‘Bastion of Italian-ness’: the nationalization of welfare and the changing meaning of rehabilitation in post-war Italy (1945–59)

ABSTRACT

The article analyses social welfare programmes set up by the Italian state to manage and provide assistance to refugees coming first from Dalmatia, then from Istria and finally by the territories near Trieste, between the immediate post-war period and the late 1950s. It connects the literature on these refugee flows and the historiography of the Italian welfare state by providing new insights into how the recognition of minority rights deeply affected the organization of the social welfare system throughout the 1940s and the 1950s. The article focuses on the shifting meaning of the term ‘rehabilitation’, an outcome of post-war transnational circulations of ideas about the renewal of welfare. It identifies three chronological sections: the aftermath of the war, when social assistance to refugees was organized in Italy in the context of a project to renew the state and its relations with the individual and society; the period after the signing of the Luxembourg Peace Treaty, when in response to the emergency but also out of purely political considerations public authorities significantly changed the guidelines of the entire social welfare system’s development; and finally, the policies set up in the 1950s, which aimed not only at providing stable accommodation for refugees but also at other geopolitical, socio-cultural, social engineering and electoral objectives. Thus, this contribution not only explains how the construction of the welfare state in Italy has been shaped by the problem of refugees, but also shows another side of the same issue: the role of welfare provision in constructing social groups, which in this case took on a strong ethnic and political character.

KEYWORDS:

• National refugees
• social welfare
• mixed economy of welfare
• North-Eastern Adriatic borderlands
• social housing

Acknowledgements

The author would like to thank the two anonymous reviewers, Derek Hattemer, the editors of this special issue and all the participants of the workshop organised at Maynooth University, Ireland.

Disclosure statement

No potential conflict of interest was reported by the author(s).

Notes

1. For contextualization, see Sluga, The Problem of Trieste; Corni, “The Exodus of Italians”; and Ballinger, “Impossible Returns, Enduring Legacies.”

2. Vigo, “Dealing with ‘Returns’.”

3. Salvatici, “Between National and International Mandates.”

4. Ballinger, The World Refugees Made.

5. Giorgi and Pavan, Storia dello Stato sociale in Italia; Mattera, “Changes and Turning Points.”

6. Ferrera, Jessoula, and Fargion, Alle radici del welfare all’italiana.

7. Giorgi, Moses, and Pavan, “Social Policies Between Emergencies and Renewal.”

8. Cohen, In War’s Wake.

9. Lee Downs, “The Most Moderate Italianization?”

10. Giomi, Keren, and Labbé, eds., Public and Private Welfare in Modern Europe.

11. Canepa, “The Transatlantic Transfers of Social Policies.”

12. D’Andrea, “Campi profughi,” 599.

13. Archivio di Stato di Milano (As/Mi), AI-Mapb, Serie 1, f. 2, “Circolare 7070ALI/Fp,” January 25, 1946.

14. Archivio Centrale dello Stato (Acs), Ministero dell’Interno (Mint), Aai, Segreteria e Presidenza (Sp), b. 89, “Assistenza familiare,” September 1950.

15. Fig, Fondo Sereni/Attività governativa, 5/1947, “Per un’assistenza democratica e umana,” January 26, 1947.

16. Fig, Fondo Sereni/Scritti e discorsi, 5/1946, “Conferenza stampa,” July 31, 1946.

17. As/Mi, AI-Mapb, b. 1, “Circolare 23,559,” September 19, 1946.

18. In addition to the Julians, the populations of Briga/La Brigue and Tenda/Tende, on the western border with France, and of the Dodecanese islands in Greece were also asked to opt for Italian citizenship (1000 refugees in total). Finally, 44,000 South Tyroleans re-opted for Italian citizenship.

19. Archivio storico della Presidenza del Consiglio (APcm), Uzc, Profughi, b. 1/II/64, “Connazionali di Zara – trasferimento in Italia,” April 12, 1947.

