Abs ac
Di e en ieldwo k conduc ed in he ci y o Tu in shows ha h ough he analysis o social
se ices o immig an s one can see how gene al he dynamics o local policies a e e lec -
ed. The main ocus o he a icle is based on he supply-demand sides o social se ices o
immig an s in he con ex pa ly o an inc ease in emale immig a ion o he majo ci ies
in I aly, and pa ly o an a angemen o a p og essi e «wel a e mix» in social se ices. The
a icle is di ided in o wo pa s. In he i s pa local policy is analysed h ough he se ices
a ailable o immig an s in Tu in, especially by conside ing he his o y and e olu ion o
social se ices since he eigh ies. In he second pa o he a icle he issue is illus a ed
h ough ieldwo k examples poin ing a some a ailable s a egies ha mig an women
apply in o de o gain access o social se ices.
Key wo ds: immig a ion policies, gende issues, social se ices, wel a e mix, nego ia ion,
no he n I aly, Tu in.
Resumen. «El mecanismo-espejo de las polí icas». El caso de Tu ín
Es e a ículo es u o de es abajos de campo ealizados en la ciudad de Tu ín. Su obje-
i o p incipal es mos a que a a és del análisis de la inmig ación se e lejan las dinámi-
cas de las polí icas locales. Se cen a en el juego de la o e a y la demanda de se icios
sociales pa a inmig an es en el con ex o de una c ecien e eminización de lujos mig a o-
ios en la ciudad, conside ando especialmen e la his o ia y la e olución de la o e a de se -
icios desde los años ochen a. En la segunda pa e del a ículo hemos a ado de mos a el
o o lado de la cues ión al obse a las es a egias de las muje es inmig an es pa a pode
ene acceso a los se icios sociales.
Palab as cla e: cues iones de géne o, se icios sociales, wel a e mix, negociación, I alia del
no e, Tu ín.
Pape s. 60, 2000 67-83
«The policy mi o mechanism»:
he case o Tu in
Tiziana Caponio
Uni e si é de Genè e. Dépa emen de Science Poli ique
[email p o ec ed]
Uni e si à di To ino
[email p o ec ed]
Ane e Nielsen
Uni e si y o Aa hus. Depa men o E hnog aphy and Social An h opology
[email p o ec ed]
Na alia Ribas Ma eos
Uni e si a Au ònoma de Ba celona. Depa amen de Sociologia
mazo@a qui ed.es
Pape s 60 067-083 29/6/00 11:27 Página 67
1. In oduc ion
In his a icle we p esen a case s udy analysis ha is a esul o di e en ield-
wo k1conduc ed in Tu in on di e en issues ela ed o immig a ion such as
gende , social igh s, immig an s associa ions and social wel a e. The main
poin o his a icle is ha h ough he analysis o e e yday p ac ice and s a e-
gies su ounding immig a ion, one can see how he dynamics o local policies
a e e lec ed as well as nego ia ed in a local con ex . The e a e wo main ocus
a eas behind ou poin s: i s ly he s ong p esence o emale mig an s in he
ci ies o No he n I aly; andsecondly he signi ican ole o he hi d sec o 2
in I aly.
In he ollowing we ha e chosen « he policy mi o mechanism» as a e m
o illus a e how immig a ion policies no only e lec bu also suppo gen-
e al local policies3.
The «policy mi o mechanism» implies ha by looking pa ly a immi-
g a ion policies, and pa ly a immig an women’s nego ia ions in e e yday
li e, in he case o Tu in, essen ial cha ac e is ics o he local policies can be
seen. Cha ac e is ics such as: 1)« he speci ici y app oach», i.e. he pe suasion
ha immig an s p oblems ha e o be aced wi h speci ic policies and ad hoc
ins i u ions, a he han a ou ing di ec inclusion in o mains eam se ices,
68Pape s 60, 2000 Tiziana Caponio; Ane e Nielsen; Na alia Ribas Ma eos
1.This join en u e is he esul o a semina held in Janua y 1998 a he Dipa imen o di
Sociologia o he Uni e si à degli S udi o Tu in. Caponio’s con ibu ion is based on he
hesis on immig an s associa ions in Tu in as well as he collabo a ion in di e en esea ch
s udies which deal wi h he issue o immig a ion policies a he ci y le el (MOST p o-
g amme, IRES Mo osini p og amme e c.). Ribas’con ibu ion is based on a ield-wo k on
he in e ac ion o ac o s in wel a e mix a angemen s o immig an s which has been inanced
by he TRM p og amme «Family and he Wel a e s a e» coo dina ed by MZES; Uni e si y
o Manheim. The second pa o he a icle is mainly based on Ane e Nielsen’s ieldwo k
conduc ed a he cen e Alma Ma e and he Ca i as Femminile in Tu in du ing he win-
e 1997/98. The wo o ganisa ions became he physical se ing o encoun e ing mig an
women —wi h o wi hou a esidence pe mi — in o de o know mo e abou hei li e in
Tu in, and in pa icula how hey nego ia e social igh s like access o he labou ma ke ,
housing and heal h ca e.
