Conflicting Logics of Migration Policy in Poland After the 2013 Act on Foreigners
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Institut d'études politiques de Paris ÉCOLE DOCTORALE DE SCIENCES PO Programme doctoral Science politique, mention Russie et CEI CERI PhD in Political science Joint agreement with the Instytut Filozofii i Socjologii Polskiej Akademii Nauk w Warszawie (IFiS PAN) Serving or controlling? Conflicting logics of migration policy in Poland after the 2013 Act on Foreigners A case study of the Department of Foreigners of the Masovian Voivodeship Office Kaja Skowrońska Thesis co-supervised by Joanna Kurczewska, Profesor zwyczajny at IFiS PAN and Catherine Wihtol de Wenden, Directrice des recherches CNRS at IEP de Paris Defended on December 7th, 2016 Committee: Paul Gradvohl, Maître des conférences, HDR, Université de Lorraine, Directeur du Centre de civilisation française, Uniwersytet Warszawski (reviewer) Joanna Kurczewska, Profesor zwyczajny, IFiS PAN Dariusz Niedźwiedzki, Adiunkt, Doktor habilitowany, Uniwersytet Jagieloński (reviewer) Józef Niżnik, Profesor zwyczajny, IFiS PAN Andrzej Rychard, Profesor zwyczajny, IFiS PAN Catherine Wihtol de Wenden, Directrice de recherche CNRS, CERI I would like to thank, first and foremost, my doctoral supervisors, Professors Joanna Kurczewska and Catherine Wihtol de Wenden, for their guidance, their invaluable advice, their well-chosen comments, as well as the time and patience they have given me. This study would not have been possible without the help and cooperation of the staff of the Department of Foreigners of the Masovian Voivodeship Office. I am deeply thankful to the directors and managers of the Department for allowing me to conduct research in the agency, as well as to the officers who invested time and energy in assisting me, let me accompany them in their work, and provided me with insights into the everyday life in their workplace. I am particularly grateful to all those who accepted to be interviewed and made time for me in their busy schedule. I would also like to thank all the participants outside of the Department who agreed to meet and speak with me. I am also indebted to a number of teachers and colleagues who allowed me to share my work with them and offered constructive feedback. The participants of Professor Kurczewska's doctoral seminar have on more than one occasion provided me with comments that have helped enrich and improve this work. Mikołaj Pawlak's advice has also been extremely helpful, particularly at the stage of preparations for the fieldwork. I would also like to extend my thanks to all those, not named here, who have taken the time to discuss this project with me. Last but not least, I thank my friends and family, and in particular Nicolas and my mother, for their support and their patience. 2 Table of contents Introduction.................................................................................................................................7 Chapter I: Theoretical background and methodological choices..............................................26 Chapter I.1 Organizations and interactions..........................................................................28 I.1.1. The face of the state – approaching migration policy through a study of face to face contact......................................................................................................................28 I.1.1.a. Policy at street level.......................................................................................29 I.1.1.b. Interacting within institutions........................................................................38 I.1.1.c. Interaction and beyond – the limits of a traditional interactionist approach. 42 I.1.2. Situated interactions – field, culture, and power...................................................46 I.1.2.a. An interplay of actors – organizational fields and institutional logics...........47 I.1.2.b. Patterns and performance – culture in organizations.....................................51 I.1.2.c. Interacting across power positions.................................................................55 I.1.3. Emotion as an indicator.........................................................................................60 I.2. Choice of method: looking at an organizational field from the perspective of a case study.....................................................................................................................................65 I.2.1. Micro and mezzo level – a case study of the Department of Foreigners in the context of a larger organizational field............................................................................65 I.2.1.a. The merits and risks of an interactionist case study......................................66 I.2.1.b. From case to field – new institutionalism and the issue of joining different levels of analysis.........................................................................................................68 I.2.1.c. Combining everyday life sociology with public policy analysis – the input of a study of practices for the understanding of state policy...........................................72 I.2.2. Logics in practices: observing the daily functioning of the Department of Foreigners........................................................................................................................74 I.2.2.a. Choosing a case: rationale for the choice of the Masovian Department of Foreigners...................................................................................................................74 I.2.2.b. Choice of time period....................................................................................77 I.2.2.c. Approaching the field – strategies of entry and observation.........................78 I.2.2.c. Accessing practical knowledge through an active learning process – the choice of participant observation as tool....................................................................83 I.2.2.d. Confronting perspectives – interviews as complementary tool.....................87 I.2.3 Ethics and semantics – participant observation and the choice of a perspective...89 I.2.3.a. The limits of participation: self-presentation, consent and boundaries.........90 I.2.3.b. Customers or applicants? Civil servants or employees? - the choice of vocabulary as an ethical and methodological issue....................................................93 Chapter II: The fieldwork in its context....................................................................................97 II.1. Polish state institutions in search of a migration policy – transformations, actors, aims, and instruments...................................................................................................................100 II.1.1.From obligation to anticipation – a brief review of the evolution of Poland's migration policies since 1989........................................................................................100 II.1.1.a. First responses immigration (1989 – 1997)................................................103 II.1.1.b. Poland's migration policy in the EU accession process (1998-2003)........107 II.1.1.c. A slow emergence of a migration doctrine (2003-2014)............................111 II.1.2. Instruments – the current legal context in the light of the 2013 Act on Foreigners .......................................................................................................................................117 3 II.1.2.a. Entry and residence in Poland – regulations and types of permits.............118 II.1.2.b. Access to the labor market.........................................................................122 II.1.2.c. Refugees and asylum seekers.....................................................................125 II.1.2.d. Citizenship, nationality and repatriation....................................................127 II.1.3. Actors and interests............................................................................................129 II.1.3.a State agencies responsible for migration policy..........................................130 II.1.3.b. International organizations and agencies...................................................133 II.1.3.c. Economic actors and market needs............................................................135 II.1.3.d. Civil society's involvement – NGOs and academic circles........................137 II.1.4. Conceptualizations and aims..............................................................................140 II.1.4.a. Poland as Eastern borderland of Europe – the pre-eminence of control....141 II.1.4.b. Poland as a growing capitalist economy – the subordination to market needs ...................................................................................................................................142 II.1.4.c. Poland as an international player – obligations and influence zones.........143 II.1.4.d. Poland as a historical motherland – the case of “Poles in the East”..........144 II.1.4.e. Poland as a land of welcome – human rights and immigrant inclusion.....146 II.2. The Department of Foreigners in the context of Polish public administration – the Civil Service in service of non-nationals?..........................................................................150 II.2.1. Polish public administration after 1989 – conceptions and evolution...............151 II.2.1.a. Creating a class of public servants – career models and political pressures ...................................................................................................................................155