| Third International Metropolis Conference Paper
presented to the Third International Metropolis Conference
Israel, November 29 - December 3, 1998
Zurich: Political participation and exclusion of
immigrants in a direct democracy
By
Hans Mahnig and Andreas Wimmer
Swiss Forum for Migration Studies (SFM)
Rue des Terreaux 1
CH-2000 Neuchâtel
Switzerland
Neuchâtel, November 1998
BASIC DATA
1.1 Size
The city of Zurich is a municipality of 92 km2 and as such the largest
of the 261 communes of the canton of Zurich (1728 km2) 1 .
The city is divided in 12 boroughs (Kreise) with a surface ranging from 1,8
km2 (Kreis 1) to 15 km2 (Kreis 7) and 34 neighbourhoods (Quartiere).
In 1997, 335.943 persons were living in Zurich.
Table I-I : Surface and population of
the city of Zurich and its boroughs (1996)
| |
Surface
(km2) |
Population |
Total of
the city |
91,94 |
335.943
|
Kreis 1 |
1,83 |
5.856 |
Kreis 2 |
11,1 |
28.552 |
Kreis 3 |
8,7 |
46.095 |
Kreis 4 |
2,8 |
27.634 |
Kreis 5 |
2,1 |
11.341 |
Kreis 6 |
5,1 |
30.428 |
Kreis 7 |
15 |
33.876 |
Kreis 8 |
4,8 |
15.692 |
Kreis 9 |
12,1 |
44.365 |
Kreis 10 |
9,1 |
35.735 |
Kreis 11 |
13,4 |
52.559 |
Kreis 12 |
6 |
27.515
|
Source: (Statistisches Amt 1997, 63, 110)
The whole metropolitan area of Zurich is far
larger than the municipality alone and stretches over the limits of the canton. In 1996
the agglomeration of Zurich defined as an area consisting of 100 municipalities 84
from the canton of Zurich, 15 from the canton of Aargau and one from the canton of Schwyz
included 948.537 persons (Statistisches Amt 1997, 349). Certain authors even start
from the assumption that the metropolitan area of Zurich consists of 1,5 million habitants
(Hitz, Schmid, Wolff 1995, 225).
1.2 Relative significance of the city in region and country:
Although small from an international comparative perspective, Zurich is
the largest town of Switzerland and the centre of its economically most important region.
In spite of this, Zurich is by reasons of the country's political culture
Switzerland is a federalist State with a strong opposition to centralism not the
political capital 2.
Table I-II: The city of Zurich
compared to other Swiss cities (1990)
| |
Population |
Zurich |
365.043 |
Basel |
178.428 |
Geneva |
171.042 |
Lausanne |
136.338 |
Bern |
128.112 |
Source: (Taschenstatistik 1997)
Once the seat of machine and textile industry,
Zurich's economy is today largely dominated by tertiary sector activities. From 1965 to
1991 the part of working places in the secondary sector of the economy of the city felt
from 43,0% to 18,5%, the part of the working places in the financial sector increased from
9,6% to 26,1% (Hitz, Schmid, Wolff 1995, 220). Main activities are banking, consulting and
insurance, communication, informatics and research, but also wholesale trade and
real-estate business. Zurich is the most important centre for producer services in
Switzerland (BFS 1997b, 163).
In 1995 the metropolitan area of Zurich (here defined in the limits of
the canton) contributed for more than a fifth to the national income of Switzerland (BFS
1997a, 180). Its importance as financial centre is stressed by the fact that in 1990 30%
of the 500 biggest Swiss companies had their head office in Zurich as well as three of the
four biggest Swiss banks and four of the six largest insurance-firms. 59% of all foreign
banks were located in Zurich. That is why certain authors consider that Zurich has the
characteristics of a "global city" (Hitz, Schmid, Wolff 1995, 219-220).
1.3 Cycles of migration for the country
For a long time Switzerland was an emigration country: certain authors
estimate that between the end of the 15th and the end of the 18th
century about one million of Swiss left the country. In the same time however different
waves of migrants arrived in Switzerland: the most important groups were the protestant
refugees from France, Southern Germany, Italy and the Netherlands, who looked for shelter
in the cantons with a protestant majority. The largest wave consisted of the French
Huguenots: about 140.000 of them arrived after the Edit de Nantes in 1685
(Vuilleumier 1987, 12-14).
The political changes in Europe during the 19th century
resulted in new migration flows to Switzerland: between 1815 and 1848 members of the royal
family and former conventionels came from France, patriots opposing Austrian
domination and former civil servants of Napoleon's government arrived from Italy, liberal
professors and students immigrated from Germany. To this political immigration has to be
added a first wave of economic migration of German craftsmen which took place in the first
half of the 19th century. However, compared to the emigration flows during this
time, immigration was still of minor importance (Vuilleumier 1987, 16-19).
The transformation of Switzerland from an emigration to an immigration
country took place in the last decades of the 19th century. In 1848 the new
constitution, victory of the liberal movement against the Conservatives, founded the Swiss
federalist State. Switzerland became a liberal island on the European continent and
attracted new political refugees. But it was after all the economic take off of
Switzerland during the second part of the 19th century which led to an
important immigration: the part of the foreigners on the total population increased from
3% in 1850 to 14,7% in 1910. In 1890 the migration balance turned: immigration was from
now on more important than emigration. At the eve of World War I about 600.000 foreigners
were living in the country, which is 15,4% of the total population. Switzerland was at
this time, with the exception of Luxembourg, the European country with the highest
percentage of foreigners (Schlaepfer 1969, 13, 17, 82).
At this time, the large majority of foreigners came from the
neighbouring countries of Switzerland, in 1910 for example 95,6% of them: 39,8% of the
foreign population were Germans, 36,7% Italians, 11,5% French and 7,1% Austrians. The
majority of the immigrants were living in the big cities and the industrial centres (in
1910 82% of them), but also in the frontier areas (Schlaepfer 1969, 13, 17).
During the First and the Second World War the foreign population in
Switzerland significantly decreased: in 1920 their part on the total population has fallen
to 10,4%, and in 1941 to 5,2%.
Shortly after World War II, the second migration cycle began. Because
Switzerland's production equipment had not suffered any damages during the war, the
country profited very rapidly from the economic demands of its neighbouring countries.
This important demand led to a rapid growth of the economy and soon Switzerland lacked
manpower. Already in 1948, the first recruitment treaty was signed with Italy. Since the
1950s, there was a steady and massive flow of foreign workers to Switzerland: their number
increased from 285,000 in 1950 (6,1% of the total population) to 495,000 (10,8%) in 1960
and to 983,000 (17,2%) in 1970. From predominantly Italian, their composition became more
diverse until 1970: a bit more than the half of them were still Italians, the other
neighbouring countries Germany, France and Austria represented about one fifth; Spaniards
were at 10% and Yugoslavs, Portuguese and Turks together at around 4%.
The international economic crisis of 1973/74 had an important impact on
the number of immigrants living in Switzerland. Between 1974 and 1977 the Swiss economy
lost 10% of its jobs. According to the statistics of the Federal Administration, this loss
primarily concerned foreign workers: 228.000 from 340.000 dismissed persons, that is 67%,
were foreigners. One estimates that about 35% of the unemployed foreign workers went back
to their country of origin between 1974 and 1976 (Haug 1980, 7-8). This had an important
impact on the total percentage of the foreign population: from 17,2% in 1970 it felt to
14,8% in 1980
Thus, Switzerland succeeded through its regulation system to make use
of foreign labour as an "economic buffer". It seems that this is one of the most
important reasons for its low unemployment rate during the 1970s and 1980s (Schmidt 1982,
255).
After the years of the crisis, the Swiss economy recovered and during
the 1980s a renewed demand for foreign labour appeared which made the number of foreigners
rise steadily. Their part in the total population increased from 14,8% in 1980 to 16,4% in
1990 and 19% in 1997. During the 1990s a large part of the increase must however be
explained by family reunification.
It is also during the 1980s that the immigration of asylum seekers
as everywhere in Western Europe became more and more important: from 9700 in
1985 their number rose to 16.700 in 1988 and 41.600 in 1991. After this highpoint the
numbers felt to around 20.000 a year during the first half of the 1990s. In 1997 there has
been a renewed increase of asylum-seekers: compared to 1996 their number rose for about
one third, from 18.001 to 23.982 and it seems probable that in 1998 the record of 1991
(41.000) will be broken.
The diversification of the countries of origin from labour-migrants
former Yugoslavia, Portugal and Turkey got increasingly important during the 1980s
as well as from asylum-seekers who come mainly from Sri Lanka, former
Yugoslavia and Turkey - led in the last years to an increasing heterogeneity of the
cultural background of migrants.
