Political Autonomy and Divided Societies

Political Autonomy and Divided Societies

Comparative Territorial Politics series Series Editors: Charlie Jeffery, Professor of Politics, School of Social and Political Science, University of Edinburgh, UK. Michael Keating, Professor of Politics, University of Aberdeen, UK. Territorial politics is one of the most dynamic areas in contemporary political science. Devolution, regional government and federal reform have reshaped the architecture of government at sub-state and transnational levels, with profound implications for public policy, political competition, democracy and the nature of political community. Important policy fields such as health, education, agriculture, environment and economic development are managed at new spatial levels. Regions, stateless nations and metropolitan areas have become political arenas, contested by old and new political parties and interest groups. All of this is shaped by transnational integration and the rise of supranational and international bodies like the European Union, the North American Free Trade Area and the World Trade Organization. The Comparative Territorial Politics series brings together monographs, edited collections and area studies that further scholarship in the field of territorial politics and policy, decentralization, federalism and regionalism. It aims to be an outlet for innovative research in this area, grounded in political science, political geography, law, international relations and sociology. Comparative Territorial Politics series Series Standing Order ISBN 978 0230 29293 2 (outside North America only) You can receive future titles in this series as they are published by placing a standing order. Please contact your bookseller or, in case of difficulty, write to us at the address below with your name and address, the title of the series and the ISBN quoted above. Customer Services Department, Macmillan Distribution Ltd, Houndmills, Basingstoke, Hampshire RG21 6XS, England

Political Autonomy and Divided Societies Imagining Democratic Alternatives in Complex Settings Edited by Alain-G. Gagnon Professor of Political Science, Université du Québec à Montréal, Canada and Michael Keating Professor of Politics, University of Aberdeen, UK

Editorial matter, selection, introduction and conclusion Alain-G. Gagnon and Michael Keating 2012 All remaining chapters respective authors 2012 Softcover reprint of the hardcover 1st edition 2012 978-0-230-36425-7 All rights reserved. No reproduction, copy or transmission of this publication may be made without written permission. No portion of this publication may be reproduced, copied or transmitted save with written permission or in accordance with the provisions of the Copyright, Designs and Patents Act 1988, or under the terms of any licence permitting limited copying issued by the Copyright Licensing Agency, Saffron House, 6 10 Kirby Street, London EC1N 8TS. Any person who does any unauthorized act in relation to this publication may be liable to criminal prosecution and civil claims for damages. The authors have asserted their rights to be identified as the authors of this work in accordance with the Copyright, Designs and Patents Act 1988. First published 2012 by PALGRAVE MACMILLAN Palgrave Macmillan in the UK is an imprint of Macmillan Publishers Limited, registered in England, company number 785998, of Houndmills, Basingstoke, Hampshire RG21 6XS. Palgrave Macmillan in the US is a division of St Martin s Press LLC, 175 Fifth Avenue, New York, NY 10010. Palgrave Macmillan is the global academic imprint of the above companies and has companies and representatives throughout the world. Palgrave and Macmillan are registered trademarks in the United States, the United Kingdom, Europe and other countries. ISBN 978-1-349-34937-1 ISBN 978-0-230-36532-2 (ebook) DOI 10.1057/9780230365322 This book is printed on paper suitable for recycling and made from fully managed and sustained forest sources. Logging, pulping and manufacturing processes are expected to conform to the environmental regulations of the country of origin. A catalogue record for this book is available from the British Library. A catalog record for this book is available from the Library of Congress. 10 9 8 7 6 5 4 3 2 1 21 20 19 18 17 16 15 14 13 12

Contents List of Tables Acknowledgements Notes on Editors and Contributors vii viii ix 1 Introduction 1 Michael Keating and Alain-G. Gagnon Part I Conceptual Approaches 2 Rethinking Territorial Autonomy 13 Michael Keating 3 Autonomy, Boundaries and Trust: Preliminary Remarks 32 Geneviève Nootens 4 Reconciling Autonomy, Community and Empowerment: The Difficult Birth of a Diversity School in the Western World 49 Alain-G. Gagnon 5 Sub-State Governance through Territorial Autonomy: On the Relationship between Autonomy and Federalism 60 Markku Suksi Part II Case Studies 6 Central, Eastern and South-Eastern Europe and Territorial Autonomy: Are They Really Incompatible? 81 Francesco Palermo 7 Seeking New Autonomies: State Rescaling, Reterritorialization and Minority Identities in Atlantic Canada 98 James Bickerton v

vi Contents 8 Recrafting Sovereignty: Lessons from Small Island Autonomies? 118 Eve Hepburn 9 Insularity and Autonomy: From a Misleading Equation to a New Typology 134 André Fazi 10 The Elusive Autonomy of Canada s Francophone Minority Communities 155 Rémi Léger 11 Autonomy and Ethnic Diversity: The Case of Xinjiang Uighur Autonomous Region in China 171 Isabelle Côté 12 Regions and Territorial Autonomy in Southeastern Europe 185 Dejan Stjepanović 13 Autonomy and Nationalist Demands in Southeast Asia 200 Jacques Bertrand 14 Catalan Autonomy-Building Process in Immigration Policy: Conceptual, Institutional and Normative Dimensions 220 Ricard Zapata-Barrero 15 Conclusions 236 Alain-G. Gagnon and Michael Keating References 241 Index 266

