Risk and its Management in Post-Financial Crisis Hong Kong

In the 1970s and up until the financial crisis occurred in the late 1990s, Hong Kong prospered in a relatively stable social, economic and political context. Since the financial crisis, however, its population has been increasingly exposed to risk: there has been job uncertainty and decreasing capacity for self‐reliance, leading to a growing reliance on public welfare and on families at a time when both are under pressure. The old welfare policies, unable to cope with the new risks, have been replaced by neo‐liberal reforms, redistributing the roles and responsibilities of the individual and the state, with a greater burden falling on the former. Individuals are required to be prudent to manage risk. While these reforms have relieved some of the burden on the state, both new social risk groups and ‘net taxpayers’ considered themselves to have borne disproportional costs. Society is facing serious problems resulting from ineffective old welfare policies, new social risks due to new policies, and the political upheavals arising from increased social conflicts and weakened social cohesion and solidarity. A further complication is that there is no acceptable platform or agent to negotiate a compromise between the polarized groups. This article argues that reliance on publicly funded risk coping strategies or on neo‐liberal risk prevention and mitigation strategies is not a desirable and sustainable policy. A commonly accepted political platform is required to negotiate a compromise which emphasizes shared and balanced roles and responsibilities, and a well‐conceived combination of risk prevention, mitigation and coping strategies.     

‘We Don't Have to Take This’: Zero Tolerance of Violence against Health Care Workers in a Time of Insecurity

Doctors, nurses and other health care workers in the UK are said to be increasingly aware of the ‘risks of the job’ as a result of mounting verbal abuse, threats and assaults from patients and their relatives. In the late 1990s the UK government introduced a policy of ‘zero tolerance’, which it claimed was designed to minimize the risk of such violence. Current policy refers to the need to be tough on offenders and encourage a culture of respect. In this article we review this strategy and the reasons for its introduction and consider some of the potential consequences. The article starts with an account of the policy, the definition of violence that underpins it and how it has been measured, and assesses the evidence regarding prevalence. This is then interpreted in the context of wider policies of zero tolerance to crime, and debates about risk, anxiety and insecurity.     

Trust as a Means of Bridging the Management of Risk and the Meeting of Need: A Case Study in Mental Health Service Provision

Shifts in public policy towards an increasing focus on risk have been deemed problematic at a number of levels, particularly the tendency for concerns over reputational risk to institutions to trump the interests and needs of service‐users. This article explores the tension between these two dimensions, of risk and need, in a case study of local mental health services – a setting where conflicting objectives to manage risk and meet need are apparent. Media‐driven pressure to ward against the ‘risk’ represented by service‐users tends towards more coercive policy which may obstruct the meeting of need, which in turn may undermine service‐user engagement and hinder risk management. Drawing on qualitative data from interviews with service‐users, professionals and managers, the article explores the process of trust and its facilitative role in meeting need and managing risk. Findings suggest that while existing foci on risk are at times counter‐productive, trust plays a significant role in service‐users' initial and ongoing engagement, communication and co‐operation with professionals. Yet inherent obstacles to trust within mental healthcare contexts remain, due to cultural pressures on professionals, the nature of the illness experience and negative past experiences of in‐patient care.     

Ambiguity and Cooperation in the Implementation of Adult Protection Policy

Using a classification of public policy developed by Matland, we examine implementation of policy on adult protection as outlined in ‘No Secrets’, the government's guidance to local agencies. This policy appears to exemplify a ‘high‐ambiguity/low‐conflict’ model. Detailed interviews with staff charged with developing multi‐agency procedures, in local authority departments, health authorities, the police and the voluntary sector, confirmed the ambiguity of the policy and the uncertainty experienced by staff as a consequence. However, the interviews also revealed a number of areas of conflict, particularly as people gave precedence to their own professional norms and organizational priorities over partnership working.     

