Considerations of refugees’ mental health and conditions for social participation in the Swedish establishment program: a street-level bureaucrat’s perspective

Purpose The purpose of this study is to examine and highlight the conditions and limitations that caseworkers at the Public Employment Service experience when considering the mental health and opportunities for social participation of newly arrived refugees and asylum seekers within the framework of the establishment program. The establishment program aims to help newly arrived individuals learn Swedish, find employment and become self-supporting. Design/methodology/approach The study is based on 10 qualitative interviews with caseworkers at the Public Employment Service who meet newly arrived individuals in their daily work. The empirical data is analyzed using Lipsky’s theory of street-level bureaucrats to understand the experiences and challenges faced by the caseworkers when considering newly arrived refugees’ mental health and social participation within the establishment program. Findings The results of the study can be summarized into four themes: “barriers to speaking openly,” “same demands but different conditions,” “limited expertise, limited time,” and “external actors.” In summary, the results show that caseworkers felt that consideration for the mental health and opportunities for social participation of newly arrived refugees was very limited within the framework of the establishment program. Despite the good intentions of the program, the special vulnerability of the newcomers was not sufficiently taken into account. The caseworkers recognized themselves in the description of street-level bureaucrats who are influenced by routines and legislation but simultaneously face complex cases that require discretion, although this freedom is hindered by time constraints and lack of knowledge. Originality/value The originality of the study primarily lies in its focus on the experiences of the caseworkers who work directly with newly arrived refugees within the framework of the Swedish establishment program. Previous research has focused more on legislation, policy or the refugees’ own experiences. This study contributes an important perspective from those who actually implement the program and interpret the guidelines in their interactions with individuals. It also focuses on a specific program and context, the Swedish establishment program and the administrative support documents used within it. By examining the caseworkers’ experiences within this specific national context, the study provides context-specific knowledge that is relevant to Swedish integration policy and practice.