However, in 1997 the most important foreign groups were still the
Italians (25,8%), followed by the people from former Yugoslavia (23,2%), the Portuguese
(10,2%) and the Spaniards (7,1%). So the "traditional recruitment countries" are
still the most important countries of origin of migrants in Switzerland.
As a conclusion one can say that at present, the proportion of foreign
born in Switzerland is about one fifth of the overall resident population; a figure twice
as high as that of the USA, and considerably higher than the one of Canada, two classical
countries of immigration. Taking members of the first and second generation together,
approximately one third of the Swiss population has an immigration background.
1.4 Cycles of migration for the city
Immigration to Zurich has also a long history and reflects more or less
the migration pattern on the national level. The first waves at the end of the 19th
and the beginning of the 20th century were also mainly of French, Italian and
German origin. The big part of the immigrants were workers employed in construction and
textile manufactories. In 1900 the part of the foreigners on the total population of
Zurich was 28.8%; it increased to a highpoint of 33.4% in 1910 (see Table I-X). The most
of the Italians lived in this time in Aussersihl, a neighbourhood which, in 1896,
became the place of a violent outburst of anger and xenophobic resentments of the
autochthonous against them, the so called "Italian riots" (Italienerkrawalle)
(Looser 1986).
As on the national level the number of migrants decreased rapidly
during World War I and World War II. Many of the migrants returned to their countries of
origin and their part on the total population felt to 21.2% in 1920, 17.1% in 1930 and
8.5% in 1940. The lowest number and also the lowest percentage of foreigners in Zurich
during this century were registered in 1945: 24.306 or 6.8%. However not all of the
migrants left the country during this period: some of them had acquired Swiss citizenship
and remained. These first generations of immigrants have today completely assimilated and
are no longer distinguishable as immigrant communities.
The next cycle of immigration in Zurich followed also closely the
pattern on the national level. After the already mentioned minimum in 1945, the numbers of
migrants rose steadily until 1960, between 1950 and 1960 even in a very rapid way. The
large part of them came from Italy and Spain and responded to the demand for unqualified
workers in the sector of construction and in restaurants and hotels.
Between 1960 and 1985 the increase of the number of migrants slowed
down and was between 1975 and 1980 even negative, reflecting once again the logic of the
developments on the national level.
Since the beginning of the 1980s there is a new increase of the number
of migrants from 67.000 in 1980 to 101.000 in 1995 and in the same time their part on the
total population grew from 18.1% to 28.1%. However, the mounting part of foreigners on the
total population of Zurich since World War II, can only partly be explained by the
increase of their number, which rose between 1950 and 1995 by 69.766 persons. Another
important reason is the out-migration of Swiss population from the city to the suburbs
which results in a decrease of their number by 98.513 persons in the same period. The
reason that since 1980 the percentage of foreigners is increasing faster in Zurich than on
the national level (which is also true for other Swiss cities) is thus the social
polarisation between the big urban centres and the rest of the country (Leitbild 1998b,
51, 65).
Table I-III: Stock of foreign residents in Zurich (1900 - 1995)
| |
Foreigners |
Swiss
Population |
Total
Population |
% foreign
population |
1900 |
43.457 |
107.090 |
150.547 |
28.87% |
1905 |
51.700 |
116.800 |
168.500 |
30.68% |
1910 |
63.622 |
126.470 |
190.092 |
33.47% |
1915 |
58.569 |
141.662 |
200.231 |
29.25% |
1920 |
44.996 |
161.303 |
206.299 |
21.28% |
1925 |
37.882 |
172.892 |
210.774 |
17.97% |
1930 |
43.809 |
211.185 |
254.994 |
17.18% |
1935 |
35.310 |
281.847 |
317.157 |
11.13% |
1940 |
28.609 |
305.417 |
334.026 |
8.56% |
1945 |
24.309 |
333.075 |
357.381 |
6.80% |
1950 |
31.699 |
357.874 |
389.573 |
8.14% |
1955 |
36.659 |
380.692 |
417.351 |
8.78% |
1960 |
52.791 |
384.482 |
437.273 |
12.07% |
1965 |
67.242 |
366.623 |
433.865 |
15.50% |
1970 |
69.944 |
348.028 |
417.972 |
16.73% |
1975 |
70.542 |
319.071 |
389.613 |
18.11% |
1980 |
66.956 |
303.662 |
370.618 |
18.07% |
1985 |
72.712 |
286.372 |
359.084 |
20.25% |
1990 |
84.773 |
271.579 |
356.352 |
23.79% |
1995 |
101.465 |
259.361 |
360.826 |
28.12% |
Source: (Leibild 1998b, 57)
1.5 Composition of immigrant / ethnic minority populations in
Zürich
The Swiss statistics on the national level only
distinguish foreigners and nationals. The same is true for the city of Zurich. There is no
registration of ethnic origin as for example in the Netherlands and in the UK which would
permit the measuring of the number of ethnic minorities 3.
However, because the law on citizenship (see 2.3) is very restrictive compared to other
European countries (in some respect it is even more restrictive than the nationality law
in Germany) looking the number of foreigners gives quite a good picture of the amount of
migrants living in the city.
Table I-IV: Composition of foreign residents in Zurich by country of
origin and percentage of the total foreign population (1996)
|
Number |
% of total foreign population |
Italy |
19.413 |
19,0 |
Republic of Yugoslavia* |
16.172 |
15,8 |
Germany |
9.806 |
9,6 |
Spain |
8.026 |
7,9 |
Portugal |
6.048 |
5,9 |
Turkey |
5.825 |
5,7 |
Sri Lanka |
3.905 |
3,8 |
Croatia |
3.528 |
3,5 |
Austria |
2.883 |
2,8 |
| Macedonia |
2.702 |
2,6 |
Bosnia |
2.148 |
2,1 |
Greece |
1.844 |
1,8 |
UK |
1.222 |
1,2 |
USA |
1.117 |
1,1 |
Total of foreigners |
102.048 |
100 |
Source: (Statistisches Amt 1997, 70)
*Serbia and Montenegro
In 1996, from the 102.048 foreigners living in Zurich, 85.767 persons
(84,0%) were European, 9493 (9,3%) Asian, 3977 (3,9%) American (South and Northern
America), 2579 (2,5%) African and 162 Australian. The most important groups are the
Italians (19%), the people from the Republic of Yugoslavia (15,8%), the Germans (9,6%),
Spaniards (7,9%) and Portuguese (5,9%) (see table I-XI).
1.6 Generational make-up and differences within immigrant / ethnic
minority populations
If one looks at gender make up and the age structure one finds a first
striking feature. In 1996 from the 257.600 Swiss living in Zurich, 116.663 were men and
140.937 women, a ratio in favour of the latter: 54,7% to 45,3%. Looking at the foreigner
population one finds exactly the contrary: from the 102.048 foreigners 55.845 were men and
46.203 women, this is a ratio of 54,7% to 45,3% in favour of men (Statistisches Amt 1997,
60).
Table I-V: Foreigners living in Zurich
according to age and sex (1996)
Age group |
All
foreigners |
male |
female |
0-4 |
6.725 |
3.419 |
3.306 |
5-9 |
5.631 |
2.931 |
2.700 |
10-14 |
5.205 |
2.728 |
2.477 |
15-19 |
5.934 |
3.121 |
2.813 |
20-24 |
8.898 |
4.587 |
4.311 |
25-29 |
12.628 |
6.741 |
5.887 |
30-34 |
13.144 |
7.473 |
5.671 |
35-39 |
10.063 |
5.912 |
4.151 |
40-44 |
8.317 |
4.749 |
3.568 |
45-49 |
7.007 |
4.112 |
2.895 |
50-54 |
5.800 |
3.410 |
2.390 |
55-59 |
5.121 |
2.927 |
2.194 |
60-64 |
3.383 |
1.917 |
1.466 |
65-69 |
1.895 |
950 |
945 |
70-74 |
1.067 |
435 |
632 |
75-79 |
498 |
206 |
292 |
80-84 |
350 |
124 |
226 |
85-89 |
248 |
71 |
177 |
90 and
more |
134 |
32 |
102 |
Total of
foreigners |
102.048 |
55.845 |
46.203 |
Source: (Statistisches Amt 1997, 70)
Foreigners are more strongly represented in the
lower age groups than in the higher ones, which is the result of the their higher
fertility rate compared to Swiss. Looking at children in the age group of up to 4 years
the proportion of foreigners is 43%; in the group of youngsters (15-19 years) their part
is 40,9%. The percentage only decreases in the higher age groups: it is 23,1% for people
between 60 and 64 (see table I-XIII).
