A LOCAL DIAGNOSTIC REPORT ON THE SEVERITY AND CAUSES FOR OVER-QUALIFICATION OF HIGH SKILLED NON-EU NATIONALS IN BOTKYRKA, SWEDEN

A LOCAL DIAGNOSTIC REPORT ON THE SEVERITY AND CAUSES FOR OVER-QUALIFICATION OF HIGH SKILLED NON-EU NATIONALS IN BOTKYRKA, SWEDEN A report produced by the Multicultural Centre, Botkyrka, Sweden May 2012

Content page 1. Content page... 2 2. Executive summary... 4 3. Introduction... 13 3.1 Formulation of the problem... 13 3.2 The Realise project... 15 3.3 The aim of the local diagnosis and the pilot action... 16 3.4 Panel of Local Stakeholders... 16 3.5 The Multicultural centre... 17 3.6 Methodology... 19 4. Situation analysis... 21 4.1 Presenting Botkyrka far from average... 21 4.2 The greater region of Stockholm... 24 4.3 Legal, policy and service framework... 25 4.4 The Panel of Local Stakeholders (The PLS)... 28 5. General labour market... 29 5.1 The local labour market... 29 5.2 Profile of immigrants in Botkyrka... 31 6. Over-qualification... 34 6.1 Over-qualification... 34 6.2 Over-qualification related to non-eu nationals... 35 7. Initiatives and ongoing projects... 37 7.1 Previous initiatives... 37 7.2 Current regional and local initiatives... 37 8. Defining barriers to overcome... 40 9. Interview results... 43 10. Conclusions and recommendations... 45 10.1 Why does immigrant over-qualification happen?... 45 10.2 Possible outcomes with the Realise project... 47 2

11. References... 51 12. Annexes... 53 Annex A. Definitions... 54 Annex B. Notes from meeting with Panel of Local stakeholders... 56 Annex C. From applying a residence permit to getting a job... 59 3

2. Executive summary As stated in the rationale of the Realise project, an EU strategy for growth and economic revival is being put in place over the next nine years with the stated objective for Europe in 2020 to become a smart, sustainable and inclusive economy, enjoying high levels of employment, productivity and social cohesion. In relation to this objective, the project of Realise wants to bring special attention to the need for Europe to better activate its human capital, specifically focusing on, the group of overqualified non EU nationals living in Europe. To do this the Realise project wants to achieve the following three results: 1. Institutional development and improved governance for the integration of skilled non EU nationals in the labour market through the establishment of Panels of Local key Stakeholders (PLS). Through this local PLS we can improve already existing relationships between stakeholders as well as create new ones. It is also a way to produce better involvement and participation in policy design and execution. 2. Capacity building of participating institutions which will be able to reinforce and revitalise their existing structures and build know how. 3. Increased knowledge on the subject of over qualification of non EU nationals in the EU. This local diagnostic report of severity and causes (LDR) is the cornerstone for achieving these expected results. The aim more specifically is to map out the local situation with regard to how over qualification disproportionately affects skilled non EU nationals 1 in the local context of Botkyrka in Sweden. More precisely this report makes an attempt to answer the following three key questions: 1. How severe is the situation of over qualification of high skilled non EU nationals in the municipality of Botkyrka? 2. What are the causes for this? 3. What proposals could be put forward to improve this situation? 1 In this study we have decided against using the term third country national outlined in the report, as this is a term seldom used in Swedish society, education, research or statistics. Instead we will use the term non EU national or the more commonly used foreign born or foreign background. Both these terms however include also having a background within the EU, for more information see Annex A, Definitions. 4

On the European labour market today we can clearly see that non EU nationals are continuously disproportionately in jobs for which they are overqualified. In all European countries, except Ireland and Portugal, immigrants remain overqualified even after 10 years of residence in the country. 2 According to recent Eurostat figures gaps in unemployment rates, over qualification and social exclusion between foreign born and native born were particularly high in Sweden. As regards to over qualification the gap was as high as 20 %, measuring 31 % for foreign born while only 11 % for native born. 3 Discrimination on the labour market is one of the biggest challenges in our society today and also in Botkyrka. Discrimination in the area of employment has also been identified as the most significant area for discriminatory treatment, in the EU MIDIS survey from 2009 (FRA s European Union Minorities and Discrimination Survey) on minorities experiences of discrimination, racist victimization, and policing. 4 Employment is a fundamental means of participation in society, and discrimination implies a waste of valuable human resources. Thus, discrimination in access to employment not only endangers the success of any efforts for people with foreign background to integrate in the society which they live in, but it also leads to social tension and economic loss for individual enterprises as well as the national economy as a whole. In this regard the question of over qualification and the need for acknowledging this group gains momentum. In a future labour market, governed to a higher degree by high education jobs, it will become crucial to develop the tools and methods necessary to include this group in the education system, the labour market and society as a whole. According to an analysis by the OECD in 2006 5, an increase in the reliance on foreign born labour force is expected in the next coming years, especially as the knowledge based economy is continually growing. The conclusion is of course that the human capital development among foreign born nationals needs to become more efficient. According to the OECD, a shift is required "from the current model with eligibility to a model that embraces diversity, social, cultural and economic value." The region should address the issue of integration through supply rather then demand. In Stockholm County, a quarter of the inhabitants have a foreign background (born abroad or with both parents born abroad). In the report "The generation shift in the labour market" the Swedish employment services points to that the addition to the period 2010 2025 is expected to come exclusively from foreign born nationals. In Stockholm County the Swedish born workforce is estimated to increase by 5.9 percent or 47,000 persons during this 2 Eurostat newsrelease 8 december 2011 3 Eurostat newsrelease 8 december 2011 4 The survey interviewed 23 500 people with an ethnic minority or immigrant background across the EU s 27 member states, and is the largest EU wide survey of its kind. http://fra.europa.eu/frawebsite/attachments/fra 2011_EU_MIDIS_EN.pdf 5 OECD annual report from 2006, under Key activities economic growth and stability 5

