Report on Governance and Social Networks for Welcoming And

Governance and social networks for welcoming and integrating newcomers – an overview report and cross-case study comparison Deliverable T1.2.1

Organisation Eurac Research

Authors Dalla Torre Cristina, Cutello Giulia, Streifeneder Thomas, Weiß Miriam L.

Acknowledgements Isetti Giulia for co-designing the data collection tools (Network Analysis Grid, Interview Guidelines for Municipal Services, Municipal Statistics); Barbara Černič Mali, Jochen Werderitsch, Beatrice Durrer- Eggerschwiler, Peter Stade, Robert Moosbrugger, Aurelia Ullrich-Schneider, Davide Donatiello, Francesco Pisanu, Laura Ravanelli, Antonio Cristoforetti, Miriam L. Weiß, Cristina Dalla Torre for carrying out data collection and systematization in the 12 selected case study areas

Delivery date 8 August 2018

Status Final

Distribution level Public

Contents

Foreword ...... 4 1. Introduction ...... 4 2. Approach and methodology ...... 5 3. Analysis ...... 6 3.1. The Social Network Analysis chart ...... 6 3.2. Qualitative analysis ...... 9 3.3 The area of study: the Alpine region ...... 9 4. Governance and network analysis at pilot region level ...... 11 4.1. Bezau, Vorarlberg, Austria ...... 11 4.2. Engelberg, Obwalden, Switzerland ...... 12 4.3. Jesenice, Slovenia ...... 14 4.4. Kamnik, Slovenia ...... 15 4.5. Kapfenberg, Upper-Styria, Austria ...... 17 4.6. Mals (Malles), South Tyrol, Italy ...... 17 4.7. Mellau, Vorarlberg, Austria ...... 18 4.8. Nizza Monferrato, Piedmont, Italy ...... 20 4.9. Ortisei (St. Ulrich) in Val Gardena, South Tyrol, Italy ...... 21 4.10. Postojna, Slovenia ...... 23 4.11. Val di Non, Trentino, Italy ...... 24 4.12. Zermatt, Wallis, Switzerland ...... 26 5. Cross regional analysis ...... 27 6. Discussion and conclusions ...... 31 Bibliography ...... 33 Annex – Survey structure ...... 36

Foreword

By being the closest administrative unit dealing with newcomers, governmental organizations at the local and regional levels play an important role in managing migrants’ first welcome and integration (Mitterhofer et al. 2016, Gruber 2012). The person in charge of such issues, often the mayor, a member of the local government or a district administrator, can deeply influence how the issue is dealt with in the local agenda. The person in charge can likely influence the municipal administration and territorial actors to open towards an intercultural perspective and engage in welcoming and integration activities (Schader-Stiftung 2014). However, an increasing number of both studies and integration initiatives – like the Alpine Pluralism Award projects1 – indicate that this dominant role played by the responsible person is evolving towards a more facilitating, a networking role. In such evolution, the responsibilities are shared more horizontally, so that the person that traditionally had all the managing tasks is now put almost on an equal level in the cooperation together with non-governmental, private and civil society organizations (Schader-Stiftung 2014, cf. role of civil society in city environment OECD 2018). This evolution reflects the aim and the need to improve efficiency and goes into the direction of creating a governance around the topic of welcoming and integration of migrants (OECD 2018). The governance approach is characterized by complex collaborative relationships between various actors and sectors on multiple levels. The Alpine Space project PlurAlps addresses this complexity. It looks at the role of municipalities and regional stakeholders and their relationships and collaborations to develop services and offers of general interest with a focus on newcomers. The project partners engage with territorial actors in carrying out, accompanying and evaluating pilot projects aimed at social, economic and cultural inclusion through cross-sectoral cooperation. The report at hand forms part of a work package (WP T1) led by Eurac Research, Institute for Regional Development, that analyses the overall project environment of PlurAlps. 1. Introduction

Research has shown that social capital and social networks can have a positive effect on the integration of migrants and on labour market integration in particular (Portes 1995; Chou and Chow 2009: 341; Cheung and Phillimore 2013; Morosanu 2016). Social capital is the actual or potential resource arising from a network of relationships at either the personal level (Bourdieu 2012) or the collective level (Putnam et al. 1994). Social capital can enable bonding within a group, as well as bridging different groups (Putnam 2001). In the long term, thanks to networks and cooperation among different actors, smaller villages may offer more possibilities for new population groups. These networks are therefore crucial for the integration of asylum seekers (Marcher et al. 2017), but also of newcomers in general. A key challenge for migration management is the number and diversity of the actors and sectors involved each with their own perceptions, interests, and resources (Robinson et al. 2011). Reasons given to collaborate include the limited resources of the government: the government simply does not have all the information, power, and human resources necessary for managing migrants' welcome and integration. Moreover, the involvement of diverse stakeholders can increase public support, reduce opposition, and improve implementation of government policy. Finally, there is the

1 For winner and participating projects see http://www.alpine-space.eu/projects/pluralps/en/pluralism-award

moral argument that involving stakeholders makes migration management more democratic (Mostert et al. 2007; Stringer et al. 2006). To understand the complexity of networks in the field of migration in the Alpine region, we conducted a study on the status quo and potential improvements of governance and social networks of cooperation evolving around welcoming and integrating migrants in the Alpine municipalities. According to the literature referring to cooperation and networks characteristics (Zbicz 1999; Grubbs 2000; Frey et al. 2006; Rank 2008), the indicators chosen to study are:  the characteristics of the cooperation in terms of formality, intensity and trust in the cooperation  the characteristics of the cooperation in terms of aims, topics on which the actors cooperate, results reached, examples of services created thanks to the cooperation  future cooperation needs with other organizations/actors to understand the cooperation potential The research questions leading the analysis are:  What are the characteristics of the actors in involved in such issues?  What characterizes the relationships?  What characterizes an enabling institutional and relational environment for the integration of migrants in alpine municipalities? 2. Approach and methodology

