hence educational
cultures, history, and communities and their efforts by the federal government are needed to and cultural
contributions to the city. But it is also an communicate immigrant integration throughout life. However, by
event that highlights examples of successful the country and support municipal agencies and
establishing the
immigrant integration.20 community organizations with adequate funding.
MOIA, NYC has
It should be made known, for example, that the
NYC has always been a gateway for newcomers and offered language courses are appreciated by the
made immigrant
thus has lots of experience managing immigrant immigrants because they really want to learn integration a top
integration in different fields of economic, English. However, due to limited resources, there priority within
educational and cultural life. However, by are not enough seats to provide language training the municipality
establishing the MOIA, NYC has made immigrant for all interested immigrants. and throughout
integration a top priority within the municipality the whole city.
and throughout the whole city. The paramount NYC’s strategy toward immigrant integration is
policies enacted through the different Executive comparable to the holistic policy approach of the
Orders ensure access to city services for inhabitants City of Stuttgart. Stuttgart too, works with various
with limited English proficiency and enable local actors and involves immigrants into the
immigrants to seek out services for which they are integration work. Stuttgart also provides, among
eligible without fear of being reported to federal other things, an interpreting and translation
immigration authorities. service to facilitate access to city services. However,
an info-line in different languages would help
With this, NYC tries to react to the broken immigrants seek information immediately
immigration system. One crucial challenge is the instead of interacting with diverse channels to get
help. There is also no policy for undocumented
20
http://www.nyc.gov/html/imm/html/imm_heritage/imm_
immigrants to improve their status. Like NYC,
heritage.shtml Stuttgart is officially celebrating its different
21
http.//www.accesscommunity.org 23
ACCESS—Annual Report 2007
22
ACCESS—Annual Report 2007 24
http://www.myacc.org, See also Annual Report 2007.
14 Transatlantic Academy
But they also show how incorporated and more are well educated and adapt pretty fast to life in the
accepted they are as part of the American society U.S. [compared to] immigrants in Europe. They
than immigrants in different European member came to America to work hard, to live and stay here.
states. Furthermore it illustrates that ethnic and The U.S. is a land of unlimited opportunities and it
religious associations should be encouraged to is up to oneself to take advantage of it. You can live
involve themselves in order to serve the whole your culture and practice your religion. America
community. As both are linked to important public offers all opportunities; this is why we do everything
and private sectors and have lots of experience in to send our kids to the best universities to succeed”
serving the community, they become important (Nabby Yono Vice-President Community Relations,
actors and play a key role in developing policies ACC, Detroit).
for immigrant integration. The active involvement
of Muslims into the integration work as equal Other interviewees confirmed this statement.
negotiation partners is one aspect of the successful Many Arab-Americans and other immigrant
incorporation into American society. But what is groups assimilate quite quickly because of the given
it actually that allows immigrants (and specifically, opportunities: People can express and practice their
Muslims) to incorporate more easily into American religion through religious and cultural symbols,
society than the immigrants in European cities such such as wearing headscarves in public institutions
as in Stuttgart? or establishing Islamic schools. Their sense of
belonging to America and becoming Americans
Since the early 20th century, Detroit has been is very strong. The terms “Arab-American” and
home to Arab immigrants, who found work in the “Muslim-Americans” (hyphenated identities) are
automotive industry. Today, around 200,000 Arab- a clear signal to express their attachment to the
Americans live in the Detroit area, more than half of United States. To put it in the words of Peter Skerry,
the entire Arab population of the state of Michigan professor at Boston University, “For most of our
(350,000). They come from different countries in the history there is a kind of give and take. Obviously
Middle East and North Africa. The largest groups immigrants come here, they work hard and struggle
represent both Muslims (Shia and Sunni) as well and have to adapt more to America than America
as Chaldean Christians and come from Lebanon, adapts to them. Immigrants came here and they
Yemen, Palestine, Syria and Iraq. The smallest groups gave up some things and they hold on to other
come from North-African areas like Morocco, things. I would call that assimilation, a kind of
Tunesia and Algeria. All groups have established balancing. Immigrants give up something and
in the Detroit area, run their own businesses, sent America gives up something and it works out.”26
their kids to university, and formed their own
communities that have included building churches The recognition of religion plays a crucial role
and mosques. Of the 1,200 mosques located in the in the process of incorporation into civil society.
