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4. Cross-country comparison and summary table

Image: Mads Schmidt Rasmussen / norden.org*
This chapter provides a summary of the key findings from Chapter 3, highlighting similarities and differences in how the Nordic countries govern and implement integration measures. It does not include direct references to original sources. For detailed information and full references, please refer to Chapter 3. The comparative table summarizes the country-specific subchapters in a concise format.

Governance model and responsible actors

Across all Nordic countries, integration is coordinated at the national level, often involving multiple ministries. State agencies are typically responsible for implementing specific elements of integration policy.
Municipalities play a key role in implementing integration measures across all Nordic countries. With strong traditions of local self-governance, they are responsible for delivering a wide range of services. This includes designing and delivering integration programmes (in Finland, Denmark, Norway, and partly in Sweden); organising language training; providing housing; and ensuring access to essential services such as primary and secondary education and social services. In Finland, municipal responsibilities were recently expanded to include employment-related services, which were previously managed by the central government.
The role of regional authorities is generally limited to healthcare provision (as in Denmark, Norway, and Sweden). In Finland, this responsibility lies with the Well-being Services Counties, while in Iceland it is handled at the national level. However, regional state authorities play an important function, such as county governors in Norway, county administrative boards in Sweden, and ELY Centres in Finland. They are typically tasked with coordinating, monitoring, and supporting the implementation of national integration policies at the local level.
Civil society organisations (CSOs) play a complementary role in integration across all Nordic countries. Frequently recognised in national policy documents, CSOs provide services such as counselling, language training, and orientation activities, and in some cases act as formal service providers, for instance, operating reception centres in Finland.

Current national integration policies: goals and objectives

In recent years, Denmark, Finland, Norway and Sweden have moved toward more restrictive immigration and integration policies. No significant policy shifts have been approved in Iceland until now, though a new policy on matters of immigrants 2025–2038 has been drafted.
There has also been a noticeable shift from a rights-based approach to one centred on obligations and individual responsibility. Finland and Sweden have explicitly highlighted immigrants’ personal responsibility in the integration process, while Norway describes this as ‘balancing support with clear expectations’.
These policy shifts generally reflect a stronger focus on labour market integration, higher language proficiency requirements, and increased expectations on active participation in society. For instance, Denmark explicitly aims for migrants to achieve self-sufficiency within one year, while Sweden and Norway emphasise that newly arrived adults are expected to contribute to society and become self-sufficient ‘as quickly as possible’.  In both Finland and Denmark, integration policies also aim to prevent the development of parallel societies—migrant communities that remain socially and culturally isolated from the wider population.
At the same time, integration strategies continue to stress the importance of providing support and promoting equity, which are explicit objectives in both Norway and Finland. Norway, for example, has extended the Introduction Programme’s eligibility age from 55 to 60, lengthened the programme for those pursuing upper secondary education, and introduced minimum standards for employment-oriented activities. Finland continues to promote health, well-being, and equity as key objectives, and Iceland’s draft policy for 2025–2038 puts a strong emphasis on improving access to language training and ensuring equal opportunities.