The social network analysis (hereafter SNA) approach was used in the analysis of governance organization and existing networks involved in migrants´ and newcomers´ welcome and integration in the municipalities and districts of the Alpine region. Social networks are formally defined as a set of nodes (or network members) that are tied by one or more types of relations (Wasserman and Faust 1994). Nodes, or network members, are the units that are connected by the relations whose patterns we study. These units are most commonly single persons or organizations. SNA studies social networks in terms of a set of nodes (e.g., individuals or organizations) and a set of ties between these nodes. It can provide insight into the position and role of individual actors in the network and help to identify central, coordinating, and bridging organizations whose activities connect actors that otherwise would not have been connected (Berkes 2009; Rathwell and Peterson 2012). The structure of ties between these actors gives insight in intra- and inter-group collaboration (e.g., within government and between government and non-governmental actors) (Lienert et al. 2013). Network members were then identified by means of a survey to the responsible person in the local government for migrants’ and newcomers’ welcome and integration. After that, the relations between these nodes were identified. These could include collaborations, friendships, trade ties, information flows, and exchanges of social support (Wasserman and Faust 1994). For the scope of the analysis ego-centric network data were collected, which focus on the network surrounding one node, known as the ego. Data are nodes that share the chosen relation(s) with the ego and on relations between those nosed. First-order ego networks are the most commonly studied (e.g. Wellman 1979; Marsden 1987; Fischer 1982; Campbell and Lee 1992). Once network types have been chosen and theoretically relevant relations have been identified, researchers must decide how to measure their chosen relations. Relations can be measured as directed or undirected and as binary or valued. Directed ties are those that go from one node to another. We decided to study directed ties as for the type of analysis we want to do we assume there is reciprocity in the relationships

between the node ego and the other nodes (alters). Data about social networks were collected through surveys in 12 case study areas carried out by PlurAlps project partners. The surveys aimed at gathering information about existing collaborative relations (see Annex with survey texts). In order to identify the central node (ego) of the social network analysis, a position-based approach was used (Laumann et al. 1983). Accordingly, the interview partners (ego) were identified using the criteria about who in the local administration has formal responsibility for migrants, foreign inhabitants, newcomers welcome, integration and wellbeing. In each case study area, the responsible for integration measures in the administration was therefore interviewed. The survey consisted of an introduction stating the objective and questions on social characteristics, such as name and function of the respondent, name of the organization, scale of action, and involvement or interest in welcoming and integrating migrants. Network data were collected in 2017 using name generators: survey questions that ask respondents to list the people with whom they share a particular relation regarding the topic (Marsden 1987, 2005; Hogan et al. 2007). 3. Analysis

For the analysis, the collected data were anonymized. Data were analysed with two approaches: a quantitative one by means of representing the data in the social network analysis chart, and a qualitative one providing a description of the data.

3.1. The Social Network Analysis chart

Part of the analysis of the governance and networks is graphically visualized through the social network analysis chart. For each case study area, a SNA chart was realized. Following information is displayed in the chart:  cooperation actors with their characteristics  topics of cooperation  characteristics of the relation (formality, intensity, trust) Each chart displays at the centre the central node, which is the ego, the interviewed person, whose perspective is reported. The nodes around the ego represent the identified key cooperation partners on the topic of integration of migrants/newcomers in the pilot region. The arrows linking the ego with the nodes represent the answers to the survey questions about the characteristics (intensity, level of trust) of the relationship. The symbols on the arrow displays the level of formality of the cooperation, and the icons put aside of the arrows display the topics of cooperation in a stylized form. For a better comprehension, following is the legend of the SNA chart.

Field of action of the cooperation partner It describes the field of action of the actor:

Figure 1: Legend of the symbols used in the SNA chart referring to the field of action of the cooperation partner

Formality of the cooperation It describes the level of formality of the cooperation between the two actors from the perspective of the central node of the SNA:  Very low: verbal agreements, exchange of ideas, information sharing  Low: some defined roles, informal meetings  Medium: defined common platform/team/taskforce, joint guidelines  High: joint planning commissions, joint master plans, contracts/protocols are in place  Very high: joint official bodies/boards with written agreements on desired outcomes and tasks divisions, policies

Figure 2: Legend of the symbols used in the SNA chart referring to the level of formality of the cooperation

Trust in the cooperation It describes how the central node trusts the cooperation partner:

Figure 3: Legend of the symbols used in the SNA chart referring to the level of trust in the cooperation

Intensity of the cooperation It describes how intense the cooperation is in terms of means and frequency of cooperation:  Very low: little communication, autonomous decision making  Low: frequent communication, shared information, autonomous decision making  Medium: regular meetings, shared decision making, development of new approaches  High: some resources/responsibilities are shared  Very high: sharing of resources and responsibilities with joint decision-making processes etc.

Figure 4: Legend of the symbols used in the SNA chart referring to the level of intensity of the cooperation

Topic of the cooperation It defines the topics on which the partners cooperate:  Economy and labour: e.g. labour market integration, recognition of professional qualifications  Housing: e.g.: housing procurement  Healthcare  Training and schooling: e.g. language classes, professional trainings  Education: kindergarten, school, vocational training, higher education, etc.  Family and youth: e.g. childcare, youth work, work-life balance  Intercultural dialogue: e.g. cultural and religious mediation, mentoring, living together  Culture and leisure: e.g. associations, initiatives  Political-legal rights: e.g. policy for/of people with a migratory background, legal support

Figure 5: Legend of the symbols used in the SNA chart referring to the topic of cooperation 3.2. Qualitative analysis

Through a qualitative approach, we have analysed qualitatively the following collected data:  aims of cooperation, explaining what are the set goals of cooperation with each identified actor  achievements of cooperation, referring to the results reached thanks to the cooperation  examples of cooperation, with practical experiences that explain the result in detail  needs for future cooperation, describing with which kind of partner organization the interviewed person would like to intensify or start a new cooperation and which challenges to be tackled thanks to it; moreover this part of the analysis inquires what are the obstacles currently hindering the cooperation 3.3 The area of study: the Alpine region