Exploring a blind spot in comparative pension reform research: Long‐term trends in non‐contributory pensions in Europe

Over the past two decades, pension reforms have been high on the agenda of social policy makers in Europe. In many countries, these reforms have resulted in less generous public pensions. At the same time, minimum income protection for older adults has received attention from policy makers, but much less so from social policy researchers. Therefore, this study explored how benefit levels of non‐contributory minimum income schemes for older adults evolved from 1992 to 2012 in 13 ‘old’ EU member states. Building on two cross‐national longitudinal datasets with comparative data on minimum income protection in Europe, the study shows that over the past 20 years, the erosion of the principal safety net of last resort for older persons has been limited. Moreover, a substantial number of European countries have pursued a deliberate policy of considerably increasing minimum income benefits.     

Garbage‐can Policy‐making Meets Neo‐liberal Ideology: Twenty Five Years of Redundant Reform of the English National Health Service

The garbage‐can theory of decision‐making (Cohen et al. 1972), has been adapted into a perspective on policy‐making, with adaptations of the approach placing notable emphasis upon the health sector (Kingdon 2006; Paton 2006). This article creates an adapted ‘garbage‐can’ framework to help explain each stage of the reform of the English National Health Service (NHS) over the last 25 years. The emergence of the key idea and resultant policy at each stage of reform of the English NHS has been arational and indeed sometimes irrational. Policy has reflected advocacy by policy‐salesmen (Kingdon 2002), proffering ‘solutions’ to ill‐defined problems and answers to unasked questions, and politicians' short‐termist responses at each decision‐point. Yet the garbage‐can alone is not enough: if arationality rules in policy‐making day to day, this does not mean that there is not an overall ideological context, trend or bias in reform. The article also posits that ‘market reform’ has derived from the ideological hegemony of a naive anti‐statism (hostility to a misleadingly defined and often mythological ‘centralist state’) in public services and enthusiasm for market competition rather than any evidence‐based application of pro‐market ideas to health policy. A question arises: how are these two approaches (short‐term arationality and longer‐term ideological bias) combined in explanation of how policy over time is biased in a particular direction while seemingly arbitrary and directionless at each messy decision‐point. The article attempts to combine the insights of a garbage‐can approach with wider explanations of ideological hegemony.     

Labour Force Participation,Social Inclusion and the Fair Work Act: Current and Carbon‐Constrained Contexts

The notion that employment is a precondition for personal wellbeing and social inclusion is almost sacrosanct in Australian culture. Yet, the working and living conditions of Australia's low paid workers tells a different story. While labour market participation is a cornerstone of the Federal Government's Social Inclusion Agenda, it is recognized that low pay and poor job quality often derail this key objective. Indeed, the difficulty of ‘making work pay’ at the bottom end of the labour market is a social inclusion challenge that has yet to receive the policy or public attention that it warrants. This article considers what the Fair Work Act means for the social inclusion of disadvantaged workers, in the context of wider‐ranging strategies to address low pay. It concludes with some considerations of the challenges that a carbon‐constrained economy is likely to present for labour force participation as a remedy for social exclusion.     

Attributing Outcomes to Social Policy Interventions – ‘Gold Standard’ or ‘Fool's Gold’ in Public Policy and Management?

In recent years there has been increased interest in outcome‐based social policy‐making and management. The UK has been in the forefront of this movement but similar movements have been identified internationally. This interest in outcome‐based decision‐making has been given particular impetus through the ‘results’‐based movement in evaluation and performance management since the 1980s, which has increased in scope over time, slowly changing its emphasis from cost reduction and measuring outputs to measuring outcomes. This change has been widely welcomed by policymakers, practitioners and academics. However, there is evidence that the reality is often rather less than the rhetoric. Moreover, the ‘attribution problem’ of attributing changes in outcomes to specific social policies has remained a major issue. The conceptual solution of constructing ‘cause‐and‐effect’ models, imported from the policy evaluation field, has only recently become common for operationalising these models. This article outlines the evolution of interest in outcome‐based social policy‐making up to recent times and the growing realization of the importance of the attribution problem. It then outlines both how the ‘cause‐and‐effect’ policy modelling approach can partially tackle the attribution problem, but also its inherent limitations. Lastly, the article uses several case studies in current UK social policy‐making to demonstrate the potential importance of the reasoning embedded within cause‐and‐effect models but also the dangers in policy‐making which adopts this approach without understanding its conceptual basis or in fields where it is inappropriate, given the current state of our knowledge of social policy systems.     