Refugees from Ukraine

Sweden and Finland have implemented the Council of the European Union’s Temporary Protection Directive (TPD). Iceland, Denmark, and Norway are not bound by the TPD but have adopted similar national frameworks for displaced persons from Ukraine. Currently, protection is valid until March 2026 in Denmark, July 2026 in Norway, and March 2027 in Sweden, Finland, and Iceland.
In all Nordic countries, refugees from Ukraine are granted a distinct residence permit that bypasses the regular asylum process. They generally have access to work, housing, education, integration or establishment programmes, and health and social services, though eligibility may vary depending on legal classification and population registration. In Sweden, for instance, they become eligible for establishment programmes after being registered in the Swedish Population Register and residing in the country for one year.
In Denmark, individuals are granted temporary residence permits under a Special Act. Upon municipal placement, they receive a personal identity number (CPR) and gain access to benefits similar to those granted to other refugees, including the Self-support and Return Programme, and they may access Basic Integration Education (IGU).
In Finland, beneficiaries of temporary protection receive a distinct residence permit and a personal identity code. They are entitled to public employment services, free Finnish or Swedish language courses under an integration plan, and, after one year, may apply for a municipality of residence. Once registered, they receive full rights and responsibilities equivalent to permanent residents.
In Iceland, displaced persons from Ukraine are granted residence permits on humanitarian grounds, with rights equal to those of other refugees. Upon settlement in a municipality, typically within two months, they become eligible for the same benefits and services as other residents.
In Norway, refugees from Ukraine are granted temporary collective protection under a separate scheme. They are entitled, but not obliged, to participate in the Introduction Programme and receive related financial support. They also qualify for public settlement assistance, with placement in municipalities generally completed within three months.
In Sweden, individuals under temporary protection are initially classified as asylum seekers and receive coordination numbers. This limits their access to services such as Swedish for Immigrants (SFI). However, amendments in July and November 2024 now allow those who have held protection for at least one year to register in the Population Register, granting them full access to services and a personal identification number. 

Integration or establishment programmes  

Integration programmes are in place across all Nordic countries, with the exception of Iceland, which lacks a formal programme but offers some elements, such as community education (often delivered online) and language training. While approaches differ, the core components of integration programmes across the Nordic region include labour market preparation, language training, and civic or social studies.
In recent years, all Nordic countries have increasingly prioritised employment-oriented measures as a core aspect of integration programmes. Denmark, for example, requires refugees and reunified family members to participate in 37 hours per week of work-oriented activities under its Introduction Programme. Similarly, Norway temporarily strengthened the work component of its introduction programme by requiring participants to engage in at least 15 hours of work-related activities per week after the first three months.
Municipalities play a key role in designing and delivering integration programmes, usually in collaboration with state actors. In Sweden, for instance, the Public Employment Service coordinates the programme, while municipalities are responsible for elements such as Swedish language instruction and civic orientation. There is often flexibility in how municipalities organise and deliver services, allowing local adaptation.
Personalised integration plans are used to tailor integration measures to individual needs, with a strong emphasis on this approach in Norway and Finland, and to some extent in Sweden. These plans align activities with participants’ backgrounds, education, and employment goals. In Denmark, such plans are also developed but are part of a formal contract with the municipality, outlining the migrant’s duties, obligations and mandatory activities aimed at securing employment within one year.
Across the Nordic region, eligibility and obligations related to integration programmes vary by residence status. Participation is generally mandatory for the target group, except in Sweden. In all countries, financial support is conditional on participation, making these programmes both a support mechanism and a compliance tool; benefits may be reduced in cases of unexcused absences or non-compliance with a contract or integration plan. In Denmark, the Introduction Programme is compulsory for refugees and reunified family members. In Finland, it is mandatory for unemployed jobseekers, beneficiaries of international protection and their families, long-term social assistance recipients, and those receiving the child home care allowance. In Norway, the programme is required for individuals aged 18 to 60 who have been granted asylum or resettlement as refugees, received a residence permit on humanitarian grounds, or been reunited with these groups.

Language training

All Nordic countries recognise language training as a key component of integration into work and society, delivered both as part of broader integration programmes and as standalone measures. Municipalities are the primary providers in Denmark, Finland, Norway, and Sweden, while in Iceland they act more as facilitators.
Denmark offers free language training even to third-country labour immigrants, whereas in Norway, this group must pay for courses. Language training is mandatory in both Denmark and Norway, though the conditions differ: in Denmark, it is required for refugees and family migrants with temporary residence permits and is linked to social benefits; in Norway, it is tied to eligibility for permanent residence and citizenship.
In Finland, language training is not strictly mandatory but is offered as part of individual integration plans for those with valid residence permits. Sweden provides broad, free access to Swedish for Immigrants (SFI) for all residents aged 16 and over with a residence permit and personal identity number. While currently voluntary, ongoing reforms may introduce mandatory language training for some groups. In Iceland, educational centres receive state funding to offer Icelandic language courses. Partial reimbursements are available for refugees, jobseekers, and some union members, with upcoming reforms aimed at improving access and support for language training.

