Thesis ETHNIC NATION-STATES AT THE CROSSROADS Institutions, Political Coalitions, and Immigration Policies in Germany and Japan Submitted by Jan Patrick Seidel Graduate School of Public Policy In partial fulfillment of the requirements For the degree Master of Public Policy The University of Tokyo Tokyo, Japan Summer 2015 Advisor: Kentarō Maeda Acknowledgements I would like to thank my advisor Kentarō Maeda for the direction and advice in writing my thesis. I would also like to thank Chisako Kaga, my family and friends in Germany and Japan for the unconditional emotional support. Finally, I would like to thank the University of Tokyo for the financial assistance that made my stay in Japan possible. 誠にありがとうございました！ Table of contents ACKNOWLEDGEMENTS ......................................................................................... II ABBREVIATION INDEX .......................................................................................... 1 ABSTRACT ........................................................................................................... 5 INTRODUCTION .................................................................................................... 5 1. THEORIES OF IMMIGRATION POLICY-MAKING AND THE CASES OF GERMANY AND JAPAN .................................................................................................................12 1.1 Theoretical and methodological considerations .....................................12 1.1.1 Three theory streams of immigration and integration policy-making ..12 1.1.2 Theorizing the interactions between political coalitions and institutions in immigration policy-making .....................................................................17 1.2 Convergence and divergence in Germany and Japan’s immigration and integration policies..........................................................................................21 1.2.1 Late policy divergence ........................................................................21 1.2.1.1 Citizenship laws ...........................................................................21 1.2.1.2 Immigrant incorporation ...............................................................21 1.2.1.3 Asylum policies ............................................................................22 1.2.2 Early policy divergence and late convergence: Labor immigration policies ..........................................................................23 2. GERMANY AT THE CROSS-ROADS: INSTITUTIONAL TRANSFORMATION AND INERTIA OF A RELUCTANT COUNTRY OF IMMIGRATION..........................................26 2.1 Institutional and political antecedents in Germany’s contemporary immigration and integration policies ...............................................................26 2.1.1 Nation-building and pre-war immigration policies ................................26 2.1.1.1 Immigration policies between agrarian interests and nationalism: The institutionalization of the first national recruitment system ................26 2.1.1.2 The assertion of conservative interests during the reform of the Nationality Act ...............................................................................29 2.1.1.3 Immigration policies during the World Wars: Continuity and rupture ..............................................................................30 2.1.2 The guest worker program as a critical antecedent: Germany’s immigration policies from 1945 to 1998 ......................................................33 2.1.2.1 Immigration policies under Allied occupation: Processing the migratory consequences in the aftermath of the war .................................33 2.1.2.2 Executive dominance and the primacy of foreign policy: The initiation of the guest worker program ......................................................34 2.1.2.3 Policy stagnation, party polarization and interest alignment: Germany’s consolidation as a “de facto country of immigration” .............36 2.1.2.4 Germany as a country of asylum? New immigration streams and post-unification immigration policies .......................................................42 2.2 The reform of the Immigration Act 2000/2004: Critical juncture or incremental change? .......................................................................................46 2.2.1 The structure of institutions and political coalitions in immigration policy-making before the reform period .......................................................46 2.2.1.1 Institutions: Administration, legislation and judicial review .........46 2.2.1.2 Party positions ..............................................................................51 2.2.1.3 Societal coalitions and interest groups ..........................................60 2.2.1.3.1 Immigrant associations ...........................................................60 2.2.1.3.2 Employer organizations ..........................................................68 2.2.1.3.3 Churches and welfare organizations ........................................69 2.2.1.3.4 Civil society groups and NGOs ...............................................72 2.2.2 Analyzing the reform period from 1999 to 2004: Elite consensus and regional dissent ............................................................................................73 2.2.2.1 Legislative changes ......................................................................73 2.2.2.2 Political coalitions and institutions of the Citizenship Act and the Immigration Act ...........................................................................78 2.3 Critical antecedents and critical juncture? The aftermath of the Immigration Act ........................................................................................... 101 3. JAPAN’S IMMIGRATION POLICY-MAKING IN A COMPARATIVE PERSPECTIVE ... 105 3.1 Institutional and political antecedents in Japan’s contemporary immigration and integration policies ............................................................. 105 3.1.1 The Japanese nation-state and ethnic nationalism ............................. 105 3.1.2 History of Japan’s immigration policy-making ................................. 106 3.1.2.1 Between emigration and colonialism: Japan’s pre-war migration and citizenship policies ........................................................................... 106 3.1.2.2 Restricting entry and preventing settlement: Japan’s post-war immigration policies until 1990 .............................................................. 109 3.1.3 The history of immigration policy-making of Japan and Germany in comparison ...................................................................... 114 3.2 Immigration reform in Japan: Similarities and differences with Germany ............................................................................. 117 3.2.1 The structure of institutions and political coalitions in immigration policy-making before the reform period ..................................................... 117 3.2.1.1 Institutions: Administration, legislation and judicial review ........ 117 3.2.1.2 Party positions ............................................................................ 121 3.2.1.3 Societal coalitions and interest groups ........................................ 123 3.2.1.3.1 Immigrant associations ......................................................... 123 3.2.1.3.2 Trade unions ......................................................................... 127 3.2.1.3.3 Employer organizations ........................................................ 130 3.2.1.3.4 Civil society groups and NGO .............................................. 132 3.2.2 Analyzing immigration reform and inertia from 1980 to today: Elite dissent and political fragmentation ............................................................ 134 3.2.2.1 The immigration situation in the 1980s and 1990s ...................... 134 3.2.2.2 Immigration reforms from 1982 until today ................................ 135 3.2.2.3 The 1990 immigration reform: Repeating Germany’s mistakes? 141 3.2.2.3.1 Political coalitions in comparison.......................................... 141 3.2.2.3.2 Institutions in comparison ..................................................... 143 3.2.2.4 The immigration reforms during the 2000s ................................. 146 3.2.2.4.1 Political coalitions in comparison.......................................... 146 3.2.2.4.2 Institutions in comparison ..................................................... 150 4. CONCLUSION: INSTITUTIONS AND POLITICAL COALITIONS IN ETHNIC NATION- STATES ............................................................................................................. 155 SOURCES AND REFERENCES ............................................................................... 162 Ethnic nation-states at the crossroads Abbreviation index AA Ministry of Foreign Affairs (Germany) Auswärtiges Amt AfD Alternative for Germany Alternative für Deutschland AFG Work Promotion Law Arbeitsförderungsgesetz APVO 1938 Foreigner Police Regulation Ausländerpolizeiverordnung AsylVFG 1982 Asylum Process Law Asylverfahrengesetz AuslG 1965 Alien Act (Germany) AWO Workers’ Welfare (Germany) Arbeiterwohlfahrt BA Employment Agency Arbeitsamt BAA Federal Agency for Employment Services and Unemployment Insurance/ Federal Agency for Employment Bundesanstalt für Arbeitsvermittlung und Arbeitslosenversicherung/ Bundesagentur für Arbeit BAMF Federal Agency for Migration and Refugees Bundesamt