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Svensk Flyktingpolitik Och De Judiska Flyktingarna 1938–1944

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Svensk Flyktingpolitik Och De Judiska Flyktingarna 1938–1944 ACTA UNIVERSITATIS UPSALIENSIS Studia Historica Upsaliensia 233 Editores: Torkel Jansson, Jan Lindegren & Maria Ågren & THE UPPSALA PROGRAMME FOR HOLOCAUST AND GENOCIDE STUDIES Uppsala University Holocaust and Genocide Studies Publications 2 Editors: Tomislav Dulić, Paul A. Levine & Ivana Maček Omslagsdesign: Petra Wåhlin Sättning: Karin Kvist Geverts och Laura Palosuo Omslag: Flyktingar anländer till hamnen i Malmö 1945. Foto: K. W. Gullers. © Nordiska museet. ”Ett främmande element i nationen” är ett citat hämtat från en tidningsartikel i Socialdemokraten hösten 1943 då nationalekonomen och flyktingdebattören Karin Kock kritiserade svenska utlänningsmyndigheter för antisemitism. Karin Kvist Geverts ETT FRÄMMANDE ELEMENT I NATIONEN Svensk flyktingpolitik och de judiska flyktingarna 1938–1944 Summary: A Foreign Element within the Nation Swedish Refugee Policy and the Jewish Refugees 1938–1944 Historiska institutionen & Programmet för studier kring Förintelsen och folkmord Uppsala 2008 Dissertation presented at Uppsala University to be publicly examined in Sal IX,Universitetshuset, Övre slottsgatan, Uppsala, Friday, September 19, 2008 at 10:15 for the degree of Doctor of Philosophy. The examination will be conducted in Swedish. ABSTRACT Kvist Geverts, K. 2008. Ett främmande element i nationen. Svensk flyktingpolitik och de judiska flyktingarna 1938–1944. (A Foreign Element within the Nation. Swedish Refugee Policy and the Jewish Refugees 1938–1944). Acta Universitatis Upsaliensis. Studia Historica Upsaliensia 233. The Uppsala Programme for Holocaust and Genocide Studies. UUHGS Publications 2. 342 pp. Uppsala. ISBN 978-91-554-7250-4. ISBN 978-91-977434-1-9. The aim is to increase our understanding of the mechanisms of social categorization and discrimination, as well as the connection between them. This has been accomplished by examining Swedish refugee policy towards Jewish refugees during the Second World War and the Holocaust, as conducted by The Foreigner’s Bureau of the National Board of Health and the Ministry of Foreign Affairs during 1938–1944. The study also compares the Swedish refugee policy with that of Denmark, Switzerland, Great Britain and the United States. The investigation is guided by such concepts as social categorization, discrimination, antisemitism, organizational culture and established practice. The primary sources are documents, minutes and personal dossiers; Svensk författningssamling (legislation) and articles in Sociala Meddelanden (the National Board’s official journal). The main conclusions are that Sweden was not perceived as a country of immigration, based partly of the widespread fear that too many Jewish refugees would create a “Jewish Question”. Swedish authorities discriminated against Jewish refugees on grounds of “race” through a process of categorization. This process began already in the 1920’s, and gradually transformed the definition of “Jew” from a religious to a “racial” definition, based on the Nuremberg Laws. The differentiation of Jewish refugees in official statistics ceased in September 1943, yet it continued secretly until February 1944, encompassing the Norwegian and Danish Jews as well. One important result shows that the shift in policy – from discrimination to large scale reception – was a slow process where this differentiating practice and antisemitic perceptions remained operative. What is defined as an antisemitic background bustle is used to explain how moderate antisemitic expressions were perceived as “unbiased” and “normal” within the Swedish society. Though Sweden’s refugee policy seems similar to that of other countries surveyed, the shift in policy stands out as unique in comparison. Keywords: Sweden, refugee policy, discrimination, antisemitism, organizational culture, “race”, gender, Jewish refugees, Second World War, the Holocaust, 1938–1944, the Foreigner's Bureau, the National Board of Health, the Ministry of Foreign Affairs, social categorization Karin Kvist Geverts, The Uppsala Programme for Holocaust and Genocide Studies, Uppsala University, Box 521, SE-751 20 Uppsala, Sweden. © Karin Kvist Geverts 2008 ISSN 0081-6531 ISBN 978-91-554-7250-4 ISSN 1654-8558 ISBN 978-91-977434-1-9 urn:nbn:se:uu:diva-9203 (http://urn.kb.se/resolve?urn=urn:nbn:se:uu:diva-9203) Printed in Sweden by Edita Västra Aros, Västerås 2008 Distributor: Uppsala University Library, Box 510, SE-751 20 Uppsala www.uu.se, [email protected] Innehållsförteckning Förord ix Förkortningar xi DEL I. PROBLEMATISERING 1 KAPITEL 1. Inledning och utgångspunkter 3 Syfte och frågor 6 Tidigare forskning 9 Svensk flyktingpolitik och de judiska flyktingarna under andra världskriget och Förintelsen 10 Svensk