Beruflich Dokumente
Kultur Dokumente
Political Sociology
Series Editors
Carlo Ruzza
Department of Sociology and Social Research
University of Trento
Trento, Italy
Hans-Jörg Trenz
Department of Media, Cognition & Communication
University of Copenhagen
Copenhagen, Denmark
Palgrave Studies in European Political Sociology addresses contempor-
ary themes in the field of Political Sociology. Over recent years, atten-
tion has turned increasingly to processes of Europeanization and
globalization and the social and political spaces that are opened by
them. These processes comprise both institutional-constitutional change
and new dynamics of social transnationalism. Europeanization and
globalization are also about changing power relations as they affect
people’s lives, social networks and forms of mobility.
The Palgrave Studies in European Political Sociology series addresses
linkages between regulation, institution building and the full range of
societal repercussions at local, regional, national, European and global
level, and will sharpen understanding of changing patterns of attitudes
and behaviours of individuals and groups, the political use of new rights
and opportunities by citizens, new conflict lines and coalitions, societal
interactions and networking, and shifting loyalties and solidarity within
and across the European space.
We welcome proposals from across the spectrum of Political Sociology
and Political Science, on dimensions of citizenship; political attitudes
and values; political communication and public spheres; states, commu-
nities, governance structure and political institutions; forms of political
participation; populism and the radical right; and democracy and
democratization.
Active Citizenship
in Europe
Practices and Demands in the EU,
Italy, Turkey, and the UK
Cristiano Bee
Kadir Has University
Istanbul, Turkey
The analysis presented in this book refers to original insights and data
that I collected over the years as part of my direct involvement in a
number of EU-funded projects. The book presents data collected as part
of fieldwork that I conducted in Brussels in 2008/2009, thanks to my
involvement in the GARNET JERP 5.2.7 ‘The Role of Non-State
Actors and Civil Society in the Global Regulatory Framework’; to data
collected in Italy, Turkey, and the UK between 2009 and 2012 thanks
to my involvement in the PIDOP WP2 ‘Analysis of Current Policies’; to
data collected in Turkey in 2015/2016 as part of my Marie Curie IEF
fellowship titled ‘The Europeanization of the Organized Civil Society in
Turkey. The case of the Youth organizations in the prospect of the
European Integration’ (EUROCS) and to data collected independently
through interviews and analysis of policy documents between 2012 and
2016. In addition, it also benefitted from the interaction with the
numerous scholars that took part in the activities of the Jean Monnet
Module that I coordinated at the University of Surrey (UK) in the
period of time 2013–2016 and titled ‘Current trends in European
Integration Studies: Beyond the Eurocrisis.’ I would like to thank the
European Commission, main funder of these grants, the coordinators of
such projects and of relative work-packages for their support, and all the
research fellows that participated in the PIDOP WP2.
vii
viii Acknowledgments
Besides, I would like to thank all the colleagues I worked with at the
European Institute of the Free University of Brussels, at the Department
of Politics of the University of Surrey, and at the European Institute of
Istanbul Bilgi University. Compiling a long list of names would be
difficult, probably impossible, without incurring in the risk of forgetting
someone important. The interaction with these colleagues has had a
strong impact on my professional development. Besides, I would like to
thank the students that attended my classes at the University of Trento
(Course Sociology of European Integration), at the University of Surrey
(Course European Social Dimension), and at Istanbul Bilgi University
(Courses Political Sociology of European Integration and Politics of
Cultural Diversity in the European Union). Various parts of the book
have significantly improved, thanks to the interaction with them and
their critical point of view has been essential in order to revisit and
question specific issues.
I also would like to express my gratitude to my family, in Austria,
Chile, and Greece, for the support across the years and since I started my
academic career.
Last and most important, I would like to thank Stavroula, for the
help, feedback, support, and fondness that she transmitted to me across
these years and that has been a key determinant to write this book, and
to our son, Kimonas, for his indirect support but overall for his patience
while I was trying to explain him that the drafts of the book were not a
game to be spread around the house. This book is dedicated to them.
About the Author
ix
Contents
xi
xii Contents
10 Conclusion 211
Bibliography 223
Index 255
List of Abbreviations
xiii
xiv List of Abbreviations
xv
1
Preamble and Introduction
In the course of writing, the issue of active citizenship has become even
more prominent and contentious than it was when I started working on
the contents of the book. Various dynamics have emerged both at the
supranational level and in the national arenas under consideration. In
particular, different events have affected the domestic contexts of interest
for this book (Italy, Turkey, and the UK). These three countries have in
fact recently experienced mobilizations of various kinds, offering valu-
able insights in terms of civic participation and conventional and non-
conventional political participation. Between the many, it is worth to
remind briefly here three recent examples of bottom-up processes of
mobilization that are particularly significant because of the resonance
they had in the contexts under consideration but also internationally.
In the spring of 2016, wide mobilizations have taken place on the
Italian borders as a result of the threat of the Austrian Government to
build a wall in order to block the influx of migrants in the Tyrolean part
of the region. This event has attracted much attention, triggering strong
reactions, both from the organized civil society and from newly emerging
social movements that actively protested on the site. This reaction of the
civil society is rather important for at least two reasons. First of all, it has
While there is a worldwide fight against child sexual abuse, and forced
marriages and child marriages are prohibited and the minimum age of
marriage is increased around the world, the course of events in Turkey is
extremely worrisome. Those who wish to lower the age of consent to 12,
who have proposed the amnesty bill for the convicts of child sexual abuse
and those who approved the bill should urgently reverse this wrong.
Doing otherwise, will lead to irreversible consequences and marks the
usurpation of the rights of the children and women by the Parliament, the
representatives of the public. (FILMMOR 2016)
Preamble and Introduction 3
Third, this rally was part of a global event – initiated in 1991 and
coordinated by the Center for Women’s Global Leadership – that starts
the 16 Days of Activism against Gender-Based Violence Campaign and that
runs from 25 November 2016 through 10 December 2016. This pro-
vides evidence of the importance and the positive impact that processes
of transnationalization have on the Turkish context – as well as in other
countries – for bringing about claims for democratization and respect of
human rights. These considerations show the significance played by such
mass mobilization for the vindication of basic freedoms in Turkey. Also
in this case there are analytical consequences that an event as such
determines for studying active citizenship in Turkey.
In the UK, the referendum to decide upon the membership of the EU
that took place on 23 June 2016 is significant for a number of reasons.
The decision to leave has been taken through the use of an instrument of
conventional political participation that is symbolizing the expression of
direct democracy. It is important to note here that, as a consequence of
the leave vote, a number of EU scholars have critically discussed about
the validity of the referendum as a participatory instrument. Shaw, for
example, in an interview released on 24 June 2016 argued the following:
I am not a fan of referendums at all, and I’ve definitely had my fill of them after
yesterday’s. I don’t think referendums are the appropriate mechanism for
dealing with these types of issues – I rather agree with what Richard
Dawkins had to say about that issue. Citizens in general here do not have
the necessary expertise. That might sound elitist, but actually it’s simply in
support of representative democracy. We elect members of Parliament to deal
with such questions. (Verfassungsblog 2016)
The issues raised by Shaw are rather critical; in so far she puts under
question the value of direct democracy, weighting it in respect to represen-
tative democracy. The lack of expertise by citizens is in my book classified as
a component of active citizenship, and more precisely as an indicator that
can be used to measure political engagement. It is not a case that this has long
been a controversial issue for the European project itself and – as I will
discuss in Chapter 5 – one of the main triggers of the reforms undertaken by
the European Commission as a consequence of the rejection of the
4 1 Preamble and Introduction
Introduction
The book provides an overview of key issues in the debate concerning the
emergence of active citizenship. The specific focus of enquiry is the promo-
tion of patterns of civic and political engagement and civic and political
participation by the EU and the relative responses drawn by organizations of
the civil society operating at the supranational level and in three different
countries (Italy, Turkey, and the UK). More specifically it addresses key
debates on the engagement and participation of organized civil society
(Boje 2015) across the permanent state of euro-crisis, considering the produc-
tion of policy discourses along the continuum that characterized three
subsequent and interrelated emergency situations (democratic, financial,
and migration crises) that hit Europe since 2005. As such, it sheds light on
Introduction 5
The analytical part of this book deals first of all with the establishment of
active citizenship at the supranational level, by taking into account
policy discourses about participation elaborated by the European
Commission and by supranational umbrella organizations.
On the one side – central in my analysis – is the promotion of govern-
ance reforms by the European Commission that has pushed for a better
performance of public policy-making, clearly aiming at establishing active
citizenship as a practice, in order to find a solution to the ever-urgent issue of
the resolution of the democratic deficit. It is important to note that this
process of reform of the EU policy-making is to be understood in light of
the governance reforms undertaken since the publication of the White
Paper on Governance (2001a, 2001b, 2001c). The European Commission
in particular has been a key player in this endeavor. An expanding emphasis
on the need to widen the democratic bases of the project, through the
adoption of principles such as those of openness, participation, account-
ability, effectiveness, and coherence (the five governance principles estab-
lished by the Commission) proves the institutional attempt to open up
patterns of participatory democracy at the EU level. The core approach
followed by the European Commission is one that looks at a radical reform
of public policy-making, by enhancing the bases for providing forms of
input legitimacy, besides of output legitimacy (Greenwood 2007; Kohler-
Koch and Rittberger 2007; Kohler-Koch 2009; Smismans 2006, 2009). In
other words, as a consequence of this process the EU started to adopt
principles of reform of public administration that are typical of New Public
Management approaches (Dawson and Dargie 2002; Ferlie et al. 1996;
Hood 1991; Hood and Jackson 1991). In order to do this, the establish-
ment of new patterns to interact better with citizens, as well as to engage
them in policy-making becomes a rather crucial issue.
On the other side, studying the discursive interactions of institutions with
civil society actors not only at the supranational level but also at the national
level help us understanding better their demands and priorities vis-à-vis the
institutions. The advocacy and lobbying of NGOs in Brussels through
institutionalized instruments, like the civil dialogue procedures, is a good
Introduction 7
Introduction
The theoretical background of this book follows the social constructivist
insights that have been driving the theoretical discussions surrounding
European Union (EU) studies since the late 1990s. It is indeed
particularly important the emphasis given on the development of
practices, points of view, and beliefs stimulated through the interac-
tion between institutional actors and nonstate actors that ultimately
influence patterns of civic and political behavior. It is therefore argued
that citizenship is a socially constructed concept that involves both
passive and active elements and it is mediated through interactions
between different policy actors that associate different meanings with
its exercise (Bee and Guerrina 2014). This pattern clearly emerged in
EU integration studies across the 1990s and furnishes a valid inter-
pretative framework in order to understand the adoption of identity
building instruments by European institutions and foremost by the
European Commission (Christiansen et al. 1999; Laffan 2004). At the
same time, it provides invaluable elements in order to interpret con-
flicting and diverging discourses that emerge from the civil society at
Social Constructivism
Social constructivism is important because it emphasizes the discursive
challenges put forward by the European integration as well as the
communicative practices developed through processes of social interac-
tion and socialization happening in the public sphere (Habermas 1989).
This has been extensively discussed by various scholars in European
studies (Checkel and Katzenstein 2009; Christiansen et al. 1999; De
Beus 2010; Risse 2009). This agenda highlights that Europe is not a
bargaining arena among states asserting their power and interests but can
be discursively impacted by the socially constructed nature of the
environment actors are a product of. It has thus been established that
communication, discourse, norms, structure, and agency make up the
core elements of social constructivism (Cederman 2000; Checkel 1999).
In this respect, the choice of focusing on discursive practices between
activists and policy-makers is in line with this agenda. The scope of the
book is in fact to unpack the core issues, themes, and points of view that
surround the construction of meaning around active citizenship at the
EU level and in three different countries (Italy, Turkey, and the UK).
The social interaction between EU institutional actors and nonstate
actors provides interesting insights in respect to the social constructions
Social Constructivism 15
and Diez (2004) explain that the European integration process has
followed three phases in which different kinds of questions are raised
by different kinds of theories. In the first phase, characterized by theories
such as intergovernmentalism and neofunctionalism and elaborated in
the 1960s, the aim was to discover the roots of the integration process; in
the second phase, characterized by theories known as neo-(neo-)func-
tionalism and liberal intergovernamentalism, the aim was to understand
the kind of political processes that were going on within the EU.
Subsequently, new set of concepts were elaborated and analyzed,
which had to discover the nature of the beast, using a formula proposed
by Thomas Risse (1996). In this second phase, the EU has been con-
ceived as a multilevel governance system, being characterized by differ-
ent levels (supranational, national, regional, local) and more importantly
with different patterns of identification across those different levels
(Soysal 2002).
This last assumption has been central for the constructivist turn in
European integration theories. Since the early 1990s, when the Treaty of
Maastricht was established, a new set of questions aimed at discovering
the general conceptualization of European integration and the conse-
quences of such a process for constructing identities have been raised. In
the third phase of European integration theory, sociology and its theo-
retical and methodological instruments have gained a new role within
the area of European studies.
The emphasis upon European integration as a process that is con-
tinuously changing is quite important, because it is through this assump-
tion that we realize that European identity is something which is being
continuously forged and constructed (Christiansen et al. 1999). The EU
influences the cognitive schemas and the social representations of
people’s life through a never ended process of identity building:
‘Identity building had been fostered by membership, the external pro-
jection of an EU identity, the appropriation by the EU of the concept of
Europe, and the cement provided by the founding values and the
addition of EU symbols to Europe’s forest of symbols’ (Laffan 2004:
76). This process of appropriation, as it is emphasized in this chapter, is
not free from controversies, because of the impact of the democratic,
financial and migration crises in Europe.
Social Constructivism 17
A core argument of this chapter – and of the book – is that the EU across
the years has acted as an identity builder and artificially adopted mea-
sures in order to shape an imagined Europe. This is the reason why
central in the discussion concerning citizenship and active citizenship is
the issue of identity. As Closa and Vintila for example recently under-
lined, ‘the legal status of the European Citizenship, together with the set
of rights associated with it, have often been seen as a means by which to
promote the consolidation of a European Identity that would bind
citizens with it’ (Closa and Vintila 2014: 24).
