Governance model and responsible actors
The Danish integration governance model is divided into the national level and the municipal level. At the national level, the Ministry of Immigration and Integration is the central authority, overseeing Denmark’s integration policies (Udlændinge- og Integrationsministeriet, n.d.-b).
Danish integration policies are governed primarily by the Integration Act (LBK nr 1146 af 22/06/2020), the Aliens Act (LBK nr. 1009 af 02/09/2024), the Repatriation Act (LBK nr 1021 af 27/08/2024), the Special Act on temporary residence permit granted to people who were displaced from Ukraine (LBK nr 324 af 16/03/2022) and the following amendments that have significant changes to these acts. The Integration Act is the main document guiding the integration policies in Denmark. The Act was originally passed in 1998 and was most recently amended in 2024 and 2025. The Aliens Act (LBK nr. 1009 af 02/09/2024) regulates the entry, residence, and family reunification in Denmark while the Repatriation Act (LBK nr 1021 af 27/08/2024) supports the repatriation of persons and provides individuals with the basis for considering and possibilities of deciding to repatriate. The Ministry of Immigration and Integration is responsible for managing the legal framework, including housing, the Introduction Programme, employment, assigning refugees to municipalities and allocating funding. The Ministry of Immigration and Integration is also responsible for coordinating early preventive measures against radicalisation and honour-related conflicts. The Ministry operates through the Danish Immigration Service, the Danish Return Agency, and the Danish Agency for International Recruitment and Integration (SIRI). Each of the three authorities have their own responsibilities and roles.
The Danish Immigration Service is responsible for handling cases of foreigners’ right to visit and stay in Denmark; the Danish Return Agency is responsible for the return of immigrants who do not possess a legal right to stay in Denmark, ensures specific accommodation for these migrants, and offers advice on, for example, repatriation support. SIRI is in charge of processing work and residence applications from non-EU/EEA citizens who wish to study or work in Denmark, and also ensures EU/EEA citizens easy access to the country and supports the municipal level in their integration tasks (Hjemrejsestyrelsen, n.d.; SIRI, n.d.; Udlændingestyrelsen, n.d.).
Municipalities function as the executive authorities (Udlændinge- og Integrationsministeriet, 2020). The Integration Act delineates the municipal responsibilities, including finding housing, conducting health evaluation, and carrying out the Introduction Programme for refugees, which involves labour market activation measures and Danish language lessons (Udlændinge- og Integrationsministeriet, 2020).
The municipal council can decide to set up an Integration Council, which advises the municipal council on issues regarding local integration efforts. In addition, the Minister of Immigration and Integration appoints representation in the National Integration Council, which gives advice to the Minister on issues pertaining to the integration efforts in Denmark (Udlændinge- og Integrationsministeriet, 2020). However, the Danish government has proposed closing the National Integration Council as of June, 2026 (Udlændinge- og Integrationsministeriet, 2025c).
Current national integration policies: goals and objectives
In 2019, the Danish integration policies underwent a ‘paradigm shift’ in adopting a stricter approach (Udlændinge- og Integrationsministeriet, 2019). Instead of pursuing integration of migrants, as before, the new policy strategy placed greater emphasis on the return of migrants as soon as internal and international law allow it.
Higher requirements were also introduced for labour market integration, language proficiency, and participation in Danish social life in the Act on Active Social Policy (LOV nr 1654 af 30/12/2024). Following amendments to the key legislation that came into force in 2025, all references to ‘Self-support and Return Programme or Introduction Programme’ in these laws were replaced with ‘Introduction Programme’ (Beskæftigelsesministeriet, 2024b). Some target groups are nevertheless still governed by the Self-support and Return Programme (see section describing the integration programmes). The Danish integration policy seeks to integrate the migrants into the Danish labour market to ensure self-sufficiency. For instance, as of January 1, 2025, refugees who receive benefits, are obliged to participate in employment-related activities for 37 hours per week (standard working week in Denmark) in an internship, a wage subsidy job, community service, or upskilling (Styrelsen for International Rekruttering og Integration, 2025). In addition, the Danish integration policy framework seeks to limit the presence of so-called parallel societies – migrant communities that remain disconnected from Danish society.