Table I-VI: Foreigners living in
Zurich by age group and percentage of the total population (1996)
Age group |
Total
population |
Swiss |
Foreigners |
%
foreigners |
0-4 |
15.631 |
8.906 |
6.725 |
43,0% |
15-19 |
14.504 |
8.570 |
5.934 |
40,9% |
30-34 |
35.275 |
22.131 |
13.144 |
37,3% |
45-49 |
23.372 |
16.365 |
7.007 |
42,8% |
60-64 |
18.038 |
14.655 |
3.383 |
23,1% |
Total |
359.648 |
257.600 |
102.048 |
28,4% |
Source: (Statistisches Amt 1997, 60-61)
1.7 Concentration
Residential concentration:
Until the 1980s the residential concentration of foreigners in Zurich
was relatively low. On the level of the boroughs the highest percentage of foreigners
could be found in 1960 in the 1st borough with 28%, in 1970 in the 5th
borough with 31% and in 1980 still in the 5th borough with 36% followed by the
4th borough with 33% (Arend 1982, 326). In the same period the percentages on
the level of neighbourhoods in the 3rd, 4th and 5th
borough were between 20% and 30%. There could also be found a few streets with up to 100%
foreigners (Arend 1985, 180-183). Compared to the USA or other European cities the
segregation indices are low and the spatial distribution has until a few years ago never
been an issue of politics (Arend 1991).
There are several reasons for this: as Arend (1982, 361-372) explains,
Zurich is a relatively small city and the possibility that specialised and homogeneous
areas can form is therefore quite limited. A second reason seems to be the relatively
tight control of the housing sector in Switzerland which reduces the opportunities for
landlords to rent apartments of bad quality at extensive prices to migrants. A last
reasons, according to Arend, is the fact that autochthonous habitants have quite a low
mobility and do not move even if the percentage of foreigners is going up.
Table I-VII: Distribution of
foreigners and Swiss in the 12 boroughs of Zurich (1990)
| |
total
population |
foreigners |
Swiss |
%
foreigners |
Kreis 1 |
6.717 |
1.557 |
5.160 |
23.2 |
Kreis 2 |
28.946 |
5.020 |
23.926 |
17,3 |
Kreis 3 |
45.391 |
12.468 |
32.923 |
27.5 |
Kreis 4 |
28.729 |
11.847 |
16.882 |
41.2 |
Kreis 5 |
11.714 |
5.245 |
6.469 |
44.8 |
Kreis 6 |
31.480 |
6.417 |
25.063 |
20.4 |
Kreis 7 |
34.747 |
5.856 |
28.891 |
16.9 |
Kreis 8 |
16.110 |
3.890 |
12.220 |
24.1 |
Kreis 9 |
44.936 |
10.257 |
34.679 |
22.8 |
Kreis 10 |
35.397 |
7.185 |
28.212 |
20.3 |
Kreis 11 |
52.870 |
12.265 |
40.605 |
23.2 |
Kreis 12 |
27.770 |
6.513 |
21.257 |
23.5 |
Entire
city |
365.043 |
88.547 |
276.496 |
23.4 |
Source: (Statistisches Amt 1997, 35)
However, these findings concern only the post-war
period up to 1980. The analysis of the federal census of 1990 shows that the
concentrations have increased during the decade 1980-1990 (see table XIV). The 5th
and the 4th boroughs are still the one with the highest percentage of
foreigners: 44.8% respectively 41.2%. On the level of neighbourhoods the highest
foreigner-concentrations can be found in Langstrasse (47,7%), Gewerbeschule
(45.2%) and Escher Wyss (42,2%). All of these neighbourhoods are quite near to the
city centre but do not have with the exception of Langstrasse where the red
light district is situated the character of an inner city.
There aren't any mono-ethnic neighbourhoods neither: the highest
proportion of one nationality can be found in Escher-Wyss, where the Italians make
16,2% of the whole population (Leitbild 1998b, 79-80).
Economic concentration:
If one looks at the economic concentration of foreigners in
Zurichs labour market one has to distinguish two groups: on the one hand people from
the German speaking neighbour-countries (Germany, Austria), from North-West-Europe and
from other OECD-countries who are mostly well-qualified and working in good positions. On
the other hand migrants from the traditional recruitment-countries Spain, Portugal,
former Yugoslavia, Greece, Turkey and other non-European-countries who are
concentrated at more than 90% in branches which require only low qualifications (Ochsner
1998, 272-326).
The different groups have nevertheless diverse occupation-profiles (see
table I-XV): a fifth of the Italians work in sale and office jobs which require only low
qualifications and about a forth of them are occupied in metal-working, machine building
as well as construction and painting. Almost 20% of the Spaniards and 25% of the people
from former Yugoslavia are working in the hotel and restaurant industry and almost 30%
respectively 37% of them in construction/painting and cleaning. The Portuguese are
concentrated in the same three sectors but even stronger: 33% in the hotel and restaurant
industry, 20% in construction and painting and 17% in cleaning. Turks and Greeks are only
concentrated in the service and not in the industrial sector: the three main occupation
branches of the Turks are hotel and restaurant industry (21%), sale and office jobs and
other occupations whereas Greeks are distributed more evenly about the different branches.
Table I-VIII: Distribution of employed
foreigners according to nationality and branches in Zurich in % (1995)
| |
Italians |
Spaniards |
Portuguese |
Ex-Yugoslavian |
Turks |
Greek |
Low-qualification
jobs in the industrial sector |
|
|
|
|
|
|
Construction
/ painting |
11 |
13 |
20 |
16 |
3 |
2 |
Metal-working
/ machine-building |
13 |
7 |
3 |
8 |
8 |
11 |
Textile |
2 |
1 |
- |
- |
2 |
1 |
Low-qualification
jobs in the service sector |
|
|
|
|
|
|
Hotel and restaurant industry |
8 |
19 |
33 |
25 |
21 |
11 |
Sale/Office
jobs |
20 |
10 |
4 |
9 |
15 |
18 |
Other
occupations* |
11 |
10 |
7 |
12 |
19 |
15 |
Cleaning |
10 |
16 |
17 |
10 |
9 |
17 |
Hospital
care |
1 |
1 |
1 |
4 |
2 |
3 |
Public
transports |
6 |
11 |
5 |
6 |
8 |
5 |
Total |
82 |
88 |
90 |
90 |
87 |
83 |
Source: (Ochsner 1998, 308-309)
* unskilled workers and workers without indications on their profession
Women coming from the same countries of origin are
working up to 90% in the hotel and restaurant industry, in sale and office jobs requiring
low qualifications (for example cashiers) as nurses or hairdresser and in the
cleaning-sector (Ochsner 1998, 44).
1.8 Mobilisation, organisation
Many students of immigration in Switzerland attribute an important
place to migrant organisations for the explanation of the integration process (for example
Schmitter 1980, Fibbi 1985, Bolzmann, Fibbi, Valente 1992), a fact which is also
acknowledged by the administrations dealing with migration issues (EKA 1996, 14). The
Swiss law does not unlike the law in other European countries (for example France)
require the registration of associations. Whoever likes Swiss citizen as
well as foreigners can found an association. This liberty of organisation makes it
however very difficult to have an exact idea of the number of migrant-associations and to
know what are their aims and their influence. Although Italian associations like the Federazione
Colonie Libere Italiane but also political parties like the Italian Communist
Party had an important impact on the integration of migrants in Switzerland, there
is only scarce scientific information on their history, organisation and development.
The impact of the mobilisation of migrants on the Swiss immigrant
policy, however, has always been weak. In the second part of the 1970s for example a lot
of migrant associations participated on the committee "Mitenand"
("Together") which launched a popular initiative aiming at the reform of the
Aliens law of 1931. This committee consisting of representatives of labour unions,
Christian groups and left-wing organisations migrants as well as Swiss
wanted to improve the situation of immigrants in Switzerland by giving them the same
social and civil rights as Swiss have (Haug 1980, 90). Although some authors consider the
initiative as "a large mobilisation process of migrants" (D'Amato, 1997: 145)
and as a real "'coming out' of the immigrant" in the sense of a "radical
change of the political perception of foreigners as not only economic-functional but also
cultural and social " (Cattacin, 1996: 72), it did not have a decisive impact:
on April, the 5th 1981, the initiative was rejected by a very strong majority
of 84% of the voters and by all the cantons.