On this regard, it is worth reminding that European institutions have
strategically promoted a set of initiatives, employed by the EU in order
to create a sense of commonality and belonging in the area of citizens’
Europe (Bee 2008; Sternberg 2013; Pukallus 2016). In this sense, the
issues concerning citizenship and active citizenship are crucial for devel-
oping a socially constructed European sense of identification. As I will
remark further below, the idea of European citizenship can be seen
either in legalistic terms, in example by considering an analysis of the
status in legal terms or, in a broader sense, by accounting not only its
symbolic value but also the practices it arouses. In these terms, it is a
concept of a socio-anthropological nature through which spaces of
belonging to a supranational community are shaped and defined.
The development of European citizenship has been on the top of the
European Agenda since at least the early 1980s, when a number of measures
were initiated in order to shape a better relationship with the European
citizenry and to bind citizens. The perceived social and political needs at the
time were to transform the widespread perception of the EU as being a
merely economic enterprise into a civic cultural and political entity.
It is therefore essential to stress the importance and centrality of the
actions taken by the EU in order to enhance its own idea, or strategy,
concerning the process of identity building. A strategy clarified in 1984
when at the Fontainebleau Council it was stated that: ‘The European
Council considers it essential that the Community should respond to the
expectations of the people of Europe by adopting measures to strengthen
18 2 Insights on the Social Construction of Europe . . .
and promote its identity and its image both for its citizens and for the
rest of the world’ (European Council 1984: 11). Strengthening and
promoting identity were established as the two basic elements on
which to forge the image of the European Community.
Through the report of the Committee for the ‘Citizen’s Europe’,
known as the Adonnino Report, presented in 1985, the European
Community identified different areas in order to develop a European
sense of belonging. The Commission in particular sought to develop tools
for making Europe a social reality, setting different initiatives in order to
enforce citizens’ rights and perceptions of the existence of the suprana-
tional entity.
An entire chapter of the Adonnino Report was aimed at the
‘Strengthening of the Community’s image and identity’ (CEC 1985:
29). Also very relevant for forging an imagined Europe was the defini-
tion of all those instruments aimed at creating a new symbolic realty:
‘Symbols play a key role in consciousness-raising but there is also a need
to make the European citizen aware of the different elements that go to
make up this European identity, of our cultural unity with all its
diversity of expression, and of the historic ties which link the nations
of Europe’ (CEC 1988: 9). Through the use of symbols the Commission
invented a new kind of identity, establishing and remarking the ‘Unity
in diversity’ elements on which it should be based.
In order to frame this discussion and gather a better understanding of
the importance of these developments, it is worth reminding the analysis
of Shore, who underlines the importance of the symbolic construction of
ethnic and national communities. Symbols in some ways reflect the
cultural heritage of a particular community, as anthropological theory
has widely argued (Barth 1969; Cohen 1985), insofar it is through
symbols that it is possible to learn ‘how to be social’ through an ongoing
process of socialization. In fact, in Cohen’s famous conceptualization
individuals are involved in a lifelong process of learning through which
they get integrated in and they assimilate the rules and the traditions of
their groups of belonging (Cohen 1985: 16).
According to this analysis, the EU has in some ways selected particular
symbols in order to develop a common identity. The creation of a
common symbolism together with the diffusion of the so-called
Evaluating European Citizenship 19
I refer to those forces and objects through which knowledge of the European
Union is embodied and communicated as a socio-cultural phenomenon: in
other words, all those actors, actions, artefacts, bodies, institutions, policies
and representations which, singularly or collectively, help to engender
awareness and promote acceptance of the European idea. (Shore 2000: 26)
Shore is quite skeptical about the possibilities the institutions have for
developing a feeling of being European. The European identity in some
ways seems to be limited to European elites, especially those working in
Brussels, rather than other spheres of the civil society. The following
passage is in fact quite representative: ‘Although on some levels it
appears that a common European consciousness is developing amongst
those working in the institutions it is difficult to see how it relates to the
population in general’ (Shore 1994: 288).
It is important here to outline that, across the years, the development of
key programs in various areas that have to do with cultural and social
policy has been key in order to foster this mechanism of identity building.
The establishment of the European citizenship in the Maastricht Treaty is,
symbolically speaking, a central component of the citizens’ Europe set of
policies. As I overview in the next paragraph, its value can be interpreted
in two different directions, one minimalist and one maximalist.
one of the least successful aspects of Maastricht, trivial and empty, and
hence irrelevant ( . . . ) For others, European citizenship is an important
symbol with far-reaching potential and dangers’ (1999: 495). It can
therefore be argued that, on the one hand, a broad set of scholars
pointed to the limitations of European citizenship, because of the scarce
implications entailed by this set of rights for the everyday lives of
citizens, for its neoliberal shape and for the highly exclusionary value
inherent to its selective attribution to current member states’ nationals
(see, e.g., Closa 1992; Roche 1997; Lehning 1997). On the other hand,
a number of scholars, commenting later in the 1990s, interpreted the
status of European citizenship in respect to wider considerations regard-
ing practices and possibilities to engage and participate in European
politics (Wiener 1998; Kostakopulou 2001, 2008).
For the first strand of literature, the status of European citizenship was
considered market based and largely influenced by the need to
strengthen one of the core liberties formalized in the 1950s with the
Treaty of Rome, which is the freedom of movement for workers within
the EU. The political dimension of European citizenship, consisting of
the right to stand and vote at local elections in any country of residence,
was certainly not considered to be guaranteeing the full civic inclusion
and motivation for the engagement of citizens in public affairs.
Moreover, the lack of account of the social dimension was considered
to be one of the most relevant limitations of this status (O’Leary 1995;
Meehan 1997; Sykes 1997), accentuating even more prominently its
neoliberal connotation.
Closa, in one of the many articles published at the time, in commenting
upon the highly exclusionary character of European citizenship, raised the
concern that ‘citizenship of the Union may not be individually acquired
and, therefore, individuals who are not nationals of a Member State may
thus not be considered citizens of the Union and, as a consequence,
experience their possible exclusion from the catalogue of rights of citizen-
ship’ (1995: 509). Follesdal (2001) instead points at the contradictions
inherent in European citizenship, by arguing that its establishment soli-
dified the democratic deficit because it raised issues in respect to the lack
of legitimacy of the European project as a whole. This question looks
directly at the development, or lack, of a demos and opens up questions
Evaluating European Citizenship 21
The research aims of this book fall within this research agenda, but
provide an emphasis on a rather neglected area of study, which is the
positioning of traditionally marginalized social groups in the public
sphere. The analysis presented here looks in particular at the develop-
ment of a European discourse about the need to engage and include
these groups in public policy-making. As I argue in Chapter 5, European
institutions, and the European Commission in particular, have played a
key role in shaping the policy agenda on target groups such as young
people, women, minorities, and migrants.
The challenge of the financial crisis that hit the world in 2008 has
provoked a set of unique effects on Europe, with a worsening of socio-
economic conditions in different European countries (Guiraudon et al.
Challenging the EU’s Identity Building: A Permanent State of Crisis? 27
The severity of the crisis, with its appalling impact on the lives of
European citizens through unemployment, under-employment, poverty
and so on, as well as on the European social model as a whole, have
exposed the fragility and vulnerability of the concept of European citizen-
ship. We need to recognize that, rather than feeling themselves to have
been defended by the Union, citizens have felt threatened by the policy of
austerity. They have not benefitted from European solidarity. The result
has been rising inequality and imbalances between north and south,
28 2 Insights on the Social Construction of Europe . . .
between the center and the periphery, and within individual member
states. At the same time, the tragedy of the tens of thousands of women
who suffer at the hands of the perpetrators of gender violence has con-
tinued, without any effective response from Europe. (Garrido 2014: 14)
Ten years ago it was considered heresy among EU leaders and supporters
to question the assumption that monetary union was a necessary and
inevitable path to European unification. Now it seems that the instrument
designed to unite Europeans and foster a shared citizenship has come to
symbolize division and disorder in Europe. One positive outcome from all
this is that the received wisdom of past economic orthodoxies and uncri-
tical acceptance of the grand narrative of European integration are increas-
ingly being challenged. Perhaps that scepticism is a necessary precondition
for the accountability and active citizenship that Bini Smaghi and others
are now calling for. (Shore 2013: 181)
On the same argumentative line, Matthijs argues that ‘rather than produ-
cing wealth, affluence, and peaceful harmony for southern Europe’s still
relatively young democracies, the euro has become synonymous with
general strikes, mass protests, violence, riots, and tear gas in the streets
of Athens, Madrid, Lisbon, and Rome. New antiestablishment parties
have emerged to challenge their countries’ elites and EU membership, and
popular support for the EU has plummeted’ (2014: 102).
This book critically looks at the interaction between civil society
actors and the European Commission in setting specific discourses on
the core responses, policy priorities, and demands along the financial
crisis, offering a view on the variable approach to active citizenship
followed through according to different social groups, such as youth,
women and minorities, and migrants. As I will discuss in Chapter 6,
these different groups participate with different capabilities in policy-
making, showing that the development of active citizenship is highly
contested.
Challenging the EU’s Identity Building: A Permanent State of Crisis? 31
The recent migration crisis, which intensified in 2015 and 2016, is the
latest important development that signifies an enhancement of the
permanent state of euro-crisis of European integration. The influx of
migrants toward EU borders and particularly to Greece and Italy – as
countries of first entry – has, more than ever, put into deep crisis EU
capabilities to produce proper policy responsiveness to such a crisis. This
has partly to be interpreted with the high politicization of the issue of
migration that started across the 2000s and is represented by ‘a backlash
against multiculturalism and a rise of anti-immigrant sentiments, and in
some countries even anti-immigrant parties’ (Scholten and Van Nispen
2015: 3). This has significantly contributed to shaping the perception of
a crisis ‘involving concerns about levels and types of immigration as well
as concerns about the integration of migrant groups and categories’
(Scholten and Van Nispen 2015: 3).
The emergence of euroskeptic and populist parties, along with the
closure of borders by a high numbers of member state has dramatically
revitalized the debate regarding Fortress Europe (Geddes and Taylor 2016;
Sommer 2013), putting into question the development of the freedom of
movement within the European territory and shedding further light into
the inclusive and exclusive elements of the European integration project.
If, as outlined before, the financial crisis has impacted upon core
social, political, and cultural values that are at the basis of the
European integration project questioning them, with the migration
crisis we are currently experiencing a radical intensification of the crisis
of solidarity in the EU, associated this with the retention of borders by
different member states. At the same time, in direct continuum with the
effects produced by the financial crisis, it can be argued that at present
times a radical growth in extremist behaviors directed at migrants is
reflected in a transborder political discourse established by extreme right
movements and political parties. As Heisbourg puts it well, ‘This sudden
and massive flow of population has already had a substantial impact on
the domestic politics of most European countries. It has generated new
tensions, and exacerbated pre-existing ones, between the member states
32 2 Insights on the Social Construction of Europe . . .
On the other side, however, this last period tells us about a wide self-
mobilization of organizations providing help and support for migrants
across the borders of Fortress Europe, showing evidence that, in the lack
of actual intervention by governments and European institutions, there
are important patterns of active citizenship as a demand that are emer-
ging. This is noted by Triandafyllidou (2015) who argues that ‘This is a
critical moment for Europe and the international community: both
because the emergency has escalated and because European citizens
have mobilized in a spectacular expression of solidarity and compassion.’
The mobilizations of NGOs providing support for refugees offer a
unique and invaluable example of active citizenship in absence of insti-
tutional responsiveness.
Interestingly, the issue of migration is contentious for all the three
countries and case studies that are presented in this book. Being Italy
one of the countries of first entry, the long-standing influx of migrants
on the Italian seashores has dramatically intensified since 2011, with
peaks in 2015 and 2016. Overall, the difficulty of the country to deal
which such issue has on the one side attracted criticism for the inability
to compile to EU law, while at the same time has corresponded to the
launch of a number of programs, such as Mare Nostrum in 2013 aiming
at the rescue of migrants, soon replaced by Frontex-coordinated opera-
tions, such as Operation Triton which is based on border security. On the
political level, Italy has experienced a revitalization of xenophobic dis-
courses of populist parties such as the Northern League (Bobba and
McDonnell 2016; Passarelli 2013; Verbeek and Zaslove 2016) whose
anti-immigration agenda has been recently shaped under the new leader
Matteo Salvini.
Moving on to the Turkish case, the issue of migration is a central
feature regarding the recent revitalization of Turkish/EU relations, in
the aftermath of the controversial joint action plan activated on 29
November 2015 (CEC 2015d) and discussed further in a meeting
between EU Heads of State or Government and Turkey that took
place on 18 March 2016 in Brussels. This had the scope to finalize
the agreement to end the irregular migration from Turkey to the EU.
The aim of the so-called refugee deal is to ‘replace disorganized,
chaotic, irregular and dangerous migratory flows by organized, safe
34 2 Insights on the Social Construction of Europe . . .
Conclusion
This chapter located the development of active citizenship as part of the
constructivist project of identity building followed by the European
Commission since the mid-1980s in the context of citizens’ Europe set of
policies. The main argument is that European citizenship first and foremost
entails a set of prescribed rights formally recognized by the Treaty of
Maastricht in 1992. It however acquires a broader value when we interpret
it as part of a wider set of practices that subsume, between others, the
assumption of awareness of the existence of civic and political dimensions
relative to EU civic and political institutions (civic and political engage-
ment) as well as it involves the development of participatory behaviors in
public policy processes and more widely in the public sphere (civic and
political participation). The development of active citizenship at the EU
level goes hand in hand with the intensification of the European crisis, and
more precisely with the emergence of the democratic, financial, and migra-
tion crises that have radically challenged the project of unification in the last
ten years. Along this context, the book aims at evaluating the role of civil
society organizations vis-à-vis the European Commission in bringing about
specific political and social values, in prioritizing certain social problems,
and in designing possible ways forward in order to overcome the permanent
state of euro-crisis. The next chapter furnishes insights on the nature of the
study that I conducted in order to analyze the production of discourses and
counterdiscourses along the crisis by the European Commission and civil
society organizations. As part of this, it delineates the assumptions and the
approach that I followed – Europeanization and multilevel governance –
and puts forward the model of discourse analysis that drives the empirical
research.