2.«The hi d sec o » is in his wel a e mix con ex , he p i a e poli ical, e hnic and ca holic asso-
cia ions which usually collabo a e wi h public wel a e ins i u ions.
3.We a e awa e ha i is equally impo an o look a he ep oduc ion o economical and
poli ical s uc u es inhe i a ed om he immig an s’coun y o o igin, as well as he impo -
ance o how na ional poli ical s uc u es ep oduce speci ic policies owa ds immig a ion.
Summa y
Pape s 60 067-083 29/6/00 11:27 Página 68
1. In oduc ion
2. The speci ici y app oach
o social se ices
3. Gende and hi d sec o o ganisa ions.
Sho cu s o social se ices?
4. Conclusions
Re e ences
2) he complexi ies o a wel a e-mix app oach, which can be well e lec ed in
he case o o eign immig a ion and 3) he cha ac e is ic pola isa ion when
dealing wi h subjec s such as gende . The la e , as we shall see, in ou case
being di ided in o wo discou ses: a le is - eminis and a ca holic one.
Zincone (1994a and 1994b) has poin ed a some o he cha ac e is ics o
he I alian poli ical sys em which helps o highligh an analysis o immig a-
ion policies and daily p ac ices:
1) he disc epancy be ween p oclaimed public in en and he law, and be ween
laws and he adminis a i e implemen a ion;
2) he disc e iona y beha iou o adminis a i e bodies and ci il se an s,
common o he I alian legal sys em;
3) he lack o a clea -cu dis inc ion be ween ci il associa ions, public admin-
is a ion and public se ices. This public-p i a e in e wea ing appea s e en
mo e clea ly when ponde ing he p o ision o social se ices o i egula
immig an s;
4) he lack o in e cul u al adi ion;
5) and impo an local di e ences among I alian ci ies and egions in ela-
ion o he enewal o pe mi s, he le is adi ion, he ole o olun a y
associa ions and he p o iding o se ices.
O he esea che s like Los ia and Tomaino (1994) ha e also indica ed sim-
ila aspec s o he ones men ioned by Zincone, exp essing how immig a ion
challenges he I alian bu eauc a ic sys em and he I alian heal h sys em.
I aly and Immig a ion
The low o immig an s in o I aly s a ed du ing he mid 1970’s, g ea ly due
o he closed bo de policies adop ed by he No he n Eu opean coun ies.
Howe e , he issue does no en e he poli ical agenda un il a decade la e , in
1986, when he i s immig a ion law is app o ed. In he mean ime he only
no ms in o ce a e hose o he 1931 Code o Public Secu i y, which essen ial-
ly conce ns admission and expulsion o o eigne s, and assigns a conside able
powe o police and judicial au ho i ies.
In he ea ly 1980’s, howe e , many local adminis a ions, especially in he
egions o he No h and he Cen e, s a o mobilise p ac ical solu ions o
he p oblems aced by he g owing numbe o non-na ional esiden s. Tu in
is among hese ci ies. A Fo eign O ice (U icio s anie i) was opened in 1982,
wi h he conc e e in ol emen o hi d sec o olun a y o ganisa ions, espe-
cially he Ca holic Ca i as, which was al eady ac i e in he i s accommoda-
ion o o eign s uden s a i ing om hi d wo ld coun ies4. This was jus
«The policy mi o mechanism»: he case o Tu in Pape s 60, 2000 69
4. In ac , he Tu in diocesis has always demons a ed pa icula in e es in de elopmen p ob-
lems in he hi d wo ld coun ies, and since 1963 es ablished a special Se ice o he Thi d
Wo ld Coun ies. I is his same o ice ha al eady in 1975 o ganised a cen e o he immi-
g an s’ i s ecep ion, he so-called Cisca , Cen e o he Recep ion and Cul u al Exchange
Pape s 60 067-083 29/6/00 11:27 Página 69
he s a ing poin o a se ies o ini ia i es which in he ollowing yea s ha e
been de eloped in s ic collabo a ion wi h o he local ins i u ions ( he Region
Piemon e, he P o ince, he P o incial Educa ion Au ho i y), gi ing way o a
speci ic pa e n o social in eg a ion, also pa ly adop ed by ecen na ional
legisla ion (Zincone, 1998).
