Destination Employment? Contradictions and Ambiguities in Swedish Labour Market Policy for Newly Arrived Migrants Ennerberg, Elin
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Destination employment? Contradictions and ambiguities in Swedish labour market policy for newly arrived migrants Ennerberg, Elin 2017 Document Version: Publisher's PDF, also known as Version of record Link to publication Citation for published version (APA): Ennerberg, E. (2017). Destination employment? Contradictions and ambiguities in Swedish labour market policy for newly arrived migrants. Lund University. 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LUND UNIVERSITY PO Box 117 221 00 Lund +46 46-222 00 00 Download date: 07. Oct. 2021 ELIN ENNERBERGELIN Labour market policy in Sweden has been increasingly targeted towards Destination employment? groups seen as ‘vulnerable’ and at risk of long-term unemployment. In this book the challenges involved in including a particular group, newly arrived migrants, are examined through an analysis of the establishment Destination employment? reform – introduced in 2010 as part of the Alliance government’s efforts to increase labour market participation amongst excluded groups. The Contradictions and ambiguities in Swedish labour combination of policy perspectives within the reform (workfare, social investment and individualisation) are shown as leading to a number of market policy for newly arrived migrants contradictions, particularly in terms of combining long-term and short- ELIN ENNERBERG term labour market goals. These contradictions are also present within DEPARTMENT OF SOCIOLOGY | LUND UNIVERSITY the organisations working with newly arrived migrants – the Public Employment Service and the private establishment guides – in their Contradictions and ambiguities in Swedish labour market policy for newly arrived migrant efforts to pair the needs of participants with the goals of the reform. This tension is further examined by drawing attention to a heterogeneity within the group of newly arrived migrants and developing a typology of five distinct types within this group. The different trajectories taken Lorem ipsum dolor by each type through the establishment reform are used to illustrate the practical realities of applying more general policy approaches, such as workfare and social investment, to a heterogeneous group with diverse needs and capabilities. Lund University s Faculty of Social Science Department of Sociology 2017 532040 Serie 115 ISBN 978-91-7753-204-0 ISSN 1102-4712 789177 9 Destination employment? 1 2 Destination employment? Contradictions and ambiguities in Swedish labour market policy for newly arrived migrants Elin Ennerberg DOCTORAL DISSERTATION by due permission of the Faculty of Social Sciences, Lund University, Sweden. To be defended at Stora Algatan 4, Lund. 19 May 2017 at 13:15. Faculty opponent Professor Sven Hort 3 Organization Document name LUND UNIVERSITY Doctoral Dissertation Date of issue 19 May 2017 Author(s) Elin Ennerberg Sponsoring organization Title and subtitle Destination employment? Contradictions and ambiguities in Swedish labour market policy for newly arrived migrants Sweden’s “establishment reform” was introduced in 2010 with the ambition to increase the labour market participation of newly arrived migrants. It was in line with other labour market policies of the centre-right Alliance government, elected in 2006, which aimed to increase work incentives particularly for groups seen as “vulnerable” in, or excluded from, the labour market. By considering the history of ALMP and policies of migration linked to the labour market, the establishment reform can be seen as building both on earlier initiatives targeting certain groups, as well as the investment ambitions of labour market training programmes. At the same time, the integration approach to migration, developed by successive Social Democratic governments, has also largely been integrated through this reform. Thus, the establishment reform combines both social and labour market goals, leading to contradictions and ambiguities at the policy level and in practice. In this thesis I consider how the establishment reform combined workfare and social investment elements, including social support ambitions, through a qualitative study of its policy ambitions, organisational challenges and practical consequences, using documentary analysis, interviews and close to 200 individual cases from the Public Employment Service. It is argued that the ambiguities of the policy are present in the twin goals of workfare and social investment: above all, how to combine the disciplinary elements of active participation – positive and negative economic incentives to enter the labour market quickly – with the long-term goals of upskilling to improve the quality of employment, particularly in combination with the ambition to provide “individualised” support and to empower individuals. At the organisational level, these contradictions are played out in practice through the interactions between the individual participants and employment officers at the Public Employment Service, as well as private sector “establishment guides”. Here, the social needs of the participants achieve prominence, making it more difficult to focus on the reform’s work-first principles. This prioritisation on the ground can be defended by the policy’s stated goal to focus on the individual. A closer analysis at how the measures fit the group of newly arrived migrants is achieved through the construction of five “types” within the group. The trajectories of each type are explored, showing the different opportunities and difficulties they encounter through the establishment period, and how the measures are more suitable to some types than others. Key words labour market policy, newly arrived migrants, establishment reform, social investment, workfare Classification system and/or index terms (if any) Supplementary bibliographical information Language English ISSN and key title 1102-4712 Lund Dissertations in Sociology115 ISBN 978-91-7753-204-0 Recipient’s notes Number of pages 231 Price Security classification I, the undersigned, being the copyright owner of the abstract of the above-mentioned thesis, hereby grant to all reference sources permission to publish and disseminate the abstract of the above-mentioned thesis. Signature Date 2017-03-06 4 Destination employment? Contradictions and ambiguities in Swedish labour market policy for newly arrived migrants Elin Ennerberg 5 Coverphoto Lena Melin Copyright (Elin Ennerberg) Faculty of Social Science Department of Sociology ISBN 978-91-7753-204-0 ISSN 1102-4712 Printed in Sweden by Media-Tryck, Lund University Lund 2017 6 For Gavyn 7 Contents Acknowledgement ................................................................................ 11 Chapter 1 Introduction ................................................................................... 15 The establishment reform ..................................................................... 19 Aim and research questions ................................................................... 24 Background .......................................................................................... 27 Points of departure ............................................................................... 29 Disposition ........................................................................................... 32 Chapter 2 Theoretical perspectives .................................................................. 35 Policy change and stability .................................................................... 38 Labour market policy for the unemployed ............................................ 41 Conclusion ........................................................................................... 53 Chapter 3 Methods ......................................................................................... 57 Case studies .......................................................................................... 57 Documentary analysis ........................................................................... 58 Interview data ....................................................................................... 59 Cases – typology ................................................................................... 62 (De-)Limitations of the study ............................................................... 66 Conclusion ........................................................................................... 67 Chapter 4 Contextualising the Establishment Reform ..................................... 69 Labour market policy 2006–2014 ......................................................... 70 A brief history of ALMP ......................................................................