3
Europeanization, Public Sphere,
and Active Citizenship
Introduction
Two central concepts, Europeanization and multilevel governance, are
central in order to address the methodological framework of the book.
Europeanization is employed in order to study the process of change
happening as part of the European integration process. The book acknowl-
edges that Europeanization has two basic distinct dimensions, top-down and
bottom-up, to be taken into account. In both cases, Europeanization is to be
conceived as a process (Radaelli 2003; Exadaktylos and Radaelli 2009, 2012)
and not an outcome. A process that, because of its nature, has a varied impact
and it is to be framed in respect to the complex nature of the EU governance
system. Because of this, it implies on the one side compliance – whenever
there is mutual agreement between policy actors – and on the other side
conflict – whenever instead there is dissent or in some cases rejection of
European values, norms, procedures and, important for this book, systems of
meaning promoted by the EU on specific political concepts, such as the one
of active citizenship and its associated components. The framework of the
book combines Europeanization with an account of the concept of multi-
level governance by putting into particular emphasis the emergence of a
The particular angle that this book takes in this broad constellation of
empirical work links with literature that has explored the drivers of engage-
ment and participation in the European public sphere (Fossum and Trenz
2006) and that studied the role of civil society organizations in fostering
public policies and promoting active citizenship (Balme and Chabanet 2008;
Smismans 2006, 2009). Overall, it is worth underlining that some common
research questions that characterize this set of academic work, look at the
actual implications of European integration in developing, or not, patterns of
European political, social, and cultural identification (Checkel and
Katzenstein 2009; Hermann et al. 2004; Risse 2010) and give relevance to
the processes of political socialization and the determinants of active partici-
pation of citizens at the EU level (Warleigh 2001; Sánchez-Salgado 2007),
either in the form of coalitions of organized interests, pressure groups, or
social movements (Coen 2007; Greenwood 2007; Ruzza 2004). The discus-
sion on active citizenship has thus become prominent in the last few years
(Boje 2010, 2015; Hoskins and Kerr 2012), with a focus on the factors that
motivate engagement and participation of citizens in an organized civil society.
This discussion has mostly been concentrated on the functions per-
formed by the civil society for the improvement of standards in terms of
input legitimacy to public policies and by consequence on the promo-
tion of outputs based on participatory approaches. If on the one side,
research on civil society as a key actor in developing a European public
Multilevel Governance and Networks of Interest 45
sphere has significantly increased in the last decade, on the other side it is
worth observing that this is in line with the institutional agenda that
looks at the enhancement of governance principles by the European
Commission, that more and more has become aware of the necessity to
improve democratic performance by injecting input legitimacy. As
research shows, policy actions aimed at developing a system of partici-
patory democracy pushed forward by the European Commission (CEC
2005a, 2006a, 2006b, 2008a) are characterized by the attempt to
improve engagement with the organized civil society (Kohler Koch and
Rittberger 2007; Greenwood and Halpin 2007) in order to provide a
better basis of legitimization for policy processes.
In evaluating this approach to civic engagement and active citizenship,
it is worth underlining that, even if welcomed, the strategy undertaken by
the European institutions and the European Commission in particular,
has been subject to criticism in the literature on governance studies
(Magnette 2003; Kohler-Koch 2009; Smisman 2007, 2008, 2009).
Overall, it is argued that the approach to governance followed by the
European Commission suffers from being an account of political and civic
participation that could be considered selectivist rather than inclusive of
the whole civil society. The emphasis on the term organized civil society is
representative of this approach. This is a danger that Magnette noted
when commenting on the principles of governance and the measures put
in place to enhance civic and political participation in the time context
following the governance reform. The scholar argued that these instru-
ments ‘are only designed to stimulate the involvement of active citizens
and groups in some precise procedures and not to enhance the general
level of civic consciousness and participation’ (2003: 5).
Moreover, as a consequence of the preceding consideration, another
element for discussion emerging in the literature has to be noted. As
Heidbreder argues, for example, the ‘increased participation of civil
society was not primarily the result of a bottom-up process in which
civil society pressured for access into EU decision-making’ (Heidbreder
2012: 16). This top-down development of the organized civil society is
thus stimulated by the European Commission’s necessity to formalize
procedures, norms, and practices that enhance the possibilities to actu-
ally participate in the governance of the EU rather than stimulate an
46 3 Europeanization, Public Sphere, and Active Citizenship
Methodology
The aim of the research is to investigate systems of values, ideas, and
beliefs concerning different components of active citizenship at the EU
level and in Italy, Turkey, and the UK. In doing so, the impact and
development of specific systems of meaning by the various policy actors
involved in the research is being investigated by adopting a discursive
Methodology 47
Empirical Research
In developing a discursive approach to map the interactions going on
between different policy actors, institutional and noninstitutional, I
am foremost interested in understanding how through social inter-
actions different beliefs, ideas, and participatory behaviors are
adopted. At the same time a point of interest is the exploration of
the actual systems of meaning developed through this interaction. In
a nutshell, I examine how different policy actors interpret differing
notions of the same concept, and I look at the values and policy
priorities that are foreseen as necessary. In doing so, the analysis is
focused on the interaction going on between different policy actors
at different levels of governance. The aim is to collect information
concerning specific discourses on active citizenship and its core
components (see Chapter 4).
Research Design
analytical categories key to unpack the core narratives and themes and to
elaborate a codebook through a process of ‘open coding’ (Charmaz
2007). The key categories I looked at are: (1) components of active
citizenship; (2) facts and events; (3) social representation of Europe; (4)
European debates and policies; (5) policy solutions; (6) visions on the
euro-crisis; and (7) evaluation of the euro-crisis. The analysis has been
supported by Atlas.ti through which I associated different narratives and
themes to specific codes.
The analysis has been conducted in three stages (see Table 3.1). This
is particularly relevant in order to gather evidence concerning the estab-
lishment of active citizenship by looking at the effect that specific
contextual dynamics relative to the permanent state of euro-crisis had in
shaping meaning around civic and political engagement and civic and
political participation.
The key research questions driving this level of analysis are the
following:
– How are practices of active citizenship that emerged during the demo-
cratic crisis promoted in subsequent stages (financial and migration crises)
through policy programs? With this first research question my aim is to find
patterns of discursive convergence or divergence in respect to the stated aims
of developing a citizen-centered approach produced by the European
Commission in the aftermath of the democratic crisis.
– How does the European Commission promote specific meaning on
active citizenship and its relative components in respect to the margin-
alized groups at hand? With this research question, the aim is to unpack
the values attributed to different components of active citizenship (see
Chapter 4) according to youth, women, and migrants and minorities.
– Supranational discourse on active citizenship – nonstate actors: the scope of
this phase of the research is to map – through an analysis of policy docu-
ments and transcripts from interviews – the narratives that are associated
with the notion of active citizenship by nonstate actors, and in particular by
umbrella organizations. More precisely, I focus on the development of a
supranational discourse on active citizenship by interest organizations such as
– for example – the European Women’s Lobby, the European Network
Against Racism, the European Youth Forum, the Social Platform, Solidar,
between others. These groups are part of the organized civil society (Kendall
2009; Ruzza 2004), in the sense that they have a direct and institutionalized
relationship with the European Institutions. As outlined before, the
European Commission has considered this as a key priority since the 2001
governance reform. The organizations selected are representing the three
social groups mentioned above (youth, women, and migrants and mino-
rities) and are actively involved through formal (e.g., consultations) and
informal (e.g., civil dialogue activities) procedures in policy-making at the
EU level. In this sense, a more specific scope of the research is to map the
specific narratives concerning active citizenship, by looking at policy
responses and at the positioning of supranational organizations in respect
to core EU policy programs promoted by the European Commission.
The key research questions driving this level of analysis are the following:
– Do umbrella organizations follow a construction of meaning regard-
ing active citizenship that is in line with the principles established by the
Empirical Research 53
Conclusion
The methodological approach of this book combines a top-down
approach – the development of specific discourses on active citizen-
ship by the European Commission – and a bottom-up perspective –
the development of counterdiscourses by civil society organizations
at the EU level and in three different territorial contexts. In parti-
cular, by referring to the development of a network governance
approach to policy analysis, the chapter sets the framework that
characterizes the empirical analysis, contextualizing it in respect to
the studies that look at the emergence of discursive approaches in
public policy analysis, following the insights of scholars such as
Fischer (2003) and Dryzek (2008). The development of a discursive
approach is meant to shed light on the different controversial narra-
tives that are generated by the policy actors that are part of the
European discursive battleground (Diez 2001).
Conclusion 55
Introduction
In this chapter, I discuss models for the understanding of active citizen-
ship that take into account various mobilizing dynamics that pertain to
different core dimensions, specifically civic and political engagement on
the one side and civic and political participation on the other. I argue
that in order to gain a profound and well-rounded understanding of this
concept, this issue should be studied through the adoption of a multi-
disciplinary methodological approach that can shed light on the complex
components of active citizenship that influence both civic and political
behavior (Barrett and Brunton-Smith 2014). More specifically the
chapter introduces the determinants that are essentially providing
insights into the adoption of individual and collective participatory
behaviors. The schema of indicators elaborated in the chapter (see
Tables 4.1, 4.2 and 4.3) is useful in order to establish whether the EU
has in the first instance developed measures aimed at stimulating engage-
ment and participation, and the nature of these. Besides of this, this
discussion is key in light of the comparison with civil society discourses
at the supranational level and in the three countries.
Evidence shows (Bee and Pachi 2014; Ribeiro et al. 2014; Şener 2014)
that in different European countries as well as in the EU, active citi-
zenship has become a public policy with the aim of promoting demo-
cratization, integration, participation in public policy-making and
accountability, among others. In the first perspective, active citizenship
Methodological Challenges in the Study of Active Citizenship 61
Political and civic participation and political and civic engagement are
also in these cases central categories, but take place in nontraditional
channels of representation, often associated with deliberative models of
democracy. Natural contingencies, such as an earthquake or conflicts,
can have the effect of opening up windows of opportunities that moti-
vate individuals to mobilize and to express solidarity. At the same time, a
pacific protest can turn into a claim for an alternative society and entail a
demand for a radical change in the social and political structures.
1
The Project PIDOP (Processes Influencing Democratic Ownership and Participation) financed by the
7FP aimed at the analysis of civic and political engagement and participation in eight European
countries. Full details on the Project can be found at http://www.fahs.surrey.ac.uk/pidop/
Components of Active Citizenship 65
Civic Engagement
Adler and Goggin (2005) argue that definitions vary according to the
different points of view and types of activity that are under consideration
and in this respect they claim that the existing literature can be summar-
ized into four typologies of activities that entail: community service,
collective action, political involvement, and social change (Adler and
Goggin 2005: 238, 239). The authors attempt to narrow down these to
a working definition: ‘Civic engagement defines how an active citizen
participates in the life of a community in order to improve conditions
for others or to help shape the community’s future’ (Adler and Goggin
2005: 241). As it can be seen, this definition suggests the application to
an infinitive set of processes of mobilization and participation that can
be either civic or political, or both of them at the same time.
In the last few years much criticism has been raised toward the use of
approaches of this kind to the definition of civic engagement, with
authors even calling for the necessity to replace a term considered
ready for the ‘dustbin’ (Berger 2009). Berger, in his critique of the
concept points at the various ambiguities that are inherent to this
discussion, arguing – probably correctly – that: ‘What thread could
coherently link bowling in leagues, voting alone, writing checks to
political candidates or interest groups, attending dinner parties, creating
politically conscious work, volunteering at soup kitchens, attending
church and watching politically relevant television programs, all of
which have been counted as forms of civic engagement?’ (Berger 2009:
337). The author unpacks all the ambiguities inherent to the usage of
civic engagement made in the literature and underlines the lack of
coherence existing when indicators to measure it are being built. In
this chapter, I acknowledge the critique of Berger by remarking the
importance of emphasizing the civic component of engagement. In doing
this, as other authors did, it is important to draw a clearly separate line
with the political dimensions of engagement.
Acknowledging this criticism I can therefore argue that civic engage-
ment consists in the expression of ideas, interests, feelings, knowledge,
opinions, and attitudes toward the life of a given civic community. It can
be argued that civic engagement is a concept that has individual and
collective dimensions and, most importantly takes expression in com-
munitarian and collective attitudes that are central in determining the
68 4 Active Citizenship and Its Components
Having said this, how can we account for forms of civic engagement that
are pre-political? It is worth to underline, and the criticism of Berger is
enlightening in this sense, that much of the confusion in the literature
regarding civic engagement has to do with the fact that most authors
draw a link with formal and informal dimensions of political action and
participation attaching a strong political meaning in its definition. This
confusion is created by the fact that, as Ekman and Amnå (2012) argue,
civic engagement can be seen, in some cases, as a latent form of political
participation insofar it implies forms of engagement that might actually
be of great significance for future political activities (Ekman and Amnå
2012: 287). In short, showing an interest toward crucial matters con-
cerning a given community, can eventually lead into forms of participa-
tion and therefore to engage in political activism within the community.
Just to draw an example, showing an interest toward environmental
Components of Active Citizenship 69
- Violence confrontations
with political opponents
or police
Elaboration based on: Barrett and Zani (2015); Barrett and Brunton-Smith (2014); Ekman and Amnå (2012).
71
72 4 Active Citizenship and Its Components
Political
participation
Political Political participation (non
Civic engagement engagement Civic participation (conventional) conventional)
Individual - Knowledge of EU - Knowledge - Supporting volun- - Voting at EU elections - Writing letters
institutions of EU poli- tary groups that - Supporting specific to politicians or
- Paying attention to EU tical deal with civic mat- political parties at the to the media
developments processes ters (i.e., donating EU level regarding EU-
- Awareness of European - Paying money) - Running as a candidate related issues
values attention - Activating groups in EU elections - Join groups on
to EU poli- of peers for raising the Internet
tical issues EU funding with political
- Awareness - Contributing as an focus on EU
of EU poli- individual to EU’s
tical sys- consultations
4 Active Citizenship and Its Components
tem, his-
tory, etc.
