Suchergebnisse

The ways of organizing political problem solving in society are not static. A pluralistic dynamic society requires a continious reconsideration and adaption of its political in­stitutions, i.e. political institutionalization. Institutiona­lization demands prior organizing activities among actors for political aims. Organizing activities can be seen both inter­nally, externally or between existing organisations and in­stitutions . The degree of institutionalization reflects the organizing activities' survival capacity. The higher the degree of in­stitutionalization the more likely it is that the organizing activity will become a formally based organisation or institu­tion, or will change the dominating values of organisations or institutions. The degree of institutionalization is discussed using the concepts of adaptability, complexity, autonomy and flexibility. The thesis represents a problem-oriented implementation approach where individuals' joint ways of organizing problem- solving are the basis for analysis of both policy-realization and political institutionalization. Policy is defined as ideas and the ways of creating institutional arrangements in order to realize them. A "policy-problem", defined as the empirical question answered by examining the process of institutionali­zation, is used to study the policy-processes in the field of occupational safety and health. The ways in which individuals collectively organize in order to create a good working environment are studied using the concept of implementation structures. These are defined as phenomenological administrative units of analysis, i.e. groups of individuals empirically judged to take part in solving the policy problem. ; digitalisering@umu

Sammandrag ; Summary

Already from the title of this dissertation can two important points be made. The first is that the dissertation is about the relationship between central and local government, more specifically in Sweden today. The second point is that this relationship is seen from a balance of power perspective, where the relative power of the actors is an empirical question rather than derived from a given hierarchical structure. Such a perspective is based on analysing the actors as interdependent. The central government can thus be dependent on the local government, as well as the other way around, and this interdependence can vary over time and between policy areas. This perspective differs from that of most studies, which often see the relationship either in terms of steering (that local governments are executing centrally determined policies) or local self-government (that the Swedish local governments has a constitutionally protected right to handle their own affairs within certain legal limits). I argue that both these perspectives take a hierarchical point of departure and are, to a large degree, static in their approaches, which means that they risk not discovering, or have problem explaining, changes in the relation between central and local government. To view the relationship between central and local government as interdependence leads to a focus on the resources that the actors possess. For public organisations the most relevant resources are: authority-related resources, financial resources, political resources, informational resources, and organisational resources. The central government has a power advantage concerning authority and financial and political resources while local governments generally have an advantage in terms of informational and organisational resources. The policy area chosen is Swedish refugee policy. The basic paradox within this area is that the central government grants the refugees asylum but cannot give them a place to live without the permission of the local government. This permission is accomplished through voluntary agreements signed between the National Integration Office and the local governments. It is then the local governments that integrate the refugees to Swedish society by providing housing, education, healthcare and so on while the central government is giving the local government a grant to cover the expenses. The central government has lacked political, informational and authority-related resources. The resource used to compensate for this has been the financial resource. By economic incentives the central government has encouraged local governments to increase their refugee reception. This has been the central government's universal weapon and has been used to reduce its vulnerability as well as its sensitivity. For local governments, authority-related and financial resources have been lacking. The resource that the local governments have had, all the way through the time period studied here, is the organisational resource. This is something that the central government simply cannot provide and this is why there is a relationship of interdependence – just as only the central government has authority in its power base, the local level is the only one with organisational resources.

This thesis consists of three empirical case studies, originally published as MERGE- papers ('Papers on transcultural studies' published at MERGE, Centre for Studies on Migration, Ethnic Relations and Globalisation at the Department of Sociology, University of Umeå), brought together and framed by a lengthier introduction. The empirical studies examine Swedish refugee reception activities, including the experiences of refugees themselves, with a focus on organisational and inter-organisational matters, and, in this context, the suitability as well as problems, mechanisms and issues, of implementation. According to Swedish policy aims since the mid-70s, immigrants are guaranteed equality, freedom of choice and partnership in relation to social, political and cultural rights. Based upon this background, an ambitious institutionalisation of refugee reception and integration policy was initiated in 1985, implicating the setting up of a new reception system involving almost every Swedish municipality. However, this political reform came to meet with fundamental problems, such as the absence of clear political goals and a remarkably low priority in the work of local political bodies. As a consequence, the ability and the ambitions of civil servants to apply an integrated approach to the reception process, and to foster growing co-operation among relevant local institutions to improve services and opportunities for integration, have not materialised as intended. These deficiencies of local integration policies appear to be connected with implementation problems, issues and obstacles, such as a lack of developed inter-organisational co-ordination mechanisms, lack of a clear division of labour and responsibility among concerned parties, economic obstruction etc. In addition to this, the resources that local refugee receptions have had at their disposal have been a high degree varying and unstable, with the consequence that the reception's organisation, e.g. as immigrant bureaus, has been subjected to constant remoulding. Continuous initiatives for restructuring the reception procedures seem seldom have been well suited, and in addition to this, there has been a lack of opportunities for influence by the refugees themselves concerning conditions of reception and inroads into integration. The conclusion is, somewhat paradoxical, that many of the refugee reception's political-administrative problems are fabricated by and within the refugee reception system and immigrant policy itself. In the thesis, a general background for necessary improvements of the service for refugees is outlined, making possible a lot of reformistic suggestions. While the thesis lays bare the problems with refugee reception, its policy and implementation, it also acknowledges important positive achievements of Swedish refugee reception and its political-administrative ambitions and framework. The reason that the effects of these positive efforts and achievements haven't materialised in successful integration to a higher degree, is also due to 'external' factors, like exclusion from the labour market, social exclusion through segregation, marginalisation and discrimination, processes of racialisation etc. These kinds of ramifying 'external' factors can only to a limited extent be influenced by local actors alone. The conclusion is that a successful integration cannot be achieved solely through measures within the practical institutional setting of the local refugee reception system itself, but must be underpinned and enforced by a more generalised inclusionary or anti-exclusionary politics, a generally more decided political will and over-all more purposeful measures securing a higher degree of suited implementation. ; digitalisering@umu

The purpose of this dissertation is to describe, explain and understand how slowness appeared when some decisions were made in the area of welfare policy and how this slowness was eliminated. The study focuses on major changes. It is argued that such changes follow another logic than small gradual adjustments. Four breaking points have been selected for a deeper analysis: the pension policy decisions of 1913 and 1994 and the housing policy decisions of 1935 and 1992. These decisions led to the emergence of fundamentally new institutional structures concerning the relation between the central government and the citizens. The study shows that an established institutional structure within a welfare policy area generated mental constructs and decision rules that governed political decision-making. This governance resulted in slowness in the form of lengthy decision-making processes. The fundamental institutional structure was being altered only when the mental constructs were broken down. A common feature was that the decisions were first made when discontent with the prevailing order became so strong that it overwhelmed the fear of a new institutional structure. The general tendency was also to shape the fundamental changes in relation to the citizens so that the changes could be portrayed as small. The established mental constructs are the determining explanation for slowness. The interest organizations played a secondary role, as their interests are shaped in accordance with the mental constructs. Their resistance was declined at the same time when the mental constructs were broken down. The individuals – agents of change – that constantly worked for the change of system in reality appear to be significantly more interesting than hindering organization. Their influence showed a recurring pattern.