Pawns or Pioneers? The Logic of User Participation in Anti‐poverty Policy‐making in Public Policy Units in Belgium

Since anti‐poverty policy‐making in Belgium is embedded in a logic of user participation, social policy has shown interest in employing users with experience of poverty as experts in public policy units in order to implement and monitor anti‐poverty policies. In this article, we discuss this recent development as a relevant case for contemporary public service delivery in the European context. In the light of the ambiguous practices of user participation in Belgium, the enacted logic of involving service users in public service delivery is discussed, and potential risks and opportunities identified: do these individuals function as pawns or as pioneers? In search of opportunities for the implementation of anti‐poverty policies, we explore different ways in which public policy units can act upon the participation of employed service users in public service delivery. On the level of public service delivery, we argue that the participation of expert users risks their use as a mere blind, de‐responsibilizing those who work in public policy units in providing high‐quality services and being responsive to all service users including those living in poverty. On the level of these individual experts, we argue that the employed service users risk becoming pawns, acquiring a tragic‐optimistic outlook on life. We conclude that enabling service users to participate as pioneers requires the joint and mutual responsibility of the employed service users and those who work in public policy units for implementing and monitoring anti‐poverty strategies rather than exclusive responsibility assigned to individual service users.     

Service Users with Experience of Poverty as Institutional Entrepreneurs in Public Services in Belgium: An Institutional Theory Perspective on Policy Implementation

In this article, we report on a qualitative and interpretative research project in which we gained in‐depth knowledge about dynamics in ten federal public policy units in Belgium where a service user with experience of poverty was employed. Starting from an institutional theory perspective, it was argued that these service users with experience of poverty can possibly feature as institutional entrepreneurs or agents of change who initiate a critical reflection in the mindset of fellow social administrators about taken‐for‐granted practices, routines and rationales. In order to fulfill this ambition, we equally stressed that service users with experience of poverty should be able to perform two other roles as well: to provide direct support to citizens, especially those living in poverty during their contacts with a public policy unit, and to formulate concrete propositions to change some of the policy units' internal procedures. Our research findings reveal that these two roles provide a necessary breeding ground for further interaction and (in)formal dialogue between service users with experience of poverty and fellow social administrators about the quality and accessibility of service delivery. However, installing this shared responsibility proves to be a valuable but also gradual process, and we argue that it is therefore undesirable when service users with experience of poverty act as so‐called ‘heroes’ in changing these taken‐for‐granted institutional practices, routines and rationales.     

Middle‐Class Political Activism and Middle‐Class Advantage in Relation to Public Services: A Realist Synthesis of the Evidence Base

Since the late 1960s social policy scholarship has been concerned with the distribution of the resources or benefits across social gradients. This article presents a review of the literature on one mechanism by which inequity might be produced – activism by middle‐class service‐users enabling them to capture a disproportionate share of resources. The review used the methodology of realist synthesis to bring together evidence from the UK, the USA and Scandinavian countries over the past 30 years. The aim was to construct a ‘middle‐theory’ to understand how and in which contexts collective and individual activity by middle‐class service‐users might produce inequitable resource allocation or rationing decisions that disproportionately benefit middle‐class service‐users. The article identifies four causal theories which nuance the view that it is the ‘sharp elbows’ of the middle‐classes which confer advantage on this group. It shows how advantage accrues via the interplay between service‐users, providers and the broader policy and social context.     

Room to move? Professional discretion at the frontline of welfare‐to‐work

Outcomes of social policies have always been mediated by the discretionary agency of front‐line staff, processes which nevertheless have received insufficient attention in policy evaluation and in the social policy literature more broadly. This article takes the case example of the policy reforms associated with the Australian government's welfare‐to‐work agenda. Drawing on two discreet research projects undertaken at different points in the policy trajectory, the practices of social workers in Centrelink – the Commonwealth government's primary service delivery agency involved in welfare‐to‐work – is examined. Centrelink social workers have been and remain one of the core groups of specialist staff since the Department's inception in the late 1940s, working to improve the well being of people in receipt of income security. Their experiences of the recent past and their expectations of the future of their professional practice as welfare reform becomes more entrenched are canvassed. In summary, the discretionary capacity of the Centrelink social workers to moderate or shape the impact of policy on income security recipients is steadily eroding as this group of professionals is increasingly captured by the emerging practices of workfare.     