period, while the foreign born workforce is estimated to increase by almost 4 times, that is, by 23.6 % or 53 000 persons. 6 Introducing Botkyrka, the municipality with the highest proportion of residents with a foreign background in Sweden. At 53.2% 7 (the national proportion currently stands at 19.1 %), Botkyrka, last year replaced Haparanda with 50.3%, a municipality situated at the very northern tip of Sweden which historically has been the most foreign municipality in Sweden due to its close links to Finland. 8 In the more socially and financially disadvantaged part of Botkyrka, the northern part, the proportion of residents with a foreign background is even higher, 70 % and in the locality of Fittja, where the Multicultural centre is located, the proportion stands at more than 90 % (highest in the country). 9 The unemployment rate of Botkyrka (11%) is almost double that of Stockholm municipality (6 %), but when comparing open unemployment for the Swedish born and the non EU national groups in the municipality, we can see that the Swedish born group corresponds to the Stockholm municipality with 6 % and the non EU nationals, falling much behind with 12.1 % (see Table 1). Table1. Employment rate (in %) in Botkyrka in 2009 on the basis of place of birth and educational level among 20 64 year old population Place of Birth Employment rate The ratio of higheducated population Unemployment rate Sweden 78.8 70.6 6.0 Scandinavian 69.8 70.8 5.3 countries excluding Sweden EU/EFTA excluding Scandinavian countries 55.6 41.5 8.9 Non European countries 57.3 35.6 12.1 Total 68.9 59.7 8.3 6 Generationsväxlingen 2010 Arbetsförmedlingen 7 The term foreign background, 53.2 % includes not only people who are foreign born but also people born in Sweden with two foreign born parents 8 After Botkyrka and Haparanda, Södertälje (44%) and Malmö (40.2%) are the Swedish municipalities having the highest proportion of their total population with a foreign background. However, Haparanda still has the highest proportion of the population who are foreign born, 45.9%, compared to Botkyrka s 37.4%. 9 The situation analysis of Botkyrka (internal document) 6

Taking a closer look at the target group for this project, the number of foreign born in Botkyrka between the ages of 24 64, are around 22 800 (51 %). Out of these 3 650 people (16 %) have a higher level of education (15 years or more). A Survey performed by SCB (See Table 2) in 2010 clearly indicates this. The most interesting aspect from these statistics is that, whilst on a national level Swedish born, have a higher level of education than foreign born, the opposite is true for Botkyrka, where foreign born have a higher level of education than Swedish born. Still, when we look at the labour market, it predominantly employs Swedish born, this despite the facts of both, the numerically larger number of foreign born in the municipality but also that foreign born to a larger extent have a higher level of education. Table 2. The ratio of highly educated population (in %) in 2010 Level of education 15 years or more Native born (Sweden) Foreign born (Sweden) Native born (Botkyrka) Foreign born (Botkyrka) female male female male female male female male 20 28 21 25 17 13 15 17 Total 24 23 15 16 As the municipality employs roughly 6 000 of its 83 000 inhabitants, the municipality has an important part to play, not only in its political work on improving the labour market, but also in counteracting overqualification in the labour market as an employer. To better activate the already existing skills and resources within their population, Botkyrka should emphasize and prioritise the issue of overqualification and place it high on the political agenda. On June 17 2010, the Municipal Council of Botkyrka, decided upon a strategy for an intercultural municipality free from discrimination. For a more comprehensive fulfilment of this strategy, the Multicultural centre believes it is of vital importance to consider over qualification and hence for the municipality to develop sustainable and long term initiatives, structures and activities to counteract that high skilled non EU nationals remain unemployed or in work for which they are over qualified. As part of the Realise project a Panel of Local Stakeholders has been put together in order to create dialogue and exchange of ideas between the various actors and stakeholders working in different ways with this issue or the target group. The Panel of Local Stakeholders include; The local employment services of Botkyrka located in Hallunda; The main citizen s information in Botkyrka; Botkyrka Women s 7

resource centre; The Labour and Adult Education Administration; representatives from Swedish For Immigrants (SFI) and the local citizen s information office in Fittja. The specific aims more precisely with the PLS are to better conceive policy and action by benefiting from the insight of those affected by and most concerned with such policies and actions and to obtain the support of the members of the PLS for the policies and actions that will be pursued. After the first PLS meeting and initial discussions (Annex B) there was consensus to, as a first step, identify problems, barriers and challenges experienced by the members of the PLS. These barriers were then complimented by further investigations in this report and finally also divided into three segments, emphasizing areas of special importance in tackling these barriers, namely; Barriers on the side of the individual Barriers on the side of the authorities Barriers on the side of employer 8

