Ageing and the politics of pension reforms in Central Europe,South‐Eastern Europe and the Baltic States

Cerami A. Ageing and the politics of pension reforms in Central Europe, South‐Eastern Europe and the Baltic States Int J Soc Welfare 2011: 20: 331–343 © 2010 The Author(s), Journal compilation © 2010 Blackwell Publishing Ltd and the International Journal of Social Welfare. This article investigates ageing and the politics of pension reforms in Central Europe, South‐Eastern Europe and the Baltic States. It emphasises the importance of historical legacies, presence of veto points, trade unions' power, electoral rules and country‐specific patterns of political competition, but it also highlights the central role in institutional change played by other concomitant factors, such as those associated with the communicative actions of national and international actors. The role played by power politics, class conflicts and strategic use of social policies is also emphasised. The main argument put forward in this article is that pressures for reforms in the pension systems have not only been the response of demographic, economic and financial pressures but have also been the result of a new consensus found on new economic ideas and discourses that saw in the privatisation of the economy a new modernisation paradigm.     

Cash for long‐term care: Policy debates,visions, and designs on the move

Cash‐for‐care (CfC) schemes have introduced a key transformation in long‐term care policies across Europe since the 1990s. The article explores the extent to which CfC policies have changed over time and into which directions, the ways in which change (if any) has occurred and the forces underlying it. By combining the literature on institutional change with ideational approaches, the article focuses on policy theories and policy designs, on modes of change and factors pushing for change within the CfC policy, and in the long‐term care and neighbouring policy fields. In doing so, we aim to contribute to understanding institutional change and the transformation of an increasingly important sector of the welfare state.     

The Trajectory of Post-communist Welfare State Development: The Cases of Bulgaria and Romania

Governments of countries undergoing a post‐communist transition face the dilemma of balancing conflicting demands for greater economic efficiency (to achieve a successful transition to a market system) with demands for enhanced social protection (to legitimize regime change through a visible improvement in living standards which includes vulnerable groups). This paper analyses the transition in Bulgaria and Romania. Unlike other European countries, these countries did not embark on retrenchment policies until the mid‐ to late 1990s, so convergence with policies of spending constraint elsewhere in Europe was belated and partial. The social problems created by strict economic policies, exacerbated by a determination to reorganize the post‐communist welfare states along the lines promoted by international organizations, are now being recognized. Post‐communist governments in South‐eastern Europe have belatedly started to address the social aspects of transition to democracy and the market. This probably reflects the process of regime change in Bulgaria and Romania, which has been characterized as a “two‐step transition to democracy”, with liberal governments only succeeding transformed communist elites in power after a protracted transition.     

Mending Nets in the South: Anti-poverty Policies in Greece, Italy, Portugal and Spain

The marginal role of social assistance and the absence of minimum income programmes have long been thought to constitute defining characteristics of the southern European model of welfare. Nevertheless, over the 1990s significant innovations in this field have taken place. The paper aims to contribute to the analysis of recent developments by critically examining the experience of anti‐poverty policies in Greece, Italy, Portugal and Spain. It is argued that the “patchiness” of safety nets in southern Europe is due to a unique set of constraints, the most relevant of which are the role of families and the “softness” of state institutions. A review of national profiles reveals that new policies introduced in all four countries mark progress towards redressing some of the historical imbalances of that welfare model. In particular, fully fledged minimum income schemes now operate in Portugal and in certain Spanish regions, while an experiment involving a number of Italian municipalities is still in progress. In spite of this, the paper concludes that social safety nets in southern Europe remain frail in terms of institutional design as well as political support and legitimacy.     

The Path-dependency of an Idea: Why Scandinavian Welfare States Remain Distinct

Examining reforms that have taken place in the 1990s, this article explores the hypothesis that the most distinctive characteristic of the Scandinavian model today is the “stickiness” of its reputation, rather than the institutions and policies that make up the model. Borrowing the concept of path‐dependency from institutional analysis, the article argues that because there is a strong commitment to the idea of a Scandinavian model, there is a tendency to expand conceptions of the model so that policy changes appear to be consistent with it.     

