Barcelona: municipalist policy entrepreneurship in a centralist refugee reception system

Abstract

This article is a case study of Barcelona’s policy entrepreneurship in innovating refugee reception. In a context of a highly centralised and increasingly dysfunctional Spanish refugee reception system, it traces how Barcelona, after declaring itself a city of refuge, aimed to change refugee reception into a more decentralised and bottom-up system with a major role of cities. Following Minstrom and Norman, the article reconstructs the city’s policy entrepreneurship and shows how the city 1) led by example in developing innovative local policies; 2) developed political arguments for change from a municipalist stance in coalition with other cities at national and EU level; and 3) worked its arguments into more technical discussions on the future of integration funding in the EU. On the basis of these developments, the article reaches two main conclusions. First, while the different registers of policy entrepreneurship cannot be directly connected to any concrete change of the multi-level setup of refugee reception, they do represent a significant step forward in cities’ self-organisation beyond ideological lines and a factor contributing to a stronger recognition of cities in refugee reception in Europe. Second, while the literature on multilevel governance has an in-built bias towards more coordinated and harmonious relationships across tiers, the case of Barcelona shows that more attention should be paid to conflict and change.