Table 3. Identified barriers for the establishment of high skilled immigrants on the labour market Barriers on the side of the individual Barriers on the side of the authorities Barriers on the side of the employer Insufficient knowledge of the Swedish language Limited access to informal network and social capital Slow and complex process for the recognition of degrees acquired in country of origin Complex regulations by the Swedish Migration Board Employers have no or little knowledge about validity of academic or occupational qualifications acquired in country of origin Not getting the right kind of support Complex regulatory aspects Poorly designed policy measures Lack of information on regulations, unclear understanding of duties and responsibilities as a citizen None existing or bad coordination between the stakeholders involved in working with migrants and especially high skilled migrants Discrimination, prejudice and stereotypic thinking Lack of good practice, positive examples and role models Discrimination, prejudice and stereotypic thinking Higher requirements from part of the employer Lack of information on regulations, unclear understanding of duties and responsibilities as a citizen None existing or bad coordination between the stakeholders involved in working with migrants and especially high skilled migrants To high demands on perfect Swedish language skills Lack of good practice, positive examples and role models 9

A summary of this report concludes that even though it is clearly stated in the vision of Botkyrka that the aim of the municipality is to be one of the best municipalities in Sweden to live and work in, a mere 68.9 % of its residents are currently in employment. Amongst its foreign born residents this percentage goes well under 50 % (with unemployment levels of around 55% for women, 48% for men). In addition to this, a staggering 15%, 3 360 people are also found to be completely outside the system of which the municipality functions, with no registered income, nor benefits, nor subsidies of any kind. 10 In this context, it should be noted that many of the barriers faced by the focus group for this report, i.e. the group of non EU nationals with a higher level of education, might also be relevant for other non EU nationals, foreign born or people with a foreign background, regardless of education level. In this way, this report and its findings become relevant for non EU nationals living in Botkyrka in general and for non EU nationals with a higher level of education, in particular. According to statistics from SCB, also from 2010, more than 20 % of the inhabitants of northern Botkyrka excluded from the labour market, have a higher level of qualification. 11 Another conclusion from this report has been that women belonging to this target group are much more underrepresented in the labour market compared to men, despite the fact that the proportion of a higher level of education between foreign born women and men are nearly the same. As women are one of the more vulnerable groups identified by the Realise project and the findings from this report confirms this, it is important to consider and prioritise women s needs and wants in the continuation of this project. Finally we can conclude that the system and bureaucracy in which we find ourselves is quite complex and at times poorly designed, see Annex C. The awareness and knowledge of each other's roles needs to be strengthened among the involved actors, on a local as well as on a regional level. There is also a need for policy implementation combined with communication strategies that show the commitment of Botkyrka to prioritise this issue. To utilize the skills already within the municipality and in this way embrace its human capital, could become a way for Botkyrka to profile itself as a municipality engaged with and dedicated to the issue of over qualification, setting an example for other municipalities in the country facing similar challenges. The way Botkyrka handles this issue could also lead the way in the building of an intercultural strategy within the municipality, and thus contributing to a more socially sustainable Botkyrka. 10 Eldestrand och Berggren, Osynligrapporten 2011, p. 10 11 Eldestrand och Berggren, Osynligrapporten 2011, p. 10 10

The Multicultural Centre is already a local arena for people to meet, build, exchange and create dialogue. Besides strengthening the links between local community stakeholders and linking to ongoing development we will also initiate some pilot actions. First, we aim to provide the insights and facts necessary to emphasise the issue of overqualification in Botkyrka, in already existing projects and initiatives but also on the political agenda. Secondly, we aim to in this process especially emphasise the role of women and the importance to prioritise this group when looking at representation on the labour market as a whole and when looking at over qualified particularly. Thirdly, we aim to execute two events highlighting the issue of over qualification in Botkyrka. First we aim to make an exhibition, using in depth interviews with people from the target group in order to show personal portraits, the experiences and personal accounts of skilled people living in Botkyrka. Secondly, we aim to connect with other stakeholders within the PLS to arrange a local job fair with participants from the target group, existing local associations, companies, other relevant employers and union representatives to create sustainable contacts and networks. At the end of this report the Multicultural Centre suggests 10 necessary actions directed to both, the municipality and other relevant stakeholders in order to develop a more sustainable approach to overqualification amongst non EU nationals in Botkyrka: 1. To create a more unified, one stop shop where people can turn for guidance and orientation in the various options and routes to take regarding employment, education, validation etc. To especially look into how the role of Medborgarkontoren (the citizens offices), in this way might be used to create a more available and direct, information approach regarding persons with a third level qualification. 2. To create expert knowledge around the specific question of over qualification and the complex system that surrounds it. 3. To open up existing venues and meeting spaces such as Hallunda folkets hus, Medborgarkontoren (the citizens offices), and AVUX Botkyrka Vuxenutbildning (the Labour and Adult Education Administration) for regular matching and networking spaces between employers and job seekers with a higher qualification. 11

