Immigration and Political Community:
The impact of immigration on political trust
Discussion note
European countries are experiencing a large-scale and multifaceted crisis of confidence.
One of the most visible dimensions of this crisis is a marked decline in political trust –
the confidence that citizens have in their politicians and political institutions. Political
trust is conventionally viewed as essential to maintaining and strengthening a sense of
political community, which underpins the legitimacy of democratic systems.
Low levels of political trust are especially salient in relation to immigration policy, where
European governments are widely criticised for failing to address the fears and
grievances of majority populations. For considerable sections of public opinion,
immigrants are perceived as increasing levels of crime, burdening public services and
creating a sense of cultural alienation among the indigenous population. In many
countries, significant sectors of the public feel ‘betrayed’ by mainstream politicians. The
resulting rift between political elites and voters poses a challenge for progressive policymakers: how can governments advance policies that heed public concerns and inspire
public confidence while also ensuring social cohesion, respect for human rights and
Europe’s long-term economic competitiveness?
Exploring the relationship between immigration and political trust
Measuring political trust is a highly complex endeavour. Indicators of declining political
trust may include changes in electoral behaviour, including low voter turnout, or
increased support for extreme right parties with anti-establishment platforms. Levels of
political trust are also frequently investigated through public opinion surveys which
measure public perceptions of political institutions, such as parliament, politicians, the
legal system or the police. Questions remain, however, about how to capture the
phenomenon of political trust and how it might be compared across different countries.
Identifying the sources of declining political trust also poses challenges. In Lauren
McLaren’s new paper, ‘Cause for concern: The impact of immigration on political trust’,
she explores the extent to which levels of trust in political institutions are influenced by
immigration. Her findings show that concern about immigration is one of the important
factors in reducing trust in political institutions. Notably, she does not find that actual
levels of immigration determine political trust. Rather, she concludes that it is negative
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perceptions of immigration that play an important part in reducing confidence in
political institutions.
Other important findings of the paper include that:
• Negative perceptions of economic performance are also a significant factor in
reducing political trust, although a country’s actual economic performance does
not have a significant effect.
• Low levels of social capital are related to low levels of political trust.
• A country’s migrant integration policy does not determine levels of political
trust. However, in countries where integration policy makes it easier for
immigrants to become functioning members of the polity, the impact of concern
about immigration on trust in politics is stronger.
• Likewise, while quality of governance does not directly determine levels of
political trust, in countries with better governance ratings the impact of concern
about immigration on trust in politics is stronger.
• The popularity of far-right parties and the presence of a far-right party in
government does not significantly affect levels of political trust.
What progressive policy-makers can draw from this is that public attitudes on
immigration are not to be ignored. What citizens think is happening as a result of
immigration has significant consequences for how they view their politicians and
political institutions. Through the project ‘Immigration and Political Community: The
impact of immigration on political trust’, Policy Network proposes to examine the
connection between immigration and immigration policy on the one hand and
confidence in politics on the other. The project will develop proposals to help politicians
restore political trust in relation to immigration policy.
The project
At this brainstorming meeting Policy Network wish to bring together key academics and
policy experts to help us decide on the focus and structure of our 12-month project. We
would welcome your comments on the following two questions:
1) What should be the central questions of the project?
Policy Network would like to offer three possible sets of question for discussion
throughout the 12-month project.
a) How do we understand the ways in which concern about immigration impacts on
political trust? What is happening that explains why immigration has such a
significant influence on trust in politics? Is immigration undermining identities
and a sense of political community and if so, how? Why are the public so
concerned about immigration? Might the relationship also work the other way
around, with declining trust affecting public views of immigration?
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Some experts and observers may argue that increasing immigration and cultural
diversity are weakening social cohesion, and consequently the ability and
willingness of individuals to identify with and participate in common social and
political institutions. From this perspective, the quantity, speed and
heterogeneity of immigrant flows is undermining social trust and it may be
suggested that this has a negative impact on the willingness of individuals to
engage in politics, and therefore on the functioning of democratic systems.
However, others may contend that political disaffection in relation to
immigration is a function of the media or the way governments have managed
and framed immigration policy.
b) How can policy-makers respond? What should be done? Recently, European
governments have been responding to rising public hostility towards immigrants
by restrictive policies such as expanding the range of situations in which
deportation will take place following a conviction, restricting immigrant rights to
welfare and adopting more ‘assimilationist’ approaches that expect immigrants
to abandon certain elements of their culture or identity. Is this the appropriate
response? What are the consequences of such policies for social cohesion, for
respect for human rights and for the economy? Is there value in analysing these
questions through different party political perspectives?
c) What can we learn from other countries? Is it possible to compare across
countries? Are there lessons to learn from countries where immigration policy
appears to be less of a public concern? Can this situation be attributed to
characteristics (size, origins) of the immigrant population or are immigration
policies, and the way they are framed by government and media
representatives, more important factors? In some European countries, local
governments have a greater say over the management of crime and antiterrorism, welfare and integration than in the UK. Can decentralisation help to
restore political trust in immigration policy? How are the EU’s gradually
increasing competences in the field of immigration impacting on public
confidence?
2) How should the project be structured?
Policy Network proposes to structure the project by looking at three particularly
sensitive areas of public policy.
a) Citizenship and identity
Increasing physical and economic insecurity is taking place alongside growing
cultural anxiety in many European countries. Globalisation is not only resulting in
greater cultural diversity, it is also perceived to be undermining communities and
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creating more individualistic societies. Although majorities in each European
country continue to believe that immigrants enhance national culture by
bringing new customs and ideas, according to numerous opinion polls, there are
increasing numbers who blame immigrants for their society’s rapid cultural
transformations. Debates about citizenship, identity and culture unfold against
the reality of public concern about immigration. In this context, policy-makers
may need to re-think integration policies and approaches to multiculturalism.
b) Crime and terrorism
Tackling crime is one of the most important and politically sensitive areas of
government responsibility. It is also one of the areas where government
performance consistently falls below public expectations. In many European
countries, a majority of the public believe that immigration increases levels of
crime, even though official figures consistently refute this claim and suggest that
crime rates are actually falling in many cases. Government statistics on
immigration, whether in relation to border control or deportations are often
treated with suspicion. Since 9/11, the immigration debate has been further
‘securitised’, with many people perceiving immigrants, particularly those of
Muslim descent, as a source of terrorism. In this environment, there is growing
hostility to the idea of protecting the right to asylum and the human rights of
immigrants and asylum seekers.
c) Labour market and welfare reform
Similar trends are visible in relation to public attitudes to the welfare state and
labour market. Faced with ageing societies, a contracting work force and high
public deficits, European governments have raised welfare reform to the top of
their political agendas. The debate is marked by a widespread perception of
immigrants ‘abusing’ the welfare system and of political elites failing to
safeguard the social rights of the native population, including in relation to public
housing. This perception is aggravated by the widely held view that governments
and employers actively pursue immigration policies as part of a deliberate
strategy to de-regulate labour markets and bring wages down. How unions react
to migrant workers is an important aspect of this situation.
Are these the right policy areas to focus on?
What other relevant research should we draw on that would be of interest to policy and
political circles? Policy Network would welcome suggestions and proposals for relevant
research which we can publish and disseminate.
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