Convergence or Diversity? A Comparative Analysis of Scandinavian Introduction Programmes for Newly Arrived Refugees

Civic integration through national introduction programs for newly arrived refugees is an important element in Scandinavian integration policies. By adapting Christopher Hoods’ classical NATO-framework for policy instruments to the relation of central-local governance, this paper presents a systematic, comparative analysis of the central policies for introduction programs for newly arrived refugees in Norway, Denmark and Sweden. The analysis presents both similarities and the diversity of the policy instruments the central government can use towards municipalities, in their common goal to promote and enable civic and labour market integration. The empirical analysis is based on document analysis of integration laws and formal policy documents, and interviews with both central and municipal actors in all three countries. In the Scandinavian integration policies, the central government depend upon municipal action and implementation to reach national goals. Consequently, the combination of policy instruments applied by the central government to steer or influence municipal behaviour can be decisive. The paper has two goals; firstly, to contribute to the debate concerning the convergence of European integration policies by discussing the variation in, and implication of, different combinations of policy instruments; secondly, to evaluate the suitability of the NATO-framework for cross-country analysis. In multi-level governance it is important to study policy instruments within each category, but also conduct a more holistic analysis of the combination of instruments within the policy field. The latter can be particularly relevant for integration policies often characterized as wicked issues, crossing both vertical and horizontal levels of government.