Activation Reform and Inter‐Agency Co‐operation – Local Consequences of Mixed Modes of Governance in Sweden

Organizational reform has become a recurring solution to problems of social exclusion and unemployment. In Europe, and other parts of the world, there is a trend towards policies of ‘activation’ in employment and social policy. The idea of flexible, individualized and tailor-made services is coupled with managerial and market-based reforms as well as collaborative governance. In these complex structures of service provision, coordination and inter-agency co-operation have become key concerns. Based on a study of a recent reform of programmes for newly arrived refugees in Sweden (Etableringsreformen), this article seeks to contribute to the literature on governance of ‘activation’ by examining the consequences of mixed modes of governance (market and collaborative) on local inter-agency co-operation. Drawing on data from in-depth case studies in two municipalities, it is demonstrated how the coupling of managerial practices and quasi-markets with existing collaborative arrangements has created barriers for inter-agency co-operation. The results indicate that institutional tensions between governance forms represent an important factor for explaining governance failure in this policy area.