Tables 5.1 Institutional and material dimensions of sub-state arrangements 69 5.2 Four models of sub-state organization 70 9.1 Categories and sub-categories 139 9.2 Variables relevance 144 10.1 Percentages of Francophones 159 vii

Acknowledgements We thank the University Carlos III in Madrid for hosting the seminar in April 2010, in which contributors presented early papers with hypotheses and new ideas. Financial assistance was provided by the Canadian Social Science and Humanities Research Council Major Collaborative Initiative led by the Ethnicity and Democratic Governance Research Team (Queen s University, Université du Québec à Montréal (UQAM) and the University of Toronto). Additional support from the Research Group on Right and Justice based at Carlos III contributed to the successful realization of this project. We also thank Alexander Schwartz (post-doctoral researcher, UQAM) for his assistance in the final revisions phase, as well as Olivier De Champlain (UQAM) for helping with the preparation of the final manuscript. viii

Notes on Editors and Contributors Jacques Bertrand is Associate Professor of Political Science at the University of Toronto. For over 15 years he has worked on issues of ethnic politics, nationalism and democratization, as well as of local politics in Indonesia. Currently he is working on ethnic minority interests and representation in Southeast Asia comparatively, with an emphasis on recently democratized countries of the region. James Bickerton is Professor of Political Science at St Francis Xavier University. His research has been in the areas of regional development, party and electoral politics and Nova Scotia politics. He now works on Canadian nationalism. He is the author of Nova Scotia, Ottawa and the Politics of Regional Development (1990), co-author of Freedom, Equality, Community (2006) and co-editor of Canadian Politics (2009). Isabelle Côté is a PhD candidate in political science at the University of Toronto. Her dissertation examines the impact of internal migration on ethnic conflicts in China and Indonesia. She is a recipient of a doctoral fellowship from the Canada Research Council on Humanities. André Fazi has a PhD in political science and is attached to the University of Corsica. He is a member of Centre National de la Recherche Scientifique (CNRS). His work deals with insular politics, political behaviour and political institutions. He is the author of La recomposition territoriale du pouvoir: Les régions insulaires de Méditerranée (2005). Alain-G. Gagnon is a professor in the Department of Political Science and Canada Research Chair in Québec and Canadian Studies at the University of Québec in Montreal, Canada. He currently holds a Chair of Excellence at Carlos III. His most recent publications include Contemporary Canadian Federalism (2008), The Case for Multinational Federalism (2010) and Federal Democracies (2010) (with Michael Burgess). ix

x Notes on Editors and Contributors Eve Hepburn is Deputy Director of the Academy of Government at the University of Edinburgh and Senior Research Fellow in Politics. She is Principal Investigator on an Economic and Social Research Council (ESRC)-funded research project, The Politics of Island Regions: A Framework for Comparative Research. Michael Keating is Professor of Politics and ESRC Professorial Fellow at the University of Aberdeen. He has published numerous books and articles on urban and regional politics, nationalism and comparative European politics. At present he is working on nationality questions, European integration, devolution in the United Kingdom and methodology in the social sciences. Rémi Léger is a doctoral candidate in political studies at Queen s University, Canada. He works in the fields of political theory and Canadian politics. He is the recipient of a Doctoral Canada Graduate Scholarship from the Canadian Social Sciences and Humanities Research Council (2008 11). Geneviève Nootens has been Professor of Political Science at the Université du Québec à Chicoutimi since 1998. Her research is mainly concerned with the redeployment of democratic practices and the diffusion of sovereignty, majority and minority nationalism and plurinational societies. Since 2005 she has held a Canada Research Chair in Democracy and Sovereignty. Francesco Palermo specializes in comparative, Italian and European constitutional law, federalism, regionalism, minority issues and European integration. He is affiliated with the Institute for Studies on Federalism and Regionalism in Bozen/Bolzano, South Tyrol, Italy. Dejan Stjepanović specializes in territory, nationalism and regionalism in south-eastern Europe. He has a PhD at the European University Institute, Florence and is currently at the University of Edinburgh. Markku Suksi is Professor of Public Law at Âbo Akademi University, Finland. He has published several books in the field of autonomy, including Autonomy: Applications and Implications (2009). He has extensive experience in election observation in Hungary, Romania, Estonia and the Russian Federation.

Notes on Editors and Contributors xi Ricard Zapata-Barrero is Professor of Political Theory in the Department of Political Science and Social Sciences at the University at Pompeu Fabra, Barcelona. His main lines of research deal with contemporary issues of liberal democracy in contexts of diversity, especially the relationship between democracy, citizenship and immigration. Among publications he has edited is Immigration and Self-Government of Minority Nations (1998).