Juvenile Reoffending: a ten‐year retrospective cohort analysis

Criminologists and other developmental researchers have long acknowledged the importance of both continuity and change in antisocial and criminal behaviour over the life‐course. To the extent that young offenders having contact with the police will persist with offending into adulthood is an important social issue with significant implications for the ongoing development and implementation of early intervention and prevention programs. Using data from New South Wales, this paper tracks a cohort of 8,797 juvenile offenders over ten years and is among the first of its kind to use multivariate techniques to examine the long‐term outcomes of those who were cautioned, conferenced or convicted in that state. The study finds that just over half of all juvenile offenders were reconvicted in court of a further offence and that reconviction rates were higher for young males and Indigenous offenders than for females or non‐Indigneous offenders. In concluding, this paper draws attention to the need for improved assessment and early intervention efforts that more accurately target those young people most at risk of persisting with offending into adulthood.     

Access to Childcare in Europe: Parents' Logistical Challenges in Cross‐national Perspective

A burgeoning comparative literature has identified the centrality of childcare policy and provision in promoting parental, and specifically maternal, participation in paid employment across countries. This literature has focused on the importance of macro‐level institutional arrangements, with a special emphasis on variation in availability of, and access to, formal early childhood education and care services. However, there has been limited comparative exploration of what this means in practice at the micro‐level: the everyday challenges parents face when attempting to navigate the childcare system and the labour market simultaneously. Taking inspiration from human geography literature on the concept of ‘space–time fixity’, we present cross‐national findings on the logistical challenges of arranging childcare. Evidence is drawn from interviews with parent‐ and childcare‐related organizations in six European countries: Germany, Hungary, Italy, Slovenia, Sweden and the UK. Our research provides a richer understanding of childcare availability than would a sole focus on formal childcare services, by elucidating the difficulties parents face in organizing access to these services, which can be a challenge to some extent even in contexts where childcare services are comprehensive and affordable.     

‘A Common Sense of the Times’? Neo‐liberalism and Changing Public Opinion in New Zealand and the UK

Neo‐liberalism represents a significant and enduring shift in the politics shaping social policy. Although frequently ascribed a hegemonic, all‐powerful status that focuses our attention on the coherence found in neo‐liberal policies, this article builds on scholarly work highlighting variegation in the neo‐liberal project across different policy areas, national settings and time periods. Specifically, it employs Peck's and Tickell's (2002) view that neo‐liberalism has gone through multiple phases in response to both external and internal crises as an entry point for studying neo‐liberalism's impact on public support for the welfare state. Drawing upon New Zealand and British attitudinal data, the article argues that public reactions to an early period of retrenchment (‘roll‐back’ neo‐liberalism) differ from those reported in the ‘roll‐out’ or embedding phase of neo‐liberalism implemented by Third Way Labour Governments in both countries. Indeed, continuing public support in many policy areas arguably contributed to the internal crisis that provoked an adaptation to the neo‐liberal project. The article further explores public support for the welfare state following the external crisis provoked by the financial meltdown of 2008–09 asking whether New Zealand and British attitudes showed signs of resisting austerity measures or whether they, instead, indicated a third, ‘roll‐over’ period of neo‐liberalism where the public accepted not only a neo‐liberal economic agenda but also the need for further retrenchment of the welfare state. Conclusions about the politics of social policy at the level of public opinion offer both good and bad news for welfare state advocates.     

Governance and Participation in Local Welfare: The Case of the Italian Piani di Zona

This article analyses four cases of governance in Italian local welfare systems. Following Law 328/2000, the design and management of the social services system in Italy involve different public responsibility levels, mainly regional and municipal. In order to manage social policies, Italian municipalities have to join in new inter‐municipal groupings called ‘Piani di Zona’ (Area Plans). Moreover, the law provides for engaging in these Plans even local third‐sector organizations and citizens. The article attempts to highlight the implications of this complex system that is leading local authorities to open new governance arenas. We hereby present the results of a research project on two Piani di Zona in the Region of Lombardy (Northern Italy) and on two in the Region of Campania (Southern Italy), carried out by means of institutional analysis. We particularly focus on the dynamics of participation triggered by the Piani di Zona. Our hypothesis is that the role of public administration is a fundamental variable to understand the different ways of participating. In this sense, we discuss the dynamics of local governance by relaying them to four main questions: who participates in what, where and how?     