Settlement process

There are notable differences across the Nordic countries in how refugee settlement is organised, particularly whether municipal participation is mandatory or voluntary, and the extent to which individuals have freedom of movement.
In Denmark, refugee settlement is a legal obligation, with state-set regional quotas. If regional agreements cannot be reached, the state imposes municipal quotas. Similarly, in Sweden, settlement is mandatory. The state assigns residence permit holders, including refugees, individuals in need of protection, and their family members, to municipalities, which are obliged to receive them.
In contrast, Norway operates a voluntary settlement model, based on agreements between the Directorate of Integration and Diversity (IMDi) and municipalities. Finland does not impose a national municipal quota. Instead, the Ministry of Economic Affairs and Employment sets annual national referral objectives, and ELY Centres negotiate municipal placements based on these. In Iceland, municipalities voluntarily decide how many refugees to receive through agreements with the Ministry of Social Affairs and Housing and the Directorate of Labour.
Regarding freedom of movement, Denmark has a restrictive approach, with binding settlement decisions. Settlement decisions in Denmark are binding and cannot be appealed by refugees or municipalities. Although relocation is possible, a new municipality is only required to accept the individual if compelling reasons exist.
Sweden, Norway, and Finland offer more flexibility, often linked to whether the individual is receiving state-supported housing or integration services. In Sweden, individuals who can arrange their own housing may settle independently. However, those requiring housing support receive only one settlement offer from the Swedish Migration Agency. Refusing the offer results in the loss of accommodation and settlement assistance from the Agency.
In Norway, access to integration services and financial support is granted only to individuals settled through IMDi. Individuals may choose to self-settle but then they lose the right to these entitlements. Refugees must accept one official settlement offer to receive public assistance. In Finland, refugees typically have freedom to choose their municipality once they have received a residence permit, except for quota refugees, unaccompanied minors, and other vulnerable groups, who are directly assigned to municipalities.
Iceland offers the greatest freedom of movement. Refugees are not required to accept municipal accommodation offers and may relocate freely. However, those who decline housing support must secure long-term accommodation independently.   

Social assistance and financial support 

Access to social assistance and financial support in the Nordic countries varies, influenced by factors such as permit type and registration status – for example, whether an individual is registered as an unemployed jobseeker. In most cases, individuals with a residence permit and municipal registration are entitled to extended social assistance and financial support, often on the same terms as other residents.
Asylum seekers typically receive a basic allowance to meet essential needs, along with access to services such as healthcare, psychological support, and maternity care. The amount provided depends on factors such as age, family composition, and whether meals are included at reception centres.  
As described above, financial support is often conditional on participation in introduction programmes. The level of social assistance can also vary across municipalities within the same country. For instance, in Iceland, the monthly amount may differ by up to EUR 500 per person, depending on the municipality. 

Healthcare and schooling

In Denmark and Norway, both refugees and asylum seekers have full access to public healthcare on the same terms as citizens. In Iceland, individuals with legal residency for six months are covered, but refugees and those with humanitarian permits are exempt from the waiting period and receive equal access immediately. Sweden and Finland provide emergency and non-deferrable care to asylum seekers, while children have full access; broader access follows issuance of a personal identity number and municipal registration.
School attendance is compulsory and free for children with residence permits. All countries ensure access to primary and lower secondary education for refugee and migrant children. In Finland and Sweden, children without a municipality of residence are not subject to compulsory education but have the right to attend school. In Iceland and Denmark attending school is compulsory for all children, also in Norway if the child is expected to stay in Norway for more than three months.

Cross-country summary and table

Table 1. Integration goals and measures in the Nordic countries: a comparative table. Due to space constraints, Åland is included under Finland, and both Greenland and the Faroe Islands are included under Denmark. Source: Authors’ compilation.
Governing authority (authorities) & examples of responsibilities
Ministry of Immigration and Integration
 
National agencies: Danish Immigration Service, Danish Return Agency, Danish Agency for International Recruitment and Integration (SIRI). 
 