Since then there has not been any new comparable movement and the
agenda setting concerning the immigration issue is almost exclusively dominated by the
confrontation of different Swiss groups and their interests. It seems that after the
failure of the struggle for political rights a lot of immigrant organisations changed
their aim and became progressively oriented towards cultural issues (Bolzmann, Fibbi,
Garcia 1988, Bolzman and Fibbi 1991, Fibbi 1995).
The same seems to be true for Zurich, but migrants
keep nevertheless politically active. In February 1989, for example, a petition signed by
5400 foreigners, asking the right to vote on the local level, was transmitted to the
authorities. The same mobilisation took also place in other municipalities of the canton,
but all of them received negative answers (Marquis, Grossi 1990, 24-25). At the end of
1988 representatives from labour unions, left-wing parties and the churches mobilised for
a popular initiative on the cantonal level, which aimed at the introduction of local
voting rights for foreigners who had a permanent residence permit for at least five years 4. The vote took place on September, the
26th 1993: 75% of the voters rejected the initiative. In several other Swiss
cantons similar initiatives received in the same period also negative answers by strong
majorities (Cueni, Fleury 1994, 15-17).
Recently, a week before the municipal elections of march 1998, the new
formed group " Political rights for migrants " (Politische Rechte
für Migrant(-innen)) announced in a press conference that it will once again try to
struggle for the political rights of migrants. The principal aim of the group, which
consists of members from labour-unions and representatives of migrant organisations, was
to support Swiss candidates with a migrant background. Once elected they should push for
local political rights and for a facilitated naturalisation (NZZ 1998c). Migrant
organisation were also criticising very strongly the fact that they could not participate
on the setting up of the new Integration Design (Integrationsleitbild)
which was published by the municipality in May 1998 (see 2.3). However, in November 1998
the municipality informed, that there will be a new version of this text and that migrants
will be integrated in the group charged to rewrite it.
Migrant organisations
In 1996 the Co-ordination Office for the Questions
of Foreigners (Städtische Koordinationstelle für Ausländerfragen)5 published a brochure (was updated in 1997) with about 350
immigrant associations established in Zurich (Koordinationsstelle 1997). Because there is
no possibility to evaluate their relevance and influence we indicate here all the
associations of the major groups of labour migrants and refugees listed in the brochure.
This means that we look at the association of the people from Italy, the Republic of
Yugoslavia, Spain, Portugal, Turkey, Sri Lanka, Croatia, Bosnia and Greece.
Bosnia
- Dzemat der islamischen Gemeinschaft Bosniens in Zürich
- Bosniaken Institut
- Matica Bosne I Hercegowine
- Verein der Flüchtlinge aus Bosnien und Herzegowina in der Schweiz
Croatia
- Kroatische Katholische Mission
- Almae Matris Alumni Croaticae
- Kroatische Kulturgemeinschaft
- Kroatischer Ingenieur-Verein
- Kroatisches Humanitäres Forum
- Kroatisch-Herzegowina Gemeinschaft
- Nogometni klub Croatia
- Nogometni klub Hadjuk
Greece
- "Ewros" Arbeitnehmer-Vereinigung
- Föderation Griechischer Vereine und Gemeinden in der Schweiz
- Fussballclub S.V.Asteras
- Fussballclub S.V.Hellas
- Fussballclub Megas Alexandros
- Griechische Gemeinde Zürich
- Griechischer Kulturverein Demokritos
- Griechischer Lehrerverein
- Griechischer Verein "Parthenon"
- Griechischer Verein Pentalofiton
- Griechischer Verein der Kozaniten
- Verband Griechischer Elternvereine im Kanton Zürich Aristoteles
- Vereinigung der Kreter in der Schweiz
- Vereinigung Pontion in der Schweiz
Italy
- Comitato degli Italiani allEstero
- Assistenza Italiana
- Associazione Abbruzzese
- Associazione Bellunesi nel Mundo
- Associazione Regionale Emigrati Molisani
- AssociazioneTriveneto
- Associazione ULEV
- Associazione Campana
- Associazione Culturale Italiana
- Associazione Emigrati Lucani
- Associazione Emiliani Romagnoli
- Associazione Ex Combattenti
- Associazione Friulana Fogolar Furlan
- Associazione Gente Camuna
- Associazione Giovani Siciliani
- Associazione Lavoratori Emigrati Friulani
- Associazione Lavoratori Montellesi
- Associazione Marchigiani
- Associazione Naz. Alpini
- Associazione Pugliese
- Associazione Trevisani nei Mondo
- Associazione Toscana di Zurigo
- A.I.D.O. Associazione Italiana Donatori Organi
- A.V.I.S. Associazione Italiana Volontari del Sangue
- CASLI Comitato Assistenza Scolastica Lavoratori Italiani
- Centro di Studi Italiani
- Circolo Lucano
- Circolo San Martino
- Circolo Trentini nel Mondo
- Circolo Culturale Realtà Nuova
- Comitato Genitori Limmattal
- Comitato Nazionale Patronati
- Comitato Tricolore
- Comitato Nazionale dIntesa
- Comitato Genitori Scuola Elementare Italiana
- Conferenza "San Vincenzo"
- Coord. Federazione
- Corale Santa Cecilia
- C.A.V.E.S.
- Dame di Carità
- Ente Bergamaschi nel Mondo, Circolo di Zurigo
- Famiglia Padovani di Zurigo
- Famiglia Siciliana
- Federazione Associazioni Sarde in Svizzera
- Federazione Associazioni Calabresi
- Federazione Associazioni Campane
- Federazione Associazioni Lucane
- Federazione Regionale Associazioni Emigrati Lombardi in Svizzera F.R.A.E.L.
- Federazione Colonie Libere F.C.L.I.
- Gruppo Italiano Oerlikon
- Gruppo Valtellinesi
- Lecce Club Zürich
- Lega Uomini Cattolicci
- P.C.I
- P.S.I.
- Società Dante Allighieri
- Società Donne Cattoliche
- Udinese Club Zurigo
- Società Donne Italiane
- Unione Emigrati Siciliani
- Unione Emigrati Sardi E. Racis
- Veronesi nel Mondo
- Vicentini nel Mondo
Portugal
- Associaçião Portuguesa
- Centro Lusitano
- Comissão de Pais de Zürich
- Federação das Associações Portuguesas
- Foro Cultural
- Sporting Club de Zurich
Republic of Yugoslavia
- Basketballclub Korac Zürich
- Humanitärer Verein SAR
- Jugoslawischer Verein
- Kulturelle Vereinigung der Serben in der Schweiz
- Serbischer Kulturverein
- Sportclub Jugoslavija
Spain
- Agrupación de Padres de Zürich e alrededores
- As Xeitosiñas
- Asociación Juvenil autónoma
- Asociación Popular Española
- ATEES
- Ateneo Popular Español
- Centro de Amistad PTT
- Centro de Formación Goldbrunnen
- Centro Gallego
- Centro Hispánico Cultural
- Centro Hispano Cultural Recreativo
- Circulo Cultural "Miguel de Unamuno"
- Consejo Escolar de Padres de Familia
- C.R.E.
- Federación de Sociedades Galegas na Suiza
- Foro Cultural
- Grup Cultural Valencia
- Izquierda Unida
- Katalanischer Verein Cosa Nostra
- PCE
- Promoción Cultural
- Promoción da Cultura Galega
- P.S.O.E.
- Unión Deportiva "Orense"
- Union General de Trabajadores, Sección de Zürich UGT
Sri Lanka
Tamils
- Beratungsstelle Pathai
- Katpakam Treffpunk für tamilische Frauen
- Mütternberatung für tamilische Eltern
- Tamil Welfare Organisation W.T.T.C.
