The Governance of Active Welfare States in Europe

Transcription

1 The Governance of Active Welfare States in Europe

2 Work and Welfare in Europe Series Editors: Denis Bouget, University of Nantes, France, Jochen Clasen, University of Edinburgh, UK, Ana Guillén Rodriguez, University of Oviedo, Spain, Jane Lewis, London School of Economics and Political Science, UK and Bruno Palier, Sciences-po Paris, France Titles include: Sigrid Betzelt and Silke Bothfeld ACTIVATION AND LABOUR MARKET REFORMS IN EUROPE Challenges to Social Citizenship Sonja Drobnic and Ana Guillén Rodriguez WORK-LIFE BALANCE IN EUROPE TheRoleofJobQuality Colette Fagan, Maria Gonzalez Menendez and Silvia Gomez Anson WOMEN IN MANAGEMENT European Employment Policy Neil Fraser, Rodolfo Gutierrez and Ramon Pena-Cassas WORKING POVERTY IN EUROPE Paolo Graziano, Sophie Jacquot and Bruno Palier THE EU AND THE DOMESTIC POLITICS OF WELFARE STATE REFORMS Europa, Europae Karl Hinrichs and Matteo Jessoula LABOUR MARKET FLEXIBILITY AND PENSION REFORMS Flexible Today, Secure Tomorrow? Trudie Knijn WORK, FAMILY AND TRANSITIONS TO ADULTHOOD IN EUROPE Birgit Pfau-Effinger and Tine Rostgaard CARE, WORK AND WELFARE IN EUROPE Rik van Berkel, Willibrord de Graaf and Tomáš Sirovátka THE GOVERNANCE OF ACTIVE WELFARE STATES IN EUROPE Work and Welfare in Europe Series Standing Order ISBN (outside North America only) You can receive future titles in this series as they are published by placing a standing order. Please contact your bookseller or, in case of difficulty, write to us at the address below with your name and address, the title of the series and the ISBN quoted above. Customer Services Department, Macmillan Distribution Ltd, Houndmills, Basingstoke, Hampshire RG21 6XS, England

3 The Governance of Active Welfare States in Europe Edited by Rik van Berkel Utrecht University, The Netherlands Willibrord de Graaf Utrecht University, The Netherlands and Tomáš Sirovátka Masaryk University, Czech Republic

4 Selection and editorial matter Rik van Berkel, Willibrord de Graaf and Tomáš Sirovátka 2011 Individual chapters their respective authors 2011 Softcover reprint of the hardcover 1st edition All rights reserved. No reproduction, copy or transmission of this publication may be made without written permission. No portion of this publication may be reproduced, copied or transmitted save with written permission or in accordance with the provisions of the Copyright, Designs and Patents Act 1988, or under the terms of any licence permitting limited copying issued by the Copyright Licensing Agency, Saffron House, 6-10 Kirby Street, London EC1N 8TS. Any person who does any unauthorized act in relation to this publication may be liable to criminal prosecution and civil claims for damages. The authors have asserted their rights to be identified as the authors of this work in accordance with the Copyright, Designs and Patents Act First published 2011 by PALGRAVE MACMILLAN Palgrave Macmillan in the UK is an imprint of Macmillan Publishers Limited, registered in England, company number , of Houndmills, Basingstoke, Hampshire RG21 6XS. Palgrave Macmillan in the US is a division of St Martin s Press LLC, 175 Fifth Avenue, New York, NY Palgrave Macmillan is the global academic imprint of the above companies and has companies and representatives throughout the world. Palgrave and Macmillan are registered trademarks in the United States, the United Kingdom, Europe and other countries. ISBN DOI / ISBN (ebook) This book is printed on paper suitable for recycling and made from fully managed and sustained forest sources. Logging, pulping and manufacturing processes are expected to conform to the environmental regulations of the country of origin. A catalogue record for this book is available from the British Library. Library of Congress Cataloging-in-Publication Data The governance of active welfare states in Europe / edited by Rik Van Berkel, Willibrord de Graaf, Tomáš Sirovátka. p. cm. (Work and welfare in Europe) Includes bibliographical references and index. 1. Welfare state Europe. 2. Europe Social policy. 3. Europe Politics and government 1989 I. Berkel, Rik van. II. Graaf, Willibrord de. III. Sirovátka, Tomáš. IV. Title. V. Series. HN373.5.G dc