The s ong p esence o emale immig a ion lows in I aly can be iewed as
a esponse o he demand in he se ice sec o , which co e s « he gende ised
jobs» o pe sonal and domes ic se ices. A ac which will be e y impo an
when asking why his mechanism is much mo e p e alen in Sou he n Eu ope
han in No he n Eu ope. I we apply « he policy mi o mechanism», he gen-
de app oach in immig a ion can be seen as a ep oduc ion o he ypical gende
ela ions o some socie ies. King (in his monog aph) poin s ou : « hese oles
can be ega ded as adi ional emale jobs and an ex ension o he s e eo-
yped ole o women in Sou he n Eu ope and Ca holic socie ies amily as
ca e/helpe s/cleane s e c. Hence i is no su p ise ha he main coun ies o
emale labou mig an s (also in he I alian case) a e Ca holic coun ies whe e
his model o gende ela ion and emale compo men is s ongly embedded».
While he hi ing o emale mig an s is a s a egy o Thi d Wo ld Coun y
women’s employmen , i is also a ca e solu ion o u ban middle classes, who
ec ui immig an women o householding (cleaning and ca e aking o chil-
d en and he elde ly). This solu ion o me can ilis se ices as a esponse o
he women’s double bu den ends up by ep oducing a pa e n o a adi ion-
al bou geoisie I alian amily, in a modi ied model o ex ended amilies.
2. The speci ici y app oach o social se ices
As p e iously poin ed ou (Fe e a, 1994; Fa gion, 1996), he hi d sec o ’s
olun a y o ganisa ions, especially he ca holic ones, ha e always assumed in
I aly a cen al ole in p o iding an icipa o y answe s o a ious social needs,
especially wi h espec o ma ginalised g oups. This is why i is impo an o
look a all ac o s who in e ene in he local policy sphe e, and no exclusi e-
ly analyse he ole o he a ious ins i u ional se ices as i has been adi ion-
ally conside ed. Replacing ac i i ies adi ionally un by he s a e and now
ope a ed by he hi d sec o implies dealing wi h a much mo e complex model
o in e ac ion be ween di e en ac o s and di e en unc ions.
In analysing he social se ices o immig an s in Tu in, we ha e o con-
side he mo e gene al deba e which has aken place all o e Eu ope in ecen
yea s a ound wha ype o se ices should be o e ed, i.e. gene al o speci ic.
Wi h e e ence o his gene al opposi ion, he ci y o Tu in has ac ually adop -
ed an ad hoc app oach, in o de o ace he a ying exigencies o he immi-
g an popula ion egula ly o i egula ly p esen in he ci y. In pa icula , we can
70 Pape s 60, 2000 Tiziana Caponio; Ane e Nielsen; Na alia Ribas Ma eos
wi h Fo eign People (Cen o pe l’accoglienza e lo scambio cul u ale con gli s anie i), mainly
di ec ed o hi d wo ld s uden s (I es Piemon e, 1994: 33).
Pape s 60 067-083 29/6/00 11:27 Página 70
dis inguish h ee main pe iods: 1) he eme gency policy, un il 1990; 2) he
c ea ion o a ne wo k o speci ic se ices, based on he in e ac ion be ween
he municipali y and he hi d sec o om 1990 o 1995; and 3) i s consoli-
da ion pe iod, since 1995 and onwa d.
In gene al in I aly he «speci ici y» app oach has p e ailed. The budge o
c ea e he se ice in as uc u e a he local le el has been one o he main
esul s o he second and mos in luen ial immig a ion law, Legge Ma elli. On
he basis o his law, se ices ha e been o ganised h ough speci ic and spe-
cialised s uc u es by he so-called ecep ion cen es: p ima accoglienza. O he
se ices like he in o mal heal h se ice, ISI (Se izio Sani a io Immig a i) and
he Co-o dina ing Cen e o You h: U iccio coo dinamen mino i, ha e been
local ini ia i es suppo ed by he municipali y o Tu in and conduc ed hanks
o he Ma elli Law’s budge s and imposi ion.
The exis ence o a pa icula «Tu in ne wo k» in he delega ion o se ices
is an impo an issue conce ning he s udy o he wel a e mix dynamics a he
local le el. Ano he impo an issue is ha he eplacemen o ac i i ies adi-
ionally un by he s a e and now ope a ed by he hi d sec o opens up he
deba e on he weakening o he democ a ic p inciples in wel a e se ices.