- Tamilischer Elternverein
- Tamilisches Kulturzentrum
- Tamils Rehabilitation Organisation
- Thirukoneswara Nadanalayam Tanzgruppe
- Hindu Mananram
Sighalese
- Swiss Sri Lankan Association
- Sri Lanka Cricket Club Zürich
Turkey
- Isviçre Islam Cemaati VakfI
- Türkisch-Islamische Stiftung für die Schweiz
- Zentrale der islamischen Vereine in der Schweiz
- Zürich Türk-Islam Kültür Ocagi
- Islam Kültür Merkezleri Birligi
- Anatolisches-Alevitisches Kulturzentrum in Zürich
- Avrupa Türk Akademisyenler Birligi
- FC Galatasaray
- Isviçre Türk Kadinlan Yardimlasma Dernegi
- Horgen Türk-islam Birligi
- Schweiz. Türkischer Verein
- Société Turco-Suisse
- Solidaritätsverband der türkischen Vereine in der Schweiz
- Tüfem Ausbildungszentrum für türkische Folklore
- Türkischer Elternverein für Vorschulkinder
- Türkische Elternvereinigung Zürich
- Türk Sanat Kültür Toplulugu
- Türkspor
- Verband der türkischen demokratischen Vereine in der Schweiz
- Türkischer und kurdischer Kulturverein
- Türkischer Klub für kulturelle Kontakte (Dostlar Kulübü)
- Verein Kulturelle Übersetzung
- Verein Mozaik
Kurds
- Föderation der Patriotischen Arbeiter- und Kulturvereine aus Kurdistan in der Schweiz
FEKAR
- Kurdischer Arbeiter- und Kulturverein
- Kurdischer Lehrer- und Elternverein
As already stated, there is only scarce information on the precise aims
and actions of these different associations. There exists nevertheless a recent study
included in the second part of the Integrationleitbild of Zurich which is based on
interviews with 60 immigrant associations of the city (Von Ah, Dobler 1998). As the
principal reason to set up an association, the authors of this study consider the wish to
have ones own place to meet and to foster ones own culture. A second reason is
the desire to help other migrants in a difficult situation, to constitute a network of
solidarity. Only a small number of migrant organisations have an explicit political or
religious commitment. The basis of the organisations are often the same national or
regional origin, in case of Asians, Africans or Latin-Americans the organisations
transcend ethnic or national boundaries (Von Ah, Dobler 1998, 224-225). The resources of
the associations come mainly from within: about 60% of the associations have only the fees
of their members as a financial basis, 16% of them receive financial support from the
countries of origin and 22% from the Swiss administration (Von Ah, Dobler 1998, 227-228).
It seems that the majority of these associations address themselves after all to first
generation migrants and have some difficulties to attract the second generation.
Political affiliation
There is almost no scientific information about the political
affiliation of migrants in Zurich. An important number of the first generation of Italians
were members of the Italian Communist party. The same is true for the Spaniards: a lot of
them were committed to political parties of their home countries, primarily left wing
parties. In principle a foreigner can become a member of a Swiss party 6 the Social Democrat Party even indicates that it
wants to favour membership of foreigners but this case is rare. Even if the above
mentioned initiative by the group "Political rights for migrants" tries to
mobilise Swiss with a migrant background to struggle for the interests of immigrants, one
cannot speak of "ethnic politicians" in the sense of political entrepreneurs
neither in Zurich nor in general in Switzerland.
Syndicalist affiliation
Official information about syndicalist affiliation of migrants in
Zurich is scarce. According to the information given by the local branch of the Union
of the Workers in the Metal- and Watch-Industry (Schweizerischer Metall- und
Uhrenarbeiterverband, SMUV) 40% of its members are foreigners, the most important national
group are still the Italians. According to the information given by the local branch of
the Union of Construction and Industrie (Gewerkschaft Bau und Industrie, GBI) the
composition of its members in Zurich is the following:
Table I-IX: Composition of the members
of the GBI by nationality and percentage of the total number of members in 1998
(estmations)
| |
Total
number |
% of total
number of members |
Former
Yugoslavia |
3100 |
28 |
Italy |
2300 |
21 |
Spain |
1100 |
10 |
Portugal |
1300 |
12 |
Turkey |
200 |
2 |
Swiss |
3.000 |
27 |
Total |
11.000 |
100 |
Religious affiliation
According to the census of 1990, 138.000 (50%) of the 276.000 Swiss
living in Zurich were Protestant, 92.000 (33%) Catholics, 4000 (1,5%) Jewish and 41.000
(15%) had another religious affiliation or were without any. For the 89.000 foreigners the
proportions were quite different: 7000 (8%) were Protestant, 49.000 (55%) Catholics, 650
(0,7%) Jewish and 32.000 (36%) had another religious affiliation or were without any
(Statistisches Amt 1997, 28). It is clear that all the Muslims are counted in this latter
group.
The total number of the Muslim population in Zurich
amounted in 1990 to 9296 persons 7,
which is 2,5% of the total population (365.043). One can reasonably guess that the
majority of them are foreigners, which would signify that their part on the total
foreigner population was 10,4% in 1990. However, it is evident that since then the Muslim
population has strongly increased, a lot of migrants coming in the last years from former
Yugoslavia or Turkey. But there are not any more recent data on religious affiliation.
II RELEVANT POLITICAL STRUCTURES
2.1 National level
The basic features of the Swiss political system
have all an important impact on the politics of migration. First, Switzerland is a
so-called "direct democracy" (see for example Hertig 1984, Kriesi 1995, 80-125).
The most important component of this system is the popular initiative (Volksinitiative)
which permits the launching of a political idea in the form of a project for a
constitutional article, which is submitted to the Swiss people. In order to succeed, a
popular initiative must gather the signatures of at least 100.000 voters in a period of 18
months. It is then followed by a popular vote (Volksabstimmung). The popular
initiative played and still plays a very important role for populist and
anti-immigrant movements. These groups have never become important forces in the form of
political parties (their scores in elections always kept low) but they succeeded in
gaining support from important parts of the population through the popular initiative.
Since the middle of the 1960s, several times so-called "Overforeignization
initiatives" (Überfremdungsinitiativen) were launched which aimed at limiting
the number of foreigners living in Switzerland. Even if so far they have always been
rejected, they had an important impact on the Swiss migration policy (Mahnig 1998) 8. The second component of Swiss direct
democracy is the referendum: it permits to submit each law adopted in parliament to a
popular vote, if 50.000 signatures are collected in the three months following its
adoption. The referendum is also used by populist parties either as a way to challenge a
decision made by parliament or as an instrument to threaten the other parties to make
concessions in the parliamentary debates on a new law. The last component of the system of
direct democracy is finally the rule that each new constitutional article has to be
submitted to a popular vote.
The second important feature of the Swiss polity is federalism:
the twenty-three cantons composing Switzerland (three of them are divided in two
half-cantons) have a large autonomy in several fields. The education system, for example,
is organised on a cantonal level. According to the federalist principles, the Swiss
parliament is divided in two chambers, the Nationalrat (the representatives of the
people) and the Ständerat (the representatives of the cantons). In order to pass
parliament, a law has to be voted by a majority in each chamber. The principle of the
"double majority" of the population and the cantons concerns also
the popular vote. Today this principle is more and more criticised: the balance between
interests of the cantons and interests of the whole population gives progressively more
weight to the small - and often conservative - cantons which have lost a lot of their
population through migration to the urban centres, but keep still the same political
influence through the principle of the "double majority". In 1994 for example, a
constitutional change proposed by the government to ease the naturalisation procedure was
adopted by a majority of Swiss people but rejected by a majority of cantons. An important
role for the politics of migration plays also the third level of territorial organisation
in Switzerland: the municipalities. The naturalisation procedure, for example, is to a
large extent a municipal decision (see part on naturalisation).
A third and last important feature to be mentioned is the so called
consociational democracy (Konkordanz-Demokratie) (see for example Lijphart 1977,
Kriesi 1995, 311-333). The Swiss government, the Federal Council (Bundesrat),
composed of seven ministers, is chosen by the deputies for four years and reflects the
distribution of forces between the different parties in parliament. There is no system of
majority and opposition, the four most important parties, representing about three
quarters of the electorate, - Social Democrats (Sozialdemokratische Partei - SP),
Liberals (Freisinnig-demokratische Partei - FDP), Christian-Democrats (Christlichdemokratische
Volkspartei - CVP) and the Conservatives (Schweizerische Volkspartei - SVP) -
participate all in the government. The proportional representation of parties and other
interest groups is a general feature of the Swiss political system and can be found on
many other levels. This means that the decision-making process is often very lengthy
because the different forces must negotiate a compromise. Concerning the politics of
migration the system leads to long periods of "non-decision" because the
interests concerning migration are so divergent that a compromise can often not be found
(Mahnig 1997, 4-5).