Towards a Multi‐level Approach on Frontline Interactions in the Public Sector: Institutional Transformations and the Dynamics of Real‐time Interactions

This study develops a multi‐level approach on frontline interactions in the public sector. Previous research suggests that detailed analyses of frontline interactions are essential to our understanding of how welfare services take shape when policies and rules are applied and negotiated in individual cases. The dynamics and performances of real‐time interactions have, however, rarely been analyzed as such. This study shows how the methods developed in the field of Conversation Analysis can contribute to this research. Our multi‐level approach integrates analyses of the policy‐ and institutional transformations that shape conditions for frontline interactions; and analyses of how policies and rules are evoked, negotiated and reshaped in the turn‐by‐turn organization and performances of interaction. The approach is applied on an analysis of how rules regarding financial aid are applied in an authority highly affected by changes in welfare policy towards standardization and detailed regulations. The empirical case is the Swedish Board for Study Support. The empirical study includes analyses of documents, interviews and analyses of taped telephone conversations. The study shows how institutional arrangements of standardization, detailed regulations, monitoring and depersonalization, structure the frontline work and shape narrow frames for officials' discretion in interactions with clients. The study also shows how rules are invoked and negotiated in recurrent practices in the interaction: in the careful design of decisions; in the investigations of alternatives and exceptions from the rules in order to find solutions to the client's problems. The analyses of concrete interactional practices clearly indicate that also a rule‐governed work dominated by task discretion involves recurrent negotiations, flexibility and local policy‐making.     

‘Let the King Save the Poor’: The Discursive Mechanism Underlying the Under‐exercise of Social Rights in South Korea

This study was prompted by discrepancies observed between the quantitative expansion and the qualitative stalemate in social policy in South Korea. Despite a revamped social security system, changes in South Korean social policies have not led to significant coverage expansion or improved income and poverty distribution. The frequent appearance of the Korean proverb that ‘even the King cannot save the poor’ in policy participants' narratives reflects a lack of confidence in the Government's ability to address persistent social disadvantages and the prevalence of a fatalistic policy perspective. This proverb has a conceptual affinity with an individualistic approach and has effectively functioned as a governance tool to oppress the progress of welfare rights. This research shows that an expenditure‐based model could lead to actual policy situations being misrepresented. Further, institutional policy arrangements may not be a sufficient condition for improving policy performance. It is suggested that a rights‐based approach should be adopted for both theorization of the transition of the welfare regimes and discursive practice for a policy paradigm change.     

The Pro‐Elderly Bias of Social Policies in Israel: A Historical‐Institutional Account

Accelerated population ageing and high voting turnout rates among elderly voters in recent decades have led many social scientists to predict increasing pro‐elderly biases in the social policies of mature welfare states. This article investigates and empirically estimates the evolving age orientation of social policies in Israel, which is a comparatively young society that has nevertheless aged significantly since independence in 1948. We present a historical and qualitative overview of the development of policy efforts towards different age groups and develop an Elderly/Non‐elderly Spending Ratio at four points in time between 1975 and 2005. We argue that in its first five decades, the Israeli welfare state uniquely combined a broadly universalistic and citizenship‐based outlook with a number of significant particularistic spending biases towards specific subgroups. But from the second half of the 1990s onwards, the pro‐elderly policy bias of the Israeli welfare state has strongly increased. These findings support Lynch's thesis for 21 OECD countries, which posits that a shift from a universal to a more occupationally based institutional model of welfare will result in a higher pro‐elderly bias of social spending.     