Social capital and community building through an electronic network

This paper describes a social policy experiment that explores current and potential links between trends in Australian public policy. The central example is provided by the implementation of a wired community set up in a low‐income public housing estate by an entrepreneurial not‐for‐profit internet service provider, InfoXchange. ‘Reach for the Clouds’, the wired community being established at Atherton Gardens in Fitzroy, Melbourne, is attractive to policy‐makers and funding bodies, combining community‐building, public‐private partnerships, self‐help and place‐based management. However, although the project is promoted as an exercise in community‐building through technology, many of the key assumptions are untested. It seems self‐evident that low‐income people who are socially and economically excluded would benefit from greater ‘connectedness’ with one another. However, it is not clear that such exchanges, online or off‐line, will build ‘community’. The paper attempts to establish some distinctions between online communities of interest and place based communities, untangling the relationship between social connectedness and models of social capital.     

Social Policy beyond Fear: The Globalization of Strangeness,the ‘War on Terror’, and ‘Spaces of Wonder’

Fear has become central to social scientific understandings of contemporary insecurities. However, this article argues that a focus on fear is not sufficient, and that an exploration of ‘wonder’ is more productive, particularly when trying to understand modes of governance and policy regimes introduced as part of the ‘war on terror’. An appropriate starting point for such an exploration is the globalization of strangeness. The idea that globalization has undermined the familiar territoriality of a world of nation states has become accepted in the social science literature. However, the nature of the resulting unfamiliarity or strangeness of the world is rarely explored. This article focuses on the processes by means of which the world is rendered strange and examines the opportunities for new forms of governance opened up by a world designated as insecure, uncertain and unpredictable. The article pays particular attention to the ways in which this strangeness can generate ‘spaces of wonder’. Examples of such ‘spaces of wonder’ include ‘the world’, the UK's border, now offshore according to the Home Office, and ‘global borderlands’. The article advances a critical reading of contemporary political responses to ‘spaces of wonder’, particularly the ways in which the unknown and threatening are rendered in familiar and cosy terms.     

Public Perceptions About Sex Offenders and Community Protection Policies

Sex offenders and sex crimes provoke a great deal of anxiety in our society, and over the past decade, lawmakers have passed a variety of social policies designed to protect the public from sexual victimization. The purpose of this study was to examine public perceptions about sex offenders and community protection policies. Data were obtained from a sample of 193 residents in Melbourne, Florida. It was hypothesized that the public holds some inaccurate beliefs about sex offenders, and that there is strong public support for community protection policies. It was found that community members believe that sex offenders have very high recidivism rates, view sex offenders as a homogeneous group with regard to risk, and are skeptical about the benefits of sex offender treatment. The hypothesis that public perceptions contradict empirical research was supported. Community members were overwhelmingly in favor of public disclosure of information about registered sex offenders, although they did not express as much support for residence restrictions. Implications for public policy, and for the media's role in shaping public perceptions, are discussed.     

‘Active Families’: Familization,Housing and Welfare across Generations in East Asia

Debates around welfare change have tended to concentrate on the balance between market and state provision. Although there is increasing reference to a mixed economy of welfare, this generally signifies a greater emphasis on a third sector of voluntary/community level provision. However, the family sphere has been, and still remains, an important and dynamic source of welfare provision across changing regimes and between generations. With this as background, the article addresses three particular questions. First, how has the role of families in the welfare mix changed over time? Second, how do family ‘strategies’ adapt to structural changes in order to maximize collective/individual benefits in certain areas and how do these strategies evolve over generations? Third, is such family engagement in welfare influenced by policy shifts appropriately conceptualized as ‘re‐familization’ or ‘de‐familization'? These issues are explored in the comparative socio‐economic and cultural contexts of China and Japan and draw on qualitative research with three generations of families in Shanghai and Tokyo.     