Table II-I Distribution of seats in
the Nationalrat and Ständerat (1991 / 1995)
| |
Elections of 1991 |
Elections of 1995 |
| |
NR |
StR |
NR |
StR |
SP -
Social Democrats |
43 |
58 |
3 |
5 |
FDP -
Liberals |
44 |
45 |
18 |
17 |
CVP -
Christian Democrats |
37 |
34 |
4 |
5 |
SVP-
Conservatives |
25 |
29 |
4 |
5 |
GP -
Green Party |
14 |
10 |
- |
- |
Liberals |
10 |
7 |
3 |
2 |
FPS
(Populist Conservatives) |
8 |
8 |
- |
- |
LdU and
EVP - Centrist |
9 |
5 |
1 |
1 |
SD
(Extreme Right) |
7 |
3 |
1 |
- |
PdA
(Extreme Left) |
2 |
- |
- |
- |
Others |
1 |
1 |
- |
- |
Total of
seats |
200 |
200 |
46 |
46 |
Source: (Schweizerische Bundeskanzlei
1996, 5)
2.2 Local level
The political structure of the city of Zurich corresponds in many
respects to the one on the federal level: there are not many cities in Europe where one
can find such a democratic institutional framework for policy-making as in Zurich
(Neidhart 1998). The habitants of the city elect the 125 deputies of the parliament (Gemeinderat)
as well as the 9 members of the executive (Stadtrat) including the mayor. The
gathering of 4000 signatures allows to launch a popular initiative on the city-level, and
if 4000 signatures are collected against a decision taken in parliament during the twenty
following days, a referendum must be hold (Gemeindeordnung 1997). These instruments of
direct democracy play a very important role for the policy making in the city: often
ad-hoc coalitions and interest groups succeed to influence policies using the initiative
or the referendum (Hitz, Schmid, Wolff 1995, 210-211).
However, in the field of migration the instruments of direct democracy
have been used the most frequently by populist parties and the extreme right. They
succeeded in the last years to block several policies aimed at an improvement of the
situation of migrants in Zurich as for example the simplification of naturalisation and
the setting up of a solidarity network for refugees from Kosovo (see 2.3).
The deputies of the Gemeinderat meet almost every week and their
action is largely commented by the local press. Even if they are "spare
time-politicians" they represent an important counterweight to the executive. Because
the chance to be reelected depends on the municipal level a great deal on personal
notoriety, politics are very personalized (Neidhart 1998). The most important parties in
the Gemeinderat are:
- SP: Sozialdemokratische Partei (Social Democrats)
- FDP: Freisinnig-demokratische Partei (Liberals)
- SVP: Schweizerische Volkspartei (Conservatives)
- CVP: Christlichdemokratische Volkspartei (Christian Democrats)
- LdU: Landesring der Unabhängigen (Centrists)
- EVP: Evangelische Volkspartei (Centrists)
- GP: Grüne Partei (Green Party)
- FraP: Frauen macht Politik (Women's party)
- SD: Schweizer Demokraten (Extreme Right)
- AL90: Alternative Liste Züri 1990 (Alternatives)
In the last municipal elections of march 1998, the parties of the
political centre (FDP, CVP, LdU, EVP) as well as the parties on the margins (FraP, SD)
lost votes while the left-wing parties (SP, GP) and the Conservatives (SVP) won some new
seats in parliament. This means that neither the left (SP, GP, FraP, AL90) with 59 seats
nor the right with 60 seats (SVP, FDP, CVP) have a majority in parliament (NZZ 1998a).
Table II - II Distribution of
seats in the Gemeinderat (parliament) of Zurich (1970 -1998)
| |
1970 |
1974 |
1978 |
1982 |
1986 |
1990 |
1994 |
1998 |
SP |
41 |
44 |
50 |
42 |
39 |
47 |
43 |
49 |
FDP |
26 |
23 |
26 |
36 |
27 |
25 |
28 |
26 |
CVP |
15 |
19 |
19 |
19 |
17 |
12 |
10 |
8 |
SVP |
5 |
4 |
5 |
7 |
6 |
7 |
19 |
26 |
LdU |
26 |
16 |
16 |
9 |
11 |
8 |
7 |
4 |
EVP |
12 |
8 |
6 |
6 |
6 |
4 |
2 |
1 |
GP |
- |
- |
- |
- |
5 |
10 |
5 |
7 |
SD |
- |
9 |
- |
2 |
11 |
5 |
4 |
1 |
FraP |
- |
- |
- |
- |
- |
3 |
5 |
1 |
AL90 |
- |
- |
|
|
|
4 |
2 |
2 |
Other |
- |
2 |
3 |
4 |
3 |
- |
- |
- |
Total |
125 |
125 |
125 |
125 |
125 |
125 |
125 |
125 |
Source: (Statistisches Jahrbuch 1994,
307; NZZ 1998a)
In the executive, however, the
left has a majority of six members against three for the right. The actual members of the
executive are the following (NZZ 1998b):
- Josef Estermann (SP): Mayor
- Esther Maurer (SP): Police
- Elmar Ledergerber (SP) : Building construction
- Monika Weber (LdU): Education and Sport
- Willy Küng (CSP) 9: Finance
- Rober Neukomm (SP): Public Health and Environment
- Kathrin Martelli (FDP): Underground workings
- Thomas Wagner (FDP): Industrial Enterprise
- Monika Stocker (GP): Social Affairs
Table II - III Representation of
parties in the Stadtrat (executive) of Zurich (1970 -1998)
| |
1970 |
1974 |
1978 |
1982 |
1986 |
1990 |
1994 |
1998 |
SP |
4 |
3 |
4 |
- |
1 |
3 |
3 |
4 |
FDP |
1 |
2 |
1 |
2 |
1 |
1 |
3 |
2 |
CVP |
1 |
1 |
1 |
1 |
2 |
2 |
1 |
- |
SVP |
1 |
1 |
- |
1 |
1 |
- |
- |
- |
LdU |
2 |
2 |
2 |
1 |
1 |
- |
- |
1 |
EVP |
- |
- |
1 |
1 |
1 |
1 |
- |
- |
Other |
- |
- |
- |
3* |
2* |
2** |
2*** |
2*** |
Total |
9 |
9 |
9 |
9 |
9 |
9 |
9 |
9 |
Source:
(Statistisches Jahrbuch 1994, 307; NZZ 1998a)
* representatives of the labour unions
** without party affiliation
*** GP and CSP (Cristian-social Party)
The fact that the SVP does not participate in the
executive although it is the second largest party (together with the FDP) in the municipal
parliament, will certainly be source of tensions. The party tried in the last years to
establish itself as a protest-party using the instruments of direct democracy in a very
populist way. This had already an important impact on the politics of migration (see 2.3).
2.3 Immigrant and ethnic minorities related political structure
National level
The principal reason for the fact that immigration developed in a
political issue in Switzerland was the mounting xenophobia of the Swiss population since
the beginning of the 1960s. As soon as 1964 a report on "The problem of the foreign
workers" (Das Problem der ausländischen Arbeitskräfte) had been published by
the Swiss administration, which recommended several measures for the integration of
migrants. But during the sixties it was not taken into account by politicians. In 1970 the
government created the Federal commission for the problem of foreigners (Eidgenössische
Kommission für das Ausländerproblem) which is called today the Federal
commission for foreigners (Eidgenössische Auländerkommission EKA)
as an answer to the "overforeignization initiative" (Cattacin 1987, 69-70). Up
to now the EKA is still the most important institution for the integration of migrants in
Switzerland. Its function is essentially consultative: the EKA brings together the
representatives of different institutions and organisations (for example those of cantonal
administrations, employer-organisations, labour-unions and immigrant organisations 10) in order to discuss immigration
problems and to give recommendations.
The task of the EKA is also a policy of information and communication
in order to "explain Swiss people the difference of the foreigner and its
problems" on the one hand, to "improve the information of the foreigners"
on the other (EKA 1989, 101). The EKA considers also that concerning the foreign
population "conforming to our democratic customs, it is necessary to look for
solutions which are adapted to local conditions. Each municipality has to find its own
way." (EKA 1989, 7) That is why an important part of the action of the EKA is the
support of cantonal or municipal commissions which implement the same policy of
information and communication on a local level.
Since the middle of the seventies several attempts have been made to
change the policy towards migrants, but all have been rejected by popular votes. The first
was a popular initiative which aimed at an improvement of the legal status of migrants,
the so called "Mitenand" (Together)-initiative. It was rejected in 1981
by a strong majority of voters. The second attempt was a reform of the law on foreigners
of 1931 (Ausländer Aufenthalts- und Niederlassungsgesetz - ANAG), which tried also
to improve (even in a less ambitious way) the legal status of foreigners. Accepted by the
parliament, it was rejected in a referendum in 1982. In 1983 and in 1994 two
constitutional changes proposed by the government to ease the naturalisation procedure for
second generation immigrants were rejected in popular votes (see part on access to
national citizenship).
In the last years the issue of integration has become more salient,
because of the declining integration of migrants in the Swiss economy which is largely due
to a general increase of unemployment hitting the migrant population much harder than the
Swiss. This is a new problem for Switzerland: at he end of the 1980s for example, scholars
could still write: "The settled unemployed foreigner is an exceptional phenomenon,
its social figure does not exist" (Bolzmann, Fibbi, Garcia 1987, 62). The problem
hits strongly the cities and put therefore the question of integration on their agendas.
