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With a focus on the position of EU mobile workers in the Dutch meat industry, this article discusses the multi-level State efforts to enhance protection of workers who experienced limited protection of existing State and private enforcement institutions. The COVID-19 pandemic, with virus outbreaks at Dutch meat plants, fuelled public and political will to structurally improve these workers' precarious work and living conditions. Yet, the process of policy change is slow. The authors show it is the gradual transformation in the institutional environment that the State needs to counter to become more protective for EU mobile workers.

Using the gradual institutional change approach and the concept of State ignorance, the authors examine State responses drawing on interviews with expert stakeholders in the public and private domain, public administration records and newspaper articles.

Through knowledge creation, boosted social dialogue mechanisms, enhanced enforcement capacity and new housing legislation, the Dutch State focuses on countering gradual institutional change through which existing institutions lost their effectiveness as protectors of EU mobile workers. The organization of work is, nevertheless, not (yet) fundamentally addressed with tighter public legislation.

The findings contribute to a more nuanced understanding of the role of the State as multifaceted actor in institutional change processes towards increased protection for EU mobile workers.

Building on perspectives from the study of multilevel governance, migrants' inclusion and emergency management, this article asks how differences across national regulations for foreign residents, work eligibility and access to national emergency supports intersected with local approaches in responding to migrants.

This article examines national policy adjustments and parallel subnational governance early in the pandemic for three groups of foreign residents: international students, technical interns and co-ethnics with long-term visas, primarily Brazilians and Peruvians. It uses Japanese-language documents to trace national policy responses. To grasp subnational governance, the article analyzes coverage in six Japanese regional newspapers from northern, central and western Japan, for the period of April 1 to October 1, 2020.

National policies obstructed or enabled migrants' treatment as members of the local community but did not dictate this membership, which varied according to migrant group. Migrants' relationship to the community affected available supports.

The article brings together perspectives on multilevel governance, emergency management and migrants' inclusion. It exposes how different migrant groups' ties to the local community affected access to supports.