Between Mobility and Migration: The Multi-Level Governance of Intra-European Movement (IMISCOE Research Series)

This open access book offers a critical perspective on intra-European mobility and migration by using new empirical data and theoretical discussions. It develops a theoretical and empirical analysis of the consequences of intra-European movement for sending and receiving urban regions in The Netherlands, Sweden, Austria, Turkey, Poland and Czech Republic. The book conceptualizes Central and Eastern European (CEE) migration by distinguishing between different types of CEE migrants and consequences. This involves a mapping of migration corridors within Europe, a unique empirical analysis of consequences for urban regions, and an analysis of governance responses. Next to the European and country perspectives on this phenomenon, the book focuses on the local perspective of urban regions where most mobile citizens settle (either permanently or temporarily). This way the book puts the analysis of intra-European movement in the perspective of broader theoretical debates in migration studies and beyond. Contents 6 Chapter 1: Between Mobility and Migration: The Consequences and Governance of Intra-­European Movement 8 1.1 Conceptualizing Free Movement and Its Consequences 9 1.2 Governance of Free Movement in a Multi-Level Setting 12 1.3 Outline of the Book 14 1.4 IMAGINATION Project 17 1.5 Methodological Considerations 20 References 22 Part I: Types of Intra-European Movement and Their Consequences 25 Chapter 2: The Diversification of Intra-European Movement 26 2.1 Introduction 26 2.2 Methodology and Issues 28 2.3 CEE Migration Before the Enlargements 30 2.4 Enlargements, CEE Migration, and Transitional Arrangements 31 2.5 Main Migration Corridors 34 2.6 Types of Migration (TOMs) and the Feminization of Migration 35 2.7 Conclusions 44 References 46 Chapter 3: Consequences of Intra-European Movement for CEE Migrants in European Urban Regions 49 3.1 Introduction – Setting the Scene 49 3.2 State of the Art: Studies on CEE Migration 50 3.3 Empirical Results: Implications of CEE Migration in Selected Urban Regions 52 3.3.1 Preliminary Remarks: Urban Regions and the Notion of Space 52 3.3.2 Relevance of Different Types of CEE Migration in European Urban Regions 54 3.4 Consequences for Different Types of CEE Migrants 55 3.4.1 The Situation of Economically Active CEE Migrants: A Question of Legal Status 55 3.4.2 The Situation of Family Members: Depending on the Single Earner 59 3.4.3 The Situation of Students: Rarely Discussed by the Experts 60 3.4.4 The Situation of Destitute CEE Migrants: A “Special Challenge” 61 3.5 The Crucial Interface: Access to Information and Individual Language Skills 62 3.6 Conclusion 63 References 65 Chapter 4: Liquid Migration and Its Consequences for Local Integration Policies 67 4.1 Introduction 67 4.2 Liquid Migration and its Local Consequences 68 4.2.1 Liquid Migration as an Ideal Type 68 4.2.2 Inplications of Liquid Migration for Local Integration Policies 72 4.3 Liquid Migration in the Light of the IMAGINATON Findings 73 4.3.1 On the Concept of Liquid Migration 73 4.3.2 On Liquid Migration and Local Integration Policies 75 4.4 Conclusions 76 References 77 Chapter 5: Old Wine in New Bottles? Comparing the Post-War Guest Worker Migration and the Post 1989 Migration from CEE-­Countries to EU-Member Countries 81 5.1 Introduction 81 5.2 The Contours of Two Labour Migration Systems 82 5.2.1 The Guest Worker Labour Migration System: 1955–1974 82 5.2.2 Migration from CEE