In the last years some big cities - such as Basle, Bern and Zurich - have elaborated so
called "integration policy-designs" (Integrationsleitbilder) in order to
create a new comprehensive approach to the question. But the question became also more
important on the federal agenda. In 1996 the EKA published a report in which it claimed an
clear strengthening of Swiss integration policy and a stronger intervention of the Federal
State as before (EKA 1996). A year later, a commission of experts, charged to think about
the reshaping of the whole Swiss migration policy, recommended also a new comprehensive
approach to integration, putting the stress on the social problems of migrants
(Expertengruppe 1997).
A first concrete step in direction of a reinforcement of the federal
immigrant policy is the setting up of an article on integration in the Aliens law of 1931.
Voted by the parliament in June 1998, the article gives the Confederation the possibility
to subsidise local integration projects.
As a conclusion one can say, that in Switzerland it is today hardly
possible to speak of a real integration policy for migrants on the federal level.
Integration structures can primarily be found on the level of non-official organisations
(association, labour-unions etc.) as well as on the level of local administration (cantons
and municipalities). That is the reason that some scholars speak of the
" integrationist federalism " in Switzerland (Cattacin 1996). The vote
for an integration article although a very modest measure can be interpreted
as a fist step towards a different policy.
Local level
For a long time there has been no clear policy towards migrants in
Zurich. In 1968 the " Municipal Commission for the assimilation
question " (Städtische Kommission für Assimilierungsfragen) was set up
which changed its name later to " Municipal Commission for the questions of
foreigners " (Städtische Kommission für Ausländerfragen). This
Commission is composed of 24 members, who are chosen every four years by the Gemeinderat
and who are representing the " interested circles " (parties, employer
organisations, labour unions, churches, associations) according to the specific way of
interest organisation in Switzerland (Germann et al. 1985). The commission, which holds
regularly reunions, is charged to make recommendations to the Gemeinderat and Stadtrat.
In 1969 the " Co-ordination Office for the Questions of
Foreigners " (Koordinationsstelle für Ausländerfragen - KSA) was set
up. It is charged to serve on the one hand as secretariat for the commission and on the
other hand to co-ordinate the action of different administrative services concerning
migrants. However the action of this organism was blocked several times and only in 1982
it got more active with the arrival of a new director. In 1987 the KSA enlarged its action
and in 1988 the number of the employees was multiplied by five because of the setting up
of a consultation service for migrants. Because the unemployment of migrants (for the
first as well as for the second generation) is until the 1990s not really an issue on the
political agenda, the policy of the KSA can be characterised as the one made on the
federal level by the EKA as a policy of mediation and information. The KSA has
recently been renamed in " Office for intercultural questions " (Fachstelle
für Interkulturelle Fragen).
During the same period different administrative branches developed
their own actions in regard to migrants. This is particularly true in the field of
education: at the beginning of the 1980s the proportion of migrant children increases up
to 90% in some schools and the authorities fear that Swiss parents would put their
children in other schools and that this could lead to the development of school
segregation (Schulsynode 1983). Because the public school in Switzerland is organised on
the level of the cantons, the cantonal authorities tried to respond to the problem and
which took a number of initiatives: in 1980 the " Direction for Education of the
Canton of Zurich " (Erziehungsdirektion des Kantons Zürich) sets up a
special service called " Pedagogy for Foreigners " (Ausländerpädagogik).
During the following years, however the concept of " Pedagogy for
Foreigners " is progressively replaced by the idea of " Intercultural
Pedagogy" and in 1987 a comprehensive approach for intercultural education is adopted
by the cantonal authorities (Truniger 1995).
At the beginning of the 1990s the issue of " integrating
migrants " changes completely because of the increasing unemployment. Migrants
are particularly suffering from this development because of their strong representation in
the lowest segments of the labour market which are struck primarily by the restructuring
of the Swiss economy. If the same problem can be observed everywhere in Switzerland,
another one is more specific to Zurich as a big city: the question of segregation.
Segregation in Zurich can objectively not be considered as a serious problem up to now if
one compares the ongoing processes to other European cities. Nevertheless, the high
proportion of migrants in some neighbourhoods has been politicised and defined as a threat
to law and order by the Conservative party (SVP) which use to speak of
" ghettos " and " slums ".
At the beginning of the 1990s the authorities make two attempts to
respond to this harsher climate. In 1993, after the racist murder of a young Tamil, the Gemeinderat
votes a credit of 40.000 Swiss francs and charges the KSA to organise actions for the
better mutual understanding of migrants and Swiss. The KSA sets up the project
" zZüri dehei? " (at home in Zurich?) which tries to
support different cultural actions on which migrants and Swiss participate together. The
central event of the project is a week of intercultural meetings in May 1994, involving
sixty associations of migrants and Swiss under the title Piazza Mondiale (NZZ
1994).
Another attempt for a better integration of the migrants living in
Zurich has been a failure: in January 1996 the municipal parliament (Gemeinderat)
decides to ease some of the criteria for naturalisation of foreigners. According to the
federal Constitution a foreigner has to become first the citizen of a municipality and
then of a canton in order to get the Swiss nationality (see party on access to
citizenship). The changes adopted are modest: the parliament tries only to adapt the rules
of the naturalisation procedure to the changes which took place in the years before on the
cantonal and federal level (the demand that a candidate must have lived 6 of the total of
12 years required in Zurich, is lowered to 4 years and the demand to speak the local
dialect is abandoned). Because of the still restrictive rules the Green party and the
Alternatives vote against the changes, which are supported by all the big parties. The
members of the extreme right party Swiss Democrats (Schweizer Demokraten)
vote also against the changes and after their adoption launch a referendum which succeeds
(NZZ 1996a). In a aggressive campaign the Swiss Democrats argue that the changes
adopted in the Gemeinderat would lead to a "squandering of Swiss
nationality " whereas the other parties do not really commit themselves to the
issue. The Conservative Party (SVP) even changes its position because its leaders fear to
loose their traditional electorate. The vote takes place on June the 9th, 1996:
62% of the voters reject the changes, only two boroughs (Kreis 1 and Kreis
7) vote in favour of them (NZZ 1996b).
In the following years the political climate concerning migrants in
Zurich gets even harsher because the Conservative party (SVP) tries to win votes by making
migrants responsible for general social problems of the city. During the campaign for the
municipal elections of March 1998 it publishes several advertisements in local newspapers
which have a clearly xenophobic meaning: " Zurich becomes a ghetto ",
" Against a multicultural Zurich ", " Criminal foreigners:
Throw them out! ", " We want that Zurich keeps a city for the
Swiss ", " Stop the discrimination of Swiss children "
(Mahnig 1998b, 128). However, if the SVP wins in the elections some seats in the Gemeinderat,
it does not get any in the Stadtrat, where the left strengthens its position.
Nevertheless, the SVP continues its politicisation of the migrant
issue, using the referendum. In spring 1998 the Gemeinderat decides to subsidise a
" contact network " for migrants from Kosovo with 50.000 SFr. The SVP
launches the referendum against this decision, which is considered by the other parties as
a reasonable project concerning a excluded group (NZZ 1998d). In the popular vote of June,
the 7th 1998, 56% of the voters follow the SVP and reject the project.
One month before this event, in May 1998, the Mayor of Zurich presented
a Design for integration (Integrationsleitbild) which is the result of a
study made by the Institute of Ethnology of the University of Zurich and aims at a new
comprehensive approach for an integration policy in Zurich. The Leitbild considers
the exclusion of an increasing number of migrants from the labour market as the central
problem of the city and demands a policy facing this issue by programs of education and
vocational training (Leitbild 1998a, 28-32). It considers also that housing segregation
and the concentration of migrants in certain neighbourhoods will become a serious topic
and asks for the implementation of a dispersal policy (Leitbild 1998a, 35-36). The authors
analyse the concentration of social problems in Zurich as the outcome of the federal
admission policy, which, according to them, allowed for a long time the immigration of
unqualified foreign workers in the interest of certain economic branches. Therefore they
demand a more restrictive admission policy in the future (Leitbild 1998a, 39-40).
During the summer 1998, the Leitbild leads to a large and very
controversial debate. The SVP, on the one side, considers that there is no
" integration problem " in Zurich, but a " foreigner
problem ". The party asks thus for a policy which stops further migration to the
city. The multicultural left, on the other side, represented by the Green party and
alternative organisations, criticises the Leibild because it demands the
" assimilation " of migrants in some central areas of Swiss society
and insists, according to them, only on the "social deficits" of migrants but
not on their important socio-economic contribution to Swiss society. Some observers even
accuse the Leitbild to be based on "cultural racism" (Steiner-Khamsi
1998). Migrant organisation make similar claims and criticise the fact that they have not
been associated to the setting up of the Leitbild.