United States, three are located in Detroit; among In particular, the legal status of religion in the
them is the Islamic Center of America, the largest institutional structure of the host country has
mosque in the United States.25 Furthermore, there effects on the institutionalization of that religion.
are currently about 300 Islamic schools in the United Several European countries have different
States, a net share being in the Detroit metropolitan institutional and legal structures with regard to
area. “Arab immigrants who have arrived in the U.S.
See also Peter Skerry “America’s other Muslims,” Wilson
26
25
The first mosque was built in 1921 in Detroit. Quarterly Autumn 2005
16 Transatlantic Academy
Washington, DC29 has conducted a research on the Community and faith-based nonprofits are
locally-based ethnic nonprofits in the DC area with important channels for newcomers as many work in
regard to their structural organization, location, specific fields of activities. Nonprofits contribute to
activities, and their approaches to help and reach and influence the development of the urban society
out to their communities. by promoting civic engagement and attachment to
the community. Moreover, immigrants rely more
The metropolitan area of Washington, DC is on community and faith-based organizations than
one of the new immigrant gateways. The area on state or local governments. Therefore, it is of
has attracted in the last decade a net share of 3.5 crucial importance to support these entities. This
percent of all new immigrants into the United can be done by state or private foundations but it
States. About 20 percent of the approximately would be also very effective to cooperate with other
590,000 inhabitants are foreign born. The largest Latino nonprofits in the Washington Metropolitan
groups are Latinos followed by Asians, Salvadorans, Area and other U.S. cities, and share their
Indians, Koreans, Chinese, Mexicans, and experiences and competencies i.e. with ACCES or
Vietnamese living in the suburbs of Montgomery ACC in Detroit and Dearborn.
County, Maryland, and Virginia. Many of them
are organized nonprofits and offer services and The Urban Institute’s scientific research on
activities to their ethnic and religious communities community and faith-based nonprofits is a valuable
and newcomers. tool in examining the immigrant nonprofit
landscape—measuring what kind of integration
One of the most active nonprofit groups is the programs are being offered and what effect they
Latinos representing 12 percent of the metro have. In the City of Stuttgart many small immigrant
area’s population (610,000 residents). They offer nonprofits in particular cultural clubs have no
a broad array of services and activities ranging sufficient means to organize meaningful events
from language support, education, health care, for their communities. One reason is that most of
employment, housing, interpreting services to them are working on a volunteer basis and spend
counselling, and legal services to respond to the their free time keeping their associations or clubs
social, education, economic, and various other in business and do not have the time to share their
needs. However, as the Latino community is rapidly experiences with others. Another reason is that
growing most nonprofits face difficulties to meet many of these nonprofit directors do not have
the needs of their communities as most of the the skills or expertise to properly manage such an
nonprofits are relatively small organizations and organization. The Cultural Office provides rent
lack financial means. The funding they receive from allowances and supports activities and projects by
state agencies or private organizations is very poor providing municipal rooms for these organizations
as a net share of funding goes to larger nonprofits.30 for free. Additionally, the Forum of the Cultures
offers a variety of workshops and seminars such
as association law, how to build a governing
board, or how to apply for grants. However, this
29
The Urban Institute in Washington, DC is a think tank is not well known by the nonprofit community.
established in 1968 to conduct analysis on the problems facing
America’s cities and their residents. See http://www.urban.org/
Thus, more information on these resources needs
nonprofits/foundations.cfm to be communicated by the municipality and
30
Carol de Vita: Civil Society Structures Serving Latinos in the local foundations.
Washington, DC, Metropolitan Area; Charting Civil Society No.
18, April 2008.
