Skills, skills formation, and mobility pathways of migrant workers

Keywords:

migration

Synopsis

This report presents the findings of the research for ‘Work Package 4’ of the Horizon Europe Project “Skill Partnerships for Sustainable and Just Migration Patterns (SKILLS4JUSTICE),” co-funded with support from the European Commission (S4J-project no. 101132435-HORIZON-CL2-2023-TRANSFORMATIONS-01/ 03).

Norway has experienced a long-term transition from a country of emigration to one of sustained immigration, shaped by global events, EU expansion, and humanitarian crises. As of 2025, migrants constitute 17.2% of Norway’s population and represent remarkable diversity, with over 200 nationalities. The largest groups originate from Poland, Ukraine, Lithuania, Syria, and Sweden. Migration to Norway is driven by a combination of work, family unification, education, and refuge. The migrant population is mixed in age (slightly younger than the general Norwegian population but aging overall) and in gender composition, though some groups are highly gender-skewed (e.g., Thailand). More than half have lived in Norway over 10 years, indicating long-term settlement patterns.

Employment outcomes showed both strengths and challenges. Employment rate was strikingly high at 86%, and 47% worked in professional occupations. Healthcare, scientific/technical professions, retail, and construction were major sectors of employment. However, persistent skill underutilisation existed: while 91% felt competent at work, only about half experienced a good match between their qualifications and job. Overqualification was common, and foreign credential recognition remains a bottleneck -particularly for migrants from outside Europe or those with vocational and regulated professions (e.g., healthcare). Recognition was highest for recent arrivals and the highly educated, and lowest for migrants from non-EU Europe.

The survey revealed that migrants invest heavily in their education after arrival, mirroring the qualitative accounts of migrants who return to study because their foreign qualifications are undervalued. At the same time, 38% report receiving no adaptation support from employers, while others rely on on-the-job training, internal courses, or informal mentoring. Despite barriers, migrants generally report strong communication skills and trust in the availability of workplace training.

Experiences of workplace fairness were mostly positive, though younger migrants and men more often reported high-risk work environments or concerns about layoffs. Quantitative findings showed relatively low reported discrimination, yet qualitative accounts highlight subtle exclusion, stereotyping, and unequal recruitment practices, especially affecting migrants with non-European backgrounds. Language requirements and bureaucratic systems were perceived as disproportionately demanding and central mechanisms of structural gatekeeping.

Social integration was marked by active participation in both local activities (64%) and professional organisations (63%), though engagement declined the longer migrants had resided in Norway. Language-wise Norwegian dominated at work, but home-country languages were central in private life.

Policy developments over the past decade signal a shift toward more conditional integration, even as Norway continues to depend on migrant labour in key sectors. The temporary protection scheme for Ukrainians illustrates this dual approach of humanitarian openness combined with regulatory tightening.

Key conclusions:

1. Norway has a well-established, diverse migrant population, with long-term settlement and strong demographic contributions.
2. Labour market participation is high, but skill mismatch and underutilisation are persistent structural issues, driven by demanding language norms and weaknesses in credential recognition.
3. Sectoral segregation remains pronounced, with migrants overrepresented in lower-wage, high-demand sectors (cleaning, hospitality) and underrepresented in regulated professions.
4. Integration policies are increasingly work-oriented yet often place the burden of adaptation on migrants rather than institutions.
5. Despite relatively positive perceptions of fairness, migrants still face structural and subtle forms of discrimination, affecting career progression and belonging.
6. Norway’s future labour shortages and ageing population make improved skill recognition, targeted sectoral pathways, and inclusive labour-market practices both economic and social imperatives.

Author Biographies

Tarja Irene Tikkanen

Professor
Faculty of Arts and Education
Department of Education and Sports Science
University of Stavanger

Hande Eslen Ziya

Professor
Faculty of Social Sciences
Department of Media and Social Sciences
University of Stavanger

Tord Austdal

Associate Professor
Faculty of Arts and Education
Department of Education and Sports Science
University of Stavanger

Silje Henriette Amalia Normand

Associate Professor
Faculty of Arts and Education
Department of Education and Sports Science
University of Stavanger

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March 9, 2026

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