Cross-Sectoral Youth Policy taking one step back MAGDA NICO POOL OF EUROPEAN YOUTH RESEARCHERS CIES- UNIVERSITY INSTITUTE OF LISBON, PORTUGAL MAY 5 TH 2016 ISTAMBUL Outline 1. Initial reflections Life is cross-sectoral What about the triangle? 2. Analysis of documentation Goal, limits and limitations Methodology 3. Analysis of the official discourses 4. Analysis of the (European) national practices 5. Conclusions 1
Initial reflections Life is cross sectoral Things happen at the same time thus youth policies must take the different combinations of overlapping and accumulation of social conditions into account. (Overlapping and opposite) Things happen for conjoint reasons thus youth policies must be multidimensional and dynamic. (the accumulation of disadvantages) Things happen really fast thus cross-sectoral youth policy is pressing. (the demographically dense period of life) Initial reflections Life is cross sectoral Things happen at the same time thus youth policies must take the different combinations of overlapping and accumulation of social conditions into account. Pluralization of the life course (Overlapping and opposite) Differentiation of the life course Things happen for conjoint reasons thus youth policies must be multidimensional and dynamic. (the accumulation of disadvantages) Things happen really fast thus cross-sectoral youth policy is pressing. (the demographically dense period of life) Prolongation of the life course 2
Initial reflections Life is cross sectoral Luís, life in shifts Luís is the first in his generation (of cousins) who did not go on to higher education. His choice of a professional course was received with some disappointment by his parents and family. Even greater was the concern at his decision to become a father at 24. As Luís said, with everything against him, he still wanted to be a father at that point in his life. In order to attain that, he has had to make sacrifices. For the first two years of his daughter s life, he worked day and night shifts in a part time job, alternating with those of his partner, just to guarantee that one of them was with their child at all times. In the statistics, however, Luís is just a part-time worker. Ana, the eternal bride Initial reflections Life is cross sectoral From a working class background, Ana is suffering from hyperreflexivity regarding her own life and from the incapacity to choose between lose-lose situations. Ana wants to leave her job (in her words, a very stressful one, marked by unpleasant hierarchical relations). Besides this professional goal, she wants to get married and pregnant. Knowing that one decision will exclude the other, she feels incapable of making a choice and is becoming more and more anxious, to the point that the only decision she seems able to make is to return to psychotherapy. 3
Initial reflections tensions and paradoxes Never ending debate of structure and agency Sociologist and their belief in social structure effect ON young people s lives vs. youth workers and the belief in activation and empowerment OF young people The biases of the terminology a formal, legally framed, cooperation vs. youth workers or workers in the youth sector to be policy change makers themselves Analysis of Documentation goal and limitations Goal: to contribute to overcome the lack of knowledge of the gaps and overlaps of cross-sectoral youth policy all over Europe, by providing an overview of existing information on cross-sectoral policy cooperation based on materials produced in the context of EU cooperation, the work from the Council of Europe, specific countries with concrete experiences in cross-sectoral cooperation. Context: This document was commissioned by the partnership between the European Commission and the Council of Europe in the field of youth in the framework of its work program 2014. Publications: Nico, Magda (2014), Life is Cross-sectorial, why wouldn t youth policy be?, Youth Partnership, available online. Nico, Magda (forthcoming 2015), From holistic needs to cross-sectoral measures, Perspectives on Youth #3. 4
Analysis of Documentation goal and limitations The (relatively short) window of observation The indirect access to the national youth policy practices and intentions The missing information on the context of production of the documents and reviews The lack of geographical and diachronical comparability Analysis of Documentation methodology Table 1. The documents analyzed GOAL SCOPE POLICY POLICY REVIEW Analysis of formal importance International 20 European 11 DATA REPORTS Analysis of operationalization Analysis of research structures National 21 National 17 5
Analysis of Documentation methodology Table 1. The documents analyzed GOAL SCOPE POLICY POLICY REVIEW Analysis of formal importance International 20 European 11 DATA REPORTS Analysis of operationalization Analysis of research structures National 21 National x Cross-sectoral youth policy Taken for granted? Important and popular concept Less controversial than other principles that underlie youth policy design The idea that the lives of (young) people are cross-sectoral is crosssectoral 6