20 Transatlantic Academy
existence of non-profit and faith-based community New Detroit—The Coalition is a valuable
organizations, the “community capacity building” organization to bring together leaders from different
program provides small grants for non-profit cultural groups to promote the intercultural and
and faith-based organizations to enable them to cross-cultural dialogue to improve race relations and
work on how to build a governing board for their social cohesion.
organization or how to better utilize the technology
to run their organization, for example. The money In Germany there is little awareness of ethnic or
for the capacity building is provided by the federal racial discrimination among the population. Even
government for New Detroit—The Coalition. The in the public discourse the disadvantaged position
funds are then directly distributed to the nonprofits of immigrants or minority groups is perceived
and faith-based organizations to promote more as a result of language deficits and a low level
capacity building. of education being the key for economic and social
success as a result of any form of direct, indirect,
As the Detroit metropolitan area is the most individual or institutional discrimination. But on
racially segregated region in the country, the race the other hand there is strong engagement of civil
relation and race collaboration program provides society and nongovernmental organisations to
a forum for race relations issues and the inequities fight discrimination.
that continue to exist because of racial and social
disparities. Therefore, every year New Detroit However, in 2006 Germany transposed four EU
recruits 40 to 50 participants—both leaders and Equality Directives into national law and adopted
individuals—from various organizations. Regular the General Equal Treatment Act (Allgemeines
meetings and cultural sessions are offered to Gleichbehandlungsgesetz -AGG),38 the first
provide people with an insight into the culture and comprehensive anti-discrimination law for the
religion of different groups. In this forum, current legal protection against unjustified unequal
social and political issues that affect the participants treatment of various social groups. The Act covers
can also be discussed, as can “vulnerable topics” all grounds of discrimination listed in Article
such as why a person might wear a hijab, or why 13 of the Treaty of Amsterdam: race or ethnic
not. The aim is to recruit leaders of immigrant origin, gender, religion or belief, disability, age
organizations to enter in a cross-cultural dialogue or sexual orientation both in the field of labour
so that they can report back to their organizations with regard to job advertisements and application
in a well-informed manner. procedure and civil law. To ensure effective legal
protection the Federal Anti-Discrimination Agency
Furthermore, New Detroit, Inc. has an (Antidiskriminierungsstelle-ADS) has been
immigration task group to educate people on established to provide advice to those affected by
different issues of immigration that come up discrimination but also mainstreaming the concept
periodically like the Real ID Act. The cultural of equal treatment.39 One initiative in this context
exchange network (CEN)37 is another platform is the German Islam Conference coordinated by
which brings many groups together once a year. the Federal Ministry of the Interior which involves
Every year in July, New Detroit, along with ACCES
and the Detroit Symphony Orchestra, organize http://www.antidiskriminierungsstelle.de/bmfsfj/generator/
38
ADS-en/the-act.html
a world music festival to celebrate the diverse
http://www.antidiskriminierungsstelle.de/bmfsfj/generator/
39
ethnicities and cultures. ADS-en/root.html
37
http://www.newdetroit.org/obscms/index.php?option=com_
content&view=article&id=180&Itemid=127
22 Transatlantic Academy
immigration policies such as strengthening border undocumented immigrant students who graduate
control and building up the fence higher from year from U.S. high schools each year (approximately
to year which leads to more deaths in the desert 65,000). The “DREAM ACT” (Development,
and the mobilization of minutemen. These conflicts Relief and Education for Alien Minors Act) of
also affect the situation of undocumented young 2006 was a first attempt to persuade states to
immigrant people who have lived in Arizona with allow undocumented immigrant young people to
their parents for many years, but were not allowed access university and be eligible for citizenship.
to enter university. This act failed, as did the “Kennedy-McCain
Comprehensive immigration Reform Bill” of
In the United States, all children, regardless of 2007, which would have given undocumented
immigration status, are guaranteed access to public workers a path to citizenship after providing
education from kindergarten through 12th grade. documentation of residence and paying fees
This law goes back to the U.S. Supreme Court and back taxes. Though there are conflicting
decision of 1982, ruled in the case of Plyler v. Doe. federal and state laws, many states and cities
The Court ruled that denying such an education such as Tucson, Arizona are at the forefront of
would punish children for the acts of their adopting and developing strategies that make it
parents and would perpetuate the formation of an easier for undocumented students who graduate
underclass of citizens.43 The law did not extend from high schools to afford to attend a public
this guarantee for postsecondary education— college or university. Community colleges such
but there was also no federal or state legislation as the Community College in Tucson are the
prohibiting such an opportunity. Many institutions first point of entry into postsecondary education
and community colleges used this loophole and for the underserved and low income population
admitted undocumented immigrant students to including undocumented immigrants. Together
enter university, even granting financial support at with community and non-profit organizations,
their own discretion. community colleges are key stakeholders to appeal
to the federal government to adopt a proactive
However, with the “Illegal Immigration and
legislation on the situation of the undocumented
Immigrant Responsibility Act of 1996,” the
young students.