Existing studies (Ravazzoli, Lolini 2018) have analysed statistical data referring to the EUSALP area and Alpine convention area. In the period 2011-2015, the number of foreigners has increased by 11%, from 9,3 million foreigners to 10,2 millions in the EUSALP area. In the perimeter of the Alpine Convention, the foreigners have increased by 8%, going from 2,7 million in 2011 to 2,9 million in 2015. By looking at the composition of the foreign population by macro-area of origin (e.g. EU-28 and non- EU), the number of non-EU foreigners has increased with the number of the EU foreigners in the same period. Italy (the part of Italy included in the EUSALP area) is

the country that hosts the majority of non-EU foreigners (1.237.686 in 2015), followed by France (976.815 in 2015) and by Switzerland (315.412). In such territories, the number of non-EU foreigners has increased by more than 15%. Austria is the country that has registered the greatest increase in non-EU foreigners in the period 2011-2015: from 180.574 in 2011 to 228.665 in 2015, for an overall increase of 26.6% (Ravazzoli, Lolini 2018). In identifying the causes for such heterogeneity, it must be said that the differences among the Alpine countries and among their regions do not only depend on the different migration policies applied in the countries. Structural and socio- economic factors compete to determine both these differences in the regions and the ability of the receiving territories to attract newcomers, new enterprises and to be innovative. As examples of structural factors we should mention that demography is strongly influenced by physical characteristics of the territory, which make some areas less favourable with respect to other areas. Nevertheless, the migratory phenomenon seems little influenced by the morphologic conditions. As demonstrated in recent literature, the mountain regions receive a remarkable number of foreigners who live, work and create a natural demand for services. In these terms, migration trends in mountain regions are drivers of a positive cycle of development (Membretti et al. 2017). For alpine territories, the presence of new population presents new societal challenges linked to social, labour and cultural integration, and the valorization of diversity and pluralism in such a way that different cultures meet without clashing or being ghettoized (Ravazzoli, Lolini 2018).

Figure 6: Overview of the PlurAlps pilot regions (Source: Laner P, Dalla Torre C 2018. Eurac Research)

The map shows the pilot regions of the PlurAlps project that are object of analysis within the framework of work package (WP) T1 and T3. Among them, 12 were chosen as case studies on networks of cooperation and needs of cooperation for the

governance and network analysis (task 2 of WP T1). The selection criteria was the availability of secondary and primary data. 4. Governance and network analysis at pilot region level

For each of the 12 selected case study areas it has been analysed how governance and networks function regarding the topic of welcoming and integration of migrants and newcomers. Each case study area analysis reports some geographic and demographic data, the analysis of the actors in the cooperation, the characteristics of the cooperation, the aims and the accomplished results of such. Moreover, the analysis includes the needs for future cooperation, current obstacles hindering the desired cooperation and the challenges that are aimed to be tackled by that cooperation. The case study areas have been listed alphabetically, namely: Bezau (AT), Engelberg (CH), Jesenice (SI), Kamnik (SI), Kapfenberg (AT), Mals (IT), Mellau (AT), Nizza Monferrato (IT), Ortisei (IT), Postojna (SI), Val di Non (IT), and Zermatt (CH).

4.1. Bezau, Vorarlberg, Austria Bezau is a small municipality located in the Bregenzerwald region, in the state of Vorarlberg, in the western part of Austria. Bezau has a population of 2.003 inhabitants (2018), whose 17% has foreign nationality. Most of the foreign inhabitants come from Turkey. The interviewed person in Bezau was the assistant of the municipal administration, responsible for citizen services. During the interview, the key cooperation partners were identified:  the cooperative for the development of the economic activities (craft sector and agriculture) and tourism in the Bregenzerwald  the local primary school  the local secondary school  the local kindergarten  the regional nucleus of the social services NGO of the Catholic Church

Figure 7: Social Network Analysis for the case study area of the Municipality of Bezau/AT (Source: Eurac Research)

A general identified aim of the cooperation is to avoid double work and create synergies among the actors of the territory. In particular, the cooperation with the cooperative of local craft, agricultural and tourism enterprises is to create a network with the productive actors of the territory in order to enhance labour market integration of the migrants, as well as training possibilities and cultural integration. The collaboration with the local public education institutions (kindergarten, primary and secondary schools) is created to ensure compulsory education for migrants’ children. Finally, the cooperation with the catholic solidarity association is created for dealing particularly with asylum seekers’ legal and housing needs. The cooperation with the local cooperative resulted in the organization of a language course for new foreign employees in collaboration with the local enterprises. Thanks to the cooperation with the primary school, information about existing language courses were provided to children’s parents and it has been assured that migrants’ children attend primary school. Through the cooperation with kindergarten and secondary school, an intensive week of German language lessons is provided before the school year starts. The cooperation with the catholic solidarity association has achieved the result of carrying out compulsory registration procedures of asylum seekers in the municipality (incoming and outgoing).

4.2. Engelberg, Obwalden, Switzerland Engelberg is a tourist municipality in the half canton of Obwalden, Switzerland. Engelberg has a population of 4.430 inhabitants (2018), whose 26% has foreign nationality. Most of the foreign inhabitants come from Germany, the second largest foreign group are Portuguese.

The interviewed person in Engelberg is the secretary of the municipality. The identified cooperation partners are:  the local employers’ association  the mountain railways company  the network for integration

Figure 8: Social Network Analysis for the case study area of the Municipality of Engelberg/CH (Source: Eurac Research)

The general identified aim of the cooperation is to simplify procedures and bureaucratic issues for tackling the topics of migrants’ welcoming and integration in housing procurement, healthcare, training and education. The aim of the cooperation with the network for integration is to improve the welcoming culture in the territory. The achievements resulting from the cooperation were a mutual understanding for the concerns and needs of the stakeholders involved in welcoming and integration. Moreover, the collaboration with the integration network helped as a complementary body for the municipality work. Concrete examples of such cooperation with the employers’ association are the organization of language courses and employment permits as well as health insurance for employees. With the network for integration, a service of care for migrants’ cultural and labour market integration was arranged. As need for cooperation, it was identified to intensify cooperation with the neighbouring Cantonal government (Nidwalden), although political and structural issues related to federalism are hindering it. The need to intensify collaboration with the municipalities of the neighbouring Canton Nidwalden was also identified, even though differences in mentality due to the presence of less migrants in the Nidwalden territory are currently hindering cooperation. The challenges to address through this cooperation would be to get to know different cultures and reduce the social and

cultural distance between migrants and residents, by reducing fears and uncertainties on both sides. A third needed partner of cooperation is the town government of Lucerne in order to bridge the topics of hospitality vis-à-vis migrants and tourists. This third would be a very new cooperation, which now is only an abstract idea.

