Immigration policy and multilevel governance – Austrian experiences

Abstract

This study examines the role of multi-level governance in the context of immigration and integration policies. It explores the functions of national and sub-national governments (provinces) in managing migration and integration of immigrants, with a focus on Austria as one of the European host countries. Austria has been involved in international migration in many ways for over a century. Today 12.5% of the population have foreign nationality and almost 20% have a migration background.

The countries of Europe face different migratory challenges. Previous research has shown that migration is one of the main factors that shape and accelerate the development of urban areas. On the other hand, increased mobility has negative effects as well. Some countries pursue restrictive strategies while others allow easier access to labour markets and social systems. In general, the effective integration of immigrants is one of the key factors for progress in European convergence. The elements of the European migration policy aim to harmonise legislation and management tools and maximise the positive impact of migration flows while at the same time finding solutions to the related problems. A cross-country comparison demonstrates that these instruments and solutions still differ: There are European countries that have restrictive policies, while others are open to multiculturalism and facilitate access to equal rights, including political and social entitlements. An analysis of the strategies of the traditional host countries reveals a number of factors underlying the differences in the immigrant integration and labour market performance in these countries. Although regional differences and local responsibilities have become particularly important in recent decades, the literature focuses primarily on the national level or on capitals. It is also about the inclusion of immigrants from different perspectives. This may be because naturalisation and immigration policies are always decided at the national level. However, policies at the local level have a more direct impact.

Discussions point out, that Austrian policy on settlement and naturalisation is one of the most restrictive in Europe and take only partly into account the integration performance of immigrants, their individual abilities and life circumstances. The sub-national authorities of Austria have, however, recognised the importance of the integration of immigrants. Various integration instruments have been developed – in Graz already from the appearance of the first guest workers. Only from the year 2000 can we speak of nationwide intensive integration efforts. The cooperative attitude of the provincial governments and the priority of information transfer among the actors has positive effects on the labour market and, as a consequence, on the social as well as the economic development of a region.

Based on secondary data research and analysis of concepts and other government documents, the first part of the study summarises the structure of modern migration movements into Austria with special reference to the provinces. The second part explains how the federal government and the provinces perceive and control immigration and shows interesting similarities and differences between and within the levels.