Urban Citizenship Between Participation and Securitization – the Case of the Multiethnic French Banlieue

Regimes of Hospitality Linköping University No. 650 REGIMES OF HOSPITALITY Urban Citizenship between Participation and Securitization – the Case of the Multiethnic French Banlieue Christophe Foultier Department of Social- and Welfare studies Linköping University, Sweden Linköping À Claude, Dominique, Sophie, À Stanley, Sandy et Nedzad, À Rafael, Salomé et Petronella, Pour faire de l’hospitalité un art de vivre. Regimes of Hospitality © Christophe Foultier, 2015 Cover: Per Lagman Design: Richard Lindmark Printed in Sweden by LiU-Tryck, Linköping, Sweden, 2015 ISBN 978-91-7519-027-3 ISSN 0282-9800 ABSTRACT This thesis analyzes various local development policies in Europe’s big urban areas. Striving to understand the respective places accorded to the measures to increase the participation of the inhabitants on the one hand, and to improve for security and public peace in the context of social and territorial policies on the other, I examine how urban policies define models of urban citizenship. The empirical work concerns two sites in the greater metropolitan area of Paris, Le Franc-Moisin– Bel-Air in Saint-Denis and Les Cinq Quartiers in Les Mureaux. It consists of an analysis of public documents as well as a series of interviews and observations. This methodological approach serves to gain an understanding of how participative and security procedures emerge in the history of French urban policy and how these norms interact locally. By investigating the overlap of security politics and participatory devices, I demonstrate that deprived areas do not have access to an adequate form of intervention to meet the expectations and needs of its inhabitants, who are squeezed between a logic of development reluctantly accepted by, but rarely negotiated with its inhabitants, and a logic of security that often leads to the confinement of residents to their respective areas. The thesis thus demonstrates how institutional interventions in multiethnic areas can fuel feelings of suspicion between local stakeholders and civic distrust. Indeed, the participatory procedures that are developed in urban strategies influence the conduct of participants on matters of identity and belonging and can intensify socio-ethnic stigmatization. This effect provides me with a critical standpoint on new techniques of government. The local partners of the state develop daily routines in urban strategies that contribute to articulating participatory devices and security procedures. I claim that the results from this process are “regimes of hospitality”. CONTENTS 11 PREFACE 15 INTRODUCTION 17 A QUESTION AND ITS ORIGINS 22 A STUDY OF GOVERNMENTALITY 27 ORGANIZATION OF THE THESIS 31 1. THEORY, SURVEY OF THE FIELD AND METHODOLOGY 33 InsECURITY AS A COUNTERPOINT TO URBAN DEVELOPMENT 39 CITIES, paRTICIpaTION AND SECURITY: A CRITICAL READING 47 ImplICATIONS AND POSITION 48 Techniques of participation and practices of rejection 51 Strategies of securitization and the rescaling of territories 55 Reversibility of participative and security norms: a system of hospitality 58 METHODOLOGY: DISCOURSE, RULE, AND INTERACTION 59 Participation and security: a historical perspective 61 Multiple sites: testing regimes of hospitality 62 Material and mode of analysis: the “local” dimension in focus 65 Interviews and observations 73 2. FORMALIZING REGIMES OF HOSPITALITY 76 CONTRACTUALIZING THE TERRITORIES 77 The “social development of districts” (DSQ) 82 The institutionalization of urban policy 85 The contractual system as a preventive approach to social and ethnical polarization 96 The participation of residents in a procedural framework: a national speech without clear political objectives 101 LA LOI BORLOO: URBAN STRATEGY FOR AN INCLUSIVE SOCIETY 103 A curative treatment meant to reassert equality of opportunity and fight the effects of ethnic concentrations 104 The prevention of juvenile delinquency in urban conception 107 From participation to accountability 109 A “FreNCh” eMPOWERMENT 111 CONCLUDING REMARKS 115 3. SAINT-DENIS AND THE CONTRACTUAL STRATEGY 117 DISAFFILIATIONS IN AN INDUSTRIAL CITY: THE CASE OF LE FRANC-MOISIN–BEL-AIR 117 The stumbling block of the social project in the housing estate 121 The birth of a multiethnic district in a context of socio-political disaffiliation 123 THE SCENARIO OF SOCIAL INSECURITY AND URBAN FRAGMENTATION Coupling social insecurity to civil insecurity 125 Urban fragmentation in the metropolitan area and relegation in certain 129 segments of housing 133 A STRATEGY OF REORGANIZING PUBLIC spacE 134 Contractualizing objectives from the district to the metropolitan area 137 Urban renewal in Le Franc-Moisin–Bel-Air: a 30-year history 140 The foundation of the district project on resident participation 141 