When performance-based financial rewarding fails: A case study of SFI Bonus policy introduction and abolishment

Abstract: This study investigates the implementation failure of the pay-per-performance SFI Bonus scheme implemented in the adult language education in Sweden. The study builds on the synthesis of a top-down and bottom-up approach by employing the 'ambiguity and conflict' model for carrying out the investigation. The key theme of this paper is that the level of ambiguity and conflict surrounding the policy, shape the implementation process, and influence the policy outcome. The purpose of this study is to build a sufficient explanation of why this policy was abolished by using theoretical assumptions as a point of departure. Furthermore, this research is a case study that analyses the national policy intention and its local implementation, in Malmö Municipality, through the experience of local-level actors. Thus, this study is twofold. It examines how 'ambiguity and conflict embedded in the policy has shaped the implementation, and builds a plausible explanation for understanding to what extent and for what reasons SFI Bonus failed to achieve its policy goals. The data collection consists of government document analysis political discussions in the Parliament as well as interviews with the local-implementers in Folkhögskola and Komvux. Findings from the study suggest that SFI Bonus is characterized by political implementation due to a high policy conflict and low ambiguity. Furthermore, power among central actors played a crucial role in implementing the policy. SFI Bonus failed to respond to the addressed issues before becoming national policy. Shortly, the study demonstrates that the SFI Bonus scheme failed to achieve its intention due to shortcomings embedded in the policy creation stage rather than the actual implementation stage. Therefore it emphasizes the benefit of employing a top-down approach for further investigation.