“A Gap Between Decision and Execution”: An Explorative Study of the Swedish Police's Experiences in Implementing the 2015 Counter-Terrorism Strategy

Abstract This study examines the Swedish Police’s perceptions and experiences in implementing the 2015 Swedish Counter-Terrorism Strategy, focusing on the intermediary strategic level that connects political decision-making with local practitioners. Using the Consolidated Framework for Implementation Research (CFIR), the study identifies barriers and facilitators across five domains: innovation, outer setting, inner setting, individual characteristics, and implementation processes. Semi-structured interviews were conducted with 14 participants from the National Operational Department (Noa), responsible for operationalizing the strategy or its critical components. The findings highlight systemic challenges, including misalignment between top-down directives and local priorities, resource limitations, and an emphasis on outputs (e.g., equipment procurement) over outcomes (e.g., prevention effectiveness). Key barriers included resistance to change, reliance on individual initiative, and a lack of clarity, motivation, and performance-based incentives. Structural and cultural factors, such as organizational autonomy and scepticism toward external mandates, further impeded implementation. Despite these obstacles, opportunities for improvement were identified. These include align national directives with local realities by engaging stakeholders early, transferring scientific knowledge on effective implementation to practitioners, recognizing individual contributions, and developing long-term, outcome-focused strategies. This research offers critical insights into the complexities of implementing counter-terrorism strategies within bureaucratic organizations, providing valuable lessons for similar contexts globally. Future research should incorporate regional and local perspectives to capture a comprehensive understanding of implementation dynamics across organizational levels.