invandringspolitik och utlänningskontroll rörande judar vid 1900-talets början 17 Föreställningar om judar, ”ras” och antisemitism i Sverige 1900−1960 19 Tolkningar av den svenska flyktingpolitiken i tidigare forskning 26 Teoretiska begrepp 29 Social kategorisering och kategorier 29 Quentin Skinners talaktsteori 31 Organisatorisk kultur och praxis 33 Diskriminering 34 Antisemitism 35 Metod, källmaterial och avgränsningar 38 Disposition 42 DEL II. UTFORMNINGEN AV FLYKTINGPOLITIKEN 45 KAPITEL 2. Det internationella ”flyktingproblemet” och den svenska lagstiftningen 47 ”Flyktingproblemet” och den svenska lagstiftningen före andra världskriget 48 Svenskt deltagande i nordiska och internationella flyktingkonferenser 1938–1939 51 Den svenska utlänningslagstiftningen under andra världskriget 53 Tillstånd och viseringar 57 Avvisning, förpassning och utvisning 58 Delsammanfattning: Ingen detaljstyrning i lagen 59 KAPITEL 3. Flyktingpolitikens aktörer i Sverige 61 Utrikesdepartementet 62 Tjänstemännen på Utrikesdepartementet 62 Socialstyrelsens utlänningsbyrå 64 Ärendets beredning och beslutsfattande 65 Tjänstemännen på utlänningsbyrån 67 Organisatorisk kultur på Utrikesdepartementet och utlänningsbyrån 69 Delsammanfattning: Den splittrade flyktingadministrationen och de ”objektiva” tjänstemännen 71 KAPITEL 4. Tolkningen av lagstiftningen 73 Definitionen av politisk flykting 73 Septemberkungörelsen och det hemliga cirkuläret 76 Utlänningsräkningen 79 Delsammanfattning: Ett kodspråk för de invigda 86 KAPITEL 5. Framväxten av riktlinjer och principer för flyktingpolitiken 89 Tiden före 1938 89 Riktlinjer under 1938 94 Fastställda principer eller bedömningar från fall till fall? 94 Urvalets politik 98 Fråga om ”folkras” i passviseringsformulären 103 Riktlinjer under 1939 107 Principerna för flyktingpolitiken i offentlighetens ljus 108 Den amerikanska kvotpolitikens inverkan 111 Riktlinjer under 1940–1944 118 Utsikter för vidareemigration för judiska flyktingar 119 Historieskrivningen börjar läggas till rätta 121 Tiden efter 1944 126 Kännedom om förföljelsen av judar och Förintelsen på utlänningsbyrån 128 Delsammanfattning: En flyktingpolitik på pappret 132 DEL III. TILLÄMPNINGEN AV FLYKTINGPOLITIKEN 137 KAPITEL 6. Behandlingen av de judiska flyktingarna 139 Bakgrund 139 Källmaterial och källkritik 139 Allmänna fakta om gruppen judiska flyktingar 142 Svensk flyktingpolitik – judiska flyktingar kontra övriga utlänningar 145 Diskriminering av judiska flyktingar på grund av ”ras”? 149 Andra faktorers betydelse för diskrimineringen 152 En dubbel diskriminering av östjudar 154 De judiska flyktingarna och diskrimineringens uttryck 155 Relationen mellan utlänningsbyrån och Utrikesdepartementet 159 Särskilda krav på judiska flyktingar 162 Motiveringar av beslut 163 Exempel på outtalad praxis 165 Ett ambivalent agerande 166 Hjälporganisationernas roll och kvoter för judiska flyktingar 171 Till frågan om den flyktingpolitiska omsvängningen 174 Den förda flyktingpolitiken efter Novemberpogromen 175 Förändring över tid 1938–1944 176 Delsammanfattning: Social kategorisering och diskriminering 181 KAPITEL 7. Behandlingen av judiska flyktingar från de nordiska länderna 183 Judiska flyktingar ifrån Norge 184 Judiska flyktingar ifrån Danmark 195 Judiska flyktingar ifrån Finland 202 Delsammanfattning: De judiska flyktingarna och den nordiska tanken 207 DEL IV. MOTIV OCH FÖRKLARINGAR TILL AGERANDET 211 KAPITEL 8. Den offentliga bilden av flyktingpolitiken 213 Statistik över utlänningar och flyktingar i Sociala Meddelanden 213 Ifrågasättande av ”ras” som indelningsgrund i den svenska statistiken 219 Anklagelser om särskiljning på grund av ”ras” efter krigsslutet 222 Delsammanfattning: Offentligt och hemligt 225 KAPITEL 9. Det antisemitiska bakgrundsbruset och den negativa särbehandlingens förutsättningar 228 ”Judefrågan” i den offentliga debatten under 1930-talet 229 Föreställningar om judar på byrån och departementet på 1930-talet 232 Föreställningar om judar i riksdagsdebatten inför den nya utlänningslagen 234 Socialstyrelsens remissvar 235 ”Invasionshot”, Bollhusmötet och en avsomnande debatt 238 Språkbruket på utlänningsbyrån 1938–1939 241 Debatt om lagstiftning mot antisemitisk propaganda 244 Socialstyrelsens remissvar på lagen mot rashets 246 ”Fader Byråkratius” rädsla för antisemitism 248 Delsammanfattning: ”Fader Byråkratius” och det antisemitiska bakgrundsbruset 254 KAPITEL 10. Ett främmande element i nationen 257 Avhandlingens utgångspunkter 257 En social kategorisering av judar 260 Negativ särbehandling av judiska flyktingar på grundval av ”ras” 265 Den negativa särbehandlingens uttryck 267 En ”flyktingpolitisk omsvängning”? 271 Motiv och förklaringar till den förda flyktingpolitiken 273 Antisemitismens betydelse 273 Andra motiv samt frågan om åskådare och moral 278 Summary 283 Förteckning över figurer, tabeller och diagram
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