4.3. Jesenice, Slovenia Jesenice is a medium-size town of 21.000 inhabitants, located in the north-west part of Slovenia. 25% of the population have foreign nationality. The interviewed person in Jesenice is the public relations manager of the municipality. The identified cooperation partners are:  the people’s university active at the inter-municipal level  the centre for social work, a public national entity  the general hospital  the high school

Figure 9: Social Network Analysis for the case study area of Jesenice /SI (Source: Eurac Research)

The general aim of the cooperation with all the identified partners is to update and exchange information on current and expected challenges regarding the topic of welcoming and integrating newcomers in the municipality. The additional aim of the cooperation with the people’s university and the center for social work is to commonly seek for solutions to the challenges; for this reason the intensity of the cooperation is higher with these two partners. Thanks to the cooperation with the people’s university, the municipality has co-financed some education programmes and helped in their implementation. Language courses for different targets of the population have been

organized. Thanks to the cooperation with the center for social work and the general hospital, a translation service was set up for the public services. And through the cooperation with the center for social work a job training were successfully participated. What has been reached through the cooperation with the high school is the co-design of projects and support in communication. According to the interviewed person, there is the need to cooperate with the Slovenian ministry for internal affairs, as this ministry is in charge of migration issues, managing and financing various programmes for the initial integration of migrants. Currently, the cooperation with municipalities is quite low and it needs to be intensified and formalized. Topics of cooperation would be labour integration and training and schooling for newcomers and the development of an intercultural dialogue. Moreover, there is the need to cooperate with other municipalities, creating a network on the issues of migrants’ and newcomers’ welcome and integration.

4.4. Kamnik, Slovenia Kamnik is a medium-size town of 29.000 inhabitants, located in the northern part of Slovenia. 10% of the population has foreign nationality. The interviewed person in Kamnik was the municipality senior office worker, responsible for investment and development. The identified partners of cooperation are:  the regional intergenerational center  the center for social work  the municipal library  the private kindergarten of the municipality

Figure 10: Social Network Analysis for the case study area of Kamnik /SI (Source: Eurac Research)

The aim of the cooperation with the regional intergenerational center is to improve cooperation among different generations of the population. They cooperated in the project of the creation of a multicultural center in Ljubljana, in the organization of workshops and cultural events for the youth and of self-help groups for elderlies, unemployed and newcomers. The cooperation with the center for social work had the aim to help the citizens, improve the living conditions of the population. Examples of such cooperation were the establishment of a day care center for people with mental distress. The municipality and the center for social workers cooperated also in the field of rental of non-profit housing. The goal of the cooperation with the municipal library was to raise literary culture among citizens in general, socialization and education. Examples of the cooperation were the common project on intercultural and religious coexistence, the organization of lifelong learning and language courses and computer and gardening courses. Finally, the cooperation with the kindergarten aimed at ensuring childcare, by supporting the projects and programs offered by the kindergarten. The interviewed person expressed the need to start a new cooperation with the municipal department for social affairs aimed at organizing training and schooling projects (e.g. language classes and professional trainings), to tackle the challenge of connecting people of the same culture from different municipalities, and tutoring them to address their needs. A new cooperation would also be needed with the national migration office for the integration in the labour market, the recognition of professional qualifications of migrants, for the organization of more professional trainings for migrants and to provide them legal support.

4.5. Kapfenberg, Upper-Styria, Austria Kapfenberg is an Austrian municipality in the district of Bruck-Mürzzuschlag in Styria, a Land in the southeast of Austria. Kapfenberg has a population of 22.798 inhabitants (2018), whose 16,9% has foreign nationality. The main country of origin of these foreign inhabitants is Romania. The interviewed person in Kapfenberg was the department head of social services of the municipality. The two key cooperation partners for welcoming culture were identified:  the red cross regional organization  the catholic solidarity association

Figure 11: Social Network Analysis for the case study area of the Municipality of Kapfenberg/AT (Source: Eurac Research)

The general aim of cooperation is to improve existing integration services regarding migrants’ labour market integration and housing procurement. Although not among the aims of the cooperation, this brought the result of improved integration measures for childcare in addition to the expected improvement in housing procurement. The interviewed person expressed the need to start a new cooperation with local companies for labour integration of migrants and for training and schooling in order to tackle the challenge of current shortage of skilled workforce in the territory. What hinders this cooperation is a lack of management capacity and the wish to establish the cooperation from the side of enterprises and communities.

4.6. Mals (Malles), South Tyrol, Italy Mals (Malles) is an alpine municipality located in Vinschgau, in the western part of the province of South Tyrol, 85 km away from the main city of Bolzano. In Mals live 5.630 inhabitants and 6.4% have foreign origins and citizenship. The main country of origin of these foreign inhabitants is Germany. The interviewed person is the municipal responsible for migration and integration issues, and member of the municipal government. The identified key cooperation partners are:  the municipal government  the catholic labour association  the regional nucleus of the social services NGO of the Catholic Church that manages the asylum seekers hospitality in Mals  schools and education institutions  laic associations (sports club, cultural associations)

Figure 12: Social Network Analysis for the case study area of the Municipality of Mals/IT (Source: Eurac Research)

One of the main agenda points on which the municipality cooperates with the other key partners is the hospitality and integration of asylum seekers, in terms of language skills, labour market integration, and housing procurement. Specifically, the aims of cooperation with the catholic labour association are to inform the association members (who in turn are contacts/multipliers in local society), to provide information and to raise awareness for combatting prejudices, while with the schools and training institutions the aim is to provide training and schooling opportunities, professional qualification for asylum seekers. Finally, the aim of the cooperation with laic associations is to enhance cultural exchange. Thanks to the cooperation with the municipal government, the accommodation for 50 asylum seekers in a house in the municipality was provided, while through the catholic solidarity association, a counselling service on housing after obtainment of asylum was provided. The schools were involved right from the start, they welcomed the refugees, painted a banner reading "Welcome Refugees", the schools provided rooms for language courses and have offered three times in a row a diploma course for cleaning that allowed asylum seekers to find a job. The music school organized a Liturgy of the Word for Christmas to convey local religion, accompanied by a social event. The cooperation with local laic associations brought the results of organizing a course on security in the workplace, cultural activities, and acceptance of new memberships among the migrants, explaining local customs and habits.