Municipalities (local execution: housing, health evaluation, school education, carry out integration programmes.
 
Ministry of Justice
(Integration), Ministry of children and education (language courses).
 
National agencies: Integration Authority, Immigration Office, Directorate of Education.
 
Municipalities provide local services and social integration elements.
 
The Government; Ministry of Social Affairs, Labour and the Interior; Ministry of Education, Culture, and Church; and local municipalities (no dedicated integration authority)
 
Municipalities ensure integration-related public services.
Ministry of Economic Affairs and Employment (TEM)
 
National agencies: KEHA Centre, KELA.
 
Regional: ELY Centres; well-being services counties
 
Municipalities (integration programme, integration training, school education and service access; since 2025: manage public employment services)
 
Åland Government (oversees integration policy and adopts 4-year integration programme);
AMS-Åland Labour Market and Student Service Authority (labour market services for immigrants who are registered as jobseekers).
 
Municipalities conduct assessments for immigrants receiving social assistance; develop 4-year integration programmes either independently or in cooperation with other municipalities.
Ministry of Social Affairs and Housing; Ministry of Justice; Directorate of Labour; Directorate of Immigration.
 
Municipalities (preschools, primary schools, and social services, including child protection and financial aid).
Ministry of Labour and Social Inclusion; Directorate of Integration and Diversity (IMDi); Norwegian Directorate for Higher Education and Skills (HK-dir); Ministry of Justice and Public Security; Directorate of Immigration (UDI).
 
Regional: County Municipalities, County Governors.
 
Municipalities (integration programme and public services such as healthcare, adult, primary and lower-secondary education, and child welfare services).
 
Local Norwegian Labour and Welfare Administration (NAV offices).
Ministry of Employment.
 
National agencies: Public Employment Service; Swedish Social Insurance Agency; Swedish Migration Agency.
 
Municipalities (civic orientation, Swedish for Immigrants (SFI), general services: housing, education, adult learning, elderly care, and social services).
Key integration policies & goals
Increased focus on return migration;  labour market integration, self-support, language proficiency, participation in Danish social life; limiting migrant ‘parallel societies.
 
New Integration Act: Mandatory integration consultation meeting to provide information, ensuring civic orientation course, language course and health check-ups. Strong focus on immigrants with children under the age of 18.
 
No national integration policy, but strong co-operation with Denmark. Integration primarily takes place through participation in the labour market. Formal integration takes place through language training.
Since 2025: increased focus on employment, language skills, increased participation in society, health and well-being, equality.
 
More obligation-focused; reduce financial burden.
 
Responsibility for integration promotion is transferred from the state to municipalities.
 
Åland Integration Act applies only to immigrants with valid residence and permit in Åland; asylum seekers fall under Finnish national law.  
 
The Integration Act excludes asylum seekers, visa/visa-free stayers, and first-time residence permit applicants until a permit is granted.
New policy on matters of immigrants 2025–2038 (not adopted):
create an inclusive society, enhance access to services, promote language acquisition, fair employment opportunities.
 
New Action Plan for immigration 2026–2029 is scheduled for Althingi in March 2026.
 
Work-oriented programmes, incl. work obligation requirements 15 h/week, language acquisition, social participation, increased return focus.
Stricter rules for refugees from Ukraine.
 
New 2024 objective: integrate and become self-sufficient quickly, setting requirements and providing opportunities for integration.
Focus on enhancing labour market entry (incl. immigrant women) and language acquisition, incl. children with foreign backgrounds.
State-run reception reforms; Increased return focus.
 
Protection seekers from Ukraine
Not bound by Temporary Protection Directive (TPD), but Special Act valid until March 2027.
 
Temporary residence permit under the Special Act, similar rights as other refugees in Denmark, exempted from work obligation.
 
Personal identity number (CPR): yes
 
Access to the Self-support and Return Programme, which includes mandatory Danish language training and 15 hours/week of employment-related activities. Excluded from work obligation.Eligible for basic integration education (IGU)  
 
 
Bound by TPD (extended to March 2027).
 
