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Research Article

“Being a Risk” or “Being at Risk”: Factors Shaping Negotiation of Concerns of Radicalization within Multiagency Collaboration in the Nordic Countries

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ABSTRACT

Multiagency collaboration between state and municipal actors such as schools, social services and the police is at the core of the Nordic countries’ approach to preventing radicalization and violent extremism. Yet, assessment of reported concerns of radicalization differs across countries. This qualitative study analyze how professionals negotiate assessments to identify factors that shape whether a concern of radicalization develops into a perception of risk. We argue that differences in structural factors and “institutional logics” in addition to trustful relations between practitioners at the local level affect collaboration and shape the perception of the task when the assessments of concrete concerns are negotiated.

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  1. All the below listed persons has made a significant contribution to the journal article. They share responsibility and accountability for the results of the research. They have all agreed on this journal to which we have submitted the article.

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Disclosure statement

No potential conflict of interest was reported by the authors.

Supplementary material

Supplemental data for this article can be accessed online at https://doi.org/10.1080/17419166.2023.2220117

Notes

1. Brian W. Head and John Alford, “Wicked Problems: Implications for Public Policy and Management,” Politics, Public Administration & International Relations 47, no. 6 (2015): 711-39.

2. Chris Huxham and Siv Vangen, Managing to Collaborate: The Theory and Practice of Collaborative Advantage (New York: Routledge, 2005).

3. Patricia H., Thornton, William Ocasio, and Michael Lounsbury, The Institutional Logics Perspective: A New Approach to Culture, Structure, and Process (Oxford: University Press on Demand, 2012).

4. Oluf Gøtzsche-Astrup, Lasse Lindekilde, Anna Maria Fjellman, Tore Bjørgo, Randi Solhjell, Håvard Haugstvedt, Jennie Sivenbring, Robin Andersson Malmros, Mari Kangasniemi, Tanja Moilanen, Ingvild Magnæs, Tina Wilchen Christensen and Christer Mattsson (forthcoming). “Trust Across Institutional Logics? Perceptions of Countering Violent Extremism and Interagency Collaboration among Social Workers, Teachers and Police in the Nordic Countries.”

5. Annemarie van de Weert and Quirine A. M. Eijkman, “Subjectivity in Detection of Radicalisation and Violent Extremism: A Youth Worker’s Perspective,” Behavioral Sciences of Terrorism and Political Aggression, 11, no. 3 (2019): 191-214: doi: 10.1080/19434472.2018.1457069.

6. Karen Broadhurst, Chris Hall, and Dave Wastell, “Risk, Instrumentalism and the Humane Project in Social Work: Identifying the Informal Logics of Risk Management in Children’s Statutory Services,” The British Journal of Social Work 40, no. 4 (2010): 1046-64.

7. Thornton et al., “The Institutional Logics Perspective;” Royston Greenwood, Christine Oliver, Kerstin Sahlin, and Roy Suddaby, “Introduction,” in The SAGE Handbook of Organizational Institutionalism, ed. Royston Greenwood, Christine Oliver, and Roy Suddaby (Thousand Oaks: Sage Publications Ltd, 2008), 1-46. doi: 10.4135/9781849200387.n1; Richard W. Scott, Institutions and Organizations. Ideas, Interests and Identities (Thousand Oaks. Sage Publications Ltd., 1995). doi: 10.3917/mana.172.0136).

8. Jennie Sivenbring and Robin Andersson Malmros, Mixing Logics: Multiagency approaches for countering violent extremism (Gothenburg: University of Gothenburg, 2019), 138.

9. (Dorte Sestoft, Michael Rasmussen, Kathrine Vitus, and Lena Kongsrud, “The Police, Social Services and Psychiatry Cooperation in Denmark: A New Model of Working Practice between Governmental Sectors: A Description of the Concept, Process, Practice and Experience,” International Journal of Law and Psychiatry 37, no. 4 (2014): 370-75; Anne-Sophie Hemmingsen, An Introduction to the Danish Approach to Countering and Preventing Extremism and Radicalization. DIIS Reports (Copenhagen Danish Institute for International Studies, 2015); Randi Solhjell, “Practices in Multiagency Collaboration against Violent Extremism at the City Level: Nordic Approaches,” Multidisciplinary Digital Publishing Institute Proceedings 77, no. 1 (2021): 13; Mette-Louise Johansen, “Navigating the Politics of Anxiety: Moral Outrage, Responsiveness, and State Accountability in Denmark,” Conflict and Society 4, no. 1 (2018): 9-22).

10. Axel. P. Schmid, “Radicalization, De-radicalization, Counter-radicalization: A Conceptual Discussion and Literature Review,” ICCT Research Paper 97, no. 1 (2013): 22.