A case study on a generalist service delivery model for street children in Durban,South Africa: Insights from the capability approach

This paper adopts a qualitative case study on the generalist service delivery model of I‐Care, a Durban‐based non‐governmental organization that works with male street children. Fifteen face‐to‐face interviews were conducted with 10 I‐Care employees and 5 former street children. A focus group was set up with I‐Care employees. Although existing literature is forthright about a generalist approach for children at risk, it remains unclear how to implement this approach in practice. This paper reviews a continuity of 5 fundamental social work practices for working with street children: (a) outreach work, (b) child–family and child–community mediation, (c) transitory care centres and programmes, (d) brokerage, and (e) mentorship and follow‐ups. The study analyses how these practices contribute to the capability and agency expansion of the street children and outlines challenges that service providers and former street children experience. The main challenges acknowledged are balancing between the agency and protection of street children and the adaptation of children to street life. The study proposes intervention strategies to overcome these challenges.     

Closing the gap? The effectiveness of referred access family support services

This paper presents findings from a study of the effectiveness of family support services provided through two family centres run by a voluntary agency in partnership with a South Wales local authority. It evaluates the effectiveness of family support services by looking at both the family views and a number of measurable outcomes in terms of reported changes in family functioning and the well‐being of children and parents. Interventions were monitored over 6 months using a pre‐test post‐test non‐equivalent groups design, incorporating quantitative and qualitative methods. Child well‐being, family functioning and some aspects of parental well‐being (related directly to the child) did improve over the intervention period for family support service users. This improvement resulted in the family support service users ‘closing the gap’ with non‐service users (comparison group), to such an extent on some measures, as to be statistically significant. The qualitative evidence confirmed these improvements. The only area that did not improve, according to the quantitative findings, was that of parental well‐being (not related directly to the child). This includes important factors around social support networks, such as parental confidence, social interaction and social contact. The reasons for lack of improvement in these areas are discussed, emphasizing the importance of monitoring the impact of using the service and incorporating a focus on the quality of the nature of the relationship between the worker and the service user.     

Modernization and Devolution: Delivering Services for Older People in Rural Areas of England and Wales

The modernization of public services, with its emphasis on managerialism, choice, co‐production and outcome focused service delivery, has been implemented to a certain extent in both England and Wales. Indeed, the welfare states in both countries share a great deal, particularly in relation to policy objectives and the expectations of citizens. Devolution has chiefly meant that the instruments used to deliver policy have separated, although it remains unclear whether this amounts to formal divergence. What is also unclear is to what extent have the experiences of those living within the policy environment in both countries separated or diverged? This article addresses this question using qualitative data composed of interviews with policy actors in six rural areas of England and Wales. By focusing on the discourses of people involved in modernizing and providing services for older people in rural areas, we bring out the impact of modernization for older people. What we show is that modernization engages both service users and the wider population who may one day become service users. But the emphasis on these groups unfolds in different ways in England and Wales. In England, where there has been a commitment to a customer citizen, policy at the local level has emphasized re‐enablement, community development and individual responsibility. In Wales, where modernization has focused on collaboration and citizenship, local policies have focused on service users, and on engagement with the voluntary sector. In effect, the policy environment provides a different context for the experience of ageing in both countries.     

