Unpacking “the system”: Multi‐level governance gaps in the labour market integration of highly skilled refugees

Abstract

A plethora of government‐ and non‐government actors are involved in the labour market integration of highly skilled refugees, forming a complex “system” that is difficult to navigate for integration actors and refugees. Based on interviews with 32 labour market integration actors in Sweden, this article examines multi‐level governance gaps in the wake of the simultaneous centralization and decentralization of labour market preparation services. It examines various “steps” in the labour market integration process to gain a more holistic perspective of “the system”, and identifies governance gaps in each step. The article finds that the devolution of services has opened up participatory spaces for non‐government actors, but narrowly defined mandates and short‐term funding mechanisms hamper cooperation within and between territorial levels of policy implementation.