The i s esponse o he needs o inse ion and in eg a ion o immig an
women comes om he hi d sec o , conside ing he lack o public se ices o
his ela i e new ca ego y o popula ion. The Ca i as in Tu in, decides in 1975
o o ganise ad hoc se ices, like he CISCAT (Cen o In e nazionale Scambi
Cul u ali Accoglienza S anie i) and he «Se izio Mig an i Femminile», deal-
ing wi h p oblems ela ed o women, amily and lone mo he s. Since he dec ee
Dini in 1996 his se ice has enabled he in eg a ion o 150 ex-p os i u es
—mainly Nige ians— in amilies and ac o ies in he ci y o Tu in and i s
p o inces.
1. The eme gency policy and he i s mobilisa ions o he 1880’s
The Municipali y o Tu in (Comune di To ino) was he i s ins i u ional ac o
in a local con ex o mobilise and co-o dina e he se ices al eady o e ed o
immig an s by olun a y o ganisa ions, hus implici ly acknowledging he
necessi y o an ins i u ional esponse in he oid o na ional legisla ion. Hence,
he o e o social policies o immig an s in he ci y o Tu in eme ges as he
p oduc o a posi i e con e gence be ween local adminis a ion and he hi d
sec o , which decided o collabo a e a he han con on each o he . In 1982
he appoin men o a well known p ies / ac o y-wo ke , Don F edo Oli e o,
as he head o he hen es ablished «O ice o Fo eigne s and Nomads», ga e
a o mal link o such a collabo a ion. The O ice, which was es ablished on
he ini ia i e o he mayo ’s cabine 5, was di ided in o wo sec o s. One sec-
«The policy mi o mechanism»: he case o Tu in Pape s 60, 2000 71
5. A his ime, he ci y was go e ned by a le -wing majo i y and Diego No elli, o he o me
I alian Communis Pa y (ex Pci, Pa i o Comunis a I aliano).
Pape s 60 067-083 29/6/00 11:27 Página 71
o conce ning gypsies and nomad people, wi h he unning o he public
nomad camps a he pe iphe y o he ci y. The o he sec o , on which we shall
ocus ou a en ion, aims a dealing wi h o eign immig an s.
A he beginning o he 1980’s, he numbe o immig an s in Tu in was
only a ew housands, p ima ily consis ing o women om he Philippines,
Somali and E i ea, mos o hem employed as domes ic wo ke s. Beside hese
g oups o women he e we e also uni e si y s uden s and poli ical e ugees6.
A he same ime howe e , a g owing numbe o i egula s7we e beginning o
a i e om Mo occo and Cen al A ica (Senegal, I o y Coas and Ghana)
wo king in small indus ies o as s ee endo s. In his con ex , The O ice
o Fo eigne and Nomads began o ac as an «in e locu ó e» o o eign peo-
ple, o e ing hem in o ma ion and ad ice, especially du ing he i s egula -
isa ion and amnes y disposed by law 1986/943. The O ice o Fo eigne s and
Nomads has since wo ked as a «b idge unc ion» (Ci à di To ino, 1996: 11),
wi h he aim o sho ening he dis ance be ween he newcome s and he se -
ices. Accommoda ion was he i s p io i y and, hanks o he ac i e collab-
o a ion wi h hi d sec o ca holic associa ions, a ne wo k o cen es and se ices
has been c ea ed since he mid 1980’s.
Associa ions collabo a ing wi h he O ice o Fo eigne s and Nomads we e
admi ed o a ious o ms o inancial suppo , egula o jus occasional, and
depending on he public ele ance o se ices o e ed. On behal o an al eady
exis ing social se ice o immig an s combined wi h inancial suppo , he
Municipali y has been able o p o ide a wide ange o u gen se ices: om
empo a y shel e s o heal h ca e, bo h o egula and i egula immig an s,
hus also indi ec ly aking cha ge o bo de line si ua ions which public au ho -
i ies did no —whe he willingly o because hey we e no allowed o in e -
ene di ec ly (Zincone, 1994). In 1991 wo new Accommoda ion Cen es
we e es ablished by he Municipali y, bo h ended by coope a i es unde con-
ac . Access o hese s uc u es is media ed by he O ice o Fo eigne s and
Nomads, and an (in) o mal applica ion has o be illed ou in o de o be
inse ed in o he wai ing lis 8. Du ing he 1990’s he O ice o Fo eigne s and
Nomads con inued o assume a cen al ole in in o ming he adminis a ion o
he Municipal on he p oblems aced by new immig an s. In pa icula , he
second egula isa ion in oduced by Law 1990/ 90 —o he Ma elli Law,
e ealed an inc easing numbe o o eign, i egula child en, some employed as
s ee endo s and li ing in e y di icul condi ions. As we will see below, he
72 Pape s 60, 2000 Tiziana Caponio; Ane e Nielsen; Na alia Ribas Ma eos
6. The main a eas o o igin we e he Middle Eas (Pales inians, Ku ds, I anians e c.), A ica
(E i ea, Rwanda) and Sou h Ame ica (Chile, A gen ina, B azil).