One strategy for limiting the concentration of migrants in migrant-dense environments is a specific housing dispersal policy, otherwise called the Ghetto Package and administered by the Ministry of Social Affairs and Housing. The policy was laid out in a strategy, published in 2018, called ‘One Denmark without parallel societies. No ghettos by 2030’. As the name implies, its main objective is to disperse all ghettos across Denmark by 2030 (Regeringen, 2018). The strategy targets areas which have predominantly non-Western migrants as residents. It is divided into five propositions: (1) physical demolition and transformation of vulnerable neighbourhoods, (2) stricter control of who can live in these areas, (3) increased policing and stiffer punishment to fight crime and increase safety, (4) ensuring a good start of life for all children, and (5) the Government’s continuous monitoring and updating of activities against parallel societies (Regeringen, 2018).
Protection seekers from Ukraine
Denmark is not legally bound by the Council of the European Union’s Temporary Protection Directive (TPD) due to its opt-out of certain EU policies. However, as a reaction to the Russian invasion of Ukraine, Denmark created a Special Act for displaced persons from Ukraine, which, after several extensions, is valid until March 2027 (European Commission, 2022, 2024; Udlændinge- og Integrationsministeriet, 2025b). The act, very similar to the TPD, was adopted shortly after the activation of the EU directive (Udlændinge- og Integrationsministeriet, 2022).
In Denmark, only individuals who meet specific criteria can be granted a temporary residence permit under the Special Act. These include Ukrainian citizens who resided in Ukraine before 1 February 2022, refugees who benefited from international protection holding a residence permit in Ukraine, Ukrainian citizens residing in Denmark on that date, as well as their close family members (European Commission, 2022; Udlændinge- og Integrationsministeriet, 2022, 2023b).
Since the Special Act grants Ukrainians a temporary residence permit, they are not considered refugees under the Aliens Act. As other refugees and migrants, Ukrainians receive a personal identity number (CPR) when they are allocated a municipality of residence. While allocation times vary on a case-by-case basis, they are generally shorter for displaced people from Ukraine than for regular refugees, since they are not classified as refugees and the criteria applied to them are more specific (Personal communications, 2025).
Like other refugees, Ukrainians with a temporary residence permit and a personal identity number (CPR) under the Special Act gain the right to work, school, vocational education, basic integration education, access to healthcare services, social benefits, access to the Self-support and Return Programme, and temporary accommodation. They are governed by the Law on Temporary Residence Permit for Persons Displaced from Ukraine (LOV nr 324 af 16/03/2022) (European Commission, 2022; Udlændinge- og Integrationsministeriet, 2022. Integration or establishment programmes
In the past years, there has been a significant number of amendments to the Integration Act, outlining the integration programmes, their content and target groups. Previously, there was a distinction between the Self-support and Return Programme and the Introduction Programme. Following the most recent changes, the main integration programme is now referred to simply as the Introduction Programme. However, displaced persons from Ukraine covered by the Special Act remain under the former framework of the Self-support and Return Programme (Beskæftigelsesministeriet, 2024b).
As of 1 January 2025, there are three types of programmes offered to newcomers to Denmark: (1) the Introduction Programme (introduktionsprogram) for refugees and reunified family, (2) the Self-support and Return Programme (selvforsørgelses- og hjemrejseprogram) for displaced people from Ukraine under the Special Act, and (3) the Introduction Course (Introduktionsforløb) for immigrants and accompanying family members (Udlændinge- og Integrationsministeriet, 2020).
The municipalities have primary responsibility for the practical implementation of the programmes, with some aspects of the programmes (such as social benefits and some parts of the education) taken up by the Ministry of Employment or companies where the refugees carry out their working duties. Within a month of assuming responsibility for a refugee or displaced person from Ukraine, the municipality must sign a contract with them that outlines the duties of the integration programme, including the aim to find a job within a year, as well as planned activities, goals, and the scope of educational offers (KL, 2025; Udlændinge- og Integrationsministeriet, 2020).