The evolution of family policy in South Korea: From Confucian familism to Neo‐familism

The aim of this article is to trace the trajectory of family policy development in South Korea from the 1940s to the present. Changes to family intervention are analyzed in terms of the settings of policy instruments, the policy instruments themselves, and policy goals (or policy regimes). Consequently, two critical turning points are identified: the late 1980s and the early 2000s. The first period (1945–1988) was an era of embryonic Korean family policy when family intervention was limited and indirect based on Confucian familism. During the second period (1998–2003), explicit family policies emerged, but the Korean government kept family intervention to a minimum; maintained a division of roles between the state, the market, and families (the state as the regulator and the market/families as the providers); and maintained patriarchal family relations and gendered family roles based on Confucian familism. However, the third period (2003–2016) shows the explosive expansion of family policies and changes in policy goals and regimes based on Neo‐familism, which emphasizes democratic and equal gender relations within families and a family‐friendly/supportive society.     

Gender Equality Policies and Practices in Croatia – The Interplay of Transition and Late Europeanization

This article contributes to understanding change in gender regimes in post‐communist countries. Using Croatia as a case, it juxtaposes the observed change in key indicators of the position of women in various walks of life with the context of the European gender agenda and the positions of actors involved in the national political arena and policies introduced throughout the transition period. The article reviews the previous enlargement waves and indicates that the gender agenda was added to the negotiation process rather late – primarily via the EU accession conditionality requirement. Although narrow in scope and often limited in impact to just ‘paper compliance’ with EU legislation, it opened discussions in the gender equality area in post‐communist countries and empowered women's organizations. In all the countries, the implementation of the European agenda was heavily influenced by the power and discourses of the main actors involved. The article provides a map of social actors involved, together with gender‐related policies as they have changed in three distinct periods in Croatia. The final analysis of observed practices and structures indicates very slow change and the crucial impact of structural and institutional developments as well as economic cycles, but little association of observed developments with dominant discourses or policies implemented over the past two decades.     

Continental Drift: On Unemployment Policy Change in Bismarckian Welfare States

This article analyses the development of unemployment policies over the past 20 years in four continental European countries: Belgium, France, Germany and the Netherlands. It shows that, far from being as ‘frozen’ as many analysts have suggested, each of these Bismarckian welfare states has in fact seen considerable change in this policy sector in recent decades. In Belgium, France and Germany, significant changes in unemployment policy reforms have unfolded gradually, through an accumulation of small changes. This finding offers some support to recent theorizing on the potential for policy changes that are both incremental and transformative. However, while such processes have led to shifts in unemployment policy that are far from negligible, the article also argues that they fall short of those seen in this policy sector in other welfare institutional contexts as well as in the Netherlands, where substantive reforms have in the last decade been complemented with changes to the institutional framework for unemployment policy. Through its analysis of the relationship between the institutional features of these welfare states and the possibility frontier of unemployment policy reform, the article develops a nuanced perspective on the scope for and resistance to social policy change in continental Europe.     

European Union Policy on Asylum and Immigration. Addressing the Root Causes of Forced Migration: A Justice and Home Affairs Policy of Freedom,Security and Justice?

This paper contributes to the debate on the development of the future common European Union Policy on Asylum and Immigration. It seeks to explain the rationale behind the evolution of the Union's policy outlook on asylum and immigration. It then analyses the most recent Union‐wide policy tools available to address asylum and migration issues, arguing that common European asylum policies thus far have focused on containment of migration flows seen as a threat to the European internal security regime and in response to perceived populist pressures. The return and readmission clauses now being implemented, in agreements with countries outside of the Union, serve to illustrate this point, as does the political willingness to extra‐territorialize asylum processing. However, the focus on eliminating the root causes of migration flows is a relatively new paradigm, developed since the 1999 Tampere European Council. Although off to a slow start, the European Union Neighbourhood and Partnership Instrument may become an institutional outlet to create a more normative framework for asylum and migration. The success of such a framework is contingent upon breaking with earlier conceptualizations of “asylum” as a security threat. Implicit in such a framework is the need to retain a clear distinction between asylum‐ and labour‐related migration. Partnerships must also be granted a budget sufficient for their establishment in real terms with countries of origin and transit. Lastly, there must be changes in modes of governance, as well as institutional reform, if efforts to elaborate a strategy on asylum and migration are to be executed successfully. Curiously, while the proposed Treaty establishing a Constitution for Europe sought to abolish the pillar structure put in place by the 1992 Treaty of Maastricht, it would have retained the institutional inhibitions imposed by long‐existing tensions between national and community administrations and the “inter‐pillar” battles between the foreign policy, humanitarian and development dimensions of the EU apparatus. The current political debate about moving Europe “closer to its people”, following the rejection of the proposed Constitution at national referenda in France and the Netherlands, appears unlikely to solve any of these tensions.     