7. Since he e m «illegal» implies a c iminal conno a ion, o an a i ude o no beeing wan -
ed, we delibe a ely ha e chosen o use he e m «i egula », o indica e when a o eigne is
wi hou a ou is isa o a esidence pe mi .
8. A p esen , besides hese wo municipal shel e s (155 beds), he O ice can also coun on he
a ailabili y o 240 beds o ca holic associa ions, 160 la s and 16 p e- ab ica ed buildings o
lay olun a y associa ions, and 10 mo e apa men s owned by Ca i as (Allasino, Bocco,
Caponio, Cia aloni, Ricucci and Zincone, o hcoming: 27).
Pape s 60 067-083 29/6/00 11:27 Página 72
in ol emen o he Municipali y in a ou o o eign child en ep esen ano h-
e example o he ad hoc eme gency app oach, which has cha ac e ised social
policies o immig an s in Tu in.
2. The 90’s: he c ea ion o a ne wo k o speci ic se ices, be ween new
eme gencies and in eg a ion
In Sep embe 1990 he Educa ion Depa men es ablished a special o ice o
he p oblems o non- esiden o eign child en, he so-called U icio mondial-
i à9, in o de o ease hei inse ion a school as well as hei pa icipa ion in spo
and ec ea ional ac i i ies. The modi ica ion o access o he kinde ga ens,
which p e iously equi ed esidency as an essen ial p e- equisi e o inse ion,
is one o he esul s o he wo k o he o ice (Ci à di To ino, 1996: 77).
Mo eo e , in he same yea , an ag eemen was signed wi h he P o incial
Educa ion Au ho i y (P o edi o a o agli s udi) and he Region Piedmon ,
which, in 1992, led o he ins i u ion o an in e -agency body, he CIDISS
(Cen o In o mazione Documen azione Inse imen o Scolas ico S anie i —Cen e
o In o ma ion and Documen a ion o he Inse ion o Fo eigne s a School).
CIDISS ha e he manda e o a ou ing access o educa ion o unde age immi-
g an s, especially i egula esiden s (Ci à di To ino, 1996: 77).
Pa allel o he abo e de elopmen s, he p esence o unde age s ee - endo s,
o he mos Mo occans, o en exploi ed by c iminal and illegal o ganisa ions,
ge s mo e and mo e isible. In o de o ace such a phenomenon, he Social
Se ice Depa men o he Municipali y sough an ag eemen wi h he Ju enile
Cou and he Police. «The O ice o Unde aged Non-EU- esiden s» (U icio
Mino i Ex acomuni a i) was opened in June 1992, o he ea men o pa -
icula ly di icul si ua ions such as hose expe ienced by i egula child en
ei he a i ing and li ing on hei own, li ing wi h i egula pa en s o li ing
wi h legal bu non esiden pa en s. In 1994 a new ag eemen was signed by he
Municipali y ( he o ice o Fo eigne s and Nomads and he Social Se ices
Depa men ), he Ju enile Cou , he Wa d Sec ion o he Police Depa men
and he Ju enile P ison. This ag eemen was in ended o p o ec immig an
child en who migh ha e incu ed in p oblems due o he lack o pa en s and
o sa egua d he child en’s igh o li e in his o he household (Ci à di To ino,
1996: 96). On he basis o his new documen , a special pe mi o « easons pe -
aining o jus ice» (Soggio no pe Ragioni di Gius izia) allowing he unde aged
o egis e a a local school, may be g an ed by he Ju enile Cou in pa icu-
la ly di icul cases10.
«The policy mi o mechanism»: he case o Tu in Pape s 60, 2000 73
9. As i has been s essed by he Municipali y o Tu in, he O ice was es ablished in he spi -
i o he 1989 Con en ion o New Yo k on he Righ s o Childhood, a i ied by he I alian
pa liamen wi h Ac no. 176 o 1991.
10. This measu e, howe e , does no imply he legalisa ion o pa en s and ela i es (Allasino,
Bocco, Caponio, Cia aloni, Ricucci and Zincone, o hcoming: 26; Ci à di To ino, 1998:
63-67).