4.7. Mellau, Vorarlberg, Austria Mellau is a small municipality located in the Bregenzerwald region, in the state of Vorarlberg, in the western part of Austria. Mellau has a population of 1.301 inhabitants

(2018), whose 12% has foreign nationality. Most of the foreign inhabitants come from Germany. The interviewed person in Mellau was the secretary of the municipality, in charge of providing information to and about migrants in the territory. During the interview, the key cooperation partners were identified:  the regional development agency  the cooperative for the development of the economic activities (craft sector and agriculture) and tourism in the Bregenzer Valley, a cooperation which is at its initial stage

Figure 13: Social Network Analysis for the case study area of the Municipality of Mellau/AT (Source: Eurac Research)

The identified aims of cooperation with the regional development agency are the facilitation of the work of the municipality, the provision of information at a higher level of administration, the improvement of the cooperation among the municipalities in the Bregenzer Valley, the provision of information to migrants and networking. The regional development agency is in fact a relevant actor at the regional level. Thanks to the cooperation with the regional development agency, language courses have been organized. A welcome folder for new employees was the result of the collaboration with the local cooperative, as well as the organization of language courses for employees and the conduction of interviews with migrants in the enterprises. The cooperation with the local cooperative aims at building a harmonized approach for developing a welcoming culture in the territory trough the cooperation among municipalities.

There is the wish to intensify the cooperation with the local cooperative in order to improve labour market integration of migrants as well as housing procurement, which has been a constant challenge in the territory, and intercultural dialogue. There is no obstacle identified that could hinder the future cooperation, as welcoming culture is a new topic and there is an interesting margin for collaboration.

4.8. Nizza Monferrato, Piedmont, Italy Nizza Monferrato is an Italian municipality in the province of Asti in Piedmont. Nizza Monferrato has a population of 10.429 inhabitants (2018), and 13.8% have foreign citizenship come mainly from Macedonia. The interviewed person is the head of the social department of the municipality of Nizza Monferrato. The identified partners of cooperation are:  the public health clinic  the social housing territorial agency  the employment centre in Asti, the main town of the area  the public schools consortium including the kindergarten, the primary and secondary schools  the catholic-inspired confederation of social cooperatives

Figure 14: Social Network Analysis for the case study area of the Municipality of Nizza Monferrato/IT (Source: Eurac Research)

The municipality cooperates with the public health clinic for the provision of healthcare and services for migrants. The cooperation with the social housing territorial agency is to give migrants access to social housing and provide health support to families and childcare. Thanks to the cooperation with this actor, a project for

immediate housing needs reserved only for foreigners was set up. The cooperation with the employment centre in Asti aims at the inclusion of migrants in the labour market. In addition, the cooperation with the confederation of social cooperatives aims at the inclusion of migrants in the labour market through the contact with social cooperatives. Finally, the cooperation with the schools consortium aims at the organization of educational and intercultural initiatives. There is the wish to intensify the cooperation with the local associations (i.e. sport, culture, volunteering civil associations) for promoting cultural integration, to promote more active political participation of immigrants at the local level and stimulate a higher involvement of adult migrants in the activities of the local community. Specifically, there is the idea to organize a theatre festival in Piedmontese, in Arabic or in Macedonian to foster intercultural exchange and mutual knowledge. However, what is currently hindering the cooperation with such associations is the perception of the immigrant as a beneficiary or as a person who must be distant. Consequently, the associations do not speak to adult immigrants.

4.9. Ortisei (St. Ulrich) in Val Gardena, South Tyrol, Italy Ortisei (St. Ulrich) is located in Val Gardena, in the north-eastern part of South Tyrol province. Val Gardena has a population of 10.723 inhabitants (2017) and 7.5% are inhabitants with foreign citizenship, mainly coming from Romania. The interviewed person is the responsible for social affairs in the municipality of Ortisei, member of the municipality government and responsible for the social district Val Gardena. The five identified key partners of cooperation on the development of a welcoming culture were:  the social district of Val Gardena, the inter-municipal body for social issues  the organization that is in charge of asylum seekers’ hospitality in the municipality  the schools and kindergartens of the municipality  the consortium for training and schooling of the valley  the local fair-trade shop

Figure 15: Social Network Analysis for the case study area of Ortisei in Val Gardena/IT (Source: Eurac Research)

Most of the identified member of cooperation meet every two month in the form of a Council for migrant integration, an informal body that advises and supports the social district of Val Gardena in the welcoming and integration of foreigners. The aims of the cooperation of the municipality of Ortisei with the social district Val Gardena are social integration, support foreign newcomers to find accommodation, a job, provide social assistance in financing, to protect women’s and minors’ rights, to activate a network of people interested and active in migrant integration. The aim of the cooperation with the organization in charge for asylum seekers is the refugees management, their integration in the municipal community, integrate them in volunteering, working, learning languages, find house and work after they obtain asylum and have to leave the reception centre, research and support to volunteers involved in the task. The aim of the cooperation with schools and kindergartens are the care for children in the afternoon with an adequate offer of activities that help them integrate in the local community. The cultural integration is also the aim of the cooperation with the training and schooling consortium and the local fair-trade shop, through the organization of events, activities, and training and language courses. Thanks to these cooperation, support to migrants could be provided and foreigners have participated in commonly organized initiatives. Additionally, communication among different stakeholders in Ortisei and in the neighbouring municipalities (e.g. newcomers, administration officers and politicians, schools, firms, associations) was enhanced by cooperation. Moreover, most of the hosted asylum seekers have eventually found a job and an apartment, and they are now autonomous, having learnt the language and got more accustomed to the local culture. The interviewed person estimated that not even one third of these results would have been

achieved if it had not been for that cooperation. Thanks to the cooperation with schools and kindergarten a good support and base for integration was provided to migrants’ children. Through the cooperation with the training and schooling consortium the planning of and the communication about the language courses was facilitated. Finally, thanks to the cooperation with the local fair-trade shop a great participation to the cultural initiatives was assured. The interviewed person expressed the need to intensify the cooperation with schools and kindergartens, trying to involve a person of each institution in the integration council and improve language competences of foreign children and their parents. There is also the need to intensify the cooperation with the local cultural and sport associations and clubs on integration, helping them to understand the value of volunteering in order to build social relations that indirectly allow the integration in the labour, culture, political spheres and in the community in general. There is also the desire to start collaborating with the health system in order to assure protection of women and children, by putting more attention on the signals of negative family situations. What is currently hindering the cooperation is the lack of time, will and priority on the side of the desired cooperation partners but the interviewed person reports that this is a matter of time.