The predominant role of local institutions 143 A rich but fragile associative fabric 146 Figures of activism in Le Franc-Moisin–Bel-Air 153 CONCLUDING REMARKS 157 4. LES MUREAUX AND THE PROJECT STRATEGY 159 LES CINQ QUARTIERS AND THE URBAN DEVELOPMENT OF THE OUTER RING OF PARISIAN SUBURBS 160 From massive recruitment to the segregation of immigrants 163 The multiplication of areas of conflict in a context of deindustrialization 170 FROM URBAN SEGREGATION TO sOCIO-spaTIAL DISCRIMINATION: THE POVERTY POCKET SCENARIO 172 Discrimination effects in Les Cinq Quartiers and their relationship to national norms 175 A socio-spatial reading: Les Cinq Quartiers as “forced” enclaves 178 URBAN RENOVATION PROJECT: REUNITE A CITY facED WITH sOCIO-spaTIAL SPECIALIZATION 179 A strategy of diversity to fight against ghetto effects 182 From project conception to management: the participation as the hidden side of the project development 183 Residents remote from the decision-making process 186 A method of activation based on individualizing procedures 189 Figures of activism in Les Cinq Quartiers 201 CONCLUDING REMARKS 203 5. THE REVERSIBILITY OF paRTICipaTIVE AND SECURITY NORMS 204 LES MUREAUX AND THE PITfalls OF INDIVIDUAL ENGAGEMENT 205 Equal treatment in question in the project’s dynamics 208 From project coherence to the fragility of partnerships on the ground 210 From the appropriate use of rules to continued stigma 215 Political legitimacy versus socio-cultural dynamics: a subtle game of appropriation and dispossession 218 SAINT-DENIS AND THE LIMITS OF LOCAL COMMUNITY AFFILIATION 219 Social forces distorted by the effects of representation 222 Reappropriating public space 225 Violence in the democratic arena: a sovereign visibility of the police 229 Crisis of representation and lack of reflexivity 231 CONCLUDING REMARKS 235 6. URBAN CITIZENSHIP, BETWEEN DIALOGUE AND MILITARIZATION 237 MODELS OF paRTICIpaTION IN MULTIETHNIC DISTRICTS: BETWEEN cIVILITY AND AFFILIATION 238 In Les Mureaux, an ordinary civility in a normalized district 241 A system of territorial affiliation in Saint-Denis 243 EXPENDING SECURITY IN URBAN STRATEGIES: BETWEEN DISSUASION anD RECONQUEST 244 In Les Mureaux, local stakeholders and resident-relays engaged in the management of a dissuasive urban model 251 In Saint-Denis, the reappropriation of public spaces: control and repression 256 CONCLUDING REMARKS 259 7. ON THE USEFULNESS OF REGIMES OF HOSPITALITY 261 URBAN CITIZENSHIP IN A GOVERNMENTAL PERSPECTIVE 264 WIDENING THE GAP BETWEEN LOCAL DEVELOPMENT STRATEGIES 266 DEVELOPING THE CONCEPT OF REGIMES OF HOSPITALITY 269 EXTENSION AND REVERSIBILITY OF NORMS IN URBAN STRATEGIES 270 FINDING LEGITIMACY OF ACTION IN MORE REFLECTIVE ORGANIZATIONS 275 BIBLIOGRAPHY 287 APPENDICES 287 APPENDIX 1. LIST OF INTERVIEWED PERSONS 289 APPENDIX 2. SEQUENCES OF OBSERVATION 290 APPENDIX 3. COVENTRY NEW DEAL FOR COMMUNITY 293 ILLUSTRATIONS 295 LIST OF ACRONYMS 297 SOMMAIRE EN FRANÇAIS PREFACE Social science research traditionally begins with an analysis of its own stance. As Bourdieu once said, “to understand is first to understand the field with which and against which one has been formed” (Bourdieu 2004: 15). For ten years, I was positioned at the meeting point of academic research and operational studies in France. More precisely, I carried out studies and national evaluations of programs of action in the fields of urban politics and housing, as well as of social policy in a broad sense.1 Since my departure to Sweden my trajectory has changed consid- erably, as have my perception and the way I work. As a migrant, I learned to speak two more languages and discovered new cultural trends that led me to reconsider my own stance. Two years after my departure from France, I had the opportunity to get into the PhD program at REMESO, the Institute for Research on Migration, Ethni city and Society, Linköping University. This new position was 1. I had the opportunity of undertaking team research work, analyzing such notions as “informal practices in the vicinity of the Stade de France,” “makeshift housing in the Seine-Maritime,” “residential paths in substandard housing”. In organizations as different as the RATP or FORS-Recherche sociale, this position allowed me to observe, describe, and interpret socio-spatial processes in response to ever changing public commissions: effecting social diagnoses of neighborhoods, studies of the functioning of segments of housing developed for low-income households in the framework of housing policies, local development projects. The players, the orientations, the financing, and the methods varied all the more with regard to already “constructed” publics: Roma adopting sedentary lifestyles, migrants in substandard housing or in housing made to accommodate migrant workers,

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