Inside the Black Box: Tracing Interactions Between Stratified Reintegration Trajectories and Street-Level Implementation of Reintegration Assistance

Abstract

This article analyses the interactions between inequalities and reintegration assistance, looking at the examples of Serbia and Kosovo. It proposes an approach for examining the reintegration assistance practices of frontline providers by (a) viewing them through the lens of street-level bureaucracy acting mainly on behalf of the returning state and (b) as locally situated agents within the networks of their own distributive relations and embodying their own social positioning. Street-level implementers play an active role in shaping outreach, effectiveness, and sustainability of reintegration assistance, not always in the intended ways. This article traces their navigation of institutional, organisational, and relational contexts, internalised social norms, and perceptions of social divisions, as well as the micro-dynamics of asymmetrical interactions during service delivery. It finds that strategies applied by street-level assistance providers have ambivalent but rather minor effects on pre-existing inequalities. Even though they often naturalise prevalent social divisions, the interactions and allocation of assistance are determined more by their practical experiences, availability and type of support, as well as general programme design and working conditions. The inability to bridge the mismatch between available support and needs can even endorse inequality-normalising perceptions.