5 Contents List of Tables and Figures Notes on the Contributors Acknowledgements RECWOWE Book Series: Work and Welfare in Europe Funding vii ix xiv xv xvii 1 The Governance of Active Welfare States 1 Rik van Berkel, Willibrord de Graaf and Tomáš Sirovátka 2 The Administration of Income Provision and Activation Services 22 Rik van Berkel 3 Accelerating Governance Reforms: the French Case 38 Anne Eydoux and Mathieu Béraud 4 Fragmented Governance Continued: the German Case 62 Irene Dingeldey 5 Steering with Sticks, Rowing for Rewards: the New Governance of Activation in the UK 85 Sharon Wright 6 The Governance of Activation Policies in Italy: from Centralized and Hierarchical to a Multi-Level Open System Model? 110 Paolo R. Graziano and Annelies Raué 7 The Liberal Governance of a Non-Liberal Welfare State? The Case of the Netherlands 132 Rik van Berkel and Willibrord de Graaf 8 Marketization in a Federal System: New Modes of Governance in Unemployment Insurance and Social Assistance in Switzerland 153 Franziska Ehrler and Fritz Sager v

6 vi Contents 9 Governance of Activation Policies in the Czech Republic: Uncoordinated Transformation 173 Tomáš Sirovátka and Jiří Winkler 10 Decentralization and Back to Centralization: the Swedish Case 195 Renate Minas 11 Governance of Integrated Activation Policy in Finland 216 Vappu Karjalainen and Peppi Saikku 12 The Governance of Active Welfare States in Europe in a Comparative Perspective 237 Rik van Berkel, Willibrord de Graaf and Tomáš Sirovátka Index 264

7 List of Tables and Figures Tables 1.1 Performance indicators in welfare-to-work programmes Potential effects of governance reforms Public expenditure on labour-market policies in 2007 (percentage of GDP) Main actors and agencies involved in administrating Unemployment Benefit (UB) and Social Assistance (SA) schemes (2010) Main actors and agencies in the provision of activation services (2010) The public service for placement and unemployment compensation (prior to 2005) The three circles of public employment services (since 2005) Unemployment compensation (insurance and solidarity schemes) and social assistance The implementation structure for income protection and activation in Germany (1990s and 2010) Implementation structure for income protection and activation in the UK (late 1980s and 2010) Employment and social policy governance models: a typology Passive and active labour-market policies (ALMP) expenditure in selected EU countries (percentage of GDP, 2005) Share of persons with an equalized disposable income below the poverty threshold in the EU Relative household consumption-based poverty in Italy, regional distribution Distribution of tasks before and after the 1997 reforms Main Italian trade unions internal composition (2009) Implementation structure for income protection and activation in the Netherlands (late 1980s and 2010) 134 vii

8 viii List of Tables and Figures 7.2 Volume of started activation trajectories ( ) Target groups of Work First (percentage of municipalities in which the named target group is the main target group of Work First programmes, ) Main governance reforms in Switzerland Trends in governance of activation after accession to the EU (2004) Main governance reforms in Sweden Ended unemployment periods in LAFOS (2004 7) Network governance model in activation policy 231 Figures 6.1 Total unemployment rate (percentages) Expenditure for services targeted to families, elderly people and the disabled ( ) Position of Labour Force Service Centres (LAFOS) within the administrative structure for activation policy 223