Countries to EU Member Countries: 1989 – Present 84 5.3 Comparing Two Labour Migration Systems 85 5.3.1 The Development of Economic Push and Pull Factors 86 5.3.2 The Organisation and Selectivity of Labour Migration 89 5.3.3 National and EU Systems of Regulating Cross-Border Migration and Mobility 94 5.4 Conclusion 97 References 99 Part II: Multi-Level Governance 102 Chapter 6: Governance of the Free Movement of Workers and Persons at the European Level 103 6.1 Introduction 103 6.1.1 Methodology and Data 105 6.2 Governance Modes at the EU Level 106 6.2.1 Results 107 6.2.2 By Governance Form 108 6.2.2.1 Primary and Secondary Law 108 6.2.2.2 Soft Law 109 6.2.2.3 EU Pilot 109 6.2.3 By Governance Theme 110 6.2.3.1 Free Movement of Persons and Workers 110 6.2.3.2 Posting of Workers 111 6.2.3.3 Social Security Coordination 113 6.2.4 Governance Interactions 114 6.2.4.1 Regions and Municipalities at the EU Level 114 6.2.4.2 The Role of Permanent Representations to the EU 116 6.3 Conclusion 121 6.4 Final Remarks 123 References 123 Chapter 7: The Multi-Level Governance of Intra EU Movement 126 7.1 Introduction 126 7.2 Mapping Free Movement Management: From the Multi-­Level Governance Literature to Modes of Governance 127 7.3 Austria: Mostly Multiple-Level Governance, but Also Horizontal 130 7.4 The Netherlands: Business as Usual: Local Level Horizontal and Multiple Level Governance Approaches 132 7.5 The Case of Turkey: Top Down 134 7.6 Sweden: Horizontal and Top-Down Predominate 135 7.7 Multilevel Governance 137 7.8 Conclusions 138 References 141 Chapter 8: Intra-European Movement: Multi-Level or Mismatched Governance? 142 8.1 Introduction 142 8.2 MLG as a Concept 143 8.3 Structural Processes 147 8.3.1 Rigid Versus Flexible Institutional Structures 147 8.3.2 Multi-Purpose Versus Policy-Specific Jurisdictions 148 8.4 Relational Processes 148 8.4.1 Hierarchical Versus Heterarchical Relations 148 8.4.2 Formal Versus Informal Relations 151 8.5 Policy Factors Affecting MLG in Migration Policy 152 8.5.1 Discrete Versus Holistic Policy Responses 152 8.5.2 Complex Versus Uniform Policy Issues 153 8.6 Intra-European Movement: Multi-Level or Mismatched Governance? 154 8.7 Conclusions 157 References 159 Chapter 9: The Politics of Intra-European Movement 162 9.1 Introduction: Intra-European Movement in an Era of Crisis 162 9.2 Explaining the Politics of Free Movement 163 9.3 Solidarity and Free Movement as Foundational 165 9.4 The Enduring Metaphor of Hospitality 167 9.5 The Politicisation of Intra-European Movement in the Twenty-First Century 169 9.6 Impacts and the Role of Local and Urban Spaces 173 9.7 Analysis and Conclusions 175 References 178 Part III: Perspectives from Sending and Receiving Regions 182 Chapter 10: Poland’s Perspective on the Intra-European Movement of Poles. Implications and Governance Responses 183 10.1 Introduction 183 10.2 “Let’s go West!” CEE Migration Corridors from Poland: Characteristics and Institutional Context 185 10.2.1 Scale and Regions of Origin 185 10.2.2 Intra-European Movement Corridors and Characteristics of Migrants 187 10.3 Implications of Post-2004 Migration for Poland 192 10.4 EU Mobility and Third-Country Nationals Migration as two Sides of the Coin: Poland’s Governance Responses 197 10.5 Conclusions 200 References 202 Chapter 11: Intra-European Movement of Czechs with Special Regard to Austria and Care Givers (The “MICO” Type - Between MIgration and COmmuting) 205 11.1 Introduction 205 11.1.1 Emigration and Labour Migration from Czechia Abroad – Basic Parametres and Patterns 206 11.1.2 Czechs in Austria 208 11.1.3 Czech Care Givers in Austria 210 11.2 Research and Methodology 212 11.3 Results of Own Empirical Study 213 11.3.1 Motivation to Work in Austria as a Care Giver 213 11.3.2 Working Environment 214 11.3.3 Career 215 11.3.4 Social Interaction with Families Where They Work 216 11.3.5 Future Plans 217 11.3.6 “Decisive Moments” 218 11.4 Comparative Perspective, “Proving Robust Regularities”? 