Understanding integration policies in Norway and the impact of a specialised organisational structure of the public sector. A case study of a qualification model which aims to educate adult immigrants as health workers
Author
Jensen, Marianne Nårstad
Term
4. term
Publication year
2017
Abstract
I de senere år har Europa oplevet toppe i antallet af nye flygtninge, hvilket lægger pres på den lokale integrationsindsats. I Norge tilbyder staten et introduktionsprogram, men det bringer ikke alle i arbejde. I 2015 igangsatte et voksenuddannelsescenter Ryfylke-modellen for at kvalificere voksne indvandrere til arbejde som sundhedsarbejdere og for at omfordele opgaver i den offentlige sektor: en kommunal enhed gennemfører et forløb, som normalt varetages af en arbejdsplads eller en ungdomsuddannelse. Specialet undersøger norsk integrationspolitik og konsekvenserne af en specialiseret organisationsstruktur gennem et casestudie af Ryfylke-modellen. Det forklarer, hvordan og hvorfor modellen går på tværs af horisontal og vertikal specialisering—på tværs af myndigheder og sektorer (horisontal) og på tværs af forvaltningsniveauer (vertikal). Grundlaget er 22 semistrukturerede interviews (styrede, men åbne). Studiet finder, at modellen må bryde med specialiseringen, fordi de eksisterende veje til erhvervsfaglige kvalifikationer ikke passer til voksne indvandrere og kræver en mere klientorienteret, skræddersyet organisering. En stærkt specialiseret organisering kan gøre gennemførelsen af integrationspolitikker vanskelig, hvis aktørerne ikke ser deres arbejde i en større sammenhæng. Specialet anbefaler, at staten fastsætter nationale slutstandarder for erhvervskvalifikationer, mens kommunerne bør have metodefrihed til at tilrettelægge forløbet. Det lokale niveau har fordele: nærhed til problemet og mulighed for at tilpasse ydelserne til borgerne og områdespecifikke behov på tværs af sektorer.
In recent years, Europe has seen peaks in new refugee arrivals, putting pressure on local integration efforts. In Norway, the Introduction Programme does not prepare everyone for work. In 2015, an adult education centre launched the Ryfylke model to qualify adult immigrants as health workers and to reassign tasks in the public sector: a municipal agency implements a programme that is normally run by a workplace or an upper secondary school. This thesis uses a case study of the Ryfylke model to examine Norwegian integration policy and the effects of a specialised public-sector structure. It explains how and why the model crosses horizontal and vertical specialisation—across agencies and sectors (horizontal) and across levels of government (vertical). The empirical basis is 22 semi-structured interviews (guided but open-ended). The study finds that the model must cross specialisation because standard routes to vocational qualifications are not suited to adult immigrants and require a more client-centred, tailored organisation. Highly specialised organisations can hinder implementation when they do not see their work in a broader context. The thesis argues that national authorities should set nationwide outcome standards for vocational qualifications, while municipalities should have the authority to design the pathway. The local level has advantages: closeness to the problem and the ability to adapt services to clients and area-specific needs across sectors.
[This abstract was generated with the help of AI]
Documents