4. To create a sustainable method for local awareness and continuous updates of each others roles within the different administrations and institutions 5. To acknowledge the importance to work towards greater awareness of structural discrimination and everyday racism among both employers and the public and to promote diversity among employers locally and in the county, seeing diversity as an asset that affirms its social, cultural but also financial values 6. To develop a continuous dialogue with civil society and individuals who promote part of these issues and maintain valuable contacts. 7. To especially develop sustainable contacts specifically targeted towards women s associations and networks to encourage mobilization and strategies to support women on the local labour market. 8. To develop a communication strategy that shows the commitment of Botkyrka to work with this issue and to use the resources necessary to retain skilled foreign born workers who want to live and work in the municipality. To locally utilize the skills of qualified persons of foreign origin, could in this way become part of building the intercultural strategy within the municipality and contribute to a more sustainable Botkyrka. 9. To carefully consider the identified barriers and obstacles in this report when developing further strategies, procedures or initiatives for the target group. 10. This report finally calls for a further examination of all efforts made in an integrated labour participation with collaborations involving the various municipal departments, authorities, NGOs, associations, educational associations and social enterprises. The report poses questions on how the municipal administration, politicians, the Employment Administration, the Labour and Adult Education in Botkyrka (AVUX) and other parts of the municipality including civil society view their role and responsibility for social measures on the labour market in regards to those skilled foreign born which are closer to the labour market. 12

3. Introduction 3.1 Formulation of the problem On the European labour market today we can clearly see that non EU nationals are continuously disproportionately in jobs for which they are overqualified. An astounding average of 50% of skilled migrants are inactive, unemployed or in jobs for which they are over qualified. In all European countries, except Ireland and Portugal, immigrants remain overqualified even after 10 years of residence in the country. 12 According to recent Eurostat figures gaps in unemployment rates, over qualification and social exclusion between foreign born and native born were particularly high in Sweden. As regards to over qualification the gap was as high as 20 %, measuring 31 % for foreign born while only 11 % for native born. 13 A report by the European Commission, Employment in Europe 2008, finds non EU nationals in Europe disproportionately employed in jobs for which they are overqualified. 14 An OECD report of 2007 indicates that in the EU and the OECD area on average 50 % of skilled immigrants between 15 and 64 years of age are inactive, unemployed or relegated to jobs for which they are overqualified. 15 Research on a European level has identified five main barriers preventing migrants from accessing jobs matching their qualifications 16 : 1. Recognition of degrees acquired in country of origin 2. Employers have no knowledge about validity of academic or occupational qualifications acquired in country of origin 3. Lack of social networks 4. Regulatory aspects 5. Discrimination The relevance of this study is to map out the local situation in regards to over qualification and these barriers, i.e. how over qualification disproportionately affects skilled non EU nationals, applied to the 12 Eurostat newsrelease 8 december 2011 13 Eurostat newsrelease 8 december 2011 14 European Commission. 2008. Employment in Europe 2008 15 OECD. 2007. Matching Educational Background And Employment: A challenge For Immigrants in Host Countries 16 http://realise2020.wordpress.com/about/ 13

local context of Botkyrka. The aim more precisely is to better understand the phenomena of overqualification amongst migrants in Botkyrka its causes and potential solutions. In the Swedish immigration debate, labour market participation of foreign born is one of the most important and frequently used measures of integration into Swedish society. Especially in terms of governmental policy, the reduction of immigrant unemployment has been repeatedly advocated as the most important objective in terms of combating segregation and increasing integration. In labour law there are four laws that ban discrimination on the grounds of ethnicity and religion, as well as other beliefs, gender, disability and sexual orientation. It can be shown through several reports executed by various local organisations that exclusion and discrimination occurs, not only in regard to accessing the labour market but also in the regular daily life and especially within workspaces, in contact with colleagues, employers or clients. The low rate of reporting discrimination among foreign born citizens can be seen as a sign of fear in possibly losing their present job. The debate in a region such as Stockholm is in general strongly limited to refugee questions, and if the discussion is extended to include citizens with a foreign background it is often from a negative perspective, i.e. as a problem. But refugees are only one third of all the international immigration and the large numbers of Swedish citizens who have long had their roots in Sweden are not noted for being a strongly competitive group in the population. This is confirmed by OECD s expert review of the Stockholm region. 17 One of the greatest weaknesses, according to the review of the region, is its inability to utilize this competence. The opportunities for immigrants and the children of immigrants who have lived the greater parts or all of their lives in Sweden to establish themselves on the labour market are poor both for the highly educated and for those with less education. The expert review draws attention to a number of serious structural weaknesses on the labour market and industry, weaknesses which they believe will be a threat to the region s competitiveness in the long term. The explanation often given is that persons with a foreign background have insufficient qualifications, but this argument is weakened by the fact that only 40 % of those born abroad with a university degree from a country outside EU have a qualified employment in Sweden, compared with 90 % of the Swedish population. In an investigation performed by SCB on a national level in 2009, it was found that the unemployment rate among highly educated non EU nationals was 5 times higher than among highly educated Swedish born (See Table 4). 17 OECD Expert Review, Stockholmsregionen i utveckling, uppföljning av OECD Territorial Reviews Stockholm 14