9 Notes on the Contributors Mathieu Béraud is Senior Lecturer in Economics at the University of Nancy 1 (Henri Poincaré), France, Researcher at 2L2S (Institute of Sociology, Lorraine, France) and GREE (Group of Research on Education and Employment). His fields of research are employment and social policies, as well as the organization of work and working conditions. He is participating in several national and international research programmes in these topics. Willibrord de Graaf is Associate Professor at the Department of Interdisciplinary Social Science, Utrecht University, the Netherlands. His research is in welfare state development, in particular labour market and activation; his interests include the theme of a multicultural society, and in particular the transition from school to work of young migrants. He is also involved with the homeless. Irene Dingeldey is Head of the research unit Changes in the Working Society, Institute of Work and Labour at the University of Bremen, Germany. She holds a PhD in social science and has worked on various comparative EU research Projects on family tax systems and labourmarket policies. Most recently she has edited a book on Governance of Welfare State Reform and contributed to several comparative books on labour-market reforms and the development of human rights. A comparison of Activating Welfare States will be published in Germany in Her articles have been published in peer-reviewed journals like the European Journal of Political Research, Journal of Social Policy, Feminist Economics and Politische Vierteljahresschrift. Franziska Ehrler studied Political Science and Economics at the Universities of Bern (Switzerland) and Bordeaux (France), and now works as a scientific collaborator at the Swiss Conference for Social Aid and Welfare and as a research assistant at the Centre of Competence for Public Management at the University of Bern. Her main research interests lie within the fields of social policy and family policy. ix

10 x Notes on the Contributors Anne Eydoux is Senior Lecturer in Economics, Researcher at the CRESS- Lessor, University of Rennes 2, France, and Associate Researcher at the Centre for Employment Studies. She is also a member of the European Network of Experts on Gender, Social Inclusion, Health and Long Term Care (EGGSI). Her fields of research are employment and social policies, social inclusion and gender studies. She has coordinated several national research programmes and is the author of many articles and book chapters on employment, social policies and gender. Paolo R. Graziano is Assistant Professor at Bocconi University, Italy and Visiting Fellow at the Centre for European Studies, Sciences-Politiques, Paris. He has collaborated on a number of comparative projects on topics relating to social policy, Europeanization and social integration. He has published two books in Italian on Europeanization (2004, Il Mulino) and CSR promotion policies (Franco Angeli, 2009, with Matteo Bassoli), has co-edited a book on Europeanization (Palgrave, 2007, with M.P. Vink). He has also published in the following international journals: European Journal for Political Research, European Political Science, European Journal of Social Security, International Journal of Comparative Labour Law and Industrial Relations, Global Social Policy, Journal of Social Policy, Regional and Federal Studies, Social Policy and Administration. Vappu Karjalainen is Senior Researcher at the National Institute for Health and Welfare (THL) in Helsinki, Finland and a Docent in Rehabilitation Science (University of Lapland, Finland). Her fields of interest are long-term unemployment, activation and rehabilitation policy, with a special focus on active social policy and network approaches in organization of welfare services. She has contributed to a recent book on governance of activation policy in Yuri Kazepov (ed.): Rescaling social policies. A comparative study on the path towards multi-level governance in Europe (London: Ashgate, 2010). Renate Minas is Associate Professor of Social Work at Stockholm University, Sweden, and a Researcher at the Institute for Futures Studies in Stockholm. Her fields of interest are welfare state reforms in Sweden and Europe, with a special focus on social assistance schemes and activation policies from a governance perspective. Some recent publications include Social expenditures and public administration are local social assistance costs in Sweden a matter of organisation?, International Journal of Social Welfare (2010), as well as The territorial organization of