Pape s 60 067-083 29/6/00 11:27 Página 73
Thus, in he ea ly 90’s he Municipali y o Tu in, o , in pa icula , he
O ice o Fo eigne s and Nomads and he Educa ion and he Social Se ices
Depa men s, succeeded in es ablishing a basic ne wo k o social se ices o
immig an s, wi h he di ec pa icipa ion o bo h hi d sec o olun a y asso-
cia ions —especially in he case o eme gency se ices— and o he ele an
public ins i u ions11. As i has been ecen ly no iced by Zincone (1998), his
p i a e-public mix has a ou ed he conc e e unde aking o highly inno a-
i e policies, which ha e been adop ed also by he la es immig a ion law, i.e.
Ac 1998/40.
Ano he cha ac e is ic o municipal in e en ion which has o be empha-
sised, as men ioned be o e, is i s ad hoc aspec , since social policies in his pe i-
od we e explici ly di ec ed o immig an s in speci ic di icul condi ions, a he
han o o eign esiden s in gene al. In p ac ice, he s a egy o he municipali-
y has been ha o eac ing o eme ging social p oblems by mobilising all he
ele an local ac o s (public and p i a e) in e es ed in a speci ic issue. Howe e
wha was s ill lacking a he beginning o he 1990’s was a cohe en policy o
social in eg a ion o immig an s. Especially o egula immig an s, which migh
no ace he d ama ic di icul ies o i egula immig an s, bu s ill encoun e
conside able p oblems in ha ing access o gene al social igh s. To his e ec ,
he U icio Mondiali à ( o non esiden child en) was jus a i s pa ial esponse,
aimed a a ou ing he inse ion o o eign child en a school, wi hou any di ec
in e en ion in o school ac i i ies (in e cul u al cu icula, language cou ses e c.).
The i s signal o he necessi y o a mo e comp ehensi e app oach o social
in eg a ion was b ough abou by a g oup o immig an s, and in pa icula by
a mul icul u al associa ion called Ha ambé, which in 1990 o ganised he i s
cou se12 o «cul u al media o s», wi h he collabo a ion o he Depa men o
Voca ional Educa ion o he P o ince (Assesso a o alla o mazione p o essionale della
P o incia di To ino) and wi h a inancial con ibu ion o he Region13. Acco ding
o he associa ions which a e in ol ed in he aining o cul u al media o s in
Tu in, cul u al media ion is nei he synonimous o hi ing me e in e p e e s no
social assis an s, bu a he a so o «b idge» be ween di e en cul u es; as hey
should be able o unde s and he p oblems o hei ellow ci izens and ende
hem in elligible o he I alian ins i u ions. A e a one-yea -cou se, he pa ic-
ipan s gain a diploma which is ecognised by he Region Piemon e.
The Cul u al media o s we e ini ially employed by he Local Heal h Uni
(USL14) in an a ea wi h a high densi y o immig an esiden s. In 1992 he
74 Pape s 60, 2000 Tiziana Caponio; Ane e Nielsen; Na alia Ribas Ma eos
11. Such as he P o incial Educa ion Au ho i y and he Region in he case o educa ion; he
Ju enile Cou , he Wa d Sec ion o he Police Dep . and he Ju enile P ison in he case
o i egula unde aged.
12. No only in he Region Piedmon , bu , p obably, also a a na ional le el, as Jean-Ma ie
Tscho scha, p esiden o he abo e men ioned associa ion, main ains.
13. Since hen, se e al cou ses ha e ollowed, some speci ically de o ed o women, such as he
one o ganised by he Alma Te a associa ion.
14. USL a e now called ASL: Local Heal h Uni s. The ans o ma ion means mo e con ol on
budge and limi ed a ailabili y o i egula mig an s (Zincone, 1994: 34).
Pape s 60 067-083 29/6/00 11:27 Página 74
p e ious men ioned ISI —an o ice o heal h and in o ma ion o immig an s,
was es ablished. This se ice is un by he coope a i e, Coope a i a Senza
F on ie e, inanced by he Region Piemon e. A he ISI a doc o can be con-
ac ed, and specialised medical examina ions can be appoin ed h ough he
help o he cul u al media o s. This specialised heal h uni helps pa ly o elim-
ina e he bu eauc acy, also well known o I alian ci izens, and pa ly o mobilise
an in o mal heal h s uc u e blessed by he public sys em, because i can con-
on also he i egula immig an s.