4.10. Postojna, Slovenia Postojna is a medium-size town of 16.000 inhabitants, located in southwestern Slovenia. 18% of the population has foreign nationality. The interviewed person in Postojna is the head of the municipal administration. The identified partners of the cooperation are:  the center for social work  the regional hub to support NGO  the police station  the secondary forestry and woodworking school  the people’s university

Figure 16: Social Network Analysis for the case study area of Postojna /SI (Source: Eurac Research)

The aim of cooperation with all partners was to reach high level of integration of the unaccompanied youth and high degree of acceptance by local population, so to obtain high quality of life for all. Thanks to the cooperation, the program was evaluated as good practice of inclusion, integration and socialization of unaccompanied minors.

4.11. Val di Non, Trentino, Italy Val di Non is one of the biggest districts of the province of Trentino, in Italy. It is located in the northwestern part of the province. In Val di Non live 39.420 people. The percentage of foreign inhabitants is 9% and the biggest group of foreign inhabitants have Romanian citizenship. The interviewed person in the community of communes of Val di Non is the coordinator of the group for common well-being in local environment in the territory of Val di Non. The identified key partners of cooperation on migrants’ welcome and integration are:  the regional information centre for in-migration of the province of Trento  a regional association for welcoming foreigners  the public adult education institute of the valley  a social cooperative  the public health clinic

Figure 17: Social Network Analysis for the case study area of Val di Non/IT (Source: Eurac Research)

The aims of the cooperation with five identified partners reach different targets: the cooperation with the regional information centre aims at providing legal support, working permits, the participation in special events, the organization of Italian courses and fundraising. The aims were reached thanks also to the opening of a front office in the buildings of the valley government. The aim of the cooperation with the association for welcoming foreigners was to develop the sense of belonging to the community, as part of the process of social integration of migrants, through a project involving many stakeholders in different territories in Trentino region. The cooperation with the public adult education institute aimed at providing training and schooling for professional qualification, while the aim of cooperation with the social cooperative was to integrate migrants in the labour market, through talent scouts counselling in order to know the knowledge and the skills of migrants for the territory. Finally, the cooperation with the health clinic aimed at tackling health related issues, for women mostly. The identified needs of cooperation are to intensify the cooperation with the health clinic to provide more access to “new-born” support practices to foreign women and other existing services, and to take care of migrants in a more efficient and competent way. The need to intensify the cooperation with municipalities was expressed for developing a network with different actors in the local community around the topic of migrants’ welcome and integration. There is also the need to cooperate both with the network of elementary and middle schools and with professional institutes to ensure more educational success for foreign students, less academic differences between Italian and migrants, a to reduce the drop-off rates from non-compulsory professional education. Finally, it was expressed the need to start a new cooperation with the Islamic cultural centre of the main town in the valley in order to start a communication

challenge that could promote the social participation of Muslim women in the social life of the local community.

4.12. Zermatt, Wallis, Switzerland Zermatt is a Swiss municipality with 5,759 inhabitants (2018) in the canton of Valais, in the district of Visp. It is bordered by the districts of Hérens, Sierre and Leuk to the west, Westlich Raron to the north-west and Brig to the northeast and Italy (provinces of Verbano-Cusio-Ossola and Vercelli in Piedmont to the southeast and Valle d'Aosta to the south). The percentage of foreign inhabitants is 39%, and the biggest group of foreign inhabitants come from Portugal. The interviewed person was the responsible person for integration of the valley of Inneres Mattertal. The identified cooperation partners are  the municipality of Zermatt  the local businesses  the adult education centre in the region Oberwallis  the schools  the forum migration of the region Oberwallis

Figure 18: Social Network Analysis for the case study area of Zermatt/CH (Source: Eurac Research)

The aims of the cooperation are to build a welcoming culture in the region, providing access and information about language courses, raising awareness among young about the topic of developing a welcoming culture. The wish for future cooperation is to intensify the collaboration with local businesses, trying to involve entrepreneurs in the topic and sensitize employers about

social responsibility towards employees with migratory background. The wish is also to intensify and formalize the cooperation with schools in order to reach students early on cultural backgrounds, migration, intercultural competences. Finally, there is the wish to increase participation to the language courses, by cooperating more intensively with the municipality through setting common goals and clearing roles. 5. Cross regional analysis

The 12 selected case study areas differ a lot in terms of size of population and percentage of population with foreign nationality. Considering the level of municipality (excluding therefore those case study areas that took the level of district, like Val di Non) the size of the population goes from 1.300 (in Mellau) to 30.000 units. The percentage of inhabitants with foreign nationality goes from 6,4% (Mals) to 39% (Zermatt), showing that their distribution is non-homogenous and it does not depend on the size of the population. Overall, in the 12 selected case study areas fifty partners of cooperation were identified by the interviewed people. Data were analysed aggregately through descriptive statistics and visualized by means of the graphs reported below. Some reflections can be made on the characteristics of the identified partners of cooperation. In most of the cases of cooperation, the partner either belongs to the public sphere or it is a non-profit, third-sector organization. Rarely partners belong to the private sector or are classified as public-private partnerships (as in Figure 19).