Beyond continuity? Italian social assistance policies between institutional opportunities and agency

Madama I. Beyond continuity? Italian social assistance policies between institutional opportunities and agency The article addresses recent developments of social assistance policies in Italy with two interpretative aims. The first regards the approval of the long‐awaited framework law in 2000 and deals with the factors that made a path‐shifting national reform possible in a policy sector which had evolved through successive accretions and gradual revisions. The second regards the effectiveness of the reform, providing an assessment of the (scant) achievements subsequent to its adoption. The reform process was investigated through a model that combines factors of historical neo‐institutionalist derivation and agency dynamics, the latter of which is intended to overcome the structuralist bias of purely neo‐institutionalist explanations. The article draws two conclusions. The first concerns the resilience of Italy's backwardness in this policy field. The second, a theoretical consideration, is that if institutions function as constraint generators as well as opportunity generators for actors, agency dynamics are crucial in order to fully understand the timing and specific contents of institutional change.     

The New Economy and the Forest: Rural Development in the Post‐Industrial Spaces of the Rural Alleghenies*

Objective. Government policy has long linked resource production with economic development in surrounding rural communities. The purpose of this article is to examine how the USDA Forest Service 's (USFS) resource‐based, rural development policies have shifted due to economic restructuring and environmental challenges to the “management” of nature. Methods. Historical data was gathered on USFS timber harvests and policies toward forest‐dependent communities. Data was also gathered through interviews and participant‐observation on a USFS‐supported, locally planned ecotourism project. Results. USFS rural development policies have shifted from predominantly providing federally determined, sustained timber harvests in the industrial era to increasingly emphasizing local, amenity‐based entrepreneurship and economic diversification in the post‐industrial era. Conclusions. USFS rural development policies and resource production have been de‐coupled. However, amenity‐based development may depend both on amenity migrants and sustained commitment from external sources to support local initiative, given limited entrepreneurship in rural areas long dependent on high‐wage extraction and manufacturing.     

Neo‐liberalism by Decay? The Evolution of the Czech Welfare State

In this article we analyse the evolution of the Czech welfare state and we examine the factors explaining its path. We show that although the Czech welfare regime exhibits a 'mixed profile' that includes conservative and universalist elements, it is increasingly moving in a more liberal, residualist direction – not because of conscious steps but rather through decay. Governments have often zig-zagged in their policies and resorted to symbolic reforms at times rather than implementing ideologically based, consistent policies. We argue that historical and sociological institutionalism combined with a social-capital approach can explain this decay better than the more common arguments about economic pressures combined with ideological hegemony or the protest-avoidance strategy. In particular, the social capital approach adds to our institutional framework by explaining why cutbacks in welfare programmes have not met much opposition, even though public opinion surveys consistently show support for more generous welfare policies, and why policies have deviated so much from political rhetoric.     

The Ageing of Australia: Fiscal Sustainability,Intergenerational Equity and Inter‐temporal Fiscal Balance

Australian public policy makers are presently confronted with significant demographic changes that will profoundly affect the formulation of rational economic and social policy over the long term. This paper seeks to outline the potential impact of this demographic change and place it in historical perspective. The challenges posed by an ageing population for fiscal policy are explored and it is stressed that policy inertia will invite severe costs in future. It is argued that an appropriate policy stance should be developed in the context of a framework for inter‐temporal fiscal balance not only to focus on long‐run fiscal sustainability, but also to include considerations of intergenerational equity.     