11. Sivenbring and Malmros, Mixing Logics; “Collaboration in Hybrid Spaces: The Case of Nordic Effort to Counter Violent Extremism,” Journal for Deradicalization 29 (2021): 54-91.

12. Sivenbring and Malmros, “Collaboration in Hybrid Spaces.”

13. Sivenbring and Malmros, Mixing Logics, 38.

14. Lotte Bøgh Andersen, “What Determines the Behaviour and Performance of Health Professionals? Public Service Motivation, Professional Norms and/or Economic Incentives,” International Review of Administrative Sciences 75, no. 1 (2009): 79-97; Martine R. Haas, and Sangchan Park, “To Share or Not to Share? Professional Norms, Reference Groups, and Information Withholding Among Life Scientists,” Organization Science 21, no. (2010): 873-91.

15. Thornton et al., The Institutional Logics Perspective, 2.

16. Trish Reay and C. R. Hinings, (2009). “Managing the Rivalry of Competing Institutional Logics,” Organization Studies 30, no. 6 (2009): 629-52; Royston Greenwood, Amalia Magan Díaz, Stan Xiao Li, and José Céspedes Lorente, “The Multiplicity of Institutional Logics and the Heterogeneity of Organizational Responses,” Organization Science 21, no. 2 (2010): 521-39.

17. Lasse Lindekilde, “Refocusing Danish Counter-Radicalisation Efforts: An Analysis of the (Problematic) Logic and Practice of Individual De-Radicalisation Interventions,” in Counter-Radicalisation: Critical Perspectives, ed. Christopher Baker-Beall, Charlotte Heath-Kelly, and Lee Jarvis (London: Routledge, 2014), 230-31.

18. The Institutional Logics Perspective.

19. Sivenbring and Malmros, Mixing Logics.

20. Building on Sivenbring and Malmros, Mixing Logics, 133.

21. Mick Cooper, Yusef Evans and Joanne Pybis, “Interagency Collaboration in Children and Young People’s Mental Health: A Systematic Review of Outcomes, Facilitating Factors and Inhibiting Factors,” Child: Care, Health and Development 42, no. 3 (2016): 325-42; Randi Solhjell, Jennie Sivenbring, Mari Kangasniemi, Hanna Kallio, Tina W. Christensen, Håvard Haugstvedt, and Ingvild G. Magnæs, “Experiencing Trust in Multiagency Collaboration to Prevent Violent Extremism: A Nordic Qualitative Study,” Journal for Deradicalisation 32 (2022): 164-91.

22. Anne Edwards, Harry Daniels, Tony Gallagher, Jane Leadbetter, and Paul Warmington, Improving Inter-professional Collaborations: Multi-agency Working for Children’s Wellbeing (London: Routledge, 2009); Karen Broadhurst, Chris Hall, and Dave Wastell, “Risk, Instrumentalism and the Humane Project in Social Work: Identifying the Informal Logics of Risk Management in Children’s Statutory Services,” The British Journal of Social Work 40, no. 4 (2010): 1046-64.

23. Gøtzsche-Astrup et al., “Trust across Institutional Logics?.”

24. Robin Andersson Malmros, “Translating Ideas into Actions: Analyzing Local Strategic Work to Counter Violent Extremism,” Democracy and Security 17, no. 4 (2021): 399-426; Hemmingsen, An Introduction to the Danish Approach to Countering and Preventing Extremism and Radicalization.

25. Sivenbring and Malmros, Mixing Logics.

26. Ibid.; Malmros, “Translating Ideas into Actions.”

27. Hemmingsen, An Introduction to the Danish Approach to Countering and Preventing Extremism and Radicalization.

28. Mette-Louise Johansen, “Epidemic Policing: The Spreading of Counter-Radicalization in Denmark: Environment and Planning D,” Society and Space 38, no. 3 (2020): 472-89.

29. Sivenbring and Malmros, Mixing Logics.

30. For further discussion, see ibid.

31. Based on Sivenbring and Malmros, Mixing Logics, 138.

32. Cooper et al., “Interagency Collaboration in Children and Young People’s Mental Health.”

33. Rita Augestad Knudsen, “Measuring Radicalisation: Risk Assessment Conceptualisations and Practice in England and Wales,” Behavioral Sciences of Terrorism and Political Aggression 12, no. 1 (2020): 37-54; J. Reid Meloy and Mary Ellen O’Toole, “The Concept of Leakage in Threat Assessment,” Behavioral Sciences & the Law 29, no. 4 (2011): 513-27.