MOST FREQUENT CATEGORY OF THE COOPERATION PARTNER

3 2

PUBLIC PRIVATE NON- PROFIT PUBLIC - P R I V A T E PARTNERSHIP

Figure 19: Most frequent category of the cooperation partner (Source: Eurac Research)

The cooperation partners are distributed quite homogeneously among the fields of action, except for the field of research (as in Figure 20): most mentioned are actors of the education field and of the public administration. Quite frequent are partners that belong to the civil society. The field of labour market and economy has the smallest representation, while none of the identified key partners of cooperation is involved in the field of research.

MOST FREQUENT FIELD OF ACTION OF THE COOPERATION PARTNER

16 15

ADMINISTRATION ECONOMY CIVIL SOCIETY EDUCATION RESEARCH

Figure 20: Most frequent field of action of the cooperation partner (Source: Eurac Research)

Having conducted the interviews at the municipal level or at the supra- municipal level, the most frequent scale of action in which the cooperation partners are involved is the municipal, inter-municipal and regional level. None of the key cooperation partners works at the national level (Figure 21).

MOST FREQUENT SCALE OF ACTION OF THE COOPERATION PARTNER

15 14 14

MUNICIPAL INTER - MUNICIPAL REGIONAL NATIONAL

Figure 21: Most frequent scale of action of the cooperation partner (Source: Eurac Research)

Observations regarding the characteristics of the relation of cooperation among the interviewed person and the identified cooperation partners are reported below.

Most commonly, the relationships of cooperation have a very low level of formality, with only verbal agreements, exchange of ideas, information sharing. The second most common is the medium level of formality, meaning that there are some defined common platforms / teams / taskforces to which the two actors belong to and that they share some joint guidelines. High and very high levels of formality are not very frequent (Figure 22). The figures therefore show that partners adopt rather informal ways to collaborate.

MOST COMMON LEVEL OF FORMALITY OF THE COOPERATION

7 7 6

V E R Y L O W LOW MEDIUM HIGH V E R Y H I G H

Figure 22: Most common level of formality of the cooperation (Source: Eurac Research)

The most mentioned level of intensity in the cooperation is medium, characterized by regular meetings, shared decision-making, and development of new approaches between the two involved actors in the cooperation. In addition, with the same frequency, the high level of intensity in the cooperation was mentioned, where some resources/responsibilities are shared. A lower level in intensity of cooperation is also quite common, characterized by frequent communication, shared information but with autonomous decision-making between the two cooperation partners. Very high and very low levels of intensity are not very frequent (Figure 23).

MOST COMMON LEVEL OF INTENSITY IN THE COOPERATION

14 14

V E R Y L O W LOW MEDIUM HIGH V E R Y H I G H

Figure 23: Most common level of intensity of the cooperation (Source: Eurac Research)

During the interview, the interviewed person was asked about the level of trust towards the identified partner in the cooperation. As expected, the cooperation is established if there is high trust that it will bring about common aims and results. Therefore, the answers to this question confirmed that the most common level is a very high level of trust (Figure 24).

MOST COMMON LEVEL OF TRUST OF THE INTERVIEWED IN THE COOPERATION

3 1 0

V E R Y L O W LOW MEDIUM HIGH V E R Y H I G H

Figure 24: Most common level of trust in the cooperation (Source: Eurac Research)

The most common identified topics on which the interviewed persons and the key partners cooperate for welcoming and integrating newcomers is training and schooling for professional qualification of newcomers. This is followed by cooperation on the integration in the labour market, intercultural dialogue and culture and leisure.

Housing procurement and education in young age of newcomers are also often mentioned as topics of cooperation. Healthcare and family and youth are only sometimes mentioned, while the most rare topic of cooperation is political and legal participation (see Figure 25). With this analysis we are not able to say if the less trated topics are targeted anyway through other cooperation, as the analysis took and ego- centric perspective.

MOST COMMON TOPICS OF COOPERATION 25 22 21 19 20 17 17

15 11 10 10 8 5 5

Figure 25: Most common topic of the cooperation (Source: Eurac Research)

Moreover, it has been observed that in four of the 12 case study areas at least one of the identified partners of cooperation are religious-inspired civil associations, and specifically catholic welfare association. This reflects/confirms Mathieu, who identifies Catholicism as one of the cultural characteristics of the alpine population in most of the countries of the Alpine region (Mathieu 2017). Schools and education centres are key identified cooperation partners in nine of the 12 selected case study areas, suggesting that they are the most valued partners. In fact, if we sum the topics related to education, training and schooling, they are together with intercultural dialogue and culture and leisure the most tackled topics for what concerns the welcoming and integration of migrants in the labour, social and cultural spheres of the community. 6. Discussion and conclusions

Developing inclusive measures for the welcome and integration of migrants and newcomers in the Alpine region is an engagement not solely on the part of public institutions, although we see that they play a central role. Public representatives like politicians and administrators engage with various actors of civil society, educational institutions and the economy. This is confirmed by the research that shows that social capital can be seen as the actual or potential resource arising from a network of relationships and can promote bonding within a group, as well as bridging from one group to another.

