12th International Metropolis Conference 2007

12th International Metropolis Conference, 8-12 October 2007,
Melbourne, Australia

From Multiculturalism to Social Cohesion: What Works?
Convenor: Sarah Spencer, COMPAS, The University of Oxford

The workshop compared approaches to immigrant integration in three immigrant-receiving countries, Australia ( link to presentation ), Canada ( link to presentation ) and the Netherlands. All three countries receive migrants through various channels and must address the challenges of integrating newcomers into mainstream society. Integration issues include addressing the basic settlement needs of newcomers and ensuring their full participation in the receiving society. Immigration also transforms the receiving society by increasing diversity in terms of culture, language and religion. Consequently, integration entails a balance between respecting the cultural heritages of all individuals on the one hand and fostering social cohesion on the other.

Integration policies are work in progress, evolving through trial and error. Developing and implementing policies require the cooperation and collaboration of many stakeholders such as governments (at all levels) and non-governmental organizations, as well as the receiving and newcomer communities. An objective of this workshop was to determine what initiatives are 'effective' and what measures might be replicated both nationally and internationally.

In addition to programs addressing basic needs such as language instruction, housing and employment assistance, all three countries invest in initiatives that orient newcomers to the receiving society. For example, prior to arrival, prospective immigrants to the Netherlands are required to pass an integration exam which outlines the rights and responsibilities associated with being a Dutch resident; prospective permanent residents in Australia are obliged to sign an agreement to respect the 'common values' of Australian society such as equality, democracy, the rule of law, respect for diversity, and human rights.

Integration, however, is a two-way street. With successful integration, newcomers will adapt to their new environment and those in the receiving society will adjust to the changes brought by migration. Many of the changes are felt locally as neighbourhoods become visibly and audibly more diverse. Therefore, it is essential for policies to equip both the receiving community and the newcomers with the tools needed to adjust to their new environment. Programs that focus solely on the adaptations necessary by the receiving society may only alienate the local communities, potentially leading to a backlash against immigrants. Conversely, measures that insist that immigrants 'fit' into the mainstream society without reciprocity would similarly lead to negative outcomes.

Although immigration is often driven by economic necessity, economic integration is not always followed by social integration. In order for immigration to be a win-win for newcomers and for the longer-term residents, integration programs need to be cognizant of the needs of newcomers as well as those of the locals. Among the conditions that are essential for integration initiatives to be effective are intercultural communication and broad consultation and engagement with the communities concerned.

Intercultural communication : The HOST program in Canada pairs newcomers with local residents with the objective of easing the transition difficulties experienced by new arrivals while introducing local residents to a new culture. The Living in Harmony program in Australia aims to address issues arising from cultural diversity through community partnership and outreach. One of the initiatives funded under this program brings together long-time local residents and owners of ethnic shops and restaurants, most of whom are newcomers. As a result, newcomers gain an appreciation for the history and tradition of the neighbourhood in which they live, and the locals become more comfortable with the people, ethnic restaurants and food that have become part of the new landscape of their community.

Broad consultations : Maintaining (or building) a network of known and easy to reach partners enables governments to respond to critical issues in a timely and effective manner. Formal and informal structures of communication are essential in finding solutions to issues arising from integration. Results of these consultations often form part of the basis of new policies and programs such as the integration exam and the newly introduced Imam training program in the Netherlands .

Engaging the communities: Challenges of integration could be better addressed by mobilizing resources within ethnic communities themselves. One program using this model is that of 'flat concierges' in a housing complex in Gouda , the Netherlands . Elderly volunteer representatives from ethnic minority groups living in a social housing unit were engaged with a nominal fee. They took responsibility to prevent unwanted events and behavior and to activate social control for an orderly and agreeable public environment in and around the flat. Another example in an European country cited was a 'mentor' program in the education system where ethnic students assist migrant peers with their homework and advise them on career choices.

Workshop presenters concluded by identifying how these initiatives could be sustainable over the long term. Two conditions were found to be essential. First, individuals need to have incentives to invest time and energy into such projects. Sometimes, the financial reward is symbolic as in the 'flat concierge' initiative, where the status conferred on the ethnic seniors is seen as a greater incentive.

Program funding is critical to ensure the programs' sustainability. The institutions and organizations need to be able to support these initiatives. Funding for a number of the initiatives mentioned in the workshop was short-term.

Sometimes the continuity of an initiative or program depends on the outcomes of evaluation. For example, the 'mentor' program was evaluated over the years and then developed into a national system. Governments are often obliged to evaluate their programs on a regular basis, as part of the accountability mechanism. Service providers, by comparison, often lack the time and resources to evaluate the programs for which they are responsible. Moreover, integration being a long-term process, it is difficult to see immediate results. Finally, developing the appropriate indicators is a prerequisite for meaningful evaluations.

The session featured presentations by the following presenters: (include links to the papers for all presentations available)

Ms. Kerrin Benson, CEO, Multicultural Development Association, Australia.
Click Here for presentation

Professor Usha George, Dean of the Faculty of Community Services, Ryerson University , Canada. Click Here for presentation

Ms. Marilyn Haimé, Director, Department of Citizenship and Integration, Ministry of Justice, The Netherlands.

Dr. Thu Nguyen-Hoan, Assistant Secretary, Multicultural Affairs Branch, Department of Immigration and Citizenship, Canberra , Australia.

Professor. Rinus Penninx, Professor of Ethnic Studies, University of Amsterdam and Co-Chair, International Metropolis Project, the Netherlands.

Dr. Amanda Wise, Research Fellow, Centre for Research on Social Inclusion, Macquarie University , Australia. Click Here for presentation

Jack Jedwa, Executive Director Association for Canadian Studies. Click Here for presentation