The purpose of the Introduction Programme is for the refugees and reunified family members who are above the age of 18 to achieve ordinary employment and full or at least partial self-sufficiency as quickly as possible. They should embark on the Introduction Programme no later than a month after a municipality has taken over the responsibility for the foreign national (Udlændinge- og Integrationsministeriet, 2020). If not achieved within one year, the programme can be extended for up to five years (Styrelsen for International Rekruttering og Integration, 2024; Udlændinge- og Integrationsministeriet, 2020).
The Introduction Programme contains both monetary benefits (now under the Ministry of Employment, see section on social assistance and financial support) and employment-oriented measures, as well as Danish language education (see section on language training) (Udlændinge- og Integrationsministeriet, 2020). The programme distinguishes between refugees and reunified family migrants. However, participation is mandatory for both groups if they receive monetary benefits. If not, the participation in voluntary (Personal communications, 2025).
As of 2025, the Introduction Programme also includes a work obligation requiring refugees who do not meet the residency or employment requirements and receive benefits to work 37 hours per week (Beskæftigelsesministeriet, 2024b). For this target group, the programme consists of a continuous effort combining internships, employment with wage subsidy, ordinary wage employment, or other work (e.g., community service). These efforts are also supported by Danish language education up to 15 hours per week, and possible employment guidance. The designated 37 hours include actual working hours, time spent on Danish education, job search away from home, and travel times.
Displaced persons from Ukraine under the Special Act are covered by the Self-support and Return Programme, which differs slightly from the main Introduction Programme. They are not subject to work obligation and other changes made to the Introduction Programme after 2025 that apply to refugees and reunified family. As with the previous rules on the Self-support and Return Programme, displaced people from Ukraine are required to participate in Danish language education, receive employment-oriented offers (e.g., internships), averaging 15 hours per week, as well as guidance, and upskilling (Beskæftigelsesministeriet, 2024b; Styrelsen for International Rekruttering og Integration, 2024).
In addition to the programmes and their variations above, an Introduction Course is also offered to immigrants (foreign nationals, job immigrants, etc.) (Udlændinge- og Integrationsministeriet, 2020). As per the Integration Act, the course is offered to immigrants above 18 years of age, primarily focusing on Danish language education. The Introduction Course is distinct from the Introduction Programme. Immigrants participating in the Introduction Course are not subject to strict employment requirements and benefit frameworks unlike refugees in the Introduction Programme. The course begins as early as possible – and no later than a month after the municipality registers the immigrant as having moved to the municipality in the Civil Registration System (CPR).
The course takes a maximum of three years and should be tailored to the immigrant’s purpose of staying in Denmark. The Introduction Course includes Danish language education (lasts up to five years) and employment-related offers, if the immigrant wishes to receive them. Municipalities may also fund workplace ‘supervisors’ to help immigrants navigate the Danish labour market (Udlændinge- og Integrationsministeriet, 2020). While the municipality must offer the Introduction Course (Danish education and employment offers), immigrants can choose to opt out.
It is also important to highlight the basic integration education (IGU) offered to refugees and reunified family migrants in Denmark, although it is not formally part of the integration programme. The programme is a part of the employment condition between the employer and the refugee and is therefore beyond municipal responsibility. The two-year training aims to ensure work and upskilling opportunities and also includes a paid internship. IGU can be taken by refugees and any reunified family members (including from Ukraine and those who assisted the Danish forces in Afghanistan), who are between 18 and under 50 years of age and have not been registered in Denmark for longer than 20 years (Udlændinge- og Integrationsministeriet, n.d.-a).
Language training
The municipalities are responsible for offering Danish language education to newly arrived adult foreigners with a temporary residence permit or another permanent legal stay in Denmark. All categories of migrants are eligible to participate in such language courses for up to five years (Udlændinge- og Integrationsministeriet, 2020).
Danish language education is mandatory for refugees and reunified family holding a temporary residence permit as part of their programme (Fabricius & Westerberg, 2023). The education is provided in most cases free of charge and should be offered no later than a month after a residence permit is issued and the immigrant has arrived at the assigned municipality. In some instances, a self-providing migrant will have to pay a deposit which is returned upon completion of every module and the final exam (Styrelsen for International Rekruttering og Integration, n.d.)
