Professional responses to exogenous change: the social work profession and the jurisdictional domain opened up by the Norwegian welfare-to-work reform

Abstract

ABSTRACT This paper examines the social work profession’s responses to the organizational reform of the Norwegian Labour and Welfare Administration, which opened a new jurisdictional domain of employment services to groups marginalized in the labour market. This domain was not colonized by any established professions, and social workers were the only occupation in the reformed organization with the character and identity of a profession. With existing research as the main source, the paper shows that despite having influenced the reform policy, during reform implementation, agents of the profession refrained from expanding the jurisdiction of social workers and instead protected and maintained its established jurisdiction based on municipal social services. Potential explanations behind the response are discussed: the pressure from the organizational context, combined with the profession’s ingrained distrust of ‘the system’; the ‘dirtiness’ of welfare-to-work tasks, around which some scepticism existed; and the profession’s strong value base and lack of capacity to articulate its knowledge base and, subsequently, theorize its knowledge and skills as resources that were key to meeting the reform’s welfare-to-work goals. All three explanations have some explanatory power but must still be considered tentative and in need of more research.