20. Ballinger, “Opting for Identity.”

21. Archivio storico del Ministero degli Affari esteri (Asmae), Affari politici (Ap), 1951–57, b. 571, “IRO – assistenza a profughi giuliani (optanti la cui opzione sia stata accettata dalle autorità jugoslave)”; “Profughi della Venezia Giulia,” August 26, 1949.

22. Acs, Presidenza del consiglio (Pcm), Gab. 1948–50, cat. 1.6.1.25049/31, “Costituzione Comitato interministeriale,” October 4, 1946.

23. Di Michele, “L’Italia e il governo delle frontiere,” 39–40.

24. Archivio Segreto Vaticano, Fondo Poa, b. 150, Baldelli to Montini, “Assistenza ai giuliani,” December 18, 1946.

25. APcm, Uzc, Profughi, b. 12/I/37a6, “Proposte circa l’assistenza da predisporre,” February 1947.

26. APcm, Uzc, Profughi, b. 23, “Smistamento profughi varie province,” March 18, 1947.

27. APcm, Uzc, Profughi, b. 15/I/37a33-3, “Assistenza ai profughi giuliani e dalmati,” July 24, 1947.

28. APcm, Uzc, Profughi, b. 1/I/44, “Campo di Marina di Massa,” February 16, 1947.

29. Acs, Pcm, Sdg, b. 31, “Segnalazione di mons. Radossi dopo visite fatte ai profughi in Nord Italia,” August 27, 1947.

30. Acs, Pcm, Gab. 1948–50, cat. 1.6.1.25049/58, “Pro-memoria per l’ecc. Cappa sottosegretario di Stato alla presidenza del consiglio dei ministri,” March 19, 1947.

31. APcm, Uzc, Profughi, b. 2/I/131, Notes ms., August 18, 1947.

32. APcm, Uzc, Profughi, b. 1/I/44, “Progettato ritorno nelle terre d’origine dei profughi giuliani e dalmati,” January 9, 1948.

33. Acs, Pcm, Gab. 1948–50, cat. 2.3.16817, “Calvario dei profughi d’Africa,” August 8, 1950.

34. D.l. 885, September 3, 1947, Gazzetta Ufficiale no. 215, September 19, 1947.

35. D.l. 104, February 26, 1948, Gazzetta Ufficiale no. 58, March 6, 1948.

36. APcm, Uzc, Profughi, b. 2/I/131, “Decreto legislativo 19 April 1948, n. 556,” July 23, 1948, 2.

37. APcm, Uzc, Profughi, b. 2/I/131, “Considerazioni in merito al decreto legislativo 19 Aprile 1948, n. 556 e situazione che ne deriva nei riguardi dei profughi giuliano-dalmati,” n.d.

38. Acs, Mint, Gab., Correnti, 1948, b. 161, “Profughi d’Africa. Liquidazione straordinaria ai profughi che lasciano i centri di raccolta,” April 21, 1948.

39. APcm, Uzc, Serie profughi, b. 2/I/131, “Provvedimenti da attuare in dipendenza del decreto legislativo del 19 Aprile 1948, n. 556,” Comitato dalmatico, n.d.

40. Acs, Mint, Gab. Correnti, 1949, b. 125, “Decongestionamento campi profughi,” Prefettura di Novara, May 6, 1949.

41. De Vidovich, “Il problema dei profughi,” 250.

42. Acs, Mint, Gab., Correnti, 1950–52, b. 287, “CP Laterina – distribuzione pacchi,” January 7, 1952.

43. APcm, Uzc, Profughi, b. 1/I/29, “Richiesta vestiario e calzature,” August 1, 1948.

44. APcm, Uzc, Profughi, b. 1/I/44, “Campo profughi Marina di Massa. Richiesta di dono di vestiti per Comunione e Cresima,” May 16, 1947.

