The Scramble for Citizens: Dual Nationality and State Competition for Immigrants
Kelsey Norman
April 22, 2013
The Scramble for Citizens: Dual
Nationality and State Competition for
Immigrants. By David Cook-Martin. Stanford University Press, 2013. 216 pp
Carrying
dual citizenship is a widely accepted practice. But despite common perceptions,
it is not merely a function of an increasingly globalized world, or of
facilitating systems and technologies. In The
Scramble for Citizens, David Cook-Martin explores how the concept of dual
citizenship has evolved in legal and policy decisions made by state builders
over the past two centuries.
Cook-Martin offers a case study of a migratory system
linking Italy, Spain, and Argentina. He shows how in the late nineteenth
century, Italy and Spain adapted their citizenship and immigration policies in
response to Argentine state-making strategies. During the period between the
first and second world wars, a consensus emerged in international law that people
should be affiliated with only one state, and that states themselves should
avoid tolerating dual nationality, as well as statelessness. But fearing
potential demographic crises from then-shrinking populations, Spain and Italy
sought to retain some control and influence over citizens immigrating to
Argentina by adopting policies that permitted dual citizenship. After the
Second World War and into the 1990s, the situation became reversed: with the
rise of the Italian and Spanish economies and the decline of Argentina’s,
Argentines increasingly sought opportunities by immigrating to Italy and Spain.
And these host counties had inadvertently facilitated access to citizenship for
would-be Argentine immigrants due to their own earlier policies permitting dual
citizenship.
Cook-Martin
is ultimately concerned with a question at the center of an enduring debate
among citizenship scholars: In our modern age, has citizenship become more, or
less, valuable? The ‘nationalists’ argue that since naturalized citizens make
up merely 3 percent of the global population, the nationality one is born with
matters a great deal. ‘Post-nationalists’ counter that the value of citizenship
has declined considering the spread of dual citizenship and the granting of
permanent residence status that effectively provides people with citizenship
rights in practice if not in name. Cook-Martin asserts that part of the problem
with this debate is that citizenship is rarely studied from the vantage point
of the key actors—the migrants themselves.
In an
ethnographic approach to understand the status and opportunities gained by
holding a second nationality, he traces the complex process of obtaining dual
citizenship through the voices of individual migrants as they interact with
various state and private actors, as well as interactions with what Cook-Martin
deems the “paper industry”—the network of people who profit from obtaining the
documents required by official procedures. Following an initial fact-finding
foray through centuries-old government and private archives, migrants can wait
years to find out whether their claims for dual citizenship have been accepted.
The ability and willingness of would-be migrants to navigate this complex
system in creative and entrepreneurial ways speaks to their ambition and
perseverance. Hence, Cook-Martin concludes, the sagas of Argentines seeking
dual nationality underscore the value of citizenship.
Cook-Martin’s
“international political field framework” approach reveals weaknesses in both
the nationalist and post-nationalist theories. Nationalists focus on the
exclusive relationship between the state and citizen, but Cook-Martin
demonstrates that citizenship in a nation-state need not be dependent on
geography. To the post-nationalists who proclaim the demise of the
nation-state, he counters that the nation-state’s bestowal of citizenship is as
crucial as ever for would-be migrants. For Cook-Martin, citizenship is thus
less valuable in some contexts, more valuable in others.
Kelsey Norman is a fellow at the
Center for Migration and Refugee Studies at the American University in Cairo.
She has worked as a researcher in Canada, the United States, Egypt, and
Croatia. She is pursuing a doctorate in political science at the University of
California, Irvine, where she is studying the impact of migration on
understandings of citizenship.