A Conference on the reception of Ukrainian refugees in the Nordic countries

On 19 May 2022, EMN Sweden organised its annual networking conference on the topical theme of the reception of Ukrainian refugees in the Nordic countries. The conference in Stockholm brought together around 90 participants from government agencies, local authorities, embassies, universities and civil society, as well as participants from EMN Member and Observer Countries.

The conference was opened by Inga Thoresson Hallgren, Deputy Director-General of the Swedish Migration Agency, who highlighted the aim of the day’s conference: not only to share experience with one another regarding the reception of Ukrainian refugees, but also mutual learning on how we can improve the processes of their reception.

Similarities and differences between the Nordic countries

In the first panel, moderated by Marie Bengtsson of EMN Sweden, similarities and differences between the Nordic countries were identified, as well as challenges and positive experiences regarding the reception of Ukrainian refugees. The Temporary Protection Directive is applied in the Nordics only in Sweden and Finland; in Denmark, Iceland and Norway, national legislation takes precedence. In Norway, the system is based on previous experiences with relation to the mass collective applicants of international protection from Bosnia and Herzegovina and Kosovo. Despite certain differences, Ukrainians are granted broadly the same rights in all Nordic countries with regard to temporary residence permits, accommodation, certain financial support, healthcare and the right to education and schooling for children. Adults do have the right to work, however the process for obtaining a work permit varies slightly across the Nordic countries.

The number of Ukrainians who have sought international protection in the Nordic countries varies. However, it is difficult to provide exact figures as Ukrainians are exempt from visa requirements and therefore do not need to apply for international protection immediately upon arrival. Sweden is the country that has received the most applications according to the statistics available at the time of the conference (34 529 applications). This compares with Iceland, which has received the lowest number of Ukrainians (997 applications). Denmark, which already has a large Ukrainian diaspora, estimates that 29 000 Ukrainians have arrived in the country, of whom 26 600 have applied for international protection. Many Ukrainians are also seeking asylum protection to secure a residence permit for a longer period, which results in parallel processes.

Housing is the major challenge

Accommodation is described as the biggest challenge in all the Nordic countries. Henrik Thomassen, Deputy Director at the Danish Immigration Service, describes in particular the challenges faced by Denmark, which has built up capacity for around 2 000 asylum seekers per year. Although other countries, such as Sweden, Finland and Norway, have been prepared to receive larger numbers, the challenge has been to scale up operations in such a short time period, particularly during the initial stages of receiving and registering all applications.

Anna Lindblad, Deputy Director of Legal Affairs at the Swedish Migration Agency, stated that the development of a digitalised application process is crucial to reducing long queues. Rafael Bärlund, Head of EMN Finland, also highlighted the importance of an updated IT system. Iris Kristinsdóttir, Head of the Department for International Protection at the Icelandic Directorate of Immigration describes digital development as a positive change that was necessitated by the reception of Ukrainians.

Knut Holm, acting Head of the International Unit at the Norwegian Directorate of Immigration, emphasises that this involves, above all, new needs that must be met. Instead of men arriving on their own, it is now primarily women and children who are seeking protection. Schooling for Ukrainian children is therefore becoming a key issue, alongside accommodation suited to women and children. Cooperation with local authorities and the resources they have at their disposal are thus of great importance for the reception process. Consequently, it is important to distribute responsibility evenly across the country, something Finland claims to have succeeded in doing.

With regards to Sweden, it was mentioned the new law coming into force in July 2022, which entitles the Swedish Migration Agency to allocate refugees to local authorities to ensure a more even distribution. Denmark already has a distribution system in place; however the situation is currently strained for local authorities. In Iceland, many remain in reception centres. Regardless of the country we look at, the situation means that many Ukrainians are accommodated in private homes rather than in state-run facilities. In Finland, 68 % are housed in private accommodation, whilst the figure stands at 50 % in Norway. Another challenge highlighted by Norway is the issue of pets that many Ukrainians bring with them – including the risk of rabies, but also the need for sufficient quarantine capacity.

Guest panel of researchers and civil society representatives

The afternoon panel, moderated by Bernd Parusel from the Swedish Institute for European Policy Studies (Sieps), featured researchers and representatives from civil society who shared their views on the reception of Ukrainians, but was also aimed at identifying lessons that could improve future reception efforts. Olle Hammar of the Research Institute of Industrial Economics in Stockholm provided a historical overview, highlighting the countries where Ukrainians have primarily sought refuge – which, from a Nordic perspective, is Denmark. Both the Red Cross and the Ukrainian Alliance confirmed that accommodation is a key issue. Anna Garvander, Head of Unit at the Red Cross, explained that needs have changed over time but that accommodation remains a recurring issue. Aljona Sandgren from the Ukrainian Alliance emphasised, however, that many people, above all, experience a serious need simply to talk to someone.

Christopher Jamil de Montgomery of the Research Centre for Migration, Ethnicity and Health at the University of Copenhagen, who has conducted research primarily into integration, emphasised above all the need for stability. It is important not to have to worry about residence permits when there is great concern about what is happening in the home country and about the people who are still there. It is also important to begin the integration process as soon as possible, regardless of any intentions to stay in the country, as this will impact their future. Above all, children need to start school. According to Jamil de Montgomery, it is therefore of great importance that there are sufficient resources in place in schools. Gisela Thäter, Senior Legal Adviser at the United Nations High Commissioner for Refugees (UNHCR) for the Nordic and Baltic countries, saw a risk that Ukrainian children would continue with distance learning from Ukraine instead of starting school locally.

It is important to meet different needs and learn from one another

In conclusion, the second panel summarised the conference. The war in Ukraine has largely created a new situation, but there are lessons to be learned from previous mass exoduses, such as those from the Balkans and Syria. Basic needs such as food and shelter are important, but there are also social and cultural needs that must be met. In addition, it is important not to create different systems for different groups of refugees, but to ensure that everyone has equal rights. Above all, the conference has shown that there are both similarities and differences within the Nordic region and that we can learn from one another by sharing our experience and knowledge.