Diversity and the minority nation: A case study of Catalonia’s “National Agreement on Immigration” by Alexander Gunn B.A. (Hons), University of Winnipeg, 2008 M.A., University of Victoria, 2010 A Dissertation Submitted in Partial Fulfillment of the Requirements for the Degree of DOCTOR OF PHILOSOPHY in the Department of Political Science Alexander Gunn, 2016 University of Victoria All rights reserved. This dissertation may not be reproduced in whole or in part, by photocopy or other means, without the permission of the author. ii Diversity and the minority nation: A case study of Catalonia’s “National Agreement on Immigration” by Alexander Gunn B.A. (Hons), University of Winnipeg, 2008 M.A., University of Victoria, 2010 Supervisory Committee Oliver Schmidtke (Department of Political Science) Supervisor Avigail Eisenberg (Department of Political Science) Departmental Member Jeremy Webber (Faculty of Law) Outside Member iii Abstract This dissertation explores the relationship between immigration, diversity and minority nationalism. Through a study of Catalonia and its relationship with the Spanish state, the dissertation assesses how immigration and the growing social diversity that accompanies it, can challenge, undermine, or reinforce the political claims and objectives of minority nationalists, in particular, their goal of promoting a distinct and self-determining national community. It focuses on an effort by Catalan political and civil society leaders to construct a “national consensus” on immigration, the 2008 National Agreement on Immigration, which provided a 20-year plan for adapting Catalan government services and Catalan society to the pressures and demands of its increasingly diverse population, while at the same time providing mechanisms for the integration of newcomers into the Catalan language and national community. The analysis centres on the text of the National Agreement on Immigration as well as recent Catalan immigration plans and policy documents, in addition to the broader debate surrounding the National Agreement among Catalonia’s major political parties. The dissertation reveals that the National Agreement on Immigration represented both a significant re-framing of Catalan national identity and an attempt to expand the power and autonomy of the Catalan government by the various signatories to the accord. It concludes that the National Agreement represented an important component of a pivotal era in Catalan politics, one that has the potential to radically redefine the region’s relationship with both Spain and Europe, and in which questions surrounding immigration and diversity are increasingly intersecting with broader debates surrounding economic instability and the prospect of Catalan independence. iv Table of Contents Abstract .................................................................................................................................... iii Table of Contents ...................................................................................................................... iv List of Abbreviations................................................................................................................. vi List of Figures .......................................................................................................................... vii Acknowledgments ................................................................................................................... viii Introduction ................................................................................................................................1 Studying the National Agreement and major research questions ..........................................5 Catalonia as an example of an immigrant-receiving minority nation ....................................7 Research approach ............................................................................................................. 12 Selection of material, NVivo coding, language and translation .......................................... 15 Structure of the dissertation ............................................................................................... 18 Chapter One – Immigration and minority nationalism: Concepts and challenges ....................... 22 Nations, minority nations and multinational states ............................................................. 23 Relationship between minority nationalism and immigration ............................................. 31 Growing role of minority nations and regions in immigration matters ................................ 40 Immigration as a point of politicization in minority national contexts ................................ 43 Conclusion ........................................................................................................................ 46 Chapter Two – Catalonia’s national self-determination struggle within Spain and Europe ......... 49 The Spanish multinational context and history of Catalan nationalism ............................... 50 The 1978 Constitution: Spain’s ambiguous multinationalism ............................................. 52 Catalan self-government within the State of Autonomies ................................................... 59 Catalan nationalist demands and the Spanish reaction ........................................................ 60 European integration: Opportunities and challenges for Catalan nationalism ..................... 62 Conclusion ........................................................................................................................ 68 Chapter Three – Immigration, nationalism and self-government in Catalonia ............................ 73 Immigration in Catalonia: A multi-level system ................................................................. 74 Catalonia’s history as an immigrant-receiving region of Spain ........................................... 78 1980s to the early-1990s: “Internal immigration” from the rest of Spain ............................ 79 1990s to late-2000s: “External immigration” from the EU and Global South ..................... 82 Conclusion ........................................................................................................................ 88 Chapter Four – Frame analysis of the National Agreement on Immigration ............................... 91 Diagnosis and Consultation Phases .................................................................................... 92 v Foundation Document of the National Agreement on Immigration .................................... 94 Participatory Phase ............................................................................................................ 95 Final Negotiation Phase ..................................................................................................... 96 An Agreement to Live Together: National Agreement on Immigration ............................... 96 Framing the National Agreement on Immigration and its goals .......................................... 99 Framing of “immigration” ............................................................................................... 104 Framing of “identity”, “cultural diversity”, and “common public culture” ....................... 109 Framing of “integration”.................................................................................................. 111 Framing of the different levels of government (Catalonia, Spain and Europe) .................. 119 Vision and plans for the future ......................................................................................... 121 Conclusion ...................................................................................................................... 122 Chapter Five – Fulfilling the National Agreement and adapting it to a changed environment .. 128 Citizenship and Immigration Plan 2009-2012 .................................................................. 129 2012 Monitoring Commission Review ............................................................................ 131 Citizenship and Migration Plan: Horizon 2016 ............................................................... 134 Framing the National Agreement on Immigration and its goals ........................................ 137 Framing of “immigration” and the new phenomenon of “emigration” .............................. 140 Framing of “identity”, “cultural diversity”, and “common public culture” ....................... 152 Framing of “integration”.................................................................................................. 156 Framing of the different levels of government (Catalonia, Spain and Europe) .................. 160 Conclusion ...................................................................................................................... 163 Chapter Six – Political discourse regarding the National Agreement on Immigration .............. 169 Overview of the Catalan party system.............................................................................. 171 The Catalan party system and the politics of immigration and integration ........................ 185 Initial proposals for a National Agreement on Immigration.............................................. 186 Negotiations surrounding the National Agreement ........................................................... 191 Signing of the National Agreement on Immigration ......................................................... 198 Conclusion