Table 4. Unemployment rate (in % of labour force) in Sweden in 2009 on the basis of place of birth and educational level among 25 64 year old population Place of Birth Less than 12 years 12 years More than 12 years Total Sweden 6.7 5.1 3.2 4.5 Scandinavian 6.1 7.1 3.9 5.6 countries excluding Sweden EU/EFTA excluding Scandinavian countries 17.6 12.7 7.5 11.3 Non European countries 28.6 17.0 15.0 18.1 Total 9.8 6.2 4.4 5.9 3.2 The Realise project As a way in improving the labour market position of high skilled immigrants in Europe, the European Integration Fund (INTI) is funding the Realise project. Realise is a network of nine partners three public institutions and six NGO s from seven EU member states and its aim coincides with the framework of the EU 2020 objectives of a dynamic and competitive Europe through the maximization of its human capital. The focal point within this context, is the problem of over qualification of high skilled non EU nationals on the labour market in different EU member states. In addition to improving the employment situation of high skilled non EU nationals themselves the project has three expected results: 1. Institutional development and improved governance for the integration of skilled non EU nationals in the labour market through the establishment of Panels of Local key Stakeholders (PLS). Through this local PLS we can improve already existing relationships between stakeholders as well as create new ones. It is also a way to produce better involvement and participation in policy design and execution. 2. Capacity building of participating institutions which will be able to reinforce and revitalise their existing structures and build know how. 3. Increased knowledge on the subject of over qualification of non EU nationals in the EU. 15

3.3 The aim of the local diagnosis and the pilot action The Local Diagnoses of Severity and Causes (LDR) is the cornerstone for achieving the above mentioned results. The three main questions guiding this report are: 1. How severe is the situation of over qualification of high skilled non EU nationals in the municipality of Botkyrka? 2. What are the causes for this over qualification? 3. What proposals could be put forward to improve this situation? The more specific aim of this report is to better understand the phenomena of over qualification amongst the immigrant community in Botkyrka its causes and potential solutions. The report will constitute the basis for developing a pilot action to further explore some of the identified issues facing over skilled non EU nationals in Botkyrka. The aim of the pilot action is to develop a complete approach, addressing multiple factors, not only minor ones, such as language barrier etc. The pilot action should be mainstreamed into existing local policies and services and there is also a need to secure continuous funding (local, national and/or EU funding) in order to implement the approach. The results of this pilot action will be continuously monitored and evaluated, building awareness and maximising dissemination. Recommendations will then be disseminated across the European member states involved in the project, and finally presented to the European Parliament in Brussels, with key parliamentarians and EC representatives to raise awareness of the over qualification of migrants. 3.4 Panel of Local Stakeholders Based on the contacts and expertise of the Multicultural Centre key organizations were then identified and contacted by phone or email to take part in a Panel of Local Stakeholders (PLS). This panel has been set up as part of the local diagnosis and the idea is to create a meeting place for stakeholders to discuss, coordinate and provide information regarding proposals for initiatives. The specific aims more precisely with the PLS are to better conceive policy and action by benefiting from the insight of those affected by and most concerned with such policies and actions an to obtain the support of the members of the PLS for the policies and actions that will be pursued. 16

The PLS meets regularly for the beginning of the project, with the aim to identify content, barriers and possibilities, for a pilot action. These meetings have then been complemented with Study visits with each stakeholder for further exchange, and mutual learning. 18 During the first meeting of the Panel of Local Stakeholders the following problems and challenges were identified and summed up in the following 10 points 19 : 1. Higher demands from the part of the employer 2. To high demands on Swedish language skills 3. Discrimination, prejudice and stereotypes 4. Long, complex and sometimes unclear process for assessment of previous education 5. Lack of good coordination between the stakeholders involved in working with migrants and especially high skilled migrants 6. Lack of information on regulations, unclear understanding of duties and responsibilities as a citizen in Sweden 7. Lack of good practice, positive examples, role models 8. Lack in social capital, support and contacts are needed on an individual level 9. Not getting the right kind of support 10. Complex regulations by the Swedish Migration Board 3.5 The Multicultural centre The Multicultural Centre was founded in 1987 and has since its foundation functioned as a forum and a meeting place for research and artistic expression relating to migration and social and cultural diversity. The Centre works for a society where diversity is reflected in the national image and where migrationrelated phenomena are naturally included in the Swedish heritage. Through our work we want to develop and disseminate knowledge about social and cultural factors that will facilitate the creation of a more sustainable and fair society. Within our staff we have several researchers studying and writing on urban development, discrimination and segregation. The research carried out at the Centre has been broadly concerned with the question of how society has been influenced by migration. It is based on the idea that a "multicultural society" is something more than just "people from different cultures". Immigration affects us all, directly or 18 For more information about the first and second PLS meetings, see Annex B. 19 The first meeting with the Panel of Local Stakeholders met on 17 th of February 2012 (For notes see Annex B) 17

