Immigration strategies of cities: local growth policies and urban planning in Germany

ABSTRACT

Immigration is one of the most contentious fields in policy-making, not only on the European and national, but also on the local level. Due to the declining and ageing populations, European cities today increasingly need immigration. On the other side, right-wing populist parties are increasing, who are following an anti-migrant agenda. This paper examines the opportunities that cities have to more effectively attract migrants at the municipal level. The literature indicates that cities cannot pursue their own migration policies given their dependence on states’ migration regimes. Cities face a dilemma. They are responsible for integrating migrants but not for recruiting them. Urban growth policies and urban planning approaches often aim to attract highly skilled workers, creative classes and students. But cities have no control over the inflow of refugees, however, as they are allocated by the state. Against this backdrop, this article examines and compares the cities of Bremen and Leipzig to assess which immigration strategies German cities are developing and whether a shift from reactive integration plans to proactive immigration policies is occurring. In the conclusion, the paper reflects on factors that encourage and hinder the formulation of immigration strategies and explain the ‘strategy gap’ at the local level.

KEYWORDS:

• Immigration strategies
• urban planning
• growth policies
• strategy gap
• Germany

Acknowledgment

I want to thank my colleque Matthias Bernt for contributing empirical results of the Leipzig case study and Benjamin Restle for translation.

Disclosure statement

No potential conflict of interest was reported by the author.

Notes

1. Key documents in Bremen are the ‘Vision for urban development in Bremen 2020’ (Leitbild HB 2009) and the ‘At home in Bremen. Advancing integration and securing social cohesion. Cornerstones of the Senate’s medium-term integration plan’ (IK HB 2016) integration programme. In Leipzig, key documents comprise the ‘Integrated urban development plan for Leipzig 2020’ (SEKo L 2008), the draft version of the integrated urban development plan ‘Leipzig 2030’ (INSEK L 2017) as well as the ‘Overall plan for the integration of migrants in Leipzig’ (IK L 2012).

2. Under the section ‘Immigration as a challenge and opportunity’, Bremen’s urban vision reads: ‘Bremen’s population is growing because of domestic and international immigration. Without these new arrivals, the city’s population would shrink. […] Immigration presents a great opportunity that can make the city more appealing and produce cultural and economic prosperity. Integrating immigrants into society remains a persistent challenge.’ Leipzig’s urban development plan ‘Leipzig 2030’ states: ‘Immigration enhances cultural, ethnic and religious diversity, making the city more international. This creates uncertainty and challenges but also great opportunities regarding economic competitiveness, urban quality of life and social stability.’ (INSEK 2017).