MANAGING DIVERSITY GOVERNANCE SERIES overnance is the process of eff ective coordination Gwhereby an organization or a system guides itself when resources, power, and information are widely distributed. Studying governance means probing the patt ern of rights and obligations that underpins organizations and social systems; understanding how they coordinate their parallel activities and maintain their coherence; exploring the sources of dysfunction; and suggesting ways to redesign organizations whose governance is in need of repair. The Series welcomes a range of contributions—from conceptual and theoretical refl ections, ethnographic and case studies, and proceedings of conferences and symposia, to works of a very practical nature—that deal with problems or issues on the governance front. The Series publishes works both in French and in English. The Governance Series is part of the publications division of the Program on Governance and Public Management at the School of Political Studies. Nine volumes have previously been published within this series. The Program on Governance and Public Management also publishes electronic journals: the quarterly www.optimumonline.ca and the biannual www.revuegouvernance.ca Editorial Committ ee Caroline Andrew Linda Cardinal Monica Gatt inger Luc Juillet Daniel Lane Gilles Paquet (Director) MANAGING DIVERSITY Practices of Citizenship Edited by Nicholas Brown and Linda Cardinal The University of Ottawa Press Ottawa © University of Ott awa Press 2007 All rights reserved. No parts of this publication may be reproduced, stored in a retrieval system or transmitt ed in any form or by any means, electronic or mechanical, including photocopy, recording, or otherwise, without permission in writing from the publisher. NATIONAL LIBRARY OF CANADA CATALOGUING IN PUBLICATION Managing diversity : practices of citizenship / edited by Linda Cardinal and Nicholas Brown. Papers presented at a symposium held at University College Dublin, Apr. 2004. Includes bibliographical references and index. ISBN 978-0-7766-0654-5 1. Multiculturalism--Canada--Congresses. 2. Multiculturalism-- Australia--Congresses. 3. Multiculturalism--Ireland--Congresses. I. Cardinal, Linda, 1959- II. Brown, Nicholas, 1961- III. Title. JF801.M336 2007 305.8 C2007-903174-9 Published by the University of Ott awa Press, 2007 542 King Edward Avenue Ott awa, Ontario K1N 6N5 www.uopress.uott awa.ca The University of Ott awa Press acknowledges with gratitude the support extended to its publishing list by Heritage Canada through its Book Publishing Industry Development Program, by the Canada Council for the Arts, by the Canadian Federation for the Humanities and Social Sciences through its Aid to Scholarly Publications Program, by the Social Sciences and Humanities Research Council, and by the University of Ott awa. We also gratefully acknowledge the Center on Governance and the Faculty of Social Sciences at the University of Ott awa whose fi nancial support has contributed to the publication of this book. TABLE OF CONTENTS Introduction Nicholas Brown and Linda Cardinal ..................................................... 1 Chapter 1: National Identity and Global Migration: Listening to the “Pariahs” Alastair Davidson ................................................................................ 17 Chapter 2: Citizenship, Statehood, and Allegiance Helen Irving ......................................................................................... 37 Chapter 3: Bounded Citizenship and the Meaning of Citizenship Laws: Ireland’s Citizenship Referendum Iseult Honohan ..................................................................................... 69 Chapter 4: Federalism and the Politics of Diversity: The Canadian Experience Alain-G. Gagnon and Raff aele Iacovino .............................................. 95 Chapter 5: City States and Cityscapes in Canada: The Politics and Culture of Canadian Urban Diversity Caroline Andrew ................................................................................ 115 Chapter 6: Mediating Diversity: Identity, Language, and Protest in Ireland, Scotland, and Wales Niamh Hourigan ................................................................................ 137 Chapter 7: Howard’s Way or Deane’s Way: Culture Wars in Contemporary Australia David Headon .................................................................................... 165 Chapter 8: Conclusion: Managing Diversity in a Post-Nationalist World Paul Gillespie ..................................................................................... 185 List of Contributors ............................................................................. 209 Index .......................................................................................................213 INTRODUCTION Nicholas Brown and Linda Cardinal In 1996 Seyla Benhabib introduced a collection of essays on the theme of “democracy and diff erence” with the following proposition (Benhabib 1996, 4–5): the institutions and culture of liberal democracies are suffi ciently complex, supple and decentred so as to allow the expression of diff erence without fracturing the identity of the body politic or subverting existing forms of political sovereignty. Benhabib was writing in the context of a “post-Communist world,” with reference to debates characterizing the broadly conceived, seemingly suffi ciently unifi ed and substantially uncontested model of “western democracies.” Within a few years, however, the forces of globalization were creating a diff erent world, one in which the unprecedented mobility of people, trade, and money was fostering what Benhabib in 2003 termed a “disaggregated” citizenship. The European Union (EU), in this context, provided the most germane model for adjudicating the alternative prospects of “permanent alienage” or “cosmopolitan citizenship” within a bloc of simplifi ed currency, migration, and trade relations. Through such a model new forms of citizenship were in sight, encompassing “multiple allegiances across nation-state borders.” Yet how might such an outcome be guaranteed, now that we are so concerned with securing those same borders? What would it mean in practice? This collection of essays is placed exactly on the unfolding and unsteady trajectory of this synthesis of citizenship, the nation state, 1 2 Nicholas Brown and Linda Cardinal and economic and political change. As suggested by Helen Irving in this book, debates on citizenship abound, yet these debates are so important to our understanding of the body politic and its capacity to manage diversity that there is always room for renewed discussions on issues of belonging, rights, and self-government. It might even be subversive to talk about citizenship coming from societies that are so caught up with consumerism, individualism. While we might praise the liberal democratic project in its current European forms, it is crucial, as Pocock argues in his most recent collection of essays (2005), that European models do not lose a sense of continuity with the past. In contrast to the cosmopolitan ideal, he advocates the need to maintain autonomous political structures in order to bett er equip individuals and societies with the tools that are necessary for addressing diversity. PRACTICES OF CITIZENSHIP All the contributors to this book seek to address this ongoing tension between autonomy and plurality, as well as the national and the postnational, in discussing pressing issues of diversity as they are defi ned and managed by governmental and non-governmental actors in contemporary multicultural, multiethnic, and multinational societies. They tackle these questions from the perspective of three specifi c societies rather than by reference to general models or projects—three societies that have distinct points of purchase on questions of political possibility and innovation. Australia, Canada, and the Republic of Ireland are each in distinct ways exposed to the dynamics associated with the politics of diff erence and the forces of globalization. Each country has its own particular matrix of elements representing such change: migration, social diversity, customary patt erns of policy and political legitimacy, varying geopolitical and geo-economic possibilities. Each society, then, brings its own opportunities, vulnerabilities, and resistances to meet these challenges. All three, through their similarities and diff erences, suggest matt ers worthy of consideration when considering the processes of adaptation to the “democratic moment” of the late 1980s, the evolution of regionalized supranational communities (Europe, the Asia-Pacifi c, North America) and agreements through the 1990s, and the testing of models of “liberal democracy” more generally. If there is the possibility of choosing between the divergent paths of “alienage” or “cosmopolitanism,” how is that choice being signalled Introduction 3 and debated in these societies, each generating demands for the recognition and accommodation of ethnic, cultural, and religious diversity, and facing injunctions to forgo accustomed national borders in the name of economic integration and cultural openness? These issues set the themes for a symposium on practices of citizenship and the management of diversity held at University College Dublin in April 2004. All the speakers were directed to consider such issues with reference to questions of applied policy. This book consists of eight essays arising from that symposium, dealing with topics ranging from minority language policy,