Cross-sectoral youth policy Taken for granted? Does the importance in principle match the importance in practice? (i) to the extreme variation, heterogeneity and mutability of the organizational/political structure involved at a national level; (ii) to the power relations that tend to characterize the relation between the sectors (youth usually being in a more subordinated position) (iii) and to variable complicated channels and layers of vertical and horizontal communication involved in these processes. (iv) the undifferentiated use of expressions such as crosssectoral, inter-ministerial cooperation, transversal approach, integrated coordination, holistic perspective, etc.; (v) and specially to an unclear classification of the matches and mismatches between what kind of cross sectorial policy works in what kind of structure and for what purpose. Cross-sectoral youth policy Taken for granted? Does the importance in principle match the importance in practice? (i) to the extreme variation, heterogeneity and mutability of the organizational/political structure involved at a national level; (ii) to the power relations that tend to characterize the relation between POLITICAL the sectors AND (youth IDEOLOGICAL usually being SYSTEMS in a more AND subordinated WILL position) (iii) and to variable complicated channels and layers of vertical and horizontal communication involved in these processes. (iv) the undifferentiated use of expressions such as crosssectoral, inter-ministerial cooperation, transversal approach, integrated coordination, holistic perspective, etc.; (v) KNOWLEDGE, and specially to an EVIDENCE unclear classification AND DATA of the matches and mismatches between what kind of cross sectorial policy works in what kind of structure and for what purpose. 7
Analysis of the official discourses different understandings Figure 1. Different understandings of CSYP Cross sectorial Youth policy understandings (at national level) Vertical communication/ collaboration/cooperation between: Horizontal communication/ collaboration/cooperation between: Youth Policy making (namely Ministry of Youth) Yong people (namely through Youth organizations) Youth policy making (namely Ministry of Youth) and All other relevant ministries and departments Analysis of the official discourses - EU importance Youth Policy is a cross-sector, integrated policy aimed at young people, with young people and starting from the needs of young people. Its aim is to improve and develop the living conditions and participation of young people, encompassing the whole range of social, cultural and political issues affecting them and other groups in the society. (European Youth Forum, 1998) 8
Analysis of the official discourses EU definitions A&European&framework&for&youth&policy& These(statements(make(it(clear(that(youth(policy(is(not( merely(the(sum(of(ac?ons(taken(by(the(different(sectors( towards(young(people,(but(rather(a(conscious(and( structured(cross-sectoral(policy(of(the(youth(field(to(cooperate(with(other(sectors(and(co-ordinate(services(for( youth( (involving(young(people(themselves(in(the( process.(&( & EU&Youth&Report&(2012)& Foreword'of'the'Cyprus'presidency'3'The(EU(should( do(its(utmost(to(encourage(young(people(to(become( involved(in(shaping(the(eu s(future.(in(this(context( the(crea?on(of(new(cross-sectoral(partnerships(and( development(of(joint(projects(and(ini?a?ves(in(the( youth(sector(is(vital.(&& Importance ' Foreword'of'the'European'Commission'3'We(have(to( do(more(for(young(people(and(with(young(people(to( improve(this(situa?on.(mobilising(all(policy(areas( that(have(an(impact(on(young(people,(at(different( levels(of(governance,(and(developing(cross-sectoral( solu?ons(is(key.(at(the(same(?me(however,(young( people(should(be(more(involved(in(shaping(the( policies(that(affect(them.(&& & Renewed&framework&for&European&cooperaAon&in&the& youth&field&(2010j18)&&(2012)& The(framework(is(rooted(in(the(following(instruments:( evidence-based(policy-making;(mutual(learning;(regular( progress-repor?ng,(dissemina?on(of(results(and( monitoring;(structured(dialogue(with(young(people(and( youth(organisa?ons(and(mobilisa?on(of(eu(programmes( and(funds.(this(framework(sees(youth(work((1)(as(a( support(to(all(fields(of(ac?on(and(cross-sectoral( coopera?on(as(an(underlying(principle.(&& White&paper&(2001)& Youth(policy(is(considered( to(be(an( integrated( cross-sectoral(policy ( with(the(aim,( to(improve( and(develop(the(living( condi?ons(and( par?cipa?on(of(young( people(by(encompassing( the(whole(range(of(social,( cultural(and(poli?cal( issues(that(affect(them(as( well(as(other(groups(in( society. (( Nature Meanings(of(Crosssectorial(Youth(Policy( Figure 2. Definitions of CSYP European&Youth&Forum& (2008)& Implementa?on(of(the(crosssector(nature(of(youth(policy( by(crea?ng(links(with(other( relevant(policy(areas(that( affect(young(people ( &( This(more(structured( framework(should(ensure(a( genuine(cross-sector(youth( policy(at(the(european(level,( allowing(the(different(actors( to(have(a(proper( understanding(of(the(real( situa?on(and(needs(of(young( people ( An&EU&Strategy&for&Youth& &InvesAng&and&Empowering& (2009)& The(range(of(issues(that(affect(youth(mandates(cross-sectoral( policy(approaches(at(eu(and(na?onal(level.