Collective - Identifying with parti- - Belonging - Informally assisting - Being part of a politi- - Membership of
cular ideologies or to a parti- the well-being of cal party or organiza- political lobby-
stand points regarding cular poli- others through tion that expresses ing organiza-
EU integration (i.e., tical active involvement specific standpoints on tions at the EU
Greenisim, Social movement in local and EU-related matters (i. level
Europe, Federal - Identifying national NGOs e., pro-Europeanism, - Involvement in a
Europe) with a par- - Membership of euroskepticism) new social
ticular nonpolitical movement or
- Belonging to a group movement organizations that - Activity within a EU forum at the
with a specific focus on or ideology actively apply for party or organization European/trans-
EU matters EU funding national level
- Volunteering (i.e.,
through the
European
Voluntary service)
- Contributing as
part of a civil
society group or an
informal group of
people to EU’s
consultations
Discussing Challenges and Expectations
75
76 4 Active Citizenship and Its Components
Political Political
Political participation participation (non
Civic engagement engagement Civic participation (conventional) conventional)
Individual - Knowledge of EU - Knowledge - Sustaining volun- - Voting at EU - Expressing dissent
institutions of EU poli- tary groups that elections on current EU poli-
- Paying attention to tical deal with civic - Supporting specific cies by writing let-
EU developments processes matters (i.e., political parties at ters to politicians
- Awareness of - Paying donating money) the EU level or to the media
European values attention acting outside of - Running for elec- - Join groups on the
to EU poli- formal channels tions as a candidate Internet that dis-
tical issues - Advocating for the cuss possible alter-
- Awareness formulation of natives to current
of EU poli- voluntary groups policies
tical sys- outside of formal
tem, his- channels
tory, etc.
Collective - Identifying with - Belonging - Sustaining the gen- - Being part of a - Activity within a
particular ideolo- to a parti- eration of inde- political party or social movement in
gies or stand points cular poli- pendent groups in organization that order to reject a EU
regarding EU inte- tical answer to emer- expresses specific policy program or
gration (i.e., movement gency situations standpoints on EU- policy
Greenisim, Social - Identifying (i.e., financial crisis) related matters (i. - Active involvement
Discussing Challenges and Expectations
Europe, Federal with a par- - Providing assis- e., pro- in a new social
Europe) ticular tance and mutual movement or
(continued )
77
78
Political Political
Political participation participation (non
Civic engagement engagement Civic participation (conventional) conventional)
- Belonging to a movement support outside of Europeanism, euro- forum at the
group with a speci- or ideology formal channels skepticism) European/transna-
fic focus on EU - Lobbying in orga- - Activity within a EU tional level that
matters nizations that party of advocate for an
advocate for a organization ‘alternative
4 Active Citizenship and Its Components
Conclusion
This chapter overviewed different connotations that active citizenship
can take. I argued for the necessity to take into account different view-
points in order to gather a well-rounded understanding of the processes
that lead into the assumption of active behaviors. The categorization
that I introduced – active citizenship as a practice and active citizenship as
a demand – is meant to complement different trajectories that need to be
taken into account when studying the processes that transform engage-
ment into participation. On this account, scopes of this chapter have
been (1) to provide conceptual clarification in regard to different com-
ponents of active citizenship, with a specific focus on civic engagement,
political engagement, civic participation, and political participation
(both conventional and nonconventional) and (2) to discuss the applica-
tion of various indicators in order to study the emergence of active
citizenship in the EU and in Italy, Turkey, and the UK. Following on
this, the next chapters will focus on the development of active citizen-
ship at the EU level and in the three countries.
5
Active Citizenship: Policy Developments
at the EU Level
Introduction
In this chapter, I provide an overview of the policy developments on
active citizenship at the EU level emerging during the three time periods
under consideration. The analysis is first of all focused on the results of
fieldwork conducted in Brussels in 2008/2009 with representatives of
the European Commission. The scope is to evaluate the orientation of
policy-makers in regard to the establishment of active citizenship, the
needs associated to the building of communicative structures in order to
solve the democratic crisis and the policy solutions put forward in order
to overcome such crisis. This phase of the research maps the core policy
objectives and priorities pursued by the European Commission in order
to stimulate engagement and participation. Following on from this, a
number of policy documents targeting young people, women, minorities
and migrants, have been analyzed in order to map the policy reflection of
the European Commission about the best modalities to make active
citizenship an institutionalized and working practice. Core issues, such
as the stimulation of empowerment and structured dialogue are driving
the agenda, with varying degrees across the three social groups under
consideration. The analysis in the final part of the chapter focuses on the
emerging social problems and policy interventions across the financial
and migration crises.
It was a rude awakening for all of us just a few months later with the No in
France and the Netherlands. The reason why Europe decided to go for a
Plan D . . . well, those against the Constitution at the time they said well, it
doesn’t really matter what people say because the Commission, the
Brussels’ guys, they always has a Plan B. Well, I can tell you that that
was not definitely the case. It was absolutely taboo to speak about the
Constitution soon after the referendum in 2005. But then, all this
discussion about a Plan B, but there was not a Plan B but there was a
need for a Plan D. The referendum results showed clearly the wide gap
between the political elites and the citizens so, time for democracy,
dialogue and debate. (Interview n. 1, European Commission)
duty to hand out the information and then to listen and to act on it, to
make it known, to make it seen. I don’t mean that we should just do what
the public opinion want, we can also say no, but we have to explain it. It’s
a question of explaining better democracy, listening better.
Communication . . . is it to reach consensus or is it to make people more
enlightened about EU affairs or what else? I think it is all of that, but first
of all it should start even before the communication is there and that is the
right of information and the duty for us to be open about things and be
available, but first of all there is dialogue. But long gone is the time of just
information. What we want is a dialogue. (Interview n. 7, European
Commission)
Plan D made people think, made people act. The debate Europe website,
the discussion forum, everybody said at the beginning that no one would
have been interested but it has had 10000 comments and it has shown
that the Commission is willing to listen, that we are willing to listen. This
shows that we have a new way of dealing with things. (Interview n. 8,
European Commission)
It’s not the Commission who should invent things and do things but we
should act as a trigger and facilitator and show, by example, what can be
done in terms of outreach, what kind of meetings can be done, how you
organize them, why you would do them, etc. The Plan D was actually a
tool box for democracy and we have seen a lot of success in many different
ways, one of them being that we found out that many regions and cities
and Member States . . . I mean they found an excuse for doing something.
So for example when we come to citizens consultations, we launched,
financed and triggered the whole thing, but what we have seen in some
Member States . . . they have done it themselves . . . they found this hook
to hang it on, they needed an excuse to run something and, then you can
always say . . . well the Commission has tried this and it has worked so we
can try it by ourselves. This happened completely without our involve-
ment and that is success in itself because we have shown by example what
can be done and it has been picked up not necessarily for European affairs
but as a general tool for outreach and engagement and democracy.
(Interview n. 4, European Commission)
empowerment. Also at the local level. Also in the Member States. They are
our critical voice. (Interview n. 5, European Commission)
Two important dimensions emerge from this extract. The first concerns
the implementation of principles of empowerment of the civil society,
that is promoted through the structured dialogue. The second has to do
with the challenge to stimulate the involvement of organizations at
different levels of the European system of governance, following a pattern
of top-down Europeanization. Both these dimensions are extremely
important. As I discuss below, they radically influence the approach
followed by the Commission during the subsequent financial and migra-
tion crises, but at the same time – as I argue in Chapter 6 – they are by
consequence contentious issues for civil society organizations.
The priority to enhance the bases for the promotion of structured
dialogue, but also to institutionalize its practice in policy-making, is well
described in the following two extracts:
With varying degrees, this policy need – promoting civic and political
participation – encounters, however, major challenges that need to be
accounted for. In the first instance, it can be argued that the European
approach to active citizenship is not built along a ‘one size fits all’
strategy but it is instead tailored and differentiated according to various
social groups. This reflects, in my view, variable social problems that
distinctively affect young people, women, migrants and minorities. A
second issue, consequent from this, concerns the dimension of institu-
tionalization of practices of active citizenship, that is radically different
according to each one of the social groups under consideration.
Additionally, the EU policy action considers dimensions of intersection-
ality (Lombardo and Rolandsen 2012; Kantola and Nousiainen 2009)
for these social groups, without however accounting for a specific
approach to this issue. A third and important point, is relative to the
fit with the different political priorities established as part of Europe
2020, the mainstream and overly ambitious social policy program
launched by the European Union after the end of the Lisbon 2000
Agenda.
Civic and political participation of youth has been a priority for the
EU since at least the publication of the White Paper on Youth in 2001
(CEC 2001d), that was produced and elaborated through a participatory
process in partnership with different youth organizations. This experi-
ence of deliberation has put the participation of young people at the core
of policy-making. We can find further evidence of this in the aftermath
of the European democratic crisis:
The Structured Dialogue has evolved since 2013 and is better anchored in
the youth policy agenda. The number of participants has more than
doubled and some 40 000 young people responded in the last cycle,
many of them on behalf of larger groups. Also, national dialogue processes
are taking inspiration and beginning to emerge. The Structured Dialogue
has yet to fulfill its full potential: It still fails to reach a wider group of
young people with fewer opportunities and a weaker political voice. (CEC
2016h: 14)
Besides of this, the EU through key programs, such as for instance Youth
in Action, has favored the implementation of projects aiming at stimu-
lating political participation and a direct experience of democracy where
young people can actually exercise active citizenship (CEC 2006b).
94 5 Active Citizenship: Policy Developments at the EU Level
making and society at large. Women spend two to ten times more time on
unpaid work than men, which is one of the main obstacles to economic
and political empowerment. (CEC 2015e: 8)
A specific emphasis on the instruments that can lead into the assumption
of participatory behaviors – and consequently to gain ownership of policy
processes – is linked to the issue of empowerment and its development in
EU policy discourses. As I argued previously, the European Commission
has given great emphasis to stimulating active civic and political engage-
ment of civil society in public policy processes. It is therefore worth to
Active Citizenship as a Practice . . . 99
look at how this top priority has impacted upon disadvantaged groups. In
line with what I discussed in the previous paragraph, where I argued that
different instruments for participation have been implemented with a
varying impact upon the three groups, the issue of empowerment is rather
controversial and contested, assuming different meanings and connota-
tions. Especially when it comes to women and migrants and minorities,
this is associated with a wide set of measures aiming at guaranteeing social
and economic inclusion and integration, rather than meaning simply
empowerment for participation. This shows the difficulty but also the
challenge to put in place means for enforcing the full participation of such
social groups in policy processes. When it comes to young people, instead
the shaping of collaborations and interchange between youth organiza-
tions in Europe, the promotion of European cooperation in the youth
field as well as the enhancement of the European Voluntary Service are
seen as cornerstones of the youth programs. These clearly have the
function – coherently with a number of European mobility programs –
to facilitate an exchange of practices, knowledge, and ideas that is pivotal
for enabling social interaction and socialization processes in the wider
European territory. Looking at the development of the policy, it can be
argued that youth policy is based on a dual strategy that includes actions
in two areas: Investing in Youth and Empowering Youth (CEC 2009a: 4).
Importantly, youth empowerment is seen as essential in order for ‘young
people’s access to rights as a means of fostering their autonomy and
participation in democratic life’ (CEC 2016h: 76).
This centrality, has been recently remarked by the Trio Presidency –
Italy, Latvia, and Luxembourg – that, together with the European
Commission and the European Youth Forum, proposed Youth
Empowerment for Political participation as the overall thematic priority
for its 18 months presidency between July 2014 and December 2015. As
part of this, during the recent EU Youth Conference in October 2014,
hosted during the Italian Presidency of the Council of the EU, both the
importance of empowerment as well as the current challenges to make
this become an effective instrument, have been noted:
The European Union is also committed to taking forward the new 2030
United Nations Agenda and its Sustainable Development Goals, which
includes a strong commitment to advance gender equality and empower
women and girls around the world. In humanitarian emergencies, includ-
ing the current refugee crises, the European Union strives to ensure that its
Active Citizenship as a Practice . . . 101
It is rather important to note here that this is a key priority as well in the
European Agenda for the Integration of Third-Country Nationals (CEC
2011a). Although however not directly referring to different instruments
for empowerment, the agenda gives space to the issue of participation
stating that:
authorities and civil society engaged in the complex and long term process
of fostering integration and mutual trust. (CEC 2015a: 16)
In the aftermath of the financial crisis, good part of the discussion at the
institutional level is focused on the mechanisms to provide social protec-
tion for young people against emerging social problem, such as the
alarming growth of unemployment. The policy responses to this are
contextual to the instruments designed as part of Europe 2020 and more
specifically part of the Youth on the Move flagship initiative. The 2012
EU Youth Report (CEC 2012b) remarks the centrality of this umbrella
program in the context of the financial crisis:
Europe is undergoing a crisis that has hit young Europeans with unpre-
cedented levels of unemployment and the risk of social exclusion and
Active Citizenship as a Practice . . . 103
poverty. Europe 2020, the EU strategy for smart, sustainable and inclusive
growth, sets the framework for a coordinated European response in order
to emerge stronger from the crisis and to improve the long-term prosperity
of Europe’s citizens ( . . . ). The Commission is also endeavoring to lift
obstacles that EU citizens, including the youth, encounter when invoking
their rights as EU citizens, notably their right to free movement within the
EU, including for volunteering, study or work. (CEC 2012c: 9–10)
Action over the past five years to address gender inequalities needs more time
to secure the necessary changes and support in the form of new measures in
these areas. At the same time, recent socio-economic changes resulting from
the economic crisis, the rapid spread of digital technology and immigration
and integration impact on gender equality. (CEC 2015e: 6)
This consideration draws upon the negative impact of the financial crisis, in
implementing the 2010–2015 working plan. This point has been noted,
between others, in the Evaluation of The Strengths And Weaknesses Of The
Strategy For Equality Between Women And Men 2010–2015 that directly
points at ‘the dramatic financial and economic crisis and the austerity
measures that have negatively affected gender equality developments’
(CEC 2015g: 18) and therefore causing the fact that gender equality in
the EU is considered an ‘unfinished business.’ At the same time, in a context
where there is a clear decrease of attention toward gender equality because of
the financial crisis, the Evaluation Report notes that ‘more attention should
be paid to evaluating and tackling the gendered effects of the economic crisis
and integration of gender perspective in the design and the implementation
of the responses to the crisis’ (CEC 2015g: 42).