35. Cooper et al., “Interagency Collaboration in Children and Young People’s Mental Health;” Kate Ford, Annemarie Newbury, Zoe Meredith, et al., “Understanding the Outcome of Police Safeguarding Notifications to Social Services in South Wales,” The Police Journal 93, no. 2 (2020): 87-108; Sestoft et al., “The Police, Social Services and Psychiatry Cooperation in Denmark.”

36. Edwards et al., Improving Inter-professional Collaborations.

37. Julie Battilana, Marya Besharov, and Bjoern Mitzinneck, “On Hybrids and Hybrid Organizing: A Review and Roadmap for Future Research,” in The SAGE Handbook of Organizational Institutionalism, ed. Royston Greenwood, Christine Oliver, Thomas B. Lawrence, and Renate E. Meyer, 2nd ed. (Thousand Oaks: Sage Publications Ltd., 2017), 128-62.

38. Thornton et al., The Institutional Logics Perspective.

39. Sivenbring and Malmros, Mixing Logics.

40. Solhjell et al., “Experiencing Trust in Multiagency Collaboration to Prevent Violent Extremism: A Nordic Qualitative Study.”

41. Clark McCauley and Sophia Moskalenko (2017). Friction: How Conflict Radicalizes Them and Us “New York: Oxford University Press, 2017); Randy Borum, “Radicalization into Violent Extremism II: A Review of Conceptual Models and Empirical Research,” Journal of Strategic Security 4, no. 4 (2011): 37-62; Schmid, “Radicalization, De-radicalization, Counter-radicalization;” Quian Wiktorowicz, Radical Islam Rising: Muslim Extremism in the West (Lanham: Rowan and Littlefield Publishers, 2005; Donatella della Porta, Robert H. Bates, Ellen Comisso, et al., Social Movements, Political Violence, and the State (Cambridge: Cambridge University Press, 2011).

42. Steinar Kvale and Sven Brinkmann, Interview: Introduktion til et håndværk [Interview: Introduction to a Craft] (Copenhagen: Hans Reitzel Publishers, 2009).

43. Anselm Strauss and Juilet Corbin, Basics of Qualitative Research: Techniques and Procedures for Developing Grounded Theory (Thousand Oaks: Sage Publications Ltd., 1998).

44. Matthew. B. Miles and Michael A. Huberman, Qualitative Data Analysis: An Expanded Sourcebook (Thousand Oaks: Sage Publications Ltd., 1994).

45. Strauss and Corbin, Basics of Qualitative Research; Matthew B. Miles, (1979) “Qualitative Data as an Attractive Nuisance: the Problem of Analysis,” Administrative Science Quarterly, special issue on Qualitative Methodology 24, no. 4 (1979): 590-601.

46. Sivenbring and Malmros, Mixing Logics; “Collaboration in Hybrid Spaces.”

47. Solhjell et al., “Experiencing Trust in Multiagency Collaboration to Prevent Violent Extremism.”

48. Mary Atkinson, Megan Jones, and Emily Lamont, (2007). Multiagency Working and Its Implications for Practice: A Review of the Literature (Reading: CfBT Education Trust, 2007); P. Sloper, “Facilitators and Barriers for Co-ordinated Multi-Agency Services,” Child: Care, Health and Development 30, no. 6 (2004): 571-80; Oluf Gøtzsche-Astrup, Lasse Lindekilde, and Anna Maria Fjellman, “Perceived Legitimacy of CVE Policies and the Willingness to Report Concerns of Radicalization to Authorities in the Nordic Countries,” Terrorism and Political Violence (2021) doi: 10.1080/09546553.2021.1972977.

49. Solhjell et al., “Experiencing Trust in Multiagency Collaboration to Prevent Violent Extremism;” Gøtzsche-Astrup et al., “Perceived Legitimacy of CVE Policies and the Willingness to Report Concerns of Radicalization to Authorities in the Nordic Countries.”

50. Håvard Haugstvedt and Svein Erik Tuastad, ““It Gets a Bit Mess:y” Norwegian Social Workers’ Perspectives on Collaboration with Police and Security Service on Cases of Radicalisation and Violent Extremism,” Terrorism and Political Violence 33 (2021), doi: 10.1080/09546553.2021.1970541.

51. Quirine Eijkman and Josein Roodnat, “Beware of Branding Someone a Terrorist: Local Professionals on Person-Specific Interventions to Counter Extremism,” Journal for Deradicalization 10 (2017): 175-202; Anake van Gorp, Stijn Hoorens, and Micheal Kowalski (2014). “Omgaan met en managen van ethische vragen bij terrorismebestrijding,” Magazine Nationale Veiligheid en Crisisbeheersing 12, no. 5 (2014): 52-53; Sivenbring and Malmros, “Collaboration in Hybrid Spaces.”

Additional information

Funding

The work was supported by the the Nordic Societal Security Programme at Nordforsk .

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