EU Integration and the Transformation of Post‐communist Welfare: Traversing a ‘Quantum Leap’?

While many academic accounts treat post‐communist Europe as just another site of Europeanization with an emphasis on ‘adaptation’ and ‘learning’, this article argues that EU integration and the transformation of post‐communist Europe is a much more complex, volatile and uncertain process; not so much one of adaptation but more a ‘quantum leap’, apparently bypassing the stage of a Keynesian regime. Post‐communist Europe is asked to join an EU agenda that has many features of what Jessop calls the ‘Schumpeterian Workfare Postnational Regime’ (SWPR). In that sense, EU integration of post‐communist welfare is not simply a ‘catch‐up’, it is a complex transformation process whereby, rather than EU Enlargement and Eastern Europe being seen as a threat to ‘Social Europe’, the EU imposes its own ‘social deficit’ and economic hegemony onto Eastern Europe.     

Has the Nordic Welfare Model Been Transformed?

The Nordic welfare model is undergoing a fundamental transformation. Using Denmark we show how a universal welfare state model is gradually being transformed into an emergent multi‐tiered welfare state. Whereas the Danish pension system's having become multi‐tiered in the 1990s, with private schemes – collective and individual – supplementing public schemes is well documented, scant attention has focused on more recent developments in other areas of the welfare state. This article shows how the multi‐tiered welfare state spread in the 2000s to policies for families, the unemployed and the sick. Although Denmark still offers universal coverage in core welfare state areas, the increased use of occupational and fiscal welfare as well as changes in public schemes has gradually transformed the nation into a multi‐tiered welfare state that is more dualistic and individualistic, with participation in the labour market becoming still more important for entitlement to benefits. These profound changes have taken place in such a way that although core characteristics are still in place, new structures and understandings of the welfare state are also developing. Thus classical typologies need revision, so that they include more focus on this combination of universality and institutional attachment to the labour market. Moreover, measures of what welfare comprises should include not only public but also private elements.     

Question worth 20 million lives: Why federal housing assistance has not had its Obamacare

The equitable character of a policy determines its progressiveness, yet some domestic policies are more equitable than others. The question of how and why this is the case is addressed by studying federal housing and health policies in the United States, a critical case known for its rampant inequalities in both sectors. Although social equity is a fundamental aspect of welfare provision, explaining differences in coverage and government support among policy areas remains a weakness in the literature. This comparative historical analysis shows that both housing assistance and health care suffered from inequities almost as early as their inception. But a progressive reform took shape with the Affordable Care Act (ACA) and extended coverage to 20 million people formerly uninsured. This essay tackles an unsolved puzzle: Why has such grand policy reform never taken place in housing where more than 20 million people are eligible for assistance but do not receive help? We found that it is largely explained by housing assistance distinctiveness with regard to its weak constituency, racial connotation and low public concern. We conclude with the analytical payoffs of studying social equity, both for political scientists and observers of social affairs.     

Discourse, Learning and Welfare State Change: The Case of German Labour Market Reforms

In this article we argue that Germany has significantly changed its approach to labour market policies (LMPs) during the past decade; in many instances Britain has served as a model to learn from. In a first step, we identify the core institutional arrangements of the conservative approach to LMP in Germany and contrast them with the liberal approach, using the UK as an example. Secondly, we trace the development and nature of changes in German LMP since the 1990s. We show that the policy has increasingly incorporated elements of, and to a considerable extent shifted towards, a liberal approach. Thirdly, we review competing theoretical approaches that might explain this turn in LMP and conclude that changed interpretative patterns have been crucial to understand the overall shift. Fourthly, utilizing the policy transfer framework, we show that in regards to the specific policy instruments German policy‐makers have learnt from the experiences in the UK.