(youth(policy( cannot(advance(without(effec?ve(coordina?on(with(other( sectors.(in(turn,(youth(policies(can(contribute(to(delivering( results(in(areas(such(as(child(and(family(policy,(educa?on,( gender(equality,(employment,(housing(and(healthcare.(( &( Member(States(should(consider(implemen?ng(at(na?onal( level(cross-sectoral(policy-making.(cross-sectoral( coopera?on(should(also(be(developed(with(local(and(regional( actors,(which(are(crucial(for(implemen?ng(youth(strategies.(( Analysis of the official discourses EU proposal of clarification A. CSYP AS PRINCIPLE A1. Transversal Youth concerns all other sectors. Figure 3. Transversal CSYP Sector'A' The Ministers responsible for youth policy should also ensure that youth-related concerns are taken into account in these other policies (White paper 2001). This would imply a kind of supervision role by the Ministry responsible for youth which is inconsistent with the position they usually occupy within the formal hierarchy, and for that reason also extremely ambitious. Sector' ' Sector'D' Sector'C' Sector'B' 9
Analysis of the official discourses EU proposal of clarification A. CSYP AS PRINCIPLE A2. Integrated Youth is part of the interdependency system. Figure 4. Integrated CSYP Therefore both youth policy and each one of other policies have to ensure their effective and coherent co-existence. This would imply a mutual and regular co-consultation to avoid overlapping or disconnected goals. These consultations would imply that every sector or office is prepared to collect and organize, on a regular basis, relevant information. Policy based in this principle is extremely dependent on national organizational structures. SECTOR& & SECTOR&A& YOUTH& Analysis of the official discourses EU proposal of clarification B. CSYP AS A PROCESS WITH FIXED ROLES B1. Collaboration/ cooperation Youth as one of the peer actors and equal partner. In this version of cross-sectoral youth policy the relations are bilateral. The youth sector would share information and competences, objectives and goals, and also results with each one of the other relevant sectors (Behrooz Moramed-Afshari, 2014). Figure 5. Collaborative/ Cooperative CSYP SECTOR&A& This inter-sectoral cooperation implies recognized relationships formed to take short or long term actions that are effective, efficient or sustainable that in one sector alone (Behrooz Moramed-Afshari, 2014). SECTOR & YOUTH& SECTOR&B& This would mean that the collaboration would be fragmented in pairwise groups, and many potential for conjoint solutions could be wasted. A possible solution to avoid this would be the creation of inter-ministerial working group as a part of the structure to develop a national youth (Denstad, 2009). SECTOR&C& 10
Analysis of the official discourses EU proposal of clarification B. CSYP AS A PROCESS WITH FIXED ROLES B2. Coordination Youth leading the way of youth policy. Figure 6. Coordinator CSYP SECTOR&A& The main difference between this kind of crosssectoral youth policy and the previous one has to do with the role that the youth Ministry is able and willing to perform. With the right amount of means and resources, bilateral relations would be transformed in multilateral ones, exchanges of information goals and results. SECTOR & YOUTH& SECTOR&C& SECTOR&B& Analysis of the official discourses EU proposal of clarification C. CSYP AS A PROCESS WITH FLEXIBLE ROLES C1. Cross-cutting Issues One size does not fit all Figure 7. Crosscutting Youth issues All youth issues are cross-cutting by nature, each one of them has or implies different: presence or relevance in each country, urgency in each country or region, power relations with other governmental sectors, dependency on the work with and by NGOs, associations to prevention, intervention or sustainability needs, partnership possibilities and constraints. SECTOR'A' SECTOR'B' SECTOR ' 11
Analysis of the official discourses EU proposal of clarification CSYP AS A PROCESS WITH FLEXIBLE ROLES This would imply a destandardization of the youth policies at a national level, which might be looked at, from a European perspective, as a negative thing. However, doing that, it is ensured that the following is taken into account: organizational structure of each country, priorities of each country, the complexity of each cross-cutting issue, the variety of combinations of barriers to social inclusion experimented individually, the respect for the main principle mentioned above, that youth policy is by nature (but must be in practice) cross-sectoral. Figure 7. Cross-cutting Youth issues SECTOR'A' SECTOR'B' SECTOR ' Multiplied for each crosscutting issue. Analysis of the (European) National Practices Have the youth issues always been cross-sectoral? Domains Issues education, training and employment youth work and non-formal education health housing social protection family policy and child welfare leisure and culture youth justice national defense and military service participation and citizenship combating social exclusion and promoting inclusion Information multiculturalism and minorities mobility and internationalism safety and protection equal opportunities Source: Supporting young people in Europe: principles, policy and practice (Williamson, 2002) 12