A Capability Approach to Unemployed Young People's Voice and Agency in the Development and Implementation of Employment Activation Policies

In the UK, current approaches to employment activation are primarily concerned with rapid labour market entry, with jobseekers compelled to engage in activities or be sanctioned. The Capability Approach (CA) has been proposed as an alternative framework to measure successful employment activation. It is concerned with what people can do rather than what they actually do, together with their substantive freedom of choice. In applying the CA, attention is drawn to the need for jobseekers to have a voice in the design and implementation of employment activation programmes. Drawing on in‐depth qualitative research, this article uses the CA to explore the voice and agency of unemployed young people (aged 16–24) in the development and implementation of employment activation policies. It analyses how far, and in what ways, young people's ideas, experiences and voices are included in policy development and implementation. Reflections and conclusions are made about how the policy discourse which has stressed the importance of centring services on the needs of users is reflected in employment activation policy.     

Changing the culture of social care in Scotland: Has a shift to personalization brought about transformative change?

In April 2014, the Social Care (Self‐directed Support) (Scotland) Act 2013 (SDS Act) was implemented in Scotland. This marked a major shift in how social care is delivered and organized for both users and professionals across the country. Whilst it emerged through the personalization agenda—which has dominated international social care systems over recent years—self‐directed support (SDS) represented a significant shift in thinking for service provision in Scotland. In this article, we review the initial stages of policy implementation. Drawing on two Freedom of Information requests from 2015 and 2016 and a series of interviews with local authority practitioners, we argue that, to date, SDS has yet to produce radical transformative change. We explore the reasons behind this through four key themes. First, we highlight the challenges of promoting the principles of co‐production in policy and suggest that, in reality, this has been compromised through SDS implementation. Second, we suggest that SDS has been caught up in a policy overload and ultimately overshadowed by new legislation for health and social care integration. In looking at the impact of this relationship, our third theme questions the role of new partnership working. Lastly, we argue that the timing of SDS in a period of acute austerity in social care has resulted in disabled people being offered limited choice rather than increased opportunities for independent living.     

Digitalization,Street‐Level Bureaucracy and Welfare Users' Experiences

Internet/web‐based forms of communication have increasingly been implemented by welfare agencies. However, there have been few studies of the experiences of welfare service users and the consequences of new technology for welfare service users. To what extent is the new technology adopted by the Norwegian Welfare and Labour Organization (NAV) used, and how do the users apply and experience the new possibilities? Do screen‐to‐screen encounters replace face‐to‐face encounters, and is this trend affected by age, gender, education or type of benefit? To answer these questions, we combine survey data, short‐term fieldwork in welfare reception areas and qualitative interviews with people receiving health and work‐related benefits. Our study indicates that screen‐to‐screen interaction in general does not replace face‐to‐face encounters, as many face‐to‐face encounters are related to screen communication. However, digital competence combined with life circumstances appears to be the source of a new divide between welfare service users.     

Activation Reform and Inter‐Agency Co‐operation – Local Consequences of Mixed Modes of Governance in Sweden

Organizational reform has become a recurring solution to problems of social exclusion and unemployment. In Europe, and other parts of the world, there is a trend towards policies of ‘activation’ in employment and social policy. The idea of flexible, individualized and tailor‐made services is coupled with managerial and market‐based reforms as well as collaborative governance. In these complex structures of service provision, coordination and inter‐agency co‐operation have become key concerns. Based on a study of a recent reform of programmes for newly arrived refugees in Sweden (Etableringsreformen), this article seeks to contribute to the literature on governance of ‘activation’ by examining the consequences of mixed modes of governance (market and collaborative) on local inter‐agency co‐operation. Drawing on data from in‐depth case studies in two municipalities, it is demonstrated how the coupling of managerial practices and quasi‐markets with existing collaborative arrangements has created barriers for inter‐agency co‐operation. The results indicate that institutional tensions between governance forms represent an important factor for explaining governance failure in this policy area.     

