This paper aims to analyse the way the political participation of migrants and their descendants is perceived, and how migrants actually take part in political life in Germany in practice. This includes an analysis of the opportunity structures of political participation, meaning the concrete regulation of voting rights and involvement in decision-making processes as well as the discourse behind these regulations of political inclusion and exclusion.
Political participation is traditionally understood as involving the formalised participation in elections, the active involvement in political parties, and up to standing for election. For two reasons we will refer to a broader understanding of political participation, including the involvement in institutionalised round tables, consultation and in civil society. One reason for this approach is a general understanding of the political as being a complex process in which elections and standing up for elections is only one important part. Beyond that it is crucial to ask if and how migrants play a role in setting political agendas and whether and in what way migrants are involved in decision-making processes. Second, since in Germany citizenship rights – and therefore voting rights – have been restrictive for decades, even after the amendment of the Citizenship Law in 1999 there is a significant number of immigrants without German citizenship. Hence, in order to include non-citizens into the analysis, other forms of political participation have to be taken into consideration.
The vast exclusion of migrants as foreigners from formal political rights in Germany is also reflected in literature on migrants’ participation. Various publications on this subject focus on the role of migrant self-organisations or civic participation; others expound the problems of missing citizenship rights (e.g. BAGIV 1999; Diehl 2002; Assimenios, S. and Shajanian, Y. 2001; see also Cyrus 2005). It is only been the last couple of years that an increasing number of migrants with German citizenship and their voting behaviour has been the subject of empirical research (Wüst 2002, 2003, 2006; Fonseca 2006a, 2006b).
In addition to secondary literature this study is based on the analysis of material published by political parties, governmental institutions, and organisations, as well as on interviews conducted with six experts – in particular the representatives of the parliamentary parties in charge of migrant/integration issues or their consultants (Liberal Democratic Party (FDP),Social Democratic Party (SPD), Green Party)1, a representative of the Social Democratic migrant network SPD ve biz (‘Us and the SPD’), a spokesperson from the umbrella organisation: the Turkish Community in Germany (Türkische Gemeinde in Deutschland – TGD) and a member of staff of the Federal Commissioner for Migration, Refugees and Integration. The interviews were conducted between November 2008 and January 2009, audio-recorded and transcribed.
First, we will refer to the basic provisions of political participation, which is the right to vote and stand for election on the national and local levels. Studies on the political interest and voter participation of migrants will give a glimpse into both the disillusioning effects political and social exclusion have had on migrants, as well as the potential of political voices in society that has so far remained untapped. In the second part, we will outline institutionalised forms of participation and consultation, such as Foreign Citizens’ Advisory Councils originating from the 1960s and 1970s (which are meanwhile partly being transformed into Integration Councils), as well as the governmental initiative from 2006, the National Integration Summit. Third, we will focus on civic commitment in organisations as a form of articulating political opinion beyond voting and institutionalised consultation. Finally, we will focus on the position of migrants as members of political parties, candidates for elections and elected deputies.