Citizen‐agency versus state‐agency at the frontline in prisons and probation services: A systematic literature review

Street‐level bureaucrats play a key role in the delivery of public services to the citizens with whom they interact. Using the Preferred Reporting Items for Systematic Review and Meta‐Analyses approach, we rely on a street‐level perspective to report a systematic review of 46 studies about officer–offender interactions in prisons and probation services. In doing so, we examine how correctional officers articulate state‐agency – whereby they focus on the implementation of rules and policies – and citizen‐agency – whereby their decisions regarding offenders are based on judgements of offenders' worth. Our results provide evidence that frontline work in prisons and probation services stems from a mix of citizen‐ and state‐agencies in which the former is prioritized over the latter: when rule enforcement allows it, correctional officers often make discretionary decisions based on professional judgements rooted in professional norms. In this respect, the managerial and actuarial approach to risk management and public protection involved by contemporary correctional reforms comes with new role expectations that conflict with correctional officers' rehabilitative ideals. At the same time, the literature provides many instances of officers coping with workload in order to meet policy objectives and organizational demands while maintaining satisfactory working conditions. In other words, there is an increasingly elaborate and fragile articulation of state‐ and citizen‐agencies at the frontline, in prisons and probations services. We conclude with some implications and an agenda for future research.     

Social Policy in a Cold Climate: Health and Social Welfare in Russia

The Russian Federation faces multiple challenges for its health and welfare systems and for the development of social policy responses. This article provides a review of some of the key challenges for social policy in Russia and assesses the adequacy of the responses to date. The author surveys recent developments in health and social welfare and makes recommendations on priorities for Russia's policy‐makers and international funders. A range of public health challenges including drug and alcohol misuse, health in prisons and mental health is discussed; HIV/AIDS is singled out for particular attention. While Russia is increasingly attracting the attention of social scientists in the West, there is uncertainty about models and concepts suitable for the analysis of this complex society. Although empirical trends are largely discussed in this article, it is argued that theoretical development is required and some suggestions are made about concepts of the ‘middle range’ to assist in future analyses. Intermediate theories, such as those relating to the management of personal welfare, and development of resilience in a formerly collectivized context, are identified as having explanatory potential for this task.     

Environmental ethics for social work: Social work's responsibility to the non‐human world

Gray M, Coates J. Environmental ethics for social work: Social work's responsibility to the non‐human world This lead article in this Special Issue begins discussion on an environmental ethics for social work and raises arguments as to whether and, if so, why social workers have duties, obligations, responsibilities and commitments to the non‐human world. It provides an overview of the field of environmental ethics in searching for a moral stance to affirm an environmental social work. To what extent should social workers engage in fundamental geopolitical issues concerned with climate change, global warming, environmental degradation, pollution, chemical contamination, sustainable agriculture, disaster management, pet therapy, wilderness protection and so on and, if so, why and how? Are these issues incidental and peripheral and only of concern when they impact upon humans or do social workers have a responsibility beyond human interests? What is the significance of the ‘non‐human’ for social work? The article explores the terrain of the burgeoning field of environmental ethics to determine whether convincing ethical grounds for environmental social work might be found beyond hortatory claims of what the profession ought to be doing to address environmental concerns.     

Renewing the Social Vision of Care

Care is a fundamental condition of human existence, an inherently social activity. Yet surprisingly, care has only recently begun to receive serious attention from social researchers and the public. Despite the fact that care has become a public issue over the past twenty‐five years or so, current thinking in policy and advocacy for carers has developed an overtly narrow and self‐limiting focus with a strong emphasis on the plight of primary or sole carers, with care being seen predominantly as a burden. From looking at Australian policy on carers, it may be concluded that care is essentially understood as a private, individual concern, a one‐way activity in which the active agent, the carer, does something to the other, passive, recipient. The challenge posed in this paper is to move beyond this approach to that of a more social conception of care. Following a review of the uses of the terms ‘care’ and ‘carers’ in the current Australian policy context, a discussion of the meaning of the term ‘care’ is presented and an alternative understanding of the term, with the potential of recognising and promoting care as a complex, social outcome is advanced.