104 5 Active Citizenship: Policy Developments at the EU Level
Conclusion
The chapter sheds light on the European Commission’s reflexivity upon
active citizenship in the context of the democratic crisis. Besides it looks at
the policy development and main priorities across the financial and
migration crises. Core instruments, such as those of empowerment and
structured dialogue, have the aim to stimulate the participation of various
social groups. It can however be argued that there is an evident struggle –
on part of the European Commission – to promote an homogeneous
Conclusion 105
Introduction
This chapter is focused on the main discourses concerning active citizen-
ship emerging at the supranational level, with particular regard to the
organized civil society. The analysis is divided into two parts. At first,
I report results from a fieldwork that consists of 25 semi-structured
interviews with civil society activist of social NGOs conducted in
2008/2009 in Brussels. This part of the analysis is essential in order to
map points of view, values, and challenges in interacting with the
European Institutions in the aftermath of the democratic crisis. Next,
I present the results of an analysis of policy documents produced by
NGOs until up to 2016. The focus here is on the impact of the
promotion of active citizenship practices for organizations representing
disadvantaged groups (young people, women, migrants, and minorities),
along the context of the financial and migration crises. The analysis
reveals a number of contentious issues in regard to the current instru-
ments of participation, their effectiveness as well as the actual values and
policy priorities of the organizations.
Networks are therefore important for at least two reasons. The first,
described above, is the necessity to increase representative power and by
consequence gain more weight in policy-making. In addition to this, as
described in the abstract below, they are functional in order to minimize
the complexity of European processes. This rises the point of the
importance of holding expertise – for NGOs – that can be essential in
order to communicate better with their members, especially when these
are decentralized. In the following extract, the interviewee describes
quite efficiently the process that led to the development of networks in
110 6 Engagement and Participation: Opportunities and Challenges . . .
Brussels, but also the structural differences existing between formal and
informal networks:
You need capacity and expertise as well to manage this process. It’s so
complex, so difficult. So that’s why you have different functions for an
organization. So, now organizations are much more organized, you need
experts to understand what is going on. So basically, there was an on-
going process, it was a natural thing to come. At some point people started
to understand that it was better to work together, but you have a diversity.
Some are more formal networks, such as the European Youth Forum,
Concord, etc, so you generally have managers, gathering information for
the members, publishing advocacy work, statements, etc, and informal
networks, meaning that people are just gathering together, exchanging
information, working together, publishing a statement, without a formal
structure. So for example we don’t have a legal structure, because we don’t
think it is necessary, maybe one day we will see that is necessary, but now
it is not. (Interview n. 21 with activist of civil society, Brussels)
I think there is a lot on both sides. From our side, there is also a lot of
work at the local level and from the institutions. I mean there is a difficulty
in the civil dialogue if the European agenda items are not relevant for local
organizations. I just wonder how you can reach them. (Interview n. 6 with
activist of civil society, Brussels)
112 6 Engagement and Participation: Opportunities and Challenges . . .
( . . . ) there is a revival of the democracy in the EU, but there is still this big
big problem which is, I mean, if you think about European issues, a lot of
people when you discuss with them about the EU, they don’t even know
what you are talking about, even if they are in Brussels. It means that there
is not a European public opinion. Maybe there is a European feeling but for
sure no public opinion, because there is no European political area,
European public space. Maybe there is a European feeling, but you don’t
need an institution to do that. (Interview n. 14 with activist of civil society,
Brussels)
On the other side, however, part of the discussion with civil society
activists concerns the salience of the approach promoted by the
Commission. This is linked to an evaluation of the instruments –
particularly the Plan D – put in place in the aftermath of the democratic
crisis. The following extract comments on the self-positioning of an
activist in respect to the European Commission’s approach to promote
democracy through empowerment. The interviewee expresses a clear and
critical view upon the Plan D and the efforts of the European
Commission for promoting democracy. In this case, it appears quite
clear that the measures implemented at the institutional level to increase
civic and political engagement toward the EU are seen as limited. On the
one hand, there is a rejection of the functionality and usage of NGOs for
the promotion of European democracy. On the other hand, activists
seek to find viable solution for the establishment of permanent measures
to establish a working relationship with the institutions. As a result,
there is a specific criticism moved toward the Plan D:
We did not see anything good for us. We are not here to promote the
European integration as such, or the EU. We are here to promote dialogue
between our members and the European institutions, but we are not here
to run the dialogue for the institutions. And, when looking at the different
programs that they have now, there is nothing we are interested in. We are
interested in having our direct relationship with the institutions. We
organize dialogue between our organizations and we give them the oppor-
tunity to relate with the European institutions, but the Plan D to me
seems too much the Commission running out of time and going through
Europe and organizing debates about Europe in and there. Which
is . . . I mean . . . I don’t have anything against it, but it is not our role.
We are building our relationship with institutions, we have a long term
program for this, so we are not jumping on any of this. We decided that
for us this is not interesting. We think we can make a difference and try to
use our privileged contact with them, you know, to make this difference.
So I think it this is something of a relationship that has to be built, and
this is not something that you can do with a one off-road show through
Europe and make some debates, which is also nice but there will not be
very many lasting things. (Interview n. 1 with activist of civil society,
Brussels)
Evaluating the Approach of the European Commission 115
Inside the institutions there are structures focused on favoring the dialo-
gue. There are consultative groups, working groups but the problem is
also who is going there? Who is participating? Who is already active, who
has an interest already, but are they really representative? I mean there is a
problem there of representativity. It’s a good thing to have this dialogue of
course, but it does not lead to any decision taking process. So the question
then is if this dialogue has an impact. I mean it’s better than nothing, but
real dialogue is limited to consultations to certain papers or programs. So,
yes there is dialogue, but not in the way that you sit, discuss and decide.
When you go in a meeting you know what is going on, there is dialogue,
but concretely nothing than leads to decisions, decision power. There is a
strange mix there. (Interview n. 22 with activist of civil society, Brussels)
1
The two terms, civil and structured dialogue, were used interchangeably by the interviewees.
116 6 Engagement and Participation: Opportunities and Challenges . . .
In terms of setting the agenda, civil society organizations don’t really set
the agenda. We are consulted, we can say what we think, but it is not
really setting the agenda. There are also examples where we are able to
influence, not only what they already have on the table but to tell them
what they should put on the table but this is something that is set outside
the structured dialogue, because obviously the structured dialogue that we
have with them . . . I mean we feed them but this does not necessarily
make them move, it is more regarding what is already on the agenda. So,
let’s say, through lobbying campaigns, you build your allies, so we have
pressure from different sides to make them move. This is more agenda
setting, which in our case happens outside of the civil dialogue. (Interview
n. 20 with activist of civil society, Brussels)
I mean I don’t know if they treat the other organizations in the same way
but from the meetings I actually have been to, you get the feeling that it is
really more talking participation process, but they . . . they don’t . . . I
mean . . . I really don’t know if they really want to consult us, and how
much of the consultation they think is really useful for them rather than just
pretending that they are involving all these organizations. It is really difficult
to understand what they want as well, you see that some ideas, ok they want
them and some instead are dismissed . . . but there is no discussion on it. So,
yes, I would like the consultations to be a bit more open, I would like the
Evaluating the Approach of the European Commission 117
institutions to actually want to get input from people and not just to involve
at the last minute and simply have a brief input, so . . . that they can say that
we consulted them. I mean, they should start involving from the beginning.
(Interview n. 4 with activist of civil society, Brussels)
( . . . ) but also the problem is about how you consult, when you consult. I
mean you know for example that there are consultations, next week I will go to
one. So I was preparing this consultation yesterday, then I found out that the
Parliament already gave its report. So half of the job is already done and
finished, and then you are consulted on some things that cannot actually be
changed, because it cannot go back to the Parliament. Because it has already
given its comments on one version. So you just wonder what is the point to
have a consultation if it’s happening at the wrong moment. So the consulta-
tion most of the times is just ticking a box, ok you consult the civil society, you
consult the stakeholders. There is surely more representation of civil society,
willingness to include the civil society, but there is still a lot of work to do to
make it work properly. (Interview n. 5 with activist of civil society, Brussels)
( . . . ) from my perspective the more people you know the better. This is
much related to the reality in Brussels, it is a sort of mini social network
and you should know the people you need to know, and if they will listen
118 6 Engagement and Participation: Opportunities and Challenges . . .
to you, maybe they will leak some documents, and they will ask you
informally an opinion. The informal enhances . . . I mean, for me . . . the
informal consultations are more effective than the formal consultations. I
mean I will go to some consultations next week, on financial instruments,
for example, it’s ok but I will there with over 50 people, to discuss, I mean
it is more effective to have a face to face meeting with them, and say here
we can change this or that, I mean this is working quite well. (Interview n.
18 with activist of civil society, Brussels)
I don’t know why they always talk about civil dialogue and not participa-
tion. Probably because participation means something more than dialo-
gue, I mean, by participation you give inputs and you participate in the
decision-making. I don’t know why they are using so much the word
dialogue, and they are using it for everything. There must something very
political behind it. If you talk about participation it means that you are
integrating people in the decision-making, which is not the case here, we
are talking about taking ideas from different groups and testing ideas,
because that’s it, I mean, all these consultations, that’s how it works. It’s
testing. (Interview n. 1 with activist of civil society, Brussels)
This part of the chapter outlined some limits and controversies that
are emerging in the aftermath of the democratic crisis. The analysis
reveals the struggle to implement participatory instruments that can
guarantee an effective exchange of dialogue between organizations
and institutions, with many shortcomings emerging in regard to the
use of structured dialogue and the approach followed at the institu-
tional level. The second part of this chapter focuses on policy
discourses concerning active citizenship elaborated by umbrella orga-
nizations that are operative at the supranational level and represent-
ing disadvantaged groups.
Throughout each step of this process, the European Youth Forum ensured
that the voice of young people and youth organizations were accounted for.
Indeed, the Youth Forum is active in the preparation, running – Member
States – together with the other stakeholders of the consultations as back-
ground for the Youth Conference. Moreover, it also takes part in the joint
discussions political decisions and actions. The European Youth Forum is
committed to improve and further develop the process in order to involve
young people even closer in shaping policies that directly affect them. (YEU
2014: 10)
on youth affairs. This will put the European youth policy at the forefront of
including civil society in its governance. (EYF 2012: 3)
Importantly, the EWL notes – and this is part of its lobbying activity –
that there is a lack of binding decisions to make sure that participation is
increased and that there is equality of participation for both men and
women in policy-making in all European Institutions. Between the
many, a recent policy response that EWL has promoted in order to
overcome this deficiency of the EU political system is the 50/50 cam-
paign, that started in occasion of the 2009 EP elections and has been
designed for the 2014 elections as well. The campaign has the following
scope:
The aim of the EWL 50/50 Campaign is to ensure that social justice,
human rights and gender equality are at the core of EU policy-making
and that European women participate on an equal footing to men in
the making of all decisions which affect their lives and in shaping the
future of Europe ( . . . ).The overall aim of the project is to promote
122 6 Engagement and Participation: Opportunities and Challenges . . .
Parity Democracy does not treat women as a minority group within the
dominant framework. Women represent more than half of the citizens,
so they cannot be considered as a minority any more than men. (EWL
2014: 19)
Disadvantaged Groups and Demands of Active Citizenship 123
The lobbying activity of the EWL is rather central for shaping processes
that account for the full participation of women in the public sphere,
putting this social group at the center of public policy. In a nutshell, its
lobbying activity is a rather meaningful example of the challenges and
obstacles existing in transforming one-sided processes of engagement
into bidirectional and balanced modalities of full participation.
The struggle for being included as legitimate partners in policy-mak-
ing, becomes particularly intense across the emergency situations faced
at the EU level and across different parts of Europe. For instance,
contextually to the discussion regarding the financial crisis, activists
bewail the fact that there has been a lack of inclusion of civil society
actors on the negotiating table. In a joint statement aiming at producing
Alternative Country-Specific Recommendations, prepared in 2013 by an ad
hoc coalition of European NGOs including organization such as the
European Anti Poverty Network (EAPN) and the EWL, it is noted that:
As the EU enters its 5th year of crisis, the EU’s image is overwhelmingly
identified with austerity, particularly in countries under the ‘Troika
arrangements’. As a result EU popularity and legitimacy is at an all-time
low. Steps are urgently needed to restore the balance between social and
sustainable objectives and economic governance, if the EU is to revive
trust in its Europe 2020 promises of a smart, sustainable and inclusive
recovery based on democratic accountability and engagement. Civil
Society’s review of engagement in the 2012 European Semester high-
lighted again the lack of meaningful engagement of civil and social
partners in the development of most National Reform Programmes
( . . . ). A key recommendation is that the Commission ensures more active
engagement of Civil Society and Social Partners in the NRPs, CSRs and
whole European Semester. (Ad hoc Coalition on CSRs 2013: 4)
into account in the elaboration of the European Agenda for the Integration
of Third-Country Nationals. As part of these, strong emphasis is put on the
challenges to develop an inclusive model of participatory democracy:
In similar vein, and under the context of the financial and migration
crises, Jeunes Européens Fédéralistes-Europe (JEF-Europe) remark the
urgency of these principles, producing a policy narrative that cuts
across different categories of groups that are seen in a disadvantaged
position. The organization stresses the importance of:
( . . . ) the situation and reality in the midst of the economic crisis is not
that easily addressed. Within the European society, certain groups of
people are further removed from normative society, making the road to
full social, labour market and democratic participation longer and full of
obstacles. (Solidar 2014: 6)
These two extracts are rather meaningful, because they shed light on the
challenges existing in putting forward strategies to guarantee the imple-
mentation of an approach to empowerment that is not elusive and meant
to simply improve governance, but talks directly to the necessity of
tackling social exclusion in order to guarantee a fully inclusive society,
with a concern on the different harmful conditions that hinder participa-
tion of disadvantaged groups. In this sense, empowerment is a wider
concept, that does not only regard the stimulation of processes of aware-
ness and consciousness, but that is central in order to develop policies
aimed at the effective integration of these social groups in the society.