Personal identity number: yes
 
Mandatory Finnish or Swedish language courses during year one in reception centres.
 
May participate in integration training but are ineligible for the introduction benefit.
 
Full-service access after one year after receiving a municipality of residence.
Not bound by TPD, but similar collective protection activated (valid to March 2027).
 
Residence permit for humanitarian reasons. Same rights and support as other refugees.
 
Personal identity number: yes
 
Full access to services on a par with other residents in Iceland after settlement in a municipality.
 
Not bound by TPD but implemented temporary collective protection (valid to July 2026).
 
May participate in the introduction programme and receive financial support, but only after formal settlement; participation is voluntary.
 
Eligible for public resettlement assistance.
 
Municipal settlement within 3 months.
 
Personal identity number: yes
 
Stricter rules apply from 2024: restrictions on travel back to Ukraine and exclusion of dual citizens from the collective protection scheme.
Bound by TPD (extended to March 2027).
 
Same rights as asylum seekers until registered in population registry and issued a personal identity number, usually after one year (per November 2024 amendments).
 
Registration gives
extended access to services (full healthcare, Swedish for Immigrants, eligibility for establishment programme and certain employment support).
 
Personal identity number: yes (issued after one year in Sweden (per 2024 amendments).
Integration or establishment programmes
Three types:
(1) Introduction Programme for refugees and reunified family (+18). 37 hrs/week work obligation. Mandatory, unless they do not receive benefits. Contract required; sanctions for non-compliance.  
(2) Self-support and Return Programme for refugees from Ukraine. No work obligation, but ca 15 h/week Danish language education is mandatory. Mandatory participation, unless they do not receive benefits. Contract required; sanctions for non-compliance. (3) Introduction Course for immigrants and accompanying family members (foreign nationals, job immigrants, etc). No work obligation, no associated financial benefits, voluntary participation.  
 
Basic Integration Education (IGU) for upskilling (includes vocational/­language studies and paid intern­ships) for refugees and reunified family, incl. refugees from Ukraine.
Integration training; individual integration plans. May include language learning, employment support, entrepreneurship, health, well-being, and civic skills.
 
1–2 years (extendable); sanctions for non-compliance.
 
Integration training target group: residence permit holders, unemployed jobseekers, beneficiaries of international protection and their families, long-term social assistance recipients, and child home care allowance recipients.
 
An individual integration plan is developed jointly by AMS, the municipality and the immigrant. It may include Swedish language training, employment support, and civic orientation. It can last up to 3 years, with a possible extension of 2 additional years.
No standardised programmes as in other Nordic countries. ‘Landneminn’ community education material (online).
Directorate of Labour provides support for learning Icelandic and job market integration.   
Full-time, tailored introduction programme; 3 months to 4 years; language, work training, social studies, parental courses.
 
Since April 2025, increased focus on employment and formal education.
 
Mandatory for refugees and their family members (aged 18–55) settled in a municipality.
 
Mandatory language & civic training (part of introduction programme) for immigrants (aged 18–67) with residence permits leading to permanent residency.
 
Asylum seekers: required to complete 175 hours of Norwegian and 25 hours of social studies while in reception centres (aged 18+).
 
Establishment programme for newly arrived refugees, persons in need of protection, and their family members aged 20–65. Full-time up to 24 months; voluntary participation. Includes SFI, civic orientation, internships.
 
Language education
Municipalities provide Danish language courses (up to 5 years) for all migrants. Self-sufficient migrants pay deposit for the course and get reimbursed after completion. Mandatory for refugees, reunified family and displaced persons from Ukraine receiving benefits. Non-compliance reduces benefits.
 
 
Free Finnish/Swedish language courses (≈1 yr) organised by municipalities as part of the integration plan.
Eligible: see Integration training target group.        
 