If the requirement to attend language classes is not upheld by the refugee or a reunified family migrant receiving social benefits, cash benefits are reduced (OECD, 2021a). The municipalities cover the costs of Danish language education. However, the state reimburses the municipalities 50% of expenses in connection with foreigners’ participation in the programme, including Danish language education. In addition, municipalities can receive a financial subsidy when a foreigner successfully completes the Danish language education.
Settlement process
Before receiving a temporary residence permit and a decision of placement at a municipality, asylum seekers and displaced persons from Ukraine are required to live in asylum centres. In some cases, they are allowed to reside privately with a spouse at their own residence, friends, or family. Generally, after asylum seekers arrive, they are placed at reception centres and are later transferred to accommodation centres and, if a residence permit is denied, to return centres (Ny i Danmark, 2023). While Ukrainians are not considered regular refugees, they are still placed at asylum centres until the decision for their stay is taken (Udlændinge- og Integrationsministeriet, 2022). Relocation times vary, but municipalities usually take responsibility for refugees within two months, and for Ukrainians within 15 working days (KL, 2025).
After receiving a residence permit, newly arrived refugees are placed in municipalities on the basis of a mandatory national quota system, to ensure an equal geographic distribution of refugees. They receive a personal identity number (CPR) and must reside in the assigned municipality for the duration of the Introduction Programme (up to five years). On arrival at the municipality, they are assigned temporary housing in, for example, dormitories, rooms, or in rare cases, apartments. It is the refugee’s responsibility to find permanent housing themselves afterwards. Both in temporary housing and later, the refugees pay the rent themselves, but a municipal rent cap is ensured in temporary housing. The decision of the Danish Immigration Services is binding and cannot be appealed to other institutions. Refugees can, however, apply to move to a different municipality and continue their programme and receive social benefits there if this is accepted by the new municipality. According to the Integration Act, the municipality has to accept the application if there are compelling circumstances for such relocation (medical treatment, work, etc.) (Udlændinge- og Integrationsministeriet, n.d.-c).
The municipality must provide temporary housing for a refugee referred to the municipality by the Danish Immigration Service. If the rent exceeds half of the household’s income, full housing support for the refugee cannot be denied (Udlændinge- og Integrationsministeriet, 2020).
Social assistance and financial support
In some instances, refugees can receive certain social financial benefits (kontanthjælp) (Beskæftigelsesministeriet, 2024a). For instance, if a person cannot provide for themselves or their family (and are not supported by others), they can receive the social financial benefits. The amounts of such benefits vary depending on the social status of the refugee (and their family). For instance, as of 2025, persons (such as refugees) who have not lived in the Kingdom of Denmark (Denmark, Faroe Islands, or Greenland) for nine years within the past ten years, receive the minimum allowance of DKK 6,789 per month, if they do not meet an employment requirement and a residence requirement (Beskæftigelsesministeriet, 2025b).
It should be noted, however, that for some immigrants not receiving social benefit is a prerequisite to obtaining a permanent residence permit (Ny i Danmark, 2025a). There is a variety of instances where different amounts of social benefits are additionally allocated, based on living circumstances, age, commitments, etc. (Beskæftigelsesministeriet, 2025a, 2025b). Migrants can also receive such welfare support as housing allowance, child benefits, and subsidised or free childcare (Beskæftigelsesministeriet, 2019; borger.dk, n.d.).
The refugees’ and reunified family migrants’ duties are listed in a contract that is signed with the municipality at the beginning of their stay. The contract outlines an integration plan for the migrant in terms of activities that would ensure a job is acquired within a year (Udlændinge- og Integrationsministeriet, 2020). Failure to uphold the contract’s clauses on participation in activities or refusal of work results in sanctions such as reduced or suspended financial benefits.
While waiting for a residence permit, asylum seekers receive basic allowance that is intended to cover expenses for food, personal hygiene, etc. The basic allowance is paid out to those asylum seekers who do not receive free meals at the asylum centres. The basic daily allowance for an asylum seeker over 18 years of age is DKK 60,51. However, if one lives with a partner at the asylum centre, the amount is DKK 47,91 per adult per day (Ny i Danmark, 2024).
Healthcare and schooling
Refugees and other migrants have full access to the public healthcare on the same terms as Danish citizens. For children, it is compulsory to receive education, which is also free of charge.