Equality between women and men is a fundamental right and value of the
European Union and should be central to all Commission initiatives,
policies and programmes. It is a legal, moral and economic imperative,
not a luxury to be addressed sporadically or only during times of prosper-
ity. While some positive steps are being prepared in this area – including a
new Commission action plan on equality between women and men which
will hopefully give flesh and bones to commitments – so far, the Barroso II
Commission’s performance has been disturbingly mixed, and concrete
actions in favour of a more equal society have been few. (EWL 2010)
One of the related challenges has been that the gender angle is often
forgotten in policy areas that are not seen as related to gender equality, e.g.
disability, Roma inclusion or integration, migration and asylum, while in
turn this other policy angle is overlooked in gender equality policies. This
shows the need to increase policy coherence and effectively monitor
gender mainstreaming in other policy areas while there is also a need to
strengthen the intersectional approach in the new Strategic Action Plan
( . . . ). Without the effective implementation of an intersectional
approach, the specific needs of some groups of women ( . . . ) might be
overlooked in the policy areas covered by the Strategic Action Plan. (EWL
2009: 4)
Disadvantaged Groups and Demands of Active Citizenship 129
These issues become particular important with the financial crisis first,
and subsequently with the migration crisis, where the impact on parti-
cularly disadvantaged people is particularly emphasized. As a result, the
danger is found in the increasing social problems – such as social
exclusion – that are emerging. EWL for example notes that:
The economic and financial crisis in Europe has led to approximately 120
million people now living in or at the brink of poverty, with around 24
million ‘working poor’ – no longer being able to live on the income they
earn. The severely increasing levels of inequalities in society reflect this.
Additionally, groups of migrants are in danger of further exclusion as a
result of economic, social and political changes that affect the labour
market. (Solidar 2014: 3)
Conclusion
The analysis of umbrella organizations’ discourses reveals a number of
contentious and important issues that shed light on their role as critical
voices in EU policy-making. Means of participation – such as the
structured dialogue – are surely welcomed because they result in the
attempt to find modalities to gain more weight in participatory processes
in policy-making. At the same time, however, their limitations stand in
the fact that they are not considered instruments of deliberation in the
full sense. Activists lament that possibilities to exercise influence on the
EU agenda are scarce and limited, hence downgrading their capabilities
to be full participants in the public sphere. On this regard, various
organizations put forward alternative demands for active citizenship
based on a wider and more encompassing vision of democracy grounded
on core values such as the one of equality. Emergency situations, such as
the financial and economic crises, have had a dramatic impact for
disadvantaged groups, with the emergence of core social problems and
the alarming rise in social inequality. These – according to my analysis –
are caused by the insufficient means put in place as part of the EU’s
policy intervention as well as a product of a more encompassing crisis of
solidarity characterizing the EU.
7
Active Citizenship in Italy
Introduction
The chapter explores the development of active citizenship in Italy, by
summarizing first of all the core characteristics of the country, in terms
of state and society relations, public administration reforms and pro-
cesses that led into the emergence of different connotations of active
citizenship. It is argued that in a context where various problems still
exist in terms of accountability and accessibility to democratic structures
allowing full participation in public policy, the development of various
experiences that can be classified as demands of active citizenship is
particularly significant. When it comes especially to disadvantaged
groups, their participation is strongly affected by the lack of a full
integration in the Italian society. The chapter outlines the contested
nature of active citizenship, by focusing on the ambiguous impact of
Europeanization in the Italian context, an issue that becomes particu-
larly prominent with the intensification of the financial and migration
crises. I argue that civil society activists point at the shortcomings of the
status of European citizenship, in a context where various limitations
and fractures are emerging because of a socially, politically, and civically
weak EU. In this scenario, the possible policy solutions envisaged by the
activists are to strengthen the European social dimension and to recall
the importance of fundamental values.
The process of reform in Italy is also marred with the political instability
of the country and the subsequent shifts from governments belonging to
the center-left, to the center-right, and characterized from time to time
by short-term technical governments. All along this period of time,
public administration reforms have been top on the agenda and a key
objective of political programs of all spectrums. Just to name a couple of
examples, key advocators of such a process of reform were the center-left
governments of Prodi and D’Alema between 1996 and 1999, that
promoted laws in order to simplify administrative tasks, to enhance
the devolution from central government to local administrations and
regions, and to adopt New Public Management principles (Vasilescu
2014). Another fundamental step has been the so-called Brunetta
Reform under the Berlusconi government, considered highly controver-
sial for the content as well as the modalities under which this was
promoted. Brunetta’s aims were to enhance the measurement of public
administration performance, both from an organizational and individual
point of view, and the promotion of a better accountability.
In this context the process of Europeanization has played a funda-
mental role, especially in the aftermath of the collapse of the First
Republic in 1990s, where the EU symbolically represented the demo-
cratic accountability that Italian institutions were lacking. If the Italian
pro-Europeanism is a core value, it is at that time that citizens assimilate
a strong democratizing power to the European project. It can therefore
be argued that the process of Europeanization of public administration
in Italy has played a central role for at least two reasons. Firstly, it has
provided a push toward the adaptation, at least on paper, to principles
and structures dictated by the European normative system. This top-
down pathway of Europeanization started along the controversial acces-
sion of the country to the Eurozone under the center-left governments at
the end of the 1990s and continued throughout time. It implied,
between others, the adherence to the principles of governance promoted
by the EU. Secondly, an horizontal dimension of Europeanization can
Characteristics of Active Citizenship 137
funding offered by the EU, has in fact been key for supporting organiza-
tions, even with limitations. As it is for example noted in the country
profile for Italy drawn by Civicus:
Civil society has also long worked within the supranational framework
offered by the EU, which implies both a need for civil society to work at
the regional level and to take advantage of the domestic spaces created by
regional decisions. The opportunities created for civil society by EU
processes are acknowledged, but CSOs, particularly locally-based and
oriented CSOs, report still feeling somewhat distant from the EU, and
not having adequate information about how to use its opportunities for
participation and influence, distinct from any engagement with the fund-
ing opportunities it may offer. (CIVICUS 2011: 204)
The overall situation in Italy reveals different conditions under which active
citizenship is developed and is representative of a context where this is a
contested concept. In other words, practices and demands are intertwined. If,
because of the heterogeneous nature of the country and the cleavages that
still persist between different regions and more precisely between the south
and north, it can be argued that processes of reform promoted through
public policy had a limited impact – because of the persistent lack of trust
toward public institutions – on the other side it can be argued that the social
context is characterized by high levels of spontaneous civic participation that
led civic organizations to gain ownership of the public space. In short, it is a
context where both practices and demands of active citizenship intertwine in
setting the landscape for civic and political participation.
mirrors all the ambiguities and ambivalences that surround civic engage-
ment. Under this perspective this is characterized by holding interest and
awareness toward the community, whilst civic and political participation
are seen as instruments to become more active through different partici-
patory behaviors in the civic and political life of such community. Part of
the discussion therefore concerns the meanings, values, and importance
attributed to civic participation, by looking as well at the practices inherent
to this.
It is rather important to note, for example, the strong emphasis on the
civic dimensions of participation, promoted by organizations, assuming
however that these have a political dimension as well. One of the most
prominent Italian organizations working in this direction is
Cittadinanzattiva, that was founded as a nonprofit organization in
1978. It claims independency from political parties, trade unions, pri-
vate companies, and public institutions and is recognized as a consumer
organization since 2000. One of the organization’s key aims is the
promotion of an active role of citizens in policy-making. The
Constitution of Cittadinanzattiva says that:
Citizenship entails the capacity to share public and shared interests, through-
out a process that can offer knowledge – that is the capacity to gather
different information from different sources, which means free information
– and participation in collective moments. We are in a phase where neither
of the two is fully guaranteed. In addition, in respect to foreigners, the lack of
the right to vote puts them immediately in a condition where they cannot
express and therefore participate, even if they are citizens in the full sense
( . . . ). When the weaker layers of society do not have possibilities to be
represented, they remain weak. At the least, there must be possibilities for the
weaker groups to be represented, at least the rights to have possibilities to
have an impact. . . . (Interview n. 4 with activist of civil society, Italy)
At this level, there is a wide recognition of the set of instruments that can
shape active engagement for NGOs. Providing a stimulus for the emer-
gence of bottom-up processes is seen as a possible solution. However,
this cannot happen when political institutions do not acknowledge the
importance that noninstitutionalized practices of engagement can have
for the fostering of the policy agenda.
These two organizations clearly call for the need to develop further the
political bases of the European project. At the same time they claim the
Europeanization and Its Controversies . . . 147
Therefore, in the Italian sample – and differently from the British and
Turkish cases – there emerge a high sense of dissatisfaction in regard to
European integration. As I argue, this is produced by the lack of
existence of processes of participation than can lead to the building of
a ‘Europe from below’ and overall from a lack of political leadership that
can promote encompassing European values. On the basis of this argu-
ment, this dissatisfaction is not associated with the European project as a
whole or with the European idea, but instead is portrayed as the
incapacity by the current leaders to foster a social Europe enabling
protection for weaker groups. It is also dependent on a perceived lack
of concrete opportunities to actively engage and, furthermore, by a
persistent failure in the attempt to evaluate and judge the impact of
EU programs on organizations’ daily routines. In addition, between the
factors that undermine the EU’s role, there is a focus on its limited range
of action. The lack of impact of European citizenship is therefore mostly
explained as being a deficiency produced by the limited powers attrib-
uted by member states to the EU, rather than being caused by the EU
itself. The lack of possibilities for action by European institutions, for
example, the lack of competences, is thus perceived in the following way:
crisis, by taking into account key policy priorities that are currently part
of the framing of the European social dimension, and more specifically
addressed in the policy development of long-terms programs such as
Europe 2020.
In particular, what is of particular relevance is the mapping of a wide
number of social problems that, according to the organizations, have
emerged as a side effect of the financial crisis. Austerity measures are seen
to foster new emerging problems such as poverty, social exclusion, and
discrimination. In these terms, it is quite significant the description of
the current situation by the Italian Network for the fight Against Poverty
(Collegamento Italiano Lotta Povertà- CILAP), an Italian-based organi-
zation that is part of the European Anti-Poverty Network, that in the
2013 activity report stated that:
2013 has been another very difficult year for Cilap Eapn Italy. As much as for
other networks, working at the European or national levels. The reasons are
multi-fold and here we list some of them: the economic crisis that massively
hit Italy, as much as other European countries, is still on-going and, actually,
looks like permanent and without ways out; austerity measures have paral-
yzed our welfare system with investments that are now at the minimal level
possible and determined radical cuts to social and health services ( . . . ).
(CILAP 2012: 1; my translation)
It is time to say no. Along the years, as part of all the conflicts that have
been emerged in the Country, a number of multi-fold and antagonist
152 7 Active Citizenship in Italy
At the same time, calls for protest in Brussels are rather diffused. These
are based on the enforcement of engagement with other national net-
works, with the explicit aim to produce alternatives and actual policy
solutions to the current situation and to raise concern in regard to social
problems. This is well described by the following extract taken from a
communication published by the Italian General Confederation of
Labour (Confederazione Generale Italiana del Lavoro-CGIL):
Just few weeks before the EP elections, Unions all across Europe will rise
their voice in the Belgian Capital; the aims and priorities of the protests
are to stop austerity, the need to change the direction of social and
economic politics that are condemning Europe to recession, the launch
of new strategic plans of investments at the European level aimed at
restarting the process of industrialization and at concretely facing the
dramatic situation that regard unemployment, overall of young people
and women. (CGIL 2014; my translation)
The financial crisis also intensifies the attention toward the condition of
illegal immigrants in Italy, opening up a number of narratives aimed at
reflecting upon the effects of the crisis on the living standards of
migrants. In a 2014 report, the Voluntary Association for Socio-Sanitary
Assistance and for Foreign, Sinti and Roma Citizens’ Rights (Associazione
Volontaria di Assistenza Socio-Sanitaria e per i Diritti di Cittadini
Stranieri, Rom e Sinti onlus- NAGA) notes that:
The NAGA Report on irregular foreign citizens falls in the context of the
annus horribilis of the Italian economic crisis and of the wretched percep-
tion of foreigners by the public opinion ( . . . ). What emerges from the
report is that in 2013 the irregular foreign population has fallen in a
grievous social situation. This, despite of their long standing struggle to
find opportunities, also of working nature, within the Italian society along
The Fragmentation of Europe Under the Financial . . . 153
the years. It is a population, that more than others has been severely
affected by the crisis. (NAGA 2014: ii)
The refusal and the defense of boundaries have replaced the pillars of
solidarity and hospitality. We repudiate this kind of Europe. We call for a
Europe based on its funding values. In order to diminish, we hope, the
sorrow and the pain of millions of people. The levels of poverty caused by
a lack of cooperation between Europe and the rest of the countries, are
added to the ever-growing poverty levels that we already have in Europe.
(Cilap 2014; my translation)
The inability of the EU to deal with the crisis and the lack of respon-
sibility from the member states in providing a unifying approach to this
issues, is also pointed out by the Italian Council for Refugees (Consiglio
Italiano per i Rifugiati- CIR):
The first theme that the assembly has dealt with is relative to migration
and the internal and external boundaries that signify a new political
phase of Fortress Europe ( . . . ). Our aims, as social movements, are to be
capable to face the challenges inherent to the political and material
156 7 Active Citizenship in Italy
Conclusion
The Italian case is well representative of all the ambiguities existing in
finding a common denominator for defining active citizenship. On the
one side, the analysis reveals that the promotion of both civic and
political participation is a core value of NGOs representing disadvan-
taged groups. Limitations in this sense appear to be emerging because
of a lack of full integration of specific social groups, such as for example
minorities and migrants, in the Italian society. Organizations call for
the redefinition of the concept of citizenship under different patterns,
firstly, on the basis of the principle of inclusivity and, secondly, on the
detachment of this concept from the principle of nationality. The
participation of many of the organizations included in my sample in
supranational networks based in Brussels is surely considered an
important opportunity, but at the same time this is seen as inadequate,
Conclusion 157
Introduction
This chapter is focused on the Turkish development of active citizen-
ship. This is initially presented by taking into account three core
categories that are: (1) state/society relations, (2) determinants of reform
and political conditions, and (3) characteristics of active citizenship. In
line with current literature, I argue that that the definition of different
components of active citizenship in the Turkish context is strongly
affected by the strong state tradition that still characterizes the political
and social context. Even if different processes and dynamics – both
internal and external – have emerged throughout the years posing a
clear challenge to the Turkish model, the possibilities to exercise parti-
cipatory behaviors are still rather limited. This results in the fact that
active citizenship in Turkey is an important yet volatile concept. The
analysis of interviews and policy documents confirms this trend, out-
lining some of the issues that are still contentious, such as the absence of
a legal framework for civil society organizations. Disadvantaged groups,
especially, lament the fact that various factors strongly limit their possi-
bilities to play a role in Turkish politics and society and eventually to
(Zihnioğlu 2013a, 2013b) and its centrality for enhancing the process of
democratization in the country. In particular, the key action of the EU has
fostered different practices related to both civic engagement and participa-
tion, with a variety of key projects that have been based on activities
subsuming a strong social dimension (intercultural dialogue, gender equal-
ity, lifelong learning, environment and health, etc.) thanks to the develop-
ment of links domestically, transnationally and in Brussels.