federal government prohibited public colleges
from charging undocumented aliens instate tuition Because Arizona is more concerned with fighting
rates since, it was argued, to do so would treat such illegal immigration, policymakers are not as
aliens more favorably than out-of-state residents concerned about immigrant integration. However,
who are U.S. citizens. Hence, many states started to community colleges in Tucson are at the forefront,
assess and revise their policies related to access and promoting the integration of young, undocumented
affordability of higher education and, in some cases, immigrant students into the university system.
raised the non-resident tuition and fees so that it
is impossible for most undocumented students to In Germany, the situation of undocumented
afford attendance at a public college. immigrants is not covered by the Immigration
Act. Also, refugees are not allowed to follow an
Today, there is a growing number of estimated apprenticeship or go to university because of their
uncertain residence status and the prospect of
http://www.law.cornell.edu/supct/html/historics/USSC_
43 repatriation. With this policy, the government aims
CR_0457_0202_ZO.html to prevent the emergence of an additional financial
24 Transatlantic Academy
citizenship law entitles children of immigrants born to vote? In Stuttgart and other German cities there
in Germany to German citizenship if one parent is a big difference in the naturalization rate among
is a resident of eight years and holds the right to the 170 different nationalities. Whereas there is a
residence or an unlimited residence permit for quite low naturalization rate among EU nationals
at least three years. Also, children fulfilling these because of their privileged status which allows dual
requirements that were born in Germany since 1990 citizenship, the naturalization rate among third
are entitled to naturalization upon application.47 country nationals, such as Turks or nationals of
Additional requirements include an adequate the countries of former Yugoslavia, is very high. To
command of the German language and knowledge of promote this development and strengthen the social
the culture, history and the legal system of Germany, and political integration of immigrants, the city
the ability to be self-supporting without recourse to of Stuttgart is currently preparing a naturalization
welfare, a clear criminal record and a citizenship test. campaign to motivate the 90,000 foreign eligible
This reform of the German citizenship law has been residents living in Stuttgart to submit their
an important step supporting the integration process applications for German citizenship.49
into official policy. However, as the new citizenship
law is based on the “option model,” young people Feeling and being perceived as part of the
with dual nationality must either choose to become community is an important indicator of a person’s
German or choose the nationality of their parents integration into a society. As in the case of the
between the age of 18 and 23.48 United States, being an American goes beyond
national or cultural heritage no matter which
In November 2008, the office of citizenship within background or origin. Hence citizenship acquisition
the municipal department of the city of Stuttgart is one of the key issues to promote the further
sent reminder letters to the dual nationals born integration of immigrants. Governments should
in 1990 to opt for one nationality. This action has start to strengthen their efforts to communicate this
revoked a new discussion on the current citizenship awareness to immigrants and the native population
law and whether this requirement promotes or alike. In particular, newcomers should be seen
hinders citizenship acquisition and, in turn, the as potential citizens and be provided integration
further integration of immigrants. measures in their first years of residence. In recent
years, greater attention has been given to language
As citizenship requirements are quite new, for and citizenship tests. This is an important step to
many countries it is difficult to measure their effect ensure immigrant integration in the way that all
on integration. A fairly high rate of naturalized persons eligible for naturalization learn and speak
immigrants may be an indicator for the successful the language and familiarize with the host country,
integration; this is also true for the reasons for gain a basic knowledge of the country’s history,
motivation to apply for citizenship. Is the decision culture and institutions, and thus, an attachment to
to acquire the citizenship of the host country an the country.
