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

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.