The results of the Helsinki Summit in 1999, recognizing the
Turkish candidature to the EU, were rather significant in generating
a push toward democratization (Arabaci 2008; Kaya 2013). The
principle of conditionality, which is one of the instruments ensuring
that applicants can actually join the EU, has been directly linked to
the cultivation of democracy from below, thereby stimulating the
development of an autonomous and independent civil society
(Kubicek 2011), promoting a different relationship between the
state and the civil society. Key initiatives such as the EU-Turkey
Civil Dialogue, but also full participation in programs such as Youth
in Action, have been key in bolstering the dimension of active
citizenship in Turkey by promoting key projects in a number of
areas that range from environmentalism, integration policy, gender,
youth policy, etc. This enhancement of social capital through project
funding in these areas paved, in my view, the way for favoring the
process that stimulates the transformation from engagement into
active participation, by promoting opportunities for developing key
projects aimed at fostering the Turkish civil society.
It can thus be argued that the process of development of the Turkish
civil society in the last 15 years has proceeded hand in hand with the
Europeanization process, and has been critically enhanced by the sup-
port of the EU (Yilmaz 2014; Ergun 2010), bringing into the discussion
the process of top-down Europeanization of citizenship in Turkey by
touching upon a number of critical social issues. Additionally, the
financial support of the EU with key programs has been an essential
factor that facilitated the internationalization of Turkish civil society
organizations. This process has enhanced the structuring of organized
forms of civil society groups in a way similar to what has been happening
in many other European countries.
164 8 Active Citizenship in Turkey
certain target groups on which there is specific attention, such as, for
example, young people, who are considered a privileged target. Şener
explains this emphasis on this social group by noting that youth in
Turkey have been ‘portrayed as an “apolitical” category whose political
engagement can be considered destabilizing or “dangerous” or, in other
words, a category to be controlled’ (Şener 2014: 69). The recent docu-
ment titled National Youth and Sports Policy Document published in
2012 by the Ministry of Youth and Sports is a meaningful example of the
ambiguities inherent to the approach toward civic and political engage-
ment and civic and political participation. The program envisages the
inclusion of young people with ‘high civic consciousness’ in social
processes with a transmission of democratic values to be absorbed in
order to foster a ‘democratic, accountable, transparent and participatory
social structure’ (MYS 2012: 29). If on a first reading this document
highlights principles that are surely important and remarkable, preli-
minary evaluations are, however, rather negative about the actual impact
this can have in promoting both civic and political participation
(Bozkurt et al. 2015: 430).
A specific element characterizing the Turkish context is therefore
found in the limitations of political participation for young people,
but more generally also for other social groups in Turkey, such as
women and minorities. At the same time, it confirms the emphasis
on the promotion of forms of civic engagement and participation
that are institutionally driven and controlled and rarely result in the
adoption of politically driven behaviors (Chrona and Capelos 2017;
Erdoğan and Uyan-Semerci 2017; Lüküslü 2013, 2016; Kayaoğlu
2017).
This is an issue that has recently been noted by the EU in the 2014
and the 2015 progress reports on Turkey, where the necessity to encou-
rage active citizenship by allowing the full inclusion of civil society in
policy processes is widely remarked upon (CEC 2014b, 2015h). The
recommendations of the EU touch upon crucial issues that up to now
have mostly remained untouched by Turkish public institutions, and
directly highlight the need to establish means of empowerment that are
deliberative and entail the full openness of policy-makers toward input
from the civil society.
166 8 Active Citizenship in Turkey
strong trade tradition of the country still affects the practice of active
citizenship – as I will address again later when discussing the reasons for
the limited impact of Europeanization – on the other side the civil
society has been a key player throughout the years bringing to the fore
demands for broader participation and engagement. Being the institu-
tionalized bases for participation more blurred and indefinite, this is the
context where – more than in Italy and the UK – active citizenship as a
demand – as a specific category – emerges more clearly,
In the 2011 Civil Society Monitoring Report, the Third Sector
Foundation of Turkey (Türkiye Üçüncü Sektör Vakfı- TÜSEV) discussed
a number of constraints to the emergence of civil society in the country.
In particular, it is noted the absence of a solid approach regarding the
issue of the relationships between institutions and civil society actors,
due to a lack of a comprehensive approach and understanding of what
‘civil society is about.’ The absence of a legal definition of civil society in
Turkey is considered as a shortcoming that undermines the impact of
civic and political participation:
rights point out. This is considered as one of the core aims of Mor Çati,
Women Shelter Foundation for example:
Like elsewhere in the world, violence toward women is one of the most
common human rights abuses in Turkey. Recent researches show that 4 in
10 women are subjected to domestic violence at home by their husbands
or boyfriends. Domestic violence against women isn’t limited to physical
violence; it has verbal, economic, psychological and sexual dimensions to
it as well. The source of this kind of violence is the male domination
which is evident at every level of the society in Turkey. It is well known
that domestic violence also affects children. Not just physical injuries but
also fear and loss of self confidence are among the damage inflicted as a
result. (Mor Çati 2012)
We have just been through an election process where women who want to
be in politics have been facing opposition and suppression. Male execu-
tives from the 3 political parties who got seats in parliament selected
predominantly male candidates in their lists; leaving the percentage of
women in these parties under 20%. Women’s representation in this
election increased from 14% to 18%. This occurred alongside intense
campaigning, protests, lobbying and the HDP having 49% female candi-
dates. 41 women from Justice and Development Party (AKP), 21 women
from Republican People’s Party (CHP), 4 women from Nationalist
Movement Party (MHP) and 32 women from Peoples’ Democratic
Party (HDP) also gained seats in parliament. Women demanded half of
the seats; however, results are way below the 30% which would be the
critical threshold for women to engage in effective decision making.
Unfortunately, we have to say once again that the Turkish National
Assembly has been formed without the inclusion of half of the population,
ignoring women’s will. Our politicians have ‘once again’ failed to support
equal representation and disregarded true democracy! ( . . . )Until our
demands are fulfilled, and the percentage of women in decision making
positions is 50%, we will continue our struggle. (Kader 2015)
Europeanization as an Alternative
for Democracy: Contentious Issues
Turkish NGOs look at the principles established by the EU in a positive
manner. Europeanization is often seen as offering valid alternatives for
engagement and participation, and overall it is viewed as central in order
to overcome the ongoing problems within the country. This is because
through funding, even with many limitations, civil society activists have
received the support for establishing various activities of civic participa-
tion through volunteering, transnational exchanges, and training,
between others. This empowerment function of EU funding is noted,
between others, by TÜSEV, in the 2011 report:
The EU has not done enough. The EU policy has many problems and is
not sufficient. The problem is that it doesn’t look at the structure of
organizations but only at mainstream ones, not taking into account the
complexity of the civil society in Turkey. Basically the EU yes gives money,
but the processes to apply are complex and do not follow mechanisms of full
empowerment of civil society organizations. There is then no real coherence
in the policy and most attention is on funding provision rather than active
citizenship. (Interview n. 3 with civil society activist, Turkey)
Besides of this, the debate concerning the migration crisis gives space to a
revitalization of the discussion regarding the accession process, as well as
the actual values and dimension associated to the process of
Europeanization, with a specific emphasis on the respect for human
rights. This point is particularly important, in so far it generates specific
narratives focused on the normative values that the EU embodies, with,
however, a number of ambiguities in terms of approach:
Until this year I did not believe that we would ever be a member of the
European Union. But nowadays it changed a little bit because of this
refugee issue. I personally do not care much about Turkey being part of
the EU, but what I care about is the issue of the human rights. This is
important. And in a way the European Union embodies that. (Interview
n. 4 with civil society activist, Turkey)
This issue is not our fault, we did our task, taking the refugee, I think the
EU did not advocate the human rights, and as well, I mean, the EU if they
want to solve this problem, they need to do something in the Middle East,
I mean they need to solve the war, because if the EU wants to be a global
actor, it has to do something in the Middle East. In the refugees crisis the
EU I think has done something wrong, because if you advocate the human
rights, you need to do something, integrate this people I mean, not just get
rid them. This is bad for the idea of the European Union. I mean, if you
look at when it was made, they say that they want to integrate the people.
And also they need to think that this is a global problem. (Interview n. 9
with civil society activist, Turkey)
I mean, this issue of the refugees, it’s a crisis of the European values.
Where are them? We are talking about human beings here. In a way it’s
the same with what happened with Greece. There is no solidarity. I
personally feel pity for them. (Interview n. 14 with civil society activist,
Turkey)
The only good thing about this crisis is the coming together of the EU and
Turkey to start negotiations again, but the problem is that our govern-
ment does not have a European vision, I mean a European Union strategy,
they only think about saving the day, they only think about the problem
of the refugee crisis, but in pragmatic terms. I mean, they are saying, if you
don’t give visa free travel, we’ll we send them back. I mean it’s a total
blackmail. . . . (Interview n. 11 with civil society activist, Turkey)
182 8 Active Citizenship in Turkey
( . . . ) about the deal . . . well I think Turkey and the EU made a bargain on
the life of the people, and also on our side is bad. I mean, our country
wants to take money out of it, and I think that’s bad for us, it’s not
existing for us. They want to take money from the EU, and the EU is
saying, ok please do not come here, we can give you money, whatever you
want. Also I mean Merkel to come here to negotiate, I mean it’s a shame
for us but also for her. (Interview n. 4 with civil society activist, Turkey)
In these terms, Turkish NGOs represent a rather critical voice, key for
offering a first-hand intervention and policy intervention, but at the
same time they are excluded from the negotiating table. Their critical
Europeanism is questioned under the conditions of the migration crisis,
that is a key event that brings on the surface a number of crucial and
critical dimensions in the perspective of the Turkish accession to the EU.
This is not to say that the EU’s democratizing power has diminished in
the view of activists as a consequence of the migration crisis, but for sure
this is leading to a reevaluation of the importance of normative values
associated to European integration, the respect for human rights and
solidarity above all.
Conclusion
The analysis reveals a number of ambiguities and controversies in the
establishment of active citizenship in the Turkish context. The
volatility of this concept and the difficulty to activate participatory
behaviors for civil society activists is a result of the long-standing
strong state tradition. A number of dimensions – lack of account-
ability of state institutions and lack of trust toward the current
system – undermine practices of active citizenship. In this context,
Europeanization, as a process has offered – with many limitations –
different opportunities for mobilization to activists and different
possibilities to engage in various activities. It is important to note
– as the chapter outlines in the final part – that the EU on the one
side embodies a number of core values – the respect for human
rights overall. On the other side, Europeanization is considered as a
Conclusion 183
Introduction
In this chapter, I outline the core characteristics of the British model of
active citizenship. The institutionalization of practices of civic and poli-
tical participation has been a clear objective of both New Right and New
Labour governments and more recently of the coalition government led
by the Conservatives and Liberal Democrats. Regardless of the ideolo-
gical differences, across time active citizenship has developed assuming
common patterns, with specific characteristics that put emphasis on
individual and collective responsibility, on the development of commu-
nity cohesion to solve specific social problems and on the provision to
the Third Sector of specific tasks in order to deliver public services. This
approach is not free from ambiguities, as it is argued in the presentation
of the data from the analysis. Activists vindicate their autonomy, claim-
ing that New Labour reforms as well as the recent Big Society approach
have been one sided and in some cases favored the emergence of coali-
tion groups in spite of the survival of smaller organizations. The chapter
also focuses on the active participation of British organizations in
European networks and at the opportunities that EU funding has
The managerial approach that was put in place under New Right was
therefore based on control of public spending with a strong emphasis on
188 9 Active Citizenship in the UK
The big society proposals assume that government alone cannot solve
complex social problems. Instead, by making the public services more
accountable to citizens, by decentralizing power and by expanding the
opportunities for civic participation, it is hoped that an active citizenry
will play a quantitatively and qualitatively greater role in tackling pro-
blems that affect communities. The package of policies is predicated on
the notion that there has been a decline in civic participation and that this
can be attributed partially to a dependency culture encouraged by ‘big
government.’ (2010)
The Big Society Agenda clearly sets principles for the development of
active citizenship that are rooted in the previous initiatives put forward
by the New Right and New Labour, by however injecting furthermore
liberal principles in its exercise. The emphasis on self-government, rather
than putting a clear edge on favoring the independency of civil society,
seem to be however a way out from the financial crisis, and a modality to
justify cuts on public spending.
These experiences show, between different ambiguities inherent to the
actual positioning of the citizens toward the state, that active citizenship
and the development of its different practices is a well-established dis-
cussion in the British context. As Lister argues, ‘Whether it is the Big
Society, the Third Way, the Good Society or some other concoction,
politicians are likely to continue to place more emphasis on citizens to
provide for their own, and society’s welfare. Any such effort to succeed
requires a much more consistent engagement with what motivates and
prompts people to partake in civic activism, and a rethinking of how
government institutions can support that’ (2015: 366). This commit-
ment to develop participatory instruments in Britain, results in a situa-
tion where practices of active citizenship clearly intertwine with demands,
and where there is, in my point of view, a profound institutionalization
of principles that allow the exercise of civic and political participation.