The employmen o cul u al media o s in heal h se ices can be seen as
ano he ad hoc esponse o egional au ho i ies, which is con enien o he
local adminis a ion o he Na ional Heal h Se ice (SSN). As in he case o
he o he municipal policies men ioned abo e, he collabo a ion be ween he
public and p i a e sec o on speci ic issues and p oblems has a ou ed he in o-
duc ion o an inno a ion in social policy; ye , he cul u al media o s will no
emain es ained o he heal h sec o . By now cul u al media ion is a as g ow-
ing and widesp ead concep and ins i u ion implemen ed in almos e e y pub-
lic o ice in Tu in. The ins i u ion o cul u al media ion will in he u u e play
a cen al ole in he o mal in eg a ion s a egy o he municipali y o Tu in.
3. F om 1995 onwa d: he consolida ion o he in e cul u al discou se
S a ing om 1994, cul u al media o s can be ound a he Popula ion
Regis a ion Sec ion a The O ice o Fo eigne s and Nomads. A he same
ime, speci ic p ojec s ha e been unde aken wi h ega d o school inse ion
and child en’s s a us, as in he case o he U icio Mondiali à. Since 1996 he
U icio Mondiali à has coo dina ed a eam o cul u al media o s which help
he inse ion o o eign child en in kinde ga ens and p ima y schools, seeking
o he ac i e in ol emen o hei amilies. Cul u al media o s a e also employed
by he O ice o Unde aged Non-EU- esiden s whe e hey ha e he delica e ask
o ge ing in ouch wi h child en li ing in di icul condi ions.
Cul u al media ion can be ega ded as he esul o a p og essi e di usion
o he ad hoc app oach o a ious o ices and se ices. Specialised ope a o s a e
en olled by he local adminis a ion in o de o ill he gaps in he communi-
ca ion be ween o eign use s and local ins i u ions, and imp o e immig an s’
access o social se ices. Howe e , he ole o cul u al media o s has no always
been welcome, and i has p e iously been s essed ha i is he ci il se an s
who should change hei a i ude and apply an in e cul u al app oach a he
han con ac ing mo e specialised s a .
S a ing om his conc e e posi i e expe ience wi h cul u al media o s in
Tu in, a b oade in e cul u al discou se on in eg a ion has de eloped, ca ied
ou h ough mul icul u al p ojec s. The discou se is based on he no ions o dia-
logue and mu ual exchange, i.e. on he dynamic aspec s o social in e ac ions, hus
os e ing mu ual lea ning and adjus men .
Wi h his in e cul u al discou se as a base, in 1994, he p ojec o an Elec i e
Commi ee o Fo eigne s (Consul a ele i a degli s anie i) s a ed up, as a i s
«The policy mi o mechanism»: he case o Tu in Pape s 60, 2000 75
Pape s 60 067-083 29/6/00 11:27 Página 75
CARPOS (1995). C esce e al o e. Iden i à e di i i dei mino enni s anie i immig a i a
To ino. To ino: Fondazione Gio anni Agnelli (coll. Con ibu i di ice ca).
CIAFALONI, F.; OSMANI, I.; RICUCCI, R.; SHERKO, E. (1998). Il mondo dei mino i
s anie i a To ino: L’accoglienza, gli a idamen i, le u ele, l’is uzione, la ep essione.
To ino: P o incia di To ino.
COMUNE DI TORINO; DIPARTIMENTO SERVIZI ALLA PERSONA (1996). To ino e gli
s anie i: ci adini, ci adinanza, as o mazione. To ino: Comune di To ino (coll.
Quade ni di in o mazione della ci à).
DAVICO, L.; PASTORE, F.; RONCA, G. (1998). To ino, ci à di immig azione. Le poli iche
possibili. To ino: Comi a o Gio gio Ro a.
DENTE, B. (ed.) (1990). Le poli iche pubbliche in I alia. Bologna: Il Mulino.
DUMON, W.A. (1993).« Famiglia e mo imen i mig a o i». In SCABINI, E.; DONATO, P.
La amiglia in una socie à mul ie nica. Milano: Vi a e Pensie o, Pubblicazioni
dell’Uni e si à Ca olica.
FARGION, V. (1996). «Social Assis ance and he No h-Sou h Clea age in I aly». Sou h
Eu opean Socie y & Poli ics, ol. 1, n. 3, p. 135-153.
— (1997). Geog a ia della ci adinanza sociale in I alia. Bologna: Il Mulino.
FERRERA, M. (1993). Modelli di solida ie à. Bologna: Il Mulino.
— (1996a). The Fou Social Eu opes. EUI wo king pape s, n. 36.
—(1996b). «The “Sou he n Model” o Wel a e in Social Eu ope». Jou nal o Eu opean
Social Policy, ol. 6, n. 1, p. 17-37.
—(1997). «The Unce ain Fu u e o he I alian Wel a e S a e». Wes Eu opean Poli ics,
ol. 20, n. 1, p. 231-249.