In the introduction we have however mentioned that a key challenge for managing the welcome and integration of migrants and newcomers is the number and diversity of the actors and sectors involved, each with their own perceptions, interests, and resources. Quantitative and qualitative investigations were therefore carried out on the social networks dealing with newcomers’ welcome and integration and the successful enabling environment to integrate migrants. The characteristics of the networks of cooperation were explored by focusing on the networks regarding the characteristics of the cooperation and two relevant issues: topics of collaboration and needs of collaboration. The analysis based on identified indicators to measure the functioning of the institutional framework, kind, and intensity of actor relationships and networks. For the analysis, the social network analysis method was used, which allowed to identify nodes and relations within the networks in the 12 selected case study areas. Some general conclusions on enabling institutional and relational environment for the integration of migrants in alpine municipalities can be derived from the case study areas analysis:  cooperation between the municipality or district and education and cultural institutions as well as with civil association is quite established;  cooperation with the economic sector and labour market needs however to be strengthened;  the regional nucleus of the social services NGO of the Catholic Church plays a determinant role in some parts of the alpine region (i.e. Austria, South Tyrol);  in many areas there is the need to strengthen relations with the neighbouring municipalities in order to face together the challenges of integration;  a high to a very high level of trust between the actors of the cooperation is a determining factor for enabling cooperation. The study demonstrates a surprisingly low diversity and complexity of collaborative relationships around managing migrants’ welcome and integration in the 12 case studies. While there is some diversity in the nature of the organization, the type of actor and the topic of collaboration, there is a certain homogeneity across the case studies. The design of the research limited the interviewed person to identify up to five key partners of cooperation. However, for many case studies, the identified key partners of cooperation were less than five. For these case studies we may conclude that the topic of welcoming and integration of migrants is below a mature operational level and that the network and the governance processes still need some reconfigurations. Another observation is that besides the limited cooperation with the economic sector, among the identified key partners of cooperation, no migrant organisations or informal groups were mentioned. For the analysis, an ego-centric perspective view was adopted. This means that the analysis was conducted from the viewpoint of the municipality or district involved in the issues of welcoming and integration of migrants and newcomers. Therefore, the analysis does not take in the viewpoint of the partners that were identified by the municipality or districts that would allow to evaluate the reciprocity of the relationship. This part of the analysis would have been important to validate collected data and to identify the whole network composition, knowing with which other partners the identified partners cooperate. Within the PlurAlps project, this was however excluded due to time and financial constraints. The analysis also does not contain a look at inclusion and welcoming from the viewpoint of the newcomers, their cooperation networks and needs for cooperation. Although very interesting to address, this part of the analysis would have had a different aim and scope and would have presented linguistic challenges.

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Annex – Survey structure

What position are you in charge of 1 within the municipality? Please select only one option Mayor 1 Assessor 2 3 Council Member 4 Office worker 5 Other: ______

2 Please specify the exact name of your position Position:

3 For how long have you been working in this position? Specify years

4 Please specify your age Age

5 What is your highest education level? Please select only one option 1 Elementary school, no diploma 2 Middle school diploma 3 Vocational education 4 High school diploma 5 Graduate

6 Postgraduate 7 Other: ______

6 Which are the most important cooperation partners (max. 5) for welcoming culture for your municipality? These partners can be public as well as private organizations, including NGOs Contact Person and Organization/ Institution Department Category Level Field Contact detail Insert name below * Mario Rossi e.g. public, e.g. 1 = Administration/government * [email protected] private, municipal, 2 = Economy * +39 12345678 non- regional, 3 = Civil society profit,… inter- 4 = Education municipal, 5 = Research national,… A Partner A B Partner B C Partner C D Partner D E Partner E

7 Which topics involving welcoming culture do you address with this partner?

Select up to three options Partner A Partner B Partner C Partner D Partner E

Economy and labour (e.g. labour market

integration, recognition of professional qualifications) 1 Housing (e.g.: housing procurement) 2

Healthcare 3 Training and schooling (e.g. language classes, professional trainings) 4 Education (kindergarten, school, vocational training, higher education, etc.) 5 Family and youth (e.g. childcare, youth work, work-life balance) 6 Intercultural dialogue (e.g. cultural and religious mediation, mentoring, living together) 7 Culture and leisure (e.g. associations, initiatives) 8 Political-legal participation (e.g. policy for/of people with a migratory background, legal support) 9 Other, please specify 10

8 How would you rate the degree of formality of this cooperation? Very low Very high Please comment Partner A 1 2 3 4 5 Partner B 1 2 3 4 5 Partner C 1 2 3 4 5 Partner D 1 2 3 4 5 Partner E 1 2 3 4 5

9 How would you rate the degree of intensity of this cooperation? Very low Very high Please comment Partner A 1 2 3 4 5 Partner B 1 2 3 4 5 Partner C 1 2 3 4 5 Partner D 1 2 3 4 5 Partner E 1 2 3 4 5

10 How would you rate the degree of trust within of this cooperation? Very low Very high Please comment Partner A 1 2 3 4 5 Partner B 1 2 3 4 5 Partner C 1 2 3 4 5 Partner D 1 2 3 4 5 Partner E 1 2 3 4 5

11 Please describe the cooperation: How often do you meet per month on average? Please specify how often do you meet on average with the following partners Please specify Partner A Partner B Partner C Partner D Partner E

12 Please describe the cooperation: What are the aims of your cooperation? Please specify Partner A Partner B Partner C Partner D Partner E

13 Please describe the cooperation: So far, what has been achieved through this cooperation? Please specify Partner A Partner B Partner C Partner D Partner E

14 Please name three examples of such cooperation Example 1 Example 2 Example 3 Partner A Partner B

Partner C

Partner D

Partner E

15 With which institution/organization (max. 5) would your municipality wish to intensify/formalize/start cooperation? These partners can be public as well as private organizations, including NGOs

Organization/ Intensify / formalize / Department Category Level Field Institution start new

Name of the e.g. public, Municipal, regional, 1 = Administration/government Please specify organization private, inter-municipal 2 = Economy non- 3 = Civil society profit,… 4 = Education 5 = Research

A Partner A B Partner B C Partner C D Partner D E Partner E

16 Have you already cooperated with this partner in the past? Yes No Partner A 1 2 Partner B 1 2 Partner C 1 2 Partner D 1 2 Partner E 1 2

17 What is currently hindering the cooperation? Please specify Partner A Partner B Partner C Partner D Partner E

Which topics regarding migration, welcoming and integration could you address better in cooperation with this partner? Please 18 select the three most important ones.

Select up to three options. Partner A Partner B Partner C Partner D Partner E Economy and labour (e.g. labour market integration, 1 recognition of professional qualifications) Housing (e.g.: housing procurement) 2

Healthcare 3

Training and schooling (e.g. language classes, 4 professional trainings) Education (kindergarten, school, vocational training, 5 higher education, etc.) Family and youth (e.g. childcare, youth work, work- 6 life balance) Intercultural dialogue (e.g. cultural and religious 7 mediation, mentoring, living together) Culture and leisure (e.g. associations, initiatives) 8

Political-legal participation (e.g. policy for/of people 9 with a migratory background, legal support) Other, please specify 10

Which integration challenges could you address better in cooperation with this partner? Please describe the three most important 19 ones.

Challenge 1 Challenge 2 Challenge 3

Partner A

Partner B

Partner C

Partner D

Partner E