11 Notes on the Contributors xi European social assistance schemes, Actors and governance arrangements in the field of social assistance and Rescaling development in Europe: convergence or divergence?, all published in Y. Kazepov (ed.) (2010) Rescaling of social welfare policies. A comparative study on the path towards multi-level governance in Europe (London: Ashgate, 2010). Annelies Raué currently works as Research Assistant at the Institute of Social and Economic Research and Policy (ISERP) at Columbia University, USA, where she focuses on the use and efficacy of social programmes, in particular education, in developing-country settings. She holds a Bachelor of European Studies from the University of Maastricht, the Netherlands (2008) and continued her studies as a Fulbright Fellow at Columbia University in New York, where she received a Master of International Affairs (2010). During her studies she worked with Professor Graziano in Italy at Bocconi University s Department of Institutional Analysis and Public Management. Fritz Sager is Professor of Political Science at the Centre of Competence for Public Management at the University of Bern, Switzerland. He is specialized in administrative studies and theory, policy research, programme evaluation, organizational analysis and Swiss politics. He has acted as external expert for the Federal Government in various policy fields such as health, transport, environment, security, vocational education and international relations. His research has been published in the Public Administration Review, Governance, Public Administration, Policy & Politics, Political Studies, West European Politics, Journal of Urban Affairs, Public Money & Management, Evaluation, Revue Internationale de Politique Comparée and the Swiss Political Science Review, among others. In 2010 he won the Marshall E. Dimock Award for the best lead article in Public Administration Review during the volume year Peppi Saikku (M.Soc.Sc.) is Researcher at the National Institute for Health and Welfare (THL) in Helsinki, Finland. She has participated in a number of national evaluation projects on integrated service structures in the fields of social and health care, employment services and rehabilitation. She has had several national publications in these topics. Tomáš Sirovátka is Professor of Social Policy at the Faculty of Social Studies, Masaryk University, Brno, Czech Republic. His research is focused on the labour market, employment and social policy. He has published numerous books in the Czech Republic and contributed

12 xii Notes on the Contributors to several comparative books on employment and social policies recently in A. Cerami and P. Vanhuysse (eds) Post-Communist welfare pathways. Theorizing social policy transformations in Central and Eastern Europe (Palgrave, 2009); in R. van Berkel and B. Valkenburg (eds) Making it personal. Individualising activation services in the EU (The Policy Press, 2007); and in A. Serrano Pascual and P. Magnusson (eds) Reshaping welfare states and activation regimes in Europe (Peter Lang, 2007). He has published in Journal of Comparative Policy Analysis, European Journal of Social Security, International Review of Sociology, International Journal of Sociology and Social Policy, Social Policy and Administration, Journal of Marriage and the Family, Czech Sociological Review and Prague Economic Papers. Rik van Berkel is Associate Professor at the School of Governance of Utrecht University, the Netherlands. His research interests are situated on the interface of social policy, public administration and public organization studies, and include active welfare state transformations, the introduction of new models for the provision of social services, and processes of change in public organizations responsible for the implementation of social policy and governance reforms. He has published several edited volumes and articles in journals such as Public Administration, Journal of Social Policy, Journal of European Social Policy, Social Policy and Society and European Journal of Social Work. Jiří Winkler is Associate Professor in Social Policy and social work at the Faculty of Social Studies, Masaryk University, Brno, Czech Republic. He researches and lectures on the design, management and implementation of public programmes in social policy and employment, and on organizational development in public administration institutions. He has coordinated or has taken part in many international and national research projects, in recent years focusing on labour-market and employment policy or childcare. Recently he has worked as a government expert for the Roma Decade Programme (integration in the labour market) and currently as national expert in the Peer Review Programme (for disability management in the labour market) of the European Commission. Aside from 70 articles in peer-reviewed journals, he is the author of several Czech monographs such as Implementation: institutional aspect of the analysis (2002), Theory of decision-making and social policy dynamic (2007) and co-editor of the Czech monographs Czech labour market and the European employment strategy (2004) and Labour market insecurities (2009).

13 Notes on the Contributors xiii Sharon Wright is Lecturer in Social Policy at the University of Stirling, UK. Her research has included an ethnographic street-level study of employment services implementation from adviser and user perspectives; a 3-year European research project comparing employment advice services for out-of-work adults in five countries; and an in-depth study, based in Australia for six months, comparing welfare reforms and the contracting-out of employment services with the UK. She was Managing Co-editor of the journal Social Policy & Society and member of the UK Social Policy Association Executive Committee ( ). Recent publications include Contracting out employment services: lessons from Australia, Denmark, Germany and the Netherlands (Child Poverty Action Group, 2008) and, with Dr Tess Ridge, Understanding Inequality, Poverty and Wealth: policies and prospects (The Policy Press, 2008).