Faced with these critical reactions, the Mayor of Zurich decided in
November 1998 to rewrite the Integrationsleitbild and to include also members of
migrant organisations in the new working group (NZZ 1998e).
Access to national citizenship
The access to national citizenship is in
Switzerland even less open than in Gemany, reputed to have the most restrictive law on
nationality in Europe (Centlivres, Schnapper 1991, 152). Children of foreigners born in
Switzerland keep the nationality of their parents, because there is no ius soli as
for example in France or in the traditional immigration countries. The naturalisation
procedures are also very complicated. In general, a foreigner who wants to apply for Swiss
citizenship has to prove that he lived during 12 years legally in Switzerland (Gutzwiller,
Baumgartner 1997, 3) 11.
However, the specificity of the access to citizenship in Switzerland is
its " federalist character ". The naturalisation procedure consists in
Switzerland in fact of three stages. The federal Constitution stipulates that in order to
get Swiss nationality one has to become first the citizen of a municipality and then of a
canton. The candidate for naturalisation has first to ask a federal authorisation for
naturalisation from the federal Office of Police. Once he is in possession of this
document, he has to ask the right of citizenship (droit de cité) of a
municipality. The federal authorities intervene only at the first and the last stage when
they are informed on the decision of the municipality. The most difficult stage to pass is
the one on the municipal level, because its logic is an ethnic and cultural one: in
certain municipalities the applicant has to prove his knowledge of Swiss traditions and
that he is assimilated to the values of the local community. Additionally the
naturalisation procedure is often very costly (Centlivres 1990).
The implementation of these principles is however quite different
according to the local communities: in big municipalities exists normally a commission
which decides on the naturalisation demands by foreigners, whereas in small municipalities
all the citizens of the municipality decide on the request of the foreigner. This leads
often to refusals by local communities on the ground of unjustified criteria (see for
example Dütschler 1998).
Two attempts were made in the last decades to
change this restrictive rules. In 1983 the government proposed a constitutional reform
whose aim was to increase the weight of the Confederation in the naturalisation procedure
of the second generation. It justified this project by the huge number of foreigners who
were born and had attended school in Switzerland but who were still not Swiss citizens
because of the very restrictive Swiss citizenship law 12.
Therefore the government wanted to integrate an article in the Constitution giving the
power to the State to ease the naturalisation of all foreigners born and grown up in
Switzerland. However, in December 1983, the project was rejected in a popular vote by
54,3% of the voters.
In June 1994 a new popular vote on a project trying
to ease the naturalisation of the second generation took place. The reform was once more
rejected, in spite of the support by all the parties (except the populist parties of the
right): whereas 52,8% of the Swiss population voted for the reform, a majority of cantons
voted against it 13. The double
nationality, however, is admitted in Switzerland since 1992.
III CASE GROUP: THE ITALIAN COMMUNITY
Italians were after 1945 the most important group of migrants which
came to Switzerland: in 1960 almost two thirds of the foreigners living in Switzerland
came from Italy, in 1990 still almost one third of them (see table I-VIII). The same is
true for Zurich. Even if the part of Italians on the total number of foreigners is today
decreasing faster than on the national level it felt from 26% in 1990 to 19% in
1996 they are still the biggest migrant group.
As a specificity of the situation of the Italian migrants in
Switzerland can be considered the fact that there existed already a large number of well
established Italian institutions when they arrived in 1945. Already in 1898 the Missione
Cattolica Italiana di Zurigo was founded for the large Italian community living at the
end of the 19th century in Zurich (Ciapparella, Gatani 1997). After World War
II the Missione continued its religious and social support of the Italian migrants.
In 1930, Italian antifascists set up the Scuola Libera Italiana di emancipazione
proletaria in Zurich in order to give their children an education free from fascist
ideology. The founder of this school was also one of the founding members of the Colonie
Libere Italiane (CLI) which were set up in September 1943 in Zurich. In the same year
nine further colonies were created in other Swiss cities and in November 1943 was set up the
Fedrazione delle Colonie Libere Italiane in Svizzera (FCLIS) (Grossi 1985 203-204).
After World War II the Colonie Libere Italiane become one of the
most important migrant organisations in Switzerland. They try on the one hand side to
struggle for a better support by the Italian government of its emigrated citizens, on the
other hand to struggle for a better treatment of the Italian Immigrants in Switzerland.
However they need some time to find an autonomous political position and are often accused
to be manipulated by the Italian Communist Party (Bottinelli et al. 1973, 38-40).
In a big congress the Convegno dellemigrazione
held in Zurich in 1959, the representatives of the organisation claim better social
rights for immigrants in Switzerland. In the same time the CLI begin also to develop
evening schools for their members and alphabetisation courses for adults. In 1964 la FCLIS
is composed of 100 associations and has 10.300 members. It organises about 100 courses
(Grossi 1985, 206).
The political commitment of the FCLIS will lead to the expulsion of
some of its members from Switzerland in the first half of the 1960s. Confronted with the
mounting xenophobia in Switzerland, the organisation tries to explain to Swiss population
the problems of Italian immigrants. In the 1970s the FCLIS becomes more and more involved
in the question of education because the second generation enters school. In many CLI
parent committees (Comitati di genitori) are set up.
In 1974 the organisation participates on the founding of the movement
"Mitenand" which launches some years later the initiative with the same name. It
is very active to promote the initiatives aims for more civil and social rights of
migrants in Switzerland (see 2.3), but the clear failure of the initiative in the vote of
1981 shows the limits of this kind of political struggle in Switzerland. The FCLIS keeps
still politically active during the 1980s and continues to be one of the major migrant
organisations. But its importance and impact has clearly decreased compared to the 1970s.
IV Zurich as a case for comparative Analysis
The specific characteristics of Zurich which make it an interesting
case for comparison are threefold. First, Zurich is one of the European cities with the
highest rates of habitants with an immigrant background. Until very recently this
phenomenon has never been considered as a problem, but there have not been important
political efforts for integrating migrants neither. The reason for this has to be searched
in the well functioning integration of migrants through the labour market. Since this
process is not so smoothly working anymore, immigration has become a political issue.
The second important characteristic of Zurich as of every other
Swiss municipality is its large margin for policy making compared to other European
cities, which is based on the strong federalist culture of Switzerland. This means that
Zurich would have more possibilities than other European cities to implement an autonomous
immigrant policy.
The last characteristic of Zurich could be called the "paradox of
direct democracy". The failures of a more open immigrant policy happened almost all
through the instruments of direct democracy: the referendum and the popular vote. The same
phenomenon can also be observed on the national level. The case of Zurich offers thus a
unique possibility to think about the link between democracy and the opening up of rights
for new members of society.
Footnotes
1. Switzerland is divided in 23 cantons. Back to paper
2. The political capital is the city of Berne. Back to paper
3. That is why we will speak in this text in general of " migrants "
or " immigrants "; however, if we are using statistical data, we will always
speak of " foreigners ". Back to paper
4. Because the most of the foreigners living in Switzerland obtain a permanent
residence permit only after 5 years of residence, this means that they had to wait at
least 10 years to get local voting rights. Back to
paper
5. The institution changed its name recently to Office for intercultural
questions (Fachstelle für interkulturelle Fragen). Back
to paper
6. Information given on telephone by the Social Democratic Party
(Sozialdemokratische Partei), the Liberals (Freisinnig-demokratische Partei) and the
Conservatives (Schweizerische Volkspartei). Back to
paper
7. Information given on telephone by the Statistical Office of the city of
Zurich. Back to paper
8. This does not mean that the popular initiative is responsible for the
appearance of xenophobia: it is simply a way to put an issue on the political agenda and
to force the political elite to deal with a problem to which it did not give enough
attention (see for example Kriesi 1995, 90). But of course it can be exploited by populist
groups. Back to paper
9. Christlichsoziale Partei (Christian-social Party). Back to paper
10. It was only in 1981 that migrant organisations have been admitted to the
EKA. Back to paper
11. The years spent in Switzerland between the 1Oth and 20th birthday are
counted double. Back to paper
12. From 910.000r foreigners living in Switzerland at the end of 1981, 300.000
are younger than 22, and 250.000 of this group have been educated in Switzerland.
Back to paper
13. A project, in order to pass a popular vote, has to gather the majority of
the people as well as the majority of the canton. Back
to paper
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