218 11.5 Concluding Remarks 220 11.6 Annex 222 References 223 Chapter 12: Migration from Central and Eastern Europe to Turkey 227 12.1 Introduction 227 12.2 Background on CEE Migration into Turkey 228 12.2.1 Regular CEE Migration into Turkey 229 12.2.2 Irregular CEE Migration into Turkey 234 12.3 CEE Migration in Edirne and Istanbul 235 12.3.1 CEE Migration in Edirne 235 12.3.2 CEE Migration in Istanbul 236 12.4 Diversification of CEE Migrants: Temporality and Socio-Economic Status 237 12.5 Urban Implications of CEE Migration 238 12.5.1 Urban Implications of CEE Migration in the Case of Edirne 239 12.5.2 Urban Implications of CEE Migration in the Case of Istanbul 241 12.6 Conclusion and Discussion 245 References 248 Chapter 13: Conclusions and Reflection 249 13.1 The Diversification of Intra-European Movement 251 13.2 Consequences of Intra-European Movement 252 13.3 Between ‘Multilevel Governance’ and ‘Disjointed Governance’ 254 13.4 Central and Eastern European Perspectives; Beyond a North-West European Bias 256 13.5 Reflectivity Towards Idioms on the Research-Policy Nexus 257 13.6 The Consequences of Failing Multi-Level Governance 258 13.7 Intra-European Movement as a Critical Case in Migration Studies, Governance Studies and European Studies 260 References 261 Chapter 14: The New European Migration Laboratory: East Europeans in West European Cities 263 References 268 Front Matter ....Pages i-vi Between Mobility and Migration: The Consequences and Governance of Intra-European Movement (Mark van Ostaijen, Peter Scholten)....Pages 1-17 Front Matter ....Pages 19-19 The Diversification of Intra-European Movement (Deniz Sert)....Pages 21-43 Consequences of Intra-European Movement for CEE Migrants in European Urban Regions (Ursula Reeger)....Pages 45-62 Liquid Migration and Its Consequences for Local Integration Policies (Godfried Engbersen)....Pages 63-76 Old Wine in New Bottles? Comparing the Post-War Guest Worker Migration and the Post 1989 Migration from CEE-Countries to EU-Member Countries (Rinus Penninx)....Pages 77-97 Front Matter ....Pages 99-99 Governance of the Free Movement of Workers and Persons at the European Level (Karin Zelano)....Pages 101-123 The Multi-Level Governance of Intra EU Movement (Gregg Bucken-Knapp, Jonas Hinnfors, Andrea Spehar, Karin Zelano)....Pages 125-140 Intra-European Movement: Multi-Level or Mismatched Governance? (Dion Curry)....Pages 141-160 The Politics of Intra-European Movement (Alex Balch)....Pages 161-180 Front Matter ....Pages 181-181 Poland’s Perspective on the Intra-European Movement of Poles. Implications and Governance Responses (Marta Kindler)....Pages 183-204 Intra-European Movement of Czechs with Special Regard to Austria and Care Givers (The “MICO” Type - Between MIgration and COmmuting) (Dušan Drbohlav, Lenka Pavelková)....Pages 205-226 Migration from Central and Eastern Europe to Turkey (Deniz Karcı Korfalı, Tuğba Acar)....Pages 227-248 Conclusions and Reflection (Mark van Ostaijen, Peter Scholten)....Pages 249-262 The New European Migration Laboratory: East Europeans in West European Cities (Adrian Favell)....Pages 263-270