indirectly. How does Sweden change, given the needs and opportunities created by social and cultural diversity? The centre and its staff has been involved in a number of government surveys and evaluations e.g. of the Metropolitan development programme and of policies of multiculturalism and integration. In the last few years the Multicultural Centre has also engaged in various international projects focused mainly on urban and segregation issues. The aim with these international co operations is to connect local experience, and practice in Botkyrka and the greater Stockholm region with other cities around the world, learning and sharing experiences. Within the project of Realise, the Multicultural Centre wants to raise awareness for the issue of overqualification among non EU nationals in Botkyrka. One step in doing this we believe is to map out the local situation and provide insights as to how the situation can be improved, not just by the stakeholders traditionally most associated with the target group (the employment office, the municipality administration etc.) but also other actors such as, local NGOs, the citizen offices, politicians and of course also the target group themselves. The multicultural centre is also able to provide an arena for dialogue, a meeting place, where various actors and stakeholders can meet and openly discuss, needs, wants and give suggestions for ways to improve the possibilities for qualified non EU nationals to enter the labour market. The aim for the Multicultural centre within this project can be divided into three sub aims; awareness raising, acknowledge the target group, maintain sustainable networks, encourage the streamlining of the outcomes of this report into existing and new initiatives and policies. The Multicultural centre wants to: Create awareness through the local diagnostic report, lobbying for lifting the issue and putting it on the political agenda Create and maintain sustainable networks between stakeholders and provide constant updates and suggestions in ways to facilitate the work of the involved actors Encourage streamlining of the outcomes in this report in policy documents and the orientation process towards over qualified non EU nationals To acknowledge the target group and provide personal portraits of personal experiences, accounts and stories. 18

3.6 Methodology The method predominantly used in this report is desk based research. Through literature reviews of previous papers, surveys and studies on this or related subjects, both on a national, regional and local level, we have been able to collect a large part of the content for this report. One of these reports is the analytic and statistic survey that was recently produced by the Labour and Adult Education Administration in Botkyrka, called From invisible to visible (Från osynliga till synliga, en studie av invånare i norra Botkyrka som står helt utanför arbetsmarknad och bidragssystem) where the two authors Eldestrand and Berggren have provided great insights into the issue of unemployment and exclusion among the more vulnerable population of northern Botkyrka by examining the population there, excluded both from the labour market and the welfare system. 20 Together with the desk based research the attendance and active participation in many local, regional and national projects within the issue of the labour market and segregation have also contributed to this report. 21 While conducting this report it has been challenging to obtain the relevant and accurate statistics needed for an analysis of the situation for non EU nationals on the Swedish labour market, especially related to differences between different ethnic groups for example. The reason for this is because it is still not legal for the government body of Statistics in Sweden (SCB) to collect statistics on the category of ethnicity. This should be taken into account when reading the report. Several interviews also make up for important content in this report. Semi structured interviews were made with stakeholders involved both on a national and regional level within the issues of foreign born and the labour market. Among these are: The Swedish national audit office, local job coaches, local areadeveloper, the Head principal and teachers in Swedish for immigrants (SFI), (Annex 1). All interviews were conducted and analyzed according to standardized procedures. A further number of interviews to complement this report and to also provide a basis for which initiatives will be suggested, are currently taking place. Eight participants from a local pilot Swedish course (Akademikerspåret) 22, focusing especially on highly educated foreign born, that took place from December 2011 until April 2012, will be interviewed about their experiences related to the issue of overskilled non EU nationals in Botkyrka. The results from these interviews will hence be used and taken into account when looking at future implementation strategies. These interviews will also be used in a 20 Eldestrand och Berggren, Arbetsmarknads och vuxenutbildningsförvaltningen, Botkyrka kommun Från osynliga till synliga en studie av invånare i norra Botkyrka som står helt utanför arbetsmarknad och bidragssystem 21 Nationellt rådslag om integration, RUFS konferensen, Utvecklingsprogrammet Fittja och Områdesgruppen i Fittja. 22 Akademikerspåret is a local initiative in Botkyrka focusing especially on academics in providing an introduction course in the Swedish language and orientation 19

parallel project at the Multicultural centre called, Remembering migration (Att minnas migrationen). This project is a continuous small scale project in collaboration with the Swedish Nordic Museum situated in Stockholm city centre and has as its aim to highlight and show the life stories of migrants who come to the municipality and northern part of Botkyrka. This is achieved through the development of a framework for a large scale collection of written life story narratives related to the international migration to Sweden. Any person young and old, woman and man with experience of migration are asked to take part in the human life story writing. The project Remembering Migration is an attempt at a new contemporary history of migration. 20

