TemaNord 2014:564 TemaNord 2014:564 TemaNord Ved Stranden 18 DK-1061 Copenhagen K www.norden.org New Policies to Promote Youth Inclusion Accommodation of diversity in the Nordic Welfare States New Policies to Promote Youth Inclusion This report examines changes over time among young adults who have experienced particular difficulties in achieving and retaining paid work in the ordinary labour market: youth with family background from non-Nordic countries and youth with disabilities in the Nordic countries. The report identifies processes and mechanisms enabling or preventing the labour market prospects of the two youth groups. The report focuses on policy measures aiming at tackling demand-side barriers to employment for the two youth groups. While available data have not made it possible to determine robust evidence of an effect (positive or negative) of the social regulation policies for the employment of vulnerable youth groups in statistical terms, the report identifies processes and mechanisms through which social regulation policies make a difference. TemaNord 2014:564 ISBN 978-92-893-3868-4 (PRINT) ISBN 978-92-893-3870-7 (PDF) ISBN 978-92-893-3869-1 (EPUB) ISSN 0908-6692 TN2014564 omslag.indd 1 02-12-2014 13:13:14 New Policies to Promote Youth Inclusion Accommodation of diversity in the Nordic Welfare States Rune Halvorsen and Bjørn Hvinden TemaNord 2014:564 New Policies to Promote Youth Inclusion Accommodation of diversity in the Nordic Welfare States Rune Halvorsen and Bjørn Hvinden ISBN 978-92-893-3868-4 (PRINT) ISBN 978-92-893-3870-7 (PDF) ISBN 978-92-893-3869-1 (EPUB) http://dx.doi.org/10.6027/TN2014-564 TemaNord 2014:564 ISSN 0908-6692 © Nordic Council of Ministers 2014 Layout: Hanne Lebech Cover photo: Signelements Print: Rosendahls-Schultz Grafisk Copies: 100 Printed in Denmark This publication has been published with financial support by the Nordic Council of Ministers. However, the contents of this publication do not necessarily reflect the views, policies or recom- mendations of the Nordic Council of Ministers. www.norden.org/en/publications Nordic co-operation Nordic co-operation is one of the world’s most extensive forms of regional collaboration, involving Denmark, Finland, Iceland, Norway, Sweden, and the Faroe Islands, Greenland, and Åland. Nordic co-operation has firm traditions in politics, the economy, and culture. It plays an important role in European and international collaboration, and aims at creating a strong Nordic community in a strong Europe. Nordic co-operation seeks to safeguard Nordic and regional interests and principles in the global community. Common Nordic values help the region solidify its position as one of the world’s most innovative and competitive. Nordic Council of Ministers Ved Stranden 18 DK-1061 Copenhagen K Phone (+45) 3396 0200 www.norden.org Content Content ............................................................................................................................................... 5 Acknowledgements ....................................................................................................................... 7 1. Introduction: Changing conditions for labour market inclusion ........................... 9 1.1 Changing conditions for labour market participation .................................. 9 1.2 Challenges for the labour market inclusion of young adults................... 11 1.3 Consequences of exclusion from the labour market .................................. 14 1.4 The Nordic model of labour market inclusion ............................................. 15 1.5 Scope of the present report: focus on social regulation............................ 18 1.6 Why compare disability and ethnicity? .......................................................... 20 1.7 “Minority ethnic youth” or youth with “immigrant background”? ....... 22 1.8 Concluding comments ........................................................................................... 25 2. Understanding the policy mix ............................................................................................ 27 2.1 Social regulation and recognition of diversity ............................................. 31 2.2 Labour Market Inclusion as the result of social interaction .................... 36 2.3 Concluding comment ............................................................................................. 37 3. Data collection ....................................................................................................................... 39 3.1 Time series data and outcome measures ....................................................... 39 3.2 Data on ethnicity in the Nordic countries ...................................................... 41 3.3 Data on disability in the Nordic countries ..................................................... 42 3.4 Interview data .......................................................................................................... 49 3.5 Policy documents and legal data ....................................................................... 51 3.6 Concluding comment ............................................................................................. 51 4. Changing balances in Nordic social protection systems ........................................ 53 4.1 Nordic labour market inclusion policy and vulnerable youth ................ 53 4.2 Social benefit subsystem: health and residence as criteria ..................... 54 4.3 Social services subsystem: education and on-the-job training .............. 56 4.4 Social regulation subsystem ............................................................................... 59 4.5 Summary of priorities in Nordic labour market inclusion policy for vulnerable youth groups ............................................................................... 64 5. The employment opportunities and prospects of youth with disabilities in the Nordic countries ...................................................................................................... 67 5.1 Disability in the Nordic labour markets ......................................................... 67 5.2 Employment rates among youth with disabilities ........................................ 70 5.3 Education rates among youth with disabilities............................................ 75 5.4 NEET-rates among youth with disabilities .................................................... 79 5.5 Concluding comment ............................................................................................. 83 6. The employment opportunities and prospects of minority ethnic youth in the Nordic countries .......................................................................................................85 6.1 Ethnic stratification in the Nordic labour markets...........................................85 6.2 Employment rates among minority ethnic youth ........................................88 6.3 Employment rates: more about Denmark ......................................................92 6.4 Employment rates: more about Finland .........................................................93 6.5 Employment rates: more about Norway.........................................................94 6.6 Employment rates: more about Sweden .........................................................95 6.7 Education rates among minority ethnic youth .............................................96 6.8 Education: More about Denmark.......................................................................98 6.9 Education: More about Finland ..........................................................................99 6.10 Education: More about Norway ...................................................................... 100 6.11 Education: More about Sweden ...................................................................... 101 6.12 NEET rates among minority ethnic youth ................................................... 102 6.13 NEET rates: more about age and gender ..................................................... 102 6.14 Concluding comment .......................................................................................... 107 7. Implementing social regulation – local negotiations ............................................ 109 7.1 Negotiations between employers and vulnerable youth ....................... 111 7.2 The role of a third partyin finding and keeping paid work ................... 124 7.3 Concluding comments ........................................................................................ 127 8. Concluding discussion: Regulating diversity in the labour market ................. 131 8.1 Ethnicity and disability in Nordic social protection policy ................... 132 8.2 Social regulation vs social redistribution in the Nordic countries ..... 133 9. References ............................................................................................................................ 139 10. Norsk sammendrag: Ny politikk for å fremme inkludering av ungdom i arbeidsmarkedet? Tilpasning av mangfold i arbeidslivet ................................... 149 Annex: Employment, education and NEET among minority ethnic youth in the Nordic countries ......................................................................................................... 151 Acknowledgements This thematic report presents the main findings of a research project com- missioned in 2011 by the Nordic Council of Ministers, the Nordic Committee of Senior Officials