No universal right to free Icelandic courses. Refugees, jobseekers, and those on municipal aid reimbursed for 2 courses; others pay. Labour unions often cover fees for employed migrants. Policy draft 2025–2038 and 2024 coalition platform emphasise expanded access.
Norwegian language training is mandatory and separate from Introduction Programme.
Target group: adults (18–67) with residence permits leading to permanent residency, incl. family migrants. Requirement for permanent residence/citizenship.
Labour migrants must complete 300 hrs at own cost; EEA/EFTA not covered.  
 Digital learning introduced in 2024.
Free Swedish for Immigrants (SFI) to residents aged 16+ with residence permits and personal ID numbers. Since 2023, access expanded to TPD beneficiaries. 
 Reform proposals (2025) include integrating civic orientation into SFI, making it mandatory for those on financial support, and adding a final exam.
Settlement processes
Compulsory for municipalities to settle refugees based on national quota allocation.
 
Asylum seekers: at reception centres, accommodation centres, private housing in some cases, return centres.
 
Refugees: must accept the placement offer; binding decision. When relocated to a municipality, refugees receive temporary housing (municipal rent cap applies) and later, they have responsibility to find permanent housing. They pay rent themselves with support in some cases.
No mandatory municipal quota, relocation guided by national targets and ELY–municipality agreements for quota refugees, unaccompanied minors, and vulnerable groups.   
Asylum seekers: at reception centres or private housing.
Quota refugees: assigned placements; municipalities must provide housing.
Other refugees and permit holders: may receive formal placement or relocate independently.
Reception centre in Reykjavík; municipal pairing based on employment prospects; not obliged to accept municipal offer.
Municipalities (part of the Coordinated reception programme) decide how many refugees to receive and are reimbursed for the first three years per refugee.
Voluntary for municipalities to settle refugees.
Asylum seekers: at reception centres, agreed self-settlement without losing financial support is possible by application (AMOT scheme).
 
 
One settlement offer must be accepted to access public support (incl. collective protection, humanitarian grounds, or special ties). Self-settled refugees have limited access to introduction programmes and social assistance.
 
Asylum seekers: at Migration Agency housing (ABO) or private housing (EBO).
Compulsory for municipalities to receive newly arrived refugees, protection status holders, and their family members based on municipal quota.
Both municipal settlement (mainly quota refugees and individuals living in ABO) and self-arranged housing possible.
 
One municipal offer only.
  
 
 
Social assistance & financial support   
Migrants with 9 years of residence of the past 10 years in the Kingdom of Denmark qualify for full benefits; if needed, others (e.g. refugees) may receive benefits (minimum rate).
 
Amounts vary by status and need (receiving benefits might hinder receiving a permanent residence permit).
 
Basic daily allowance for asylum seekers.
 
Labour market guidance is offered for all.
Services depend on legal status; full access for those with residence and municipality.
 
Basic allowance for asylum seekers.
 
Social assistance for permit holders. 
 
Asylum seekers: basic services and allowance; those with permits (e.g., refugees), full access to housing, healthcare, and social services like other municipal residents.
 
Financial assistance levels vary by municipality.
Basic allowance for asylum seekers.
 
Social assistance for residence permit holders.
 
Support is conditional on participation in the Introduction Programme.
 
Full access to benefits requires municipal registration.
Daily allowance for asylum seekers.
 
Establishment benefit for establishment programme participants.
 
Eligibility for full social services after registration at the Swedish Population Register.
Healthcare & school attendance
Healthcare for refugees and other migrants is fully accessible.
 
School attendance is mandatory for all children.
 
Asylum seekers: urgent/necessary care. Refugees: full healthcare as residents.
 
Right to attend school but no obligation; becomes compulsory upon municipal registration.
 
Åland Islands:
Refugees: full healthcare, including dental care. Right to attend school regardless municipal registration in Åland.
Full healthcare access after 6 months’ legal residence; immediate coverage for protection/humanitarian permit holders.
 
School attendance is mandatory for all children.
 
Equal healthcare for all.
 
School attendance is mandatory for children,
if stay exceeds 3 months regardless of legal status.
 
 
Asylum seekers: urgent/necessary care; full care for children under 18. After population registration: full healthcare rights as residents.
 
Right to attend school for asylum-seeking children, but no obligation. Same for TPD permits until registered in the Swedish Population Register
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