Activation policies, especially formal upskilling, can strengthen social inequality among long-term unemployed people. Also, receiving skill-enhancing activities may be at odds with the ‘work first’ principle. Drawing on interviews with frontline workers in the Norwegian employment and welfare service (NAV), this article analyses how frontline workers handle the challenging aspects arising from activation policies in providing enabling activities to claimants who need comprehensive support. The findings suggest that frontline workers face claimants who expect to embark on an education, and on the contrary, claimants who lack motivation or capability to do so. In both cases, frontline workers are challenged in terms of experiencing contradictory expectations from policies and users and in assessing future outcomes and suitability of the services. Education activities provided by the public employment agency (PES) involves multiple policy fields and require specific competency on the part of frontline workers.

This article examines how jobcentre advisors judge the individual deservingness of their clients and investigates what role these judgements play in translating activation policies into practice. The analysis draws on qualitative data gathered in a research project on back-to-work agreements that involved several German jobcentres. It is shown that advisors vary the intensity of ‘demand’ depending on whether benefit recipients fulfil reciprocity expectations and are deemed to have control over the unemployment situation. Whether or not they choose an enabling, supporting approach, and the extent to which they do so, depends on judgements about the client’s amenability to change and the presumed outcome of labour market policy instruments. Moreover, the analysis indicates that frontline workers use experiential cues such as appearance and self-presentation in the face-to-face encounters in order to interpret the client. The findings highlight the relevance of the normative dimension of frontline work.