4. Situation analysis 4.1 Presenting Botkyrka far from average Botkyrka is one of Sweden s 290 municipalities, and is geographically located in the south western part of the Greater Stockholm area and the County of Stockholm, belonging to the urban region called, the Southern Greater Stockholm. Botkyrka is characterised by a high birth rate compared to other municipalities, and the annual number of incoming inhabitants to the municipality exceeds the annual number of those who move out. In March 2011, the population reached 83 184 inhabitants and the municipality is demographically the 23 rd biggest one in Sweden and the 5 th biggest one in the Greater Stockholm area. The population has increased exponentially from 13 688 in 1960, 26 673 in 1970, 65 218 in 1980, 68 542 in 1990 and 73 097 at the turn of the millennia. Today Botkyrka has the fourth fastest population growth rate in Greater Stockholm. 23 Botkyrka is furthermore the least affluent municipality in Greater Stockholm in terms of income level per capita, and the municipality having the highest unemployment and sick leave rates, particularly among the youth and among women. Apart from age and gender differences, the poverty indicators are also unevenly distributed within the municipality, the southern part being the more affluent and the northern part being the least. Unemployment in Botkyrka is the highest in the county. 24 Botkyrka municipality with its slogan, far from average, can be described as just that. Being the municipality in the Greater Stockholm area which since the 1960s and onwards proportionally has received the highest rate of immigrants, particularly from non Western countries, the municipality has on a nationwide level become associated with non Western immigration. 25 This particularly concerns the northern part of the municipality, which is spatially as well as psychologically separated, from the more Swedish born dominated southern part of Botkyrka. Contrary to southern Botkyrka which has a longer history going back to the mill town in the 18 th and 19 th centuries, the northern part of the municipality, the area of which this report will mainly focus on, was constructed as part of the national so called Million Program in the 1970s when around one million housing units were built in various urban parts of the country. The grand urban development project of the Million Program was mainly targeted for the domestic working class, but the construction period coincided with an intense labour immigration due to the socalled record years of the Swedish economy (1950 75). In the 1950s and 1960s, the influx of foreign born 23 These statistics derive from the government body Statistics Sweden s (Statistiska centralbyrån) web site http://www.scb.se and pressrelease Sveriges befolkning 2010 (http://www.scb.se/pages/pressrelease 310406.aspx), and Stockholm County Council s (Stockholms läns landsting) annual report Befolkningsutvecklingen 2010 i Stockholms län (2011). 24 Se not 23 25 Botkyrka s migration history can be found in Vendela Heurgren and Leif Magnusson (eds.), NoBo. Boken om Norra Botkyrka, Multicultural Centre, 2006. 21

workers to the Swedish industry more or less only consisted of Scandinavian and European immigrants from countries like Finland, Denmark, Norway, Iceland, Spain, Portugal, Italy, Hungary, Poland, Yugoslavia and Greece. Being a predominantly working class and industrial municipality, Botkyrka received many Scandinavian and European labour migrants from countries like Finland, Poland, Former Yugoslavia, Greece and Germany, and from the end of the 1960s Turks and Turkish Kurds and Christian minorities from Syria and Lebanon also immigrated, settling mostly in the newly constructed Northern part of the municipality. In the 1970s and 1980s many non European migrants followed at a time when labour immigration was replaced by refugee immigration. In addition to both majority and minority groups coming from Turkey, Syria, Lebanon and also Iraq, other notable migrant populations in Botkyrka have their origins in Chile, Iran, Pakistan, Former Yugoslavia and Poland. It was mainly from the 1980s and even more from the 1990s that non Western immigration fully took over, when Northern Botkyrka became what it is today, namely dominated by residents deriving from non Western countries. This has resulted in the fact that the three administration areas of northern Botkyrka; Fittja, Alby and Hallunda Norsborg, are among the most segregated areas in Sweden, turning up over and over in the political debate and the media. The following ten countries of origin, as presented in Table 5, were the most represented in Botkyrka in 2007. Table 5. The country of origin of foreign background population in Botkyrka in 2007 Country of origin Number % of the population 1. Turkey 7 703 19.2% 2. Finland 5 473 13.6% 3. Iraq 3 471 8.7% 4. Syria 2 465 6.1% 5. Chile 2 024 5.0% 6. Poland 1 972 4.9% 7. Lebanon 1 680 4.2% 8. Yugoslavia 1 676 4.2% 9. Iran 920 2.3% 10. Pakistan 829 2.1% Total 29203 70.3% 22