14 Acknowledgements This book is the result of one of the activities undertaken in the context of the EU-funded sixth Framework Programme s Network of Excellence Reconciling Work and Welfare (RECWOWE; see The central objective of RECWOWE is to create a European research network capable of overcoming the fragmentation of existing research on questions of work and welfare in Europe; its aim is to promote the research excellence required in identifying and understanding the multiple tensions between work and welfare, as well as strategies for managing or resolving these. The network was begun in 2006, for a period of 5 years. We would like to thank the RECWOWE participants, and especially the participants and coordinators of the working group Toward employment-friendly welfare states, for providing an inspiring and stimulating environment for working on this book. xiv

15 RECWOWE Book Series: Work and Welfare in Europe Series Preface Since the late 1970s, both labour markets and welfare regimes have been under intense economic pressure and have been challenged by profound changes in social and demographic structures, as well as in social norms. The work welfare relationship has always been key to the modern state, but has undergone substantial change over recent decades. On the one hand, approaches to social provision have become more explicit in recognizing the importance of the relationship to employment, such that it is possible to suggest that social policies have become employmentled. On the other hand, it is possible to argue that there is a profound disconnect between labour markets and welfare systems, and that this partly explains the socio-economic problems that some countries are facing in terms of high unemployment and low activity rates in particular. Changes in labour markets, which have often tended towards more flexibilization, often pose challenges to the protective goals of social policies; thus the financial and programmatic configurations of social policies are often held to have impeded job creation. These arguments over the nature and effects of the relationships between labour markets and welfare systems have been, and are, intense and need to be further analysed. These relationships between labour markets and welfare systems constitute the backdrop for this series, which takes as its starting point the tensions that now characterize this centrally important relationship between work and welfare. Among these tensions, one might mention the tension between firms demands for more labour market flexibility and citizens needs for economic security; the tensions between the increased participation in paid work and the importance of family life; the greater fluidity in family relationships; the greater flexibility in the labour markets; the friction between quantity and quality of the jobs to be created, between job creation and maintaining or improving the quality of employment; and finally, the conflicts raised by the need to adapt (industrial) social protection systems to new labour market structures. xv

16 xvi RECWOWE Book Series: Work and Welfare in Europe This book series has been created within RECWOWE, a European network of excellence created within the 6 th Framework Programme of the European Commission (FP6). The full title for the network s activities is Reconciling Work and Welfare in Europe. Such a reconciliation is an important political objective for most EU member states. In order to meet it we need to improve our understanding of the relationship between work and welfare in very diverse national settings across member states. The RECWOWE series publishes books that analyse work and welfare, and that pay particular attention to the tensions that now characterize this relationship. Beyond the main tensions mentioned above, the series is open to any other forms of analysis of the relationship between work and welfare. It is committed to publishing work that focuses on the gender dimension of this relationship, on the impact of the relationship on migrants and, at its multi-level European, national and local institutional dimensions. Denis Bouget, University of Nantes Jochen Clasen, University of Edinburgh Ana Guillen, University of Oviedo Bruno Palier, Sciences-po Paris Jane Lewis, London School of Economics and Political Science

17 Funding This book has been published thanks to the European research project RECWOWE (Reconciling Work and Welfare in Europe), , co-funded by the European Commission, under 6th Framework Programme for Research Socio-economic Sciences and Humanities (contract nr ) in the Directorate-General for Research. The information and views set out in this book are those of the authors and do not necessarily reflect the official opinion of the European Union. Neither the European Union institutions and bodies nor any person acting on their behalf may be held responsible for the use which may be made of the information contained therein. xvii