GIDRON, B.; KRAMER, R.M.; SALAMON, L.M. (1992). Go e nmen and he Thi d Sec o .
San F ancisco: Jossey-Bass Publishe s.
GRANAGLIA, E. (1996). «The I alian Na ional Heal h Se ice and he Challenge o
P i a iza ion». Sou h Eu opean Socie y & Poli ics, ol. 1, n. 3, p. 155-170.
GRANAGLIA, E.; MAGNAGHI, M. (eds.) (1993). Immig azione: quali poli iche pubbliche.
Milano: Angeli.
IRES LUCIA MOROSINI (1998). La o o, gene e, e nie. To ino: I es Lucia Mo osini.
— ( o hcoming). Ho izon-Ec i , li e, s’inse e . Roma: SMILE.
IRES PIEMONTE (1991). Uguali e di e si. Il mondo cul u ale, le e i di appo i, i la o i
degli immig a i non eu opei a To ino. To ino, Rosembe g & Sellie .
— (1994). Le chia i della ci à: poli iche pe gli immig a i a To ino e a Lione. To ino:
Rosembe g and Sellie .
—(1998). Il ilo di A ianna. La ci à, i se izi, gli immig a i a To ino. To ino: I es.
LONNI, A. (ed.) (1998). I di i i di Odisseo. Appun i spa si in ma e ia di immig azione.
Alessand ia: Edizioni dell’O so.
LOSTIA, A.; TOMAINO, G. (1994). «Di i i sociali e di e enze e i o iali». In
ZINCONE, G. Uno sche mo con o il azzismo. Roma: Donzelli, p. 97-112.
MELOTTI, U. (1993). «Mig azioni in e nazionali e in eg azione sociale: il caso i aliano
e le espe ienze eu opee». In DELLE DONNE, M.; MELOTTI, U.; PETILLI, S. (eds.).
Immig azione in Eu opa: solida ie à e con li o. Roma: Cediss.
MÉNY, Y.; THOENIG, J.C. (1989). Poli iques publiques. Pa is: PUF.
METROPOLIS ITALIAN TEAM (1997). Immig a ion and Fo eign People in I aly: he Nine ies
in Six Me opoli an A eas. Second In e na ional Con e ence: An In e na ional
Fo um o Resea ch and Policy on Mig a ion and Ci ies.
PREFETTURA DI TORINO; UFFICIO INTERREGIONALE ISTAT; REGIONE PIEMONTE;
PROVINCIA DI TORINO; COMUNE DI TORINO; QUESTURA DI TORINO; CCIAA;
82 Pape s 60, 2000 Tiziana Caponio; Ane e Nielsen; Na alia Ribas Ma eos
Pape s 60 067-083 29/6/00 11:27 Página 82
DIREZIONE PROVINCIALE DEL LAVORO; AGENZIA PER L’IMPIEGO DEL PIEMONTE;
PROVEDITORATO AGLI STUDI (1998). Osse a o io s a is ico p o inciale sugli s anie i.
Rappo o 1997. To ino: U icio S a is ico.
PROVINCIA DI TORINO; CITTÀ DI TORINO (1997). Osse a o io sull’immig azione ex a-
comuni a ia in To ino e p o incia: 1997 p imi elemen i sull’andamen o del enome-
no. To ino.
—(1998). P oge o A lan e. Secondo appo o sulla p esenza di s anie i non comuni-
a i in To ino e P o incia 1998. To ino.
SOYSAL, N.Y. (1994). Limi s o Ci izenship. Mig an and Pos na ional Membe ship in
Eu ope. Chicago: The Uni e si y o Chicago.
ZALDINI, G. (1997). Il Cen o In e cul u ale delle donne «Alma Ma e ». (A «hand-ou »
pape , om he in e cul u al cen e Alma Ma e , To ino).
ZINCONE, G. (1991). Da suddi i a ci adini. Bologna: Il Mulino.
— (1994). Uno sche mo con o il azzismo. Roma: Donzelli.
—(1997). «The Powe ul Consequences o Being oo Weak. The Impac o
Immig a ion on Democ a ic Regimes». A chi es Eu opéens de Sociologie, ol. 38.
—(1998). Mul icul u alism om abo e I alian a ia ions on an Eu opean heme. In
BAUBÖCH, R.; RUNDELL, J. (eds.). Blu ed Bounda ies: li ing wi h di e si y. Alde sho :
Sage.
«The policy mi o mechanism»: he case o Tu in Pape s 60, 2000 83
Pape s 60 067-083 29/6/00 11:27 Página 83