45. APcm, Uzc, Profughi, b. 1/I/44, “Campo di Marina di Massa,” March 3, 1947.

46. Al Fakir, “Guarding the Boundaries of Belonging.”

47. Law 51–1 March 1949, Gazzetta Ufficiale no. 58, March 12, 1949; Law 453–1 August 1949, Gazzetta Ufficiale no. 175, August 2, 1949; Law January 1–5, 1950, Gazzetta Ufficiale no. 16, January 20; Law 1 – January 5, 1950.

48. Atti della Commissione parlamentare, 28.

49. Acs, Mint, Aai, Sp, b. 89, “Attività assistenziale dell’Unrra-Casas,” May 23, 1951.

50. Asmae, Ap, 1951–57, b. 571, “Campi profughi in Italia,” Mae to Missione Italiana di Trieste, February 17, 1951.

51. Ballinger, “Borders of the Nation, Borders of Citizenship,” 738.

52. Asmae, Ap, 1951–57, b. 571, “Trieste – assistenza tecnica dell’Onu,” August 23, 1951.

53. Asmae, Ap, 1951–57, b. 571, “Estensione al TLT delle provvidenze italiane in materia di assistenza post-bellica,” May 19, 1949.

54. Catalan, “Governo Militare Alleato e Stato italiano,” 120.

55. Volk, Esuli a Trieste, 259.

56. Bagna, “Il problema sociale dei profughi,” 12.

57. Acs, Mint, Gab. Correnti 1953–56, “Assistenza ai profughi d’Africa,” December 30, 1955.

58. Di Michele, “L’Italia e il governo delle frontiere,” 49–50.

59. Law 137–4 March 1952, Gazzetta Ufficiale no. 71, March 24, 1952.

60. All quotations are from Bagna, “Il problema sociale dei profughi,” 35–7.

61. Acs, Mint, Gab. Correnti 1953–56, b. 456, “Prefettura di Arezzo – Relazione,” September 3, 1955.

62. Emilio Lussu in Atti Parlamentari, Camera (AP/C), February 18, 1947, 1391.

63. The first president was Oscar Sinigaglia, an ex-fascist Jew converted to Catholicism who ran the public bank that financed the development of the steel industry in Italy. He was replaced in 1953 by Guglielmo Reiss-Romoli, another ex-fascist Jew from Trieste, at that time director of the phone corporation; and in 1956 by Enrico Ricceri, director of the Banco di Santo Spirito. The key figure of the OAPGD was the general director Aldo Clemente, also known as the long-time secretary general of the Association for the study of the World Problem of Refugees.

64. Acs, Oapgd, b. 14, “Promemoria per SE il ministro Scoca,” December 9, 1953, 1.

65. Acs, Oapgd, b. 16, “Schema dell’attività svolta dall’Opera negli anni 1956 e 1957,” n.d.

66. Volk, Esuli a Trieste, 82.

67. Archivio della Presidenza del Consiglio, Uzc, Serie profughi, b. 15/I/37a33, “Promemoria,” April 5, 1947.

68. Acs, Mint, Gab., Correnti, 1957–60, b. 425, “Petizione al presidente del Consiglio Tambroni,” February 5, 1957.

69. Opera per l’assistenza, 5.

70. Pupo, Il lungo esodo, 219.

71. Ballinger, The World Refugees Made, 178.

72. AP/C, III, Documenti, Disegni di legge, “Stato di previsione della spesa del Ministero dell’Interno per l’esercizio finanziario dal 1 luglio 1961 al 30 giugno 1962,” January 31, 1961, 43.

73. Acs, Pcm, Gab. 1959–61, cat. 2.3.59993, “Sussidio ordinario ai profughi giuliani,” December 23, 1955.

74. Ballinger, The World Refugees Made, 188–9.

75. Acs, Pcm, Gab. 1965–67, cat. 2.3.59993, “Richiesta di sussidio straordinario per i profughi di Nomadelfia,” March 31, 1963.

