Nordic integration policy shifts towards restriction and selectivity
Integration, Ukraina
28 jan 2025
A paradigm shift in Sweden, a U-turn in Norway, and business as usual in Denmark – this is how migration expert Kristian Tronstad describes the changes in Nordic immigration and integration policy following Russia's full-scale invasion of Ukraine.
Overall, the Nordic integration policy has become more restrictive, selective, and temporary.
Kristian Tronstad, head of research at the Norwegian Institute for Urban and Regional Research (NIBR), summarises the latest trends in Nordic immigration policy following the increase in Ukrainian refugees since 2022.
Speaking at the December 2024 conference, ‘How can the Nordic countries better promote labour market integration among migrant mothers and fathers?’, held in Stockholm, Tronstad focuses on Denmark, Norway, and Sweden – three countries with similar welfare systems and highly regulated reception and integration policies, but historically different approaches to immigration and integration.
– In migration research, countries are often placed on an axis ranging from restrictive to inclusive. Sweden has traditionally been the most inclusive country in the EU. Denmark, by contrast, has been significantly more restrictive, while Norway falls between these two extremes.
Tronstad notes that these traditional positions have shifted significantly in the past three years during the influx of Ukrainian refugees.
A paradigm shift in Sweden
During the European “migrant crisis” in 2015, a small number of European countries, including Sweden, welcomed the majority of refugees. From having been the most inclusive country in the whole EU, Sweden’s shift towards a more restrictive approach since 2022 has been particularly pronounced.
There has been a clear shift towards a more restrictive and selective policy, particularly concerning Ukrainian refugees. Ukrainians were treated more selectively compared to other refugee groups in Sweden, says Kristian Tronstad.
Swedish integration policy is generally characterised by a liberal self-settlement model and a two-year introduction programme for refugees.
– However, Ukrainian refugees did not initially receive the right to the introduction programme or language courses in Sweden.
Tronstad notes that Ukrainian refugees in Sweden received lower levels of economic support and faced restricted access to healthcare. Since the beginning of the full-scale invasion of Ukraine, some of the selective policies have been eased slightly.
– However, there are still some restrictions specifically aimed at Ukrainian refugees, particularly regarding certain economic benefits.
Kristian Tronstad states that the shift towards more restrictive policies in Sweden is not directly associated with Ukrainian refugees but rather with broader political trends and a general paradigm shift in Swedish immigration policy.
While public debate in Sweden has not focused specifically on Ukrainians, general attitudes towards immigration have shifted. This change is linked to the significant influx of immigrants during 2015–2016.
Norway takes a U-turn
Norwegian refugee policy has traditionally followed a publicly managed settlement model. Introduction programmes last between six months and four years, and refugees receive economic benefits exceeding standard social welfare aid.
– In 2022, the Norwegian integration policies were initially made more liberal, granting Ukrainians the same rights as other refugees. At the same time, economic benefits for all refugees were increased, Kristian Tronstad says.
However, this approach shifted in the summer of 2023. Compared to the other Nordic countries, Norway received significantly more Ukrainian refugees. This prompted the Norwegian government to impose restrictions and policy changes aimed at making the country less attractive.
The settlement policy became less liberal, and some economic benefits for Ukrainians were reduced. Additionally, they were no longer permitted to bring pets into Norway. Norway was the first country to prohibit Ukrainian refugees from visiting Ukraine, warning that doing so could result in the loss of their temporary protection status.
In October 2024, Norway also became the first European country to designate some areas in western Ukraine as safe, making individuals from these regions ineligible for temporary protection in Norway.
Kristian Tronstad explains the Norwegian U-turn as a result of a shift in the public debate.
– The relatively large influx of Ukrainians has shifted the debate in Norway. The focus now is on determining which Ukrainians deserve to stay.
A slightly more inclusive Denmark
Among Nordic countries, Danish immigration and integration policy has traditionally been more restrictive compared to Sweden and Norway.
Denmark has traditionally had a state-managed settlement policy. Since 2016, Denmark’s introduction programme for refugees has prioritised helping newly arrived find employment. Social benefits for immigrants are means-tested and, for the first nine years, set lower than the social aid available to Danish citizens.
– Regarding Ukrainian refugees, the settlement programmes have been made slightly more liberal. Danish authorities have also treated Ukrainian refugees the same as other refugees regarding benefits and obligations.
Kristian Tronstad notes that while the immigration debate in Denmark is highly polarised, it has not significantly focused on Ukrainian refugees.
The Danish response to Ukrainian refugees is largely business as usual, continuing the policies applied to all refugees.
How long will the solidarity last?
Since 2022, European countries, including the Nordic nations, have demonstrated strong solidarity towards Ukraine. By 2024, over four million Ukrainians were living in Europe under temporary protection. Kristian Tronstad notes that there are uncertainties about how long this solidarity will last.
– It is possible to be somewhat pessimistic. In several European countries, more anti-immigration parties have come to power. The initial response, which has been characterised by solidarity, might change.
According to Kristian Tronstad, it is still too early to draw conclusions about the effects of the more selective and restrictive refugee policies implemented in recent years. How these reforms will impact integration in the Nordics remains to be seen.
– We have seen that refugees in Denmark tend to find jobs more quickly than those in Norway. However, studies also show that Denmark has worse long-term results in the labour market. Refugees may get a foot in the door but struggle to establish a solid foothold in the labour market.
How the integration of Ukrainian refugees will play out, in the end, is also highly dependent on how long the war will last. Kristian Tronstad identifies a central question: will they return home?
– This question is crucial, not only for President Zelensky and the refugees but also for the municipalities and employers in host countries.
Text: Sebastian Dahlström
Photo: José Calvente