emotional process that is the attachment to the host
country or is it a matter of rational motivation to 49
The citizenship of January 2006 of the state of Baden-
gain legal status and legal rights such as the right Württemberg included topics and attitudes towards wife beating
and homosexuality, for example. These questions were widely
viewed as targeting Muslims (the “Muslim test”) and invoked
a discussion in Germany which ended up in introducing
47
http://www.bundesregierung.de/Webs/Breg/EN/Issues/
a federal naturalization test. See http://www.bmi.bund.de/
Integration/integration.html
Internet/Content/Themen/Staatsangehoerigkeit/Einzelseiten/
48
These conditions do not apply to EU citizens. Einbuergerungstest__Uebersicht.html
26 Transatlantic Academy
3 Conclusions and Recommendations
The comparison between the approaches of immigrants to “integrate” into society. However,
Stuttgart and the selected U.S. cities of New York immigrants who came in greater numbers at the
City, NY; Washington, DC; Albany, NY; St. Louis, beginning of the 20th century differ from today’s
MO; Detroit, MI; and Tucson, AZ provides a broad immigrants in many ways i.e., they come from
array of rather varied integration policies that can different areas in the world, have poor language
be used as valuable good practice examples on skills and qualifications, and, in many cases, no
immigrant integration for countries on both sides documentation status. Globalization has increased
of the Atlantic. labor mobility but at the same time diminished The comparison
social mobility to live the American Dream. between the
The United States and Germany have differing Hence, the expectations of what to demand from
views on the goals of integration and the
approaches of
immigrants have changed, as has the public policy Stuttgart and the
appropriate strategies to achieve it for the following for dealing with immigrants. This is also true for
reasons: The debate on immigrant integration selected U.S. cities
Germany, as Germany has only recently departed
is historically and politically different, and the of New York City,
from its long maintained official policy that it was
immigrant groups living in both countries come not a country of immigration.
NY; Washington,
from different areas in the world and represent DC; Albany, NY; St.
diverse cultural and religious traditions and However, as integration takes place at the local Louis, MO; Detroit,
languages. The United States experiences a huge level, cities are the port-of-entry for immigrants MI; and Tucson, AZ
influx of immigrants who do not settle in old and face specific responsibilities that differ from provides a broad
immigrant destinations anymore but instead move those of national authorities. The governance array of rather
to new gateways that have little or no experience of integration policy is gaining importance and varied integration
with immigrant residents. The United States also provides serious challenges to local policy makers,
policies that
receives more refugees than Europe. However, municipal administration, community and
can be used as
both countries face the challenges of globalization, voluntary organizations. Hence, contemporary
including the aging population, low birth rates, and future developments in immigration require
valuable good
and the need for labor. Whereas Germany a thorough rethinking of current strategies and practice examples
has made integration policy a top priority by measures of integration as well as the development on immigrant
providing institutional and financial resources and of new ones. Particularly, the intensive promotion integration for
communicating immigrant integration on different of language support and education is a future key countries on
levels, the United States is still struggling with a task in increasing social cohesion and in providing both sides of
reform of immigration policy. equal opportunities for success in society. Such the Atlantic.
programs need a long-term orientation and
Despite the efforts of the U.S. Task Force on should respond to the different needs of various
Immigration, immigrant integration remains a immigrant groups. This approach also requires
very touchy issue. It is alright to talk about the the need to further develop strategies to mobilize
integration and resettlement of refugees but the the potential of the immigrant population and
integration of immigrants is quite sensitive. The involve them as partners in the integration
reason for this attitude is deeply rooted: The process at different levels, combining top-down
United States is a country of immigration; hence measures with bottom-up mobilization in order
the millions of people who immigrated to the to achieve a successful integration policy. This is
States have found their own ways to incorporate because they already carry enormous potential for
or assimilate into the American society. In the city community. The activities of immigrant
this sense, it may be rather offensive to ask
30 Transatlantic Academy
4 References
Edgar, Jim; Meissner, Doris and Silva Cochairs, Süssmuth, Rita and Weidenfeld, Werner, ed
Alejandro, eds (2004). “Keeping the Promise: (2005). “Managing Integration: The European
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Report on Independent Task Force. Chicago: The Bertelsmann Stiftung.
Chicago Council on Foreign Relations.
Transatlantic Trends (2008). Immigration Survey
European Commission, Handbook on Integration by GMF, 2008.
First Edition, 2004.
Zuwanderungskommission (2001). “Zuwanderung
European Commission, Handbook on Integration gestalten,” Integration fördern. Bericht der
Second Edition, 2007. Unabhängigen Kommission: Zuwanderung.
Berlin.
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1RCRD
32 Transatlantic Academy
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