76. Acs, Mint, Gab. Correnti 1961–63, b. 390, “Profughi giuliani ospitati nel Villaggio San Marco di Fossoli,” November 19, 1963.

77. Acs, Oapgd, b. 14, “Sistemazione profughi al lavoro,” February 27, 1954.

78. “Baluardo avanzato di italianità gli istriani al confine orientale,” L’Arena di Pola, October 27, 1954, 1.

79. Acs, Mint, Gab., Correnti, 1957–60, b. 425, “Petizione al presidente del Consiglio Tambroni,” February 5, 1957.

80. Acs, Mint, Gab. Correnti 1953–56, b. 456, “Telegramma,” Prefettura di Novara, July 13, 1955; “Tumulti al Campo profughi di S. Croce,” July 10, 1955.

81. Acs, Mint, Gab. Correnti 1953–56, b. 456, “Profughi giuliani spostati da Caserma Cavour a Caserma Cosenz,” February 7, 1955.

82. Acs, Mint, Gab. Correnti 1953–56, b. 456, “Associazione Nazionale Profughi d’Africa. Richieste,” July 12, 1955.

83. Acs, Pcm, Gab. 1959–61, cat. 2.3.59993, “Assistenza nazionale a tutte le categorie di profughi,” March 28, 1960.

84. Archivio dell’Istituto Sturzo, Fondo Scelba, II versamento, b. 25, “Bilancio del Ministero dei Lavori pubblici,” September 1, 1957.

85. The deadline for the closure of the refugee camps was firstly postponed to June 1955, then, due to the lack of housing accomodations, to June 1956; then to December 1960 and finally to December 1963.

86. AS/Mi, AI-Mapb, b. 73, “Circ. 014382/C/48/2,” June 15, 1956.

87. Acs, Pcm, Gab. 1959–61, cat. 2.3.59993, “Disegno di legge: assunzione obbligatoria al lavoro dei profughi dai territori ceduti allo Stato Jugoslavo con il Trattato di pace e dalla zona B del territorio di Trieste,” July 20, 1956.

88. Acs, Mint, Gab. Correnti 1953–56, b. 456, “Prefect Vitelli to Ministero dell’Interno,” July 7, 1955.

89. AS/Mi, AI-Mapb, b. 73, “05758/C/48.2 Sfollamento profughi da Trieste e loro sistemazione definitiva,” April 10, 1956.

90. Acs, Mint, Gab. Correnti 1953–56, b. 456, “Risultati raggiunti durante l’esercizio finanziario 1955–56 nel settore dell’assistenza e della sistemazione dei profughi di guerra,” August 23, 1956.

91. Law 173–27 February 1958, Gazzetta Ufficiale no. 71, March 22, 1958.

92. Law 130–27 February 1958, Gazzetta Ufficiale no. 63, March 13, 1958.

93. De Marzi, “Gli impegni finanziari dello Stato,” 49.

94. Acs, Ministero del Lavoro, Gab. Uff. Lgs., b. 214, “Relazione del relatore in 10^a commissione,” April 29, 1964.

95. Law 319–25 February 1963, Gazzetta Ufficiale no. 86, March 30, 1963.

96. Acs, Pcm, Gab. 1962–64, cat. 2.3.59993, “Verbale della riunione della Commissione interministeriale di coordinamento per l’esame dei problemi relativi ai rimpatriandi da paesi africani,” July 25, 1962.

Additional information

Funding

This article is based upon work from COST Action CA 18119 Who Cares in Europe? supported by COST (European Cooperation in Science and Technology), www.cost.eu.

Notes on contributors

Giacomo Canepa

Giacomo Canepa received his doctoral degree from Scuola Normale superiore, Pisa and Sciences Po, Centre d’Histoire, Paris in 2021. He is currently post-doctoral researcher at Scuola superiore meridionale, Naples, and a research associate at the Sciences Po Center for History, Paris. He has published on the transformations of public assistance policies and the conceptualization of social rights in Italy and France between the end of the Second World War and the 1970s.