Analysis of the (European) National Practices Have the youth issues always been cross-sectoral? Figure 8. terms used to refer to the youth topics or subjects in the Youth Policy Reviews (CoE) Analysis of the (European) National Practices Have the youth issues always been cross-sectoral? Table 2. The heterogeneity of the levels of categorization of the youth issues in the Youth Policy Reviews (CoE) Organization of Issues Youth Policy review Reports -- Lithuania 2003 general issues - Albania 2010 identified by the team vs. identified by the government + Ukraine 2013 - priority themes and cross-cutting themes. ++ Moldova 2009 - key, other, transversal and cross-cutting 13
Analysis of the (European) National Practices Have the youth issues always been cross-sectoral? This lack of conceptual and analytical destandardization and oscillation is counterproductive for: the exchange of good practices between countries (horizontal comparisons) the analysis of the recurrence of certain issues across time (diachronic comparisons) and ultimately for also the development and implementation of crosssectoral itself. 3 types of issues: 1. Mentioned alone - SINGLE 2. Mentioned in pairs or trios CONJOINT 3. Mentioned as being CROSS-CUTTING OR TRANSVERSAL Analysis of the (European) National Practices Have the youth issues always been cross-sectoral? Mentioned alone - SINGLE Figure 9. Terms used to refer to single youth topics or subjects in the Youth Policy Reviews (CoE) 14
Analysis of the (European) National Practices Have the youth issues always been cross-sectoral? Mentioned as being CROSS-CUTTING or TRANSVERSAL Figure 10. terms used to refer to cross-cutting or transversal youth topics or subjects in the Youth Policy Reviews (CoE) Analysis of the (European) National Practices Have the youth issues always been cross-sectoral? Mentioned in pairs or trios CONJOINT Figure 10: terms used to refer to conjoint youth topics or subjects in the Youth Policy Reviews (CoE) 15
Analysis of the (European) National Practices a proposal for clustering the issues Figure 11: Levels implied in a more clear definition and classification of cross-cutting issues 1 st $level$ Internal(or( external( func&ons( 2 nd $level$$ Thema&c(clusters( Informa8on$ Youth$policy$ development$ Changes(from( within( Monitoring$and$Measuring$ Strategic$Planning$ Others$ Cross4 sectoral( youth(policy( Inequali8es$ Par8cipa8on$and$Ci8zenship$ Youth$policy$ implementa8on$ Making(changes( Earning$and$Learning$ Others$ Analysis of the (European) National Practices What cross-sectoral youth policy problems are identified? Table 3. Problems in the development of cross-sectoral youth policy Youth Policy review Reports Intentions No legal framework Good intentions, no action Too abstract no specific programs Unclear Functionality Overlapping No Communication No coordination No collaboration Structure No Power No inter-ministerial Committee No sustainability Mentioned by Hungary Albania Finland Latvia Latvia Armenia, Albania Norway Moldova, Belgium Finland Armenia, Albania Albania, Hungary 16
European Documentation: To sum up results Explicit importance attributed by European key agents Unclear/multiple definition of CSYP by both scopes Decreasing reference to CSYP by UN Increasing reference to CSYP by European key agents European Practice (indirectly through the policy reviews CoE): Unclear/multiple definition of CSYP Extreme variation in the clustering of the issues Problems in definition and implementation To sum up proposals of classifying and clustering information Step by step, different scopes, different expertise 1. What is it? Development of an European conceptual definition 2. What s there? Development of an European system classification, National classification 3. What could be there? Development of a set of indicators to characterize political systems 4. What really could be there? Development of a set of indicators to characterize political will 5. Putting it in practice According to urgency and feasability 6. Exchanges practices Between comparable realities, systems, practices 7.Evaluating practices 17
To sum up proposals of classifying and clustering information Get ready --- knowing the context Identifying social priorities and resources at national levels Identifying European possibilities and policies Matching and combining them Set --- developing the structure Adjusting European policies to national realities Tailor-design the multi-sector or multi-agents involvement Setting up goals and milestones and ways of evaluating them Getting long term political (not party) engagement on board Go --- Implementing and improving Implementation strategy Long term and follow up evaluation of results Long term and follow up evaluation of the vertical and horizontal communication between agents and sectors Implementation strategy improvement 18