This is a central feature of differentiation from the Italian and Turkish
context that clearly emerges from the analysis of my data.
This extract provides the basis for a link with the important issue of
empowerment, touching about important dimensions that can favor the
emergence of forms of awareness and capacities that are important
elements for the stimulation of engagement toward the civic and/or
political community.
The empowerment of civil society groups dealing with minorities,
migrants, women, and youth, in particular, is thus seen as a necessary
condition in order to set the bases for participatory democracy and
political participation. In this respect, intercultural dialogue is consid-
ered to be the specific instrument to develop because of its centrality in
bridging between different social groups. Dialogue is also seen as funda-
mental in building community cohesion and enabling different commu-
nities to engage with each other, by favoring the development of positive
relationships between minorities and creating opportunities to connect,
meet openly, and debate everyday life issues and concerns.
196 9 Active Citizenship in the UK
Under the New Labour government some attention was given to the role of
community groups via empowerment initiatives. The main focus however
was on the role of professionalized voluntary sector agencies in meeting
government targets and, in particular, the delivery of public services under
contract to state agencies. Implementation of these policies was driven by
new, more rigid methods of commissioning services. At the same time,
distinctions were blurred between voluntary and private provision through
official support for social enterprises. (Independent Action 2011a: 1)
This process, that on the one side is meant to enhance functional partner-
ships with various groups working at the community level, is however
Practices and Instruments of Active Citizenship in the UK 197
( . . . ) a question mark hangs over the ability of the Big Society to reach those
communities and individuals that might benefit the most. The Audit
identifies a ‘Big Society Gap’ in levels of trust, engagement and social action
between the most disadvantaged and affluent, urban and rural communities
and younger and older people. This will make it difficult for those commu-
nities to take up the initiatives being offered to them. Most worryingly,
public services delivered by voluntary organisations in disadvantaged areas
are more likely to be at risk from public sector cuts and to provide services to
198 9 Active Citizenship in the UK
very positive about engaging with it and look to it for support both
financial and legislative. (Interview n. 3 with activist of civil society, UK)
I think one of the really biggest problems coming from an NGO perspec-
tive, is that their own house is so, in such disorder about the way they
manage their relationships through funding, so the ESF and all that, I
mean it’s a nightmare, and they can say lots of wonderful things about
engagement but when you have an organization, like Daphne which
delivers money as part of its funding in October that has to be spent by
the end of December, a year’s worth of funding, and then doesn’t give it
for six months, you know essentially what they are trying to do is kill off
NGOs, so, and that’s a major problem. (Interview n. 4 with activist of
civil society, UK)
The recession has significantly increased the number of men who are
under-employed; who are working part-time when they would prefer to
work full-time. Women have historically, and are currently, under-
employed in both the sense that they would wish to work more hours
than they are currently doing, and that they are working in a job that
does not require them to use the full range of their skills. (Poverty
Alliance 2012: 6)
In the UK, most minority ethnic groups have lower employment rates
than white British people, and these ethnic penalties have worsened
during the recession. Public sector cuts are also having a disproportional
impact on the employment situation of ethnic minorities, especially Black
African and Black Caribbean people, and women, who are more likely to
be employed in the public sector. (UKREN 2012)
The EU should remain a beacon for hope, not an institution that breaks its
promises to European citizens. This is vital for the survival of the EU itself
– future support depends on a firm balance between economic and social
goals agreed democratically. Member states urgently need to agree to
challenge austerity collectively. They must defend universal social protec-
tion systems, pursue a balanced Europe 2020 growth strategy, and ensure
Europe is moving steadily toward making sure all citizens have enough to
live with dignity. Furthermore, the process of implementing any adjust-
ment or growth policies within countries must be accountable. Poverty and
inequality in Europe are a political choice. But Europe can choose to
change course now – choose to listen to its citizens and ensure the next
few years do not turn into hopelessly lost decades. (Oxfam UK 2013)
( . . . ) the crisis has drawn attention to the amazing work that volunteers
are doing to support fellow humans. It seems to me that volunteering has
Crisis Management and the Paradox of Brexit 205
Current government policy does not provide the support that refugees so
desperately need, and fails to build the positive relationships we all want to
see between refugees and host communities. There is a better way. A
reformed system would improve the lives of refugees, enable them to
contribute more to the UK, improve community relations and save the
UK money ( . . . ). These are extraordinary times. No one chooses to be a
refugee. It’s the accident of birth that separates ‘us’ from ‘them’. Four
years of the brutal war in Syria have left 11 million people with no option
but to flee their homes. There appears to be no end in sight to this war and
the appalling suffering that comes with it. (Refugee Action 2016)
( . . . ) this is as much a crisis of racism as it is a crisis of refugees. Indeed,
the shocking images we have seen on the front pages of our newspapers,
and on our television screens, in the last few days is a political crisis of
failed Governmental responses to human mobility in the face of persecu-
tion. Further, this failed response to events in Syria – as well as countries
such as Afghanistan and Eritrea – is explicitly built upon the foundations
206 9 Active Citizenship in the UK
vote concerning immigration issues, with core contentious issues being the
flows toward Britain from other EU countries as well as the intensification
of the migration crisis in 2015 and 2016.
Migration rights, an NGO working and campaigning in support of
migrants in the UK, prior to the referendum pointed at the conse-
quences of Brexit for the British economy.
The result of the UK referendum is clear and the decision to leave the
European Union will have long standing consequences for anti-poverty
campaigners here and across the continent. Those forces across Europe
that seek to reduce social rights, who wish to increase deregulation, and
who see migration only as a problem, will be bolstered by the UK result.
Campaigners who want their national governments to take real action to
address poverty, or to protect and extend rights at work, who want moves
for greater equality between men and women, may now find that their
task has become somewhat harder. (Poverty Alliance 2016)
Conclusion
The chapter outlined important differences in respect to the Italian and
Turkish models of active citizenship. The institutionalization of prac-
tices of engagement and participation has gone along with the formali-
zation of a number of New Public Management reforms that – across the
years – have been central in order to structure groups of interests in
Conclusion 209
the task to ensure decent levels of social protection especially for dis-
advantaged groups such as young people, women, minorities and
migrants. Ensuring the mainstreaming of civic and political participa-
tion in EU policy programs – with the scope of guaranteeing that these
social groups have their voices heard but at the same time that the severe
impact of the crises on them is alleviated – has thus become a central
lobbying activity of various organizations such as the European
Women’s Lobby, the European Network Against Racism, Solidar, the
European Youth Forum, just to name a few. The analysis at the national
level shows, comparatively, the emergence of similar patterns in regard
to the impact of Europeanization for Turkey and Italy, especially. In
both countries, activists of the civil society question the policy responses
of the EU, by focusing on the negative consequences these had, because
of a lack of responsiveness by the EU and the member states but also as a
consequence of a broader European crisis of solidarity. This is a pattern
that is found also in Britain. However it can be argued that UK-based
organizations to a larger extent are first and foremost critical of domestic
politics and of the lack of commitment by the Conservative government
in providing sufficient policy responses in conjunction with interna-
tional partners. Overall, the book provides evidence of the relevance of
studying active citizenship, of the importance assumed by the civil
society – both as a critical voice and as a crucial actor in planning policy
interventions – and of the important nexus existing between engagement
and participation. The activation of participatory behaviors, in all cases,
happens within given constraints. Active citizenship as a practice, pro-
moted through public policy, reveals to have many shortcomings,
because it barely meets the needs of civil society organizations in terms
of resources but also in respect to the overall rationale underpinning the
promotion of active behaviors through the EU civil society policy.
Activists, both at the EU level and in the three countries, refuse the
idea of serving the need to be policy actors essential for providing forms
of input legitimacy. They instead clearly vindicate their independence
and struggle to be full participants players in the public sphere. This is a
finding common to other studies (Zinihoglu 2013a, 2013b). My book
brings this a step further by providing comparative data on three
countries.
The European Discourse 213
and citizens themselves (Grunig and Grunig 1992; Grunig and Hunt
1984). In a nutshell, the promotion of instruments, such as consulta-
tions, or the development of tools such as the civil dialogue, is meant to
improve the communicative interaction between different actors at
different levels. The strategy of the European Commission in respect
to engagement and participation of disadvantaged groups show various
ambiguities in terms of approach. These clearly emerge in the analysis of
organized civil society discourses. The issues that are important to under-
line and that are based on the evidence collected through my analysis are
multifold.
First of all, various limitations in the approach to stimulate engage-
ment and participation clearly emerge from the evidence collected as
part of my fieldwork. Means of formal participation are limited, and the
impact on policy-making is not sufficient to guarantee a clear influence
on the agenda. Organizations in Brussels mostly play a consultative role
and barely have the possibility to sit on the negotiating table. This is
even more evident when we look at the actual influence exercised by
organizations representing weak publics, such as for example women or
minorities and migrants that clearly struggle to emerge. Especially for
these groups, the demands for active citizenship expressed through
lobbying activities and by putting forward specific campaigns at the
EU level – such as the 50/50 campaign promoted by the European
Women’s Lobby and based on the principles of parity democracy – result
more evident. The necessity to guarantee equality, for example, between
women and men, in policy-making is a top priority that on the other
side downgrades and devaluates existing practices of active citizenship.
Secondly and linked to the above, mechanisms of empowerment
for civil society organizations entail a wide set of instruments aiming
at guaranteeing foremost the full inclusion of disadvantaged groups
in the societies of belonging, or in the receiving societies, in the case
of migrants and minorities. Hereby civic and political participation
play a key role in developing integration policies. However, umbrella
organizations point at the limits to empowerment in the present
time context. As a consequence of the impact of the financial crisis –
in terms of new social problems and the worsening of life conditions
– and of the dramatic developments associated with the migration
Italy, Turkey, and the UK: Comparison and Implications 215
Characteristics of
State society relations Determinants of reform and political conditions active citizenship
Italy – Bureaucratic state – End of First Republic – Contested active
– New Public – Europeanization citizenship
Management – Shifts in government (center right and center left)
reforms
Turkey – Strong state – Europeanization – Volatile active
tradition – Single-party rule citizenship
– New Public
Management
reforms
UK – Decentralized state – Crisis of British society – Institutionalized
– New Public – Shifts in government (New Right, New Labour, Coalition active citizenship
Management government, Conservative government)
reforms
Italy, Turkey, and the UK: Comparison and Implications 217
nonstate actors. This has been key in stimulating the process of democra-
tization of the country and in influencing the pattern of reform that Turkish
public institutions have been following under the rule of the Justice and
Development Party (Adalet ve Kalkınma Partisi-AKP). Governance and
management reform have been promoted in order to challenge the tradi-
tional state-centric structure of the Turkish Republic, following an attempt
to promote a citizen-centered approach. However, research on the impact
of the EU civil society policy on Turkey, as well as the analysis of the
governmental initiatives for promoting active citizenship – for example, city
councils – shows that this approach still suffers from many limitations, with
the main shortcomings being the lack of activation of processes favoring
engagement and political participation in public policy processes. Turkey,
more than Italy and the UK, is a country with different experiences
regarding the emergence of active citizenship as a demand. Processes of
bottom-up mobilization however are volatile and appear to gain impor-
tance only in key moments, when windows of opportunities to initiate
processes of social change open up and put into question the legitimacy of
the political system to act in matters of public concern. Overall, I defined
the connotation taken in the Turkish context as volatile active citizenship,
because of the persistent impossibility for nonstate actors to act as critical
actors in public policy processes.
The British context is one that has favored the development of active
citizenship in different stages and under different political conditions
that have appeared in the last 30 years and even more. It has been on the
top of the agenda of the New Right (under Thatcher and Major), of the
New Labour (under Blair and Brown), of the Coalition government
(composed by Conservatives and Liberal Democrats), and more recently
by the Conservative government led by David Cameron until June 2016
when the Tory leader resigned as a consequence of the Brexit vote.
Across this period of time, it has been associated to different social and
political needs and has been strongly affected by different connotations
promoted under Neo Liberal, Third Way, and Big Society approaches.
At the same time – and this is a crucial issue – active citizenship as a
practice has intertwined with active citizenship as a demand in the context
of the emergence of various social problems that put into crisis the
British society in the last 15 years. The second category – expressed
Italy, Turkey, and the UK: Comparison and Implications 219
Future Research
The interconnection between EU and national discourses on active
citizenship needs in my view to be explored further, by taking into
consideration at least two dimensions that need to be looked at. In
Future Research 221
first instance, future research should provide a wider and more encom-
passing account for different macrocontextual, demographic, social, and
psychological factors (Barrett and Zani 2015) that activate or hinder
practices and demands of active citizenship in Italy, Turkey, and the UK.
This is an aspect that my research has not taken into full account because
this would require a complete different strategy and a quantitative
research design. It is necessary, in my view to have a closer look at the
contextual relevance of each one of these factors, in order to map more
precisely correspondences and divergences between different contexts in
affecting different components of active citizenship, such as civic and
political engagement and civic and political participation.
In second instance, very importantly, the analysis of horizontal
Europeanization should drive future research. Reciprocal, mutual obser-
vations, overlapping discourses are in fact currently taking place between
the three countries at hand. It is not a case, for example, that in occasion
of the elaboration of the Turkey/EU agreement first, and across the
campaign precedent to the referendum that took place in the UK in June
2016, these countries have been observing each other quite significantly.
The leave campaign, for example, has used the risk of ‘invasion of
Turkish migrants’ as a modality to foster the Brexit. At the same time,
Erdoğan referred to the British experience in order to argue that also
Turkey might at some point decide upon whether to continue the
accession process by holding a referendum (Bermant and
Lindenstrauss 2016). Or to draw another example, in the aftermath of
the failed Turkish military coup of July 2016, both British and Italian
media have been looking at this event by remarking the eventual
destabilizing effects that the Turkish accession might have for the EU.
This has revitalized, especially in populist discourses, Eurocentric points
of view that bring about a confrontation between different cultural
values justified in order to claim that Turkey should not access the
EU. Besides, the event has been interpreted as definitely sanctioning
the ‘divorce between Turkey and the Western World’ (Giro 2016;
Santoro 2016).
These, I believe, are meaningful examples that show how processes of
horizontal Europeanization are currently taking place between these
three countries, besides others. These processes have an impact on
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