With its slogan, far from average, the municipality of Botkyrka wants to emphasise on the positive and dynamic side of its cultural and ethnic diverse population. Through various cooperation projects; local, regional, national and international, Botkyrka wants to create dialogue around issues such as urban sustainability, antidiscrimination and democratization. Policies of intercultural strategies, human rights perspectives, sustainability and ethnic diversity have been an important part of the work of the municipality. Initiatives within the subject of over qualification and recognising the challenges faced by highly educated as well as poorly educated non EU nationals to access the local labour market have also been acknowledged through various policies. However, further and perhaps more stern measures have to be taken to improve the situation of high skilled non EU nationals in the municipality. Within Botkyrka s current work in implementing an intercultural strategy and the investigation into a possible establishment of a local UNESCO centre, the issue of making the most of our human capital and over qualification appears even the more important. As stated earlier in this report, the Municipality of Botkyrka has an important role to play when it comes to the over qualification of its non EU nationals, not just as the governing authority but also as the dominant employer in the municipality. Since Botkyrka signed the Aalborg commitments in 2004, the municipality has embarked on a continuous journey towards creating and improving Botkyrkas sustainability within the three sectors of the economy, the environment and the social sector. In 2008 the municipality wrote, A starting document towards sustainable development linked to Aalborg +10, and out of the six prioritised challenges listed within this document to achieve this, one is the importance to create new jobs in the municipality. On this subject the municipality emphasises on the importance to change the negative trend and improve the labour market working together to use the skills of the citizens, private companies and NGO s in Botkyrka. We really need to be much better in connecting the needs of the private companies with the skills of the people who live in Botkyrka. Out of the seven point what to do list below on how to create new jobs in the municipality, none specifically puts emphasis on making the most of our human capital or battling over qualification, but 23

number five and seven both relate in some way to the issue of over qualification of foreign born in the municipality. 26 1. Contribute to create new forms of education in cooperation with private companies and other stakeholders 2. Use the possibilities that the growth of the Stockholm Region will give and thereby create new business possibilities 3. Contribute to a better arena for small private companies within the sectors of health care, service, craft and the creative industry 4. Help private companies to develop ethic and environmental strategies, and thereby get advantage in competition with other companies 5. As the dominant employer in Botkyrka, the municipal administration takes a lead to work against discrimination on the labour market 6. Stimulate citizens and staff creativity and entrepreneurship 7. Better match the private companies need of staff with the competence of the citizens. 4.2 The greater region of Stockholm It is important when looking at the local labour market in Botkyrka, to also consider the context of the broader Stockholm region. This so called metro area (with over 500 000 inhabitants), accounts for about 30 percent of the national GDP, similarly to other regions such as London and Paris. In 2006 the OECD presented their report on the Stockholm region (OECD Territorial Review, 2006). Sweden was one of the countries that had the highest proportion of unemployed persons of foreign background, presenting a major challenge for the Stockholm region. There are of course great obstacles to growth of the economy if the region cannot meet the labour shortages that occur with an aging population. The Regional Planning at Stockholm County, TMR (Tillväxt, Miljö och Regionplanering) has in collaboration with the County Board developed several reports and data to broaden the regional integration policy. The national integration policy is strongly linked to the established regional goals 26 A sustainable Botkyrka a starting document towards sustainable development linked to Aalborg + 10, page 11 24

of an open and accessible region, a leading region in economic growth, growth in resources and a good environment for a more happy and positive life style. 27 In these reports the importance of collaboration and learning between regional actors, municipalities and various types of employers, is emphasized. An action program, focusing on the organizations' diversity orientation has been linked to work of RUFS. Efforts to counteract segregation and promote integration on the labour market should be linked. More emphasis is put towards working with diversity focusing on employers. Municipalities and municipal administrations especially need to develop their role as employers in this regard. The Swedish policy for urban development focuses on policies for employment, education, security, sustainability and growth. In certain city districts inhabitants are experiencing exclusion due to unemployment, long term dependency on social welfare allowances, feelings of insecurity or poor health. It is therefore necessary for the central government to co operate in particular with the municipalities concerned, in order to develop more effective methods and make more effective use of public recourses to combat exclusion. In order to ensure a positive development both for the individuals and for the city districts concerned development work must be carried out locally, as well as, within a municipal and regional context. In general, issues concerning urban development policy have a strong connection with community planning, physical planning and sustainable urban development. In the spring of 2011, a major campaign called, Anställ kompetensen (Employ the skills) was held where dialogues with employers were empathized and a website created with information, concerning employment and the matching of work and skills for foreign born. Through this process one aim is to also make the labour market more transparent where more jobs go through official channels. 4.3 Legal, policy and service framework To activate foreign born or people with a foreign background on the Swedish labour market, is one of the most important issues facing policymakers on all levels in Sweden today (national, regional and local). The starting point for policy making in Sweden is that policy measures should be made to be general for all citizens. Immigrants with residence permits have access to the same activities offered to all Swedes including extensive labour market programs. It is in a national context also important to remember that integration policies in Sweden are transsectorial. This means that the objectives of integration policies 27 http://www.regeringen.se/sb/d/2279 25