From something i writted elsewhere:
The Scarman Report was commissioned by the Thatcher government to investigate the causes behind the Brixton 1981 riots but soon became recognised as actually concerning the national picture. Conservative commentators were surprised to discover that the report actually accepted a number of the starting points of the ‘social deprivation’ and ‘powerlessness and alienation’ theses - whilst still maintaining that a ‘law and order’ type response was necessary in the short term. One of his key findings was that “The lack of formal political representation at local and national government level of ethnic minorities created a sense of ‘political insecurity and rejection’ amongst these groups”. Essentially, he was arguing that if the state did not want a replay of the events of the early 1980s a mechanism had better be found that was able to both offer some incitement into the mainstream fold and deliver something tangible to those who decided to participate in or work towards this incorporation. The creation of a black stake in formal politics was needed to ensure ‘community cohesion’ in inner city politics, or at least to ensure that any fires were damped down and stayed within those communities. What these communities were and what they were supposed to represent we shall see shortly.
Around the same time as Scarman reported, the left-inside-the labour-party had embarked on a program of opposition to the thatcherite neo-liberal agenda of widespread cuts to a range of national and local services and so on from within local councils around the country. As part of this program they adopted a strategy of opening up the councils to what they saw as community interests - that is ethnic communities, religious communities, national communities and so on - in short, different cultures (There is significant debate over just how far this was actually a conscious pre-planned strategy, but even if it was not planned in any formal way it still spoke very clearly of how this section of the left viewed society as mix of competing cultures at that point in time). These were externally identified and authenticated by a mutually beneficial process of the ‘leaders‘ demands for recognition and the councils willing/planned recognition of them . Further ‘cultures’ were invited to constitute themselves, and then to identify their own leadership representatives from with the community. The community leaders, now fully authorised to speak for the people and culture it had been decided they represented, were placed on a range of public bodies, were given a default position as consultative for any initiative that was planned within ‘their’ communities. Race relations boards, equal opportunities units, police liaison committees and so on were set up and these community leaders played a key role in their functioning. This centrality helped reinforce their local power base which was then further consolidated when grants were handed out on the basis of community competition for funds. What then developed at that point was a form of clientelism in which community leaders received funds for their pet projects on behalf of their communities from the councils on the basis of the councils recognition of the authenticity of their culture, and then another layer of potential leaders received their funding from the existing leaders.
A reciprocal network of responsibilities to not act in ways that would be see as challenging the ‘communities’ stability - as defined by the council and leaders - was constructed, alongside a clear pathway into political influence for those prepared to ‘follow the rules’ was slowly developed. If you broke the rules your funding was cut, if the people you were supposed to represent got out of hand, your funding was cut.
Previously, individuals from ethnic communities had been able to advance - against significant hurdles - through participation in existing institutions - the labour party and the unions for example, but they had to participate on the basis of the already existing culture and practice of those institutions - the end result was individuals moving upwards on the basis of acceptance of existing wider mainstream‘culture’ but now it appeared that there was room for upward mobility for people on the basis of their own ‘culture’, and the beneficiaries of this mobility were then able to portray their individual mobility as that of their collective ‘ethnic community’ or culture.
So there was a mutually reinforcing dynamic of community incorporation and community construction at the same time - where issues that had formerly been seen as cross community questions, as general social or political issues - class issues - slowly transformed themselves into cultural questions, as questions could only be dealt with by the officially recognised cultures, and more clearly, by their leaders. Political issues were racialised but under the guise of culture and equality. A politics developed out of common experience of school, work, leisure, family and area was derailed onto a territory of competing cultural experiences and expectations with the result that attacks that struck at the working class as whole - whether as wage-labour, as potential labour-power, as claimants etc faced a disunited opposition, and even had the door opened to them to offer enticements to one cultural community or another to participate in these attacks. The ground for class re-alignment, for actively recognising or constructing shared class interests was made that much less firm, whilst already existing cross-community networks were placed under severe pressure.
This generally remained a local level strategy but was adopted by ‘new labour’ on the national level (see the aufheben article on the construction of the Muslim community or recent work by Kenan Malik etc). Essentially a layer of mediators was constructed between the national/local state and the ‘communities’ who had the largesse to offer opportunities (or the appearance of opportunities) to members of that community. What formal politics that existed existed only through these mediators on the basis of their top-down legitimacy - rather than acting as bottom-up expressions of the local communities interests they developed as transmission belts in the opposite direction. (of course, it would be too simplistic to pretend that this is the whole picture - the state does actually have to maintain its ideological dominance through meeting genuine social needs, increasingly so as it encloses may previously collective non-state functions). Top-down official multi-culturalism according to Kenan Malik developed into a “top-down bureaucratic social management deployed in capitalist economies which import labour from abroad.”.
An example of one outcome of this mechanism is given by Malik:
To see this process in action, we need look no further than Lozells. The riots there showed how the process of politically recognising distinct identities can give rise to communal conflict. The roots lie 20 years earlier, in the 1985 riots which took place down the road in Handsworth, when blacks, whites and Asians took to the streets together in protest against poverty, unemployment and, in particular, oppressive policing.
In response, Birmingham council proposed a new framework for the engagement of minority groups. It created a number of community organisations, labelled Umbrella Groups, to represent the needs of their communities. By 1993, there were nine groups, defined by ethnicity and faith: the African and Caribbean People’s Movement, the Bangladeshi Islamic Projects Consultative Committee, the Birmingham Chinese Society, the Council of Black-led Churches, the Hindu Council, the Irish Forum, the Vietnamese Association, the Pakistani Forum and the Sikh Council of Gurdwaras. A Standing Consultative Forum was established as a single body through which the groups could collectively represent the views of minority communities to aid policy development and resource allocation.
Once political power and financial resources became allocated by ethnicity, people began to identify themselves in terms of those ethnicities. And they began to identify others as also belonging to particular ethnic blocs. The consequence was the creation of tensions between groups. The deepest animosities were created between African Caribbeans and Asians, each viewing the other as responsible for their problems. Multicultural prescription had made real the description to which it was supposedly a response.
(Kenan Malik thinking outside the box - catalyst, january-february 2007)