MulticulturalisM: success, Failure, and the Future By Will Kymlicka TRANSATLANTIC COUNCIL ON MIGRATION MULTICULTURALISM: Success, Failure, and the Future Will Kymlicka Queen’s University February 2012 Acknowledgments This research was commissioned by the Transatlantic Council on Migration, an initiative of the Migration Policy Institute (MPI), for its seventh plenary meeting, held November 2011 in Berlin. The meeting’s theme was “National Identity, Immigration, and Social Cohesion: (Re)building Community in an Ever-Globalizing World” and this paper was one of the reports that informed the Council’s discussions. The Council, an MPI initiative undertaken in co- operation with its policy partner the Bertelsmann Stiftung, is a unique deliberative body that examines vital policy issues and informs migration policymak- ing processes in North America and Europe. The Council’s work is generously supported by the following foundations and governments: Carnegie Corporation of New York, Open Society Founda- tions, Bertelsmann Stiftung, the Barrow Cadbury Trust (UK Policy Partner), the Luso-American Development Foundation, the Calouste Gulbenkian Foundation, and the governments of Germany, the Netherlands, Norway, and Sweden. For more on the Transatlantic Council on Migration, please visit: www.migrationpolicy.org/transatlantic. © 2012 Migration Policy Institute. All Rights Reserved. No part of this publication may be reproduced or trans- mitted in any form by any means, electronic or mechani- cal, including photocopy, or any information storage and retrieval system, without permission from the Migration Policy Institute. A full-text PDF of this document is avail- able for free download from www.migrationpolicy.org. Permission for reproducing excerpts from this report should be directed to: Permissions Department, Migra- tion Policy Institute, 1400 16th Street, NW, Suite 300, Washington, DC 20036, or by contacting [email protected]. Suggested citation: Kymlicka, Will. 2012. Multiculturalism: Success, Failure, and the Future. Washington, DC: Migration Policy Institute. Table of Contents Executive Summary .........................................................................................................................1 I. Introduction ..................................................................................................................................2 The Rise and Fall of Multiculturalism .................................................................................................3 II. What Is Multiculturalism? .................................................................................................4 A. Misleading Model ............................................................................................................................4 B. Multiculturalism in Context .........................................................................................................5 C. The Evolution of Multiculturalism Policies ...............................................................................7 III. Multiculturalism in Practice ...........................................................................................10 A. The Canadian Success Story .....................................................................................................10 B. The European Experience ..........................................................................................................13 IV. The Retreat from Multiculturalism .........................................................................14 A. Rhetoric versus Reality .............................................................................................................14 B. Proliferation of Civic Integration Policies ...............................................................................15 V. Conclusion: The Future of Multicultural Citizenship .................................21 Appendices ............................................................................................................................................26 Works Cited .........................................................................................................................................28 About the Author .............................................................................................................................32 MIGRATION POLICY INSTITUTE Executive Summary Ideas about the legal and political accommodation of ethnic diversity — commonly termed “multiculturalism” — emerged in the West as a vehicle for replacing older forms of ethnic and racial hierarchy with new relations of democratic citizenship. Despite substantial evidence that these policies are making progress toward that goal, a chorus of political leaders has declared them a failure and heralded the death of multiculturalism. This popular master narrative is problematic because it mischaracterizes the nature of the experiments in multiculturalism that have been undertaken, exaggerates the extent to which they have been abandoned, and misidentifies not only the genuine difficulties and limitations they have encountered but the options for addressing these problems. Talk about the retreat from multiculturalism has obscured the fact that a form of multicultural integration remains a live option for Western democracies. This report challenges four powerful myths about multiculturalism. First, it disputes the caricature of multiculturalism as the uncritical celebration of diversity at the expense of addressing grave societal problems such as unemployment and social isolation. Instead it offers an account of multiculturalism as the pursuit of new relations of democratic citizenship, inspired and constrained by human-rights ideals. Second, it contests the idea that multiculturalism has been in wholesale retreat, and offers instead evidence that multiculturalism policies (MCPs) have persisted, and have even grown stronger, over the past ten years. Third, it challenges the idea that multiculturalism has failed, and offers instead evidence that MCPs have had positive effects. Fourth, it disputes the idea that the spread of civic integration policies has displaced multiculturalism or rendered it obsolete. The report instead offers evidence that MCPs are fully consistent with certain forms of civic integration policies, and that indeed the combination of multiculturalism with an “enabling” form of civic integration is both normatively desirable and empirically effective in at least some cases. To help address these issues, this paper draws upon the Multiculturalism Policy Index. This index 1) identifies eight concrete policy areas where liberal-democratic states — faced with a choice — decided to develop more multicultural forms of citizenship in relation to immigrant groups and 2) measures the extent to which countries have espoused some or all of these policies over time. While there have been some high-profile cases of retreat from MCPs, such as the Netherlands, the general pattern from 1980 to 2010 has been one of modest strengthening. Ironically, some countries that have been vociferous about multiculturalism’s “failure” (e.g., Germany) have not actually practiced an active multicultural strategy. Talk about the retreat from multiculturalism has obscured the fact that a form of multicultural integration remains a live option for Western democracies. However, not all attempts to adopt new models of multicultural citizenship have taken root or succeeded in achieving their intended effects. There are several factors that can either facilitate or impede the successful implementation of multiculturalism: Multiculturalism: Success, Failure, and the Future 1 MIGRATION POLICY INSTITUTE Desecuritization of ethnic relations. Multiculturalism works best if relations between the state and minorities are seen as an issue of social policy, not as an issue of state security. If the state perceives immigrants to be a security threat (such as Arabs and Muslims after 9/11), support for multiculturalism will drop and the space for minorities to even voice multicultural claimsHuman will rights. diminish. Support for multiculturalism rests on the assumption that there is a shared commitment to human rights across ethnic and religious lines. If states perceive certain groups as unable or unwilling to respect human-rights norms, they are unlikely to accord them multicultural rights or resources. Much of the backlash against multiculturalism is fundamentally driven by anxieties about Muslims, in particular, and their perceived unwillingnessBorder control. to embrace liberal-democratic norms. Multiculturalism is more controversial when citizens fear they lack control over their borders — for instance when countries are faced with large numbers (or unexpected surges) of unauthorized immigrants or asylum seekers — than when citizens feel the borders areDiversity secure. of immigrant groups. multi Multiculturalism works best when it is genuinely cultural — that is, when immigrants come from many source countries rather than coming overwhelmingly from just one (which is more likely to lead to polarized relations with theEconomic majority). contributions. Support for multiculturalism depends on the perception that immigrants are holding up their end of the bargain and making a good-faith effort to contribute to society — particularly economically. When these facilitating conditions are present, multiculturalism can be seen as a low-risk option, and indeed seems to have