Revisiting History: The Creation of Provinces and the Politics of Social Policy in a Democratic South Africa

The pre‐democracy negotiations between the African National Congress (ANC) and the National Party (NP) established nine provincial forms of government to replace the four provinces of the apartheid era. The nine provinces contrasted with the historical goal of the ANC to create a ‘democratic, non‐racial and unitary South Africa’. The NP wanted nine new provinces to prevent centralized state power under an ANC government and saw possibilities for winning electoral power in the Western Cape. The ANC conceded following political pressure from the Inkatha Freedom Party, which threatened civil war, and a policy shift after examining the German federal governance system. The article analyzes the history, politics, process and outcomes of the establishment of the nine provinces for social policy delivery in South Africa. It explores the contention that the nine provinces re‐fragmented service delivery (although not on a statutory racial basis) and created a system of fiscal decentralization with serious implications for social policy: weakening bureaucratic capacity, institutional capability and political accountability. The provincial governance mechanisms and fiscal institutions created a particular ‘path dependency’ which, 18 years after democratic, rule still impacts negatively on service delivery and more equitable policy outcomes. This is in part due to the undermining of provincial governance mechanisms and fiscal institutions by a significant minority of corrupt and incompetent provincial civil servants. The corruption of these provincial governance mechanisms and fiscal institutions erodes the egalitarian values aimed at creating a non‐racial, non‐sexist, democratic and unitary South Africa which historically underpinned the policy agenda of the ANC. It also has weakened social citizenship on a geographical and ultimately racial basis given the continuing co‐incidence of race and place in a democratic South Africa.     

Care of Older Adults in Iceland: Policy Objectives and Reality

ABSTRACT

We examine the implementation of the Icelandic government's policy on formal care of older adults in Iceland. The policy as expressed in legislation and other policy documents is to ensure access of older adults to the appropriate level of health and social care services. How does the actual level of formal care compare with the policy objectives? Does there exist an implementation deficit, and if so, why? We address the question by analyzing Icelandic and international statistical databases. The findings reveal a gap between the aims of the current policy and its delivery. As elsewhere in the Nordic region, the policy allows for the emphasis to be on home-care services in which the individual's needs are assessed comprehensively. Administrative problems and insufficient resources to better understand and explain the problem are identified. Current steps to address the problem include the necessity of a comprehensive evaluation of the level and quality of elder-care services in Iceland, which would help compensate for the shortcomings of the existing public statistical databases. In future research, it is necessary to analyze how services can be coordinated while increasing responsiveness to the voices of older adults and their relatives on the care of older people.     

The chain is never stronger than its weakest link: implementing a model of collaboration among agencies serving vulnerable children and adolescents

This article analyses agency collaboration to help vulnerable children and adolescents with complex social and psychological problems, examining the implementation of a formal collaboration model for these groups. This model, implemented in Västra Götaland, Sweden, involves five municipal agencies and five county council agencies in 49 different municipalities. Data were collected using two questionnaires sent to 355 lower managers and 424 professional representatives in the concerned organizations. The analysis demonstrates that there are differences in implementation results between the agencies, and that the differences are largely explainable by organizational self-interest and top management prioritization of collaboration model implementation. The main barriers to collaboration are factors modifiable by the agencies themselves, and perceived barriers decreased when the policy was working. The study suggests that managers of human service organizations must assume responsibility when implementing collaboratively, and that accountable professional and political leaders must rise above organizational interests to protect vulnerable citizens.     

What might Normalisation Process Theory bring to policy implementation studies? Learning lessons and uncovering questions through a case study of the profound implementation failure of a new policing policy

Normalisation Process Theory (NPT), used nationally and internationally to explore implementation within health services research, is used for the first time within policing to understand profound policy implementation failure and to generate broader discussion of policy implementation theory. The policy in question (Police to Primary Care [P2PC]) was an intervention designed to notify GPs when women are assessed by police as at high risk of future domestic abuse. Designed to improve interagency communication, it took place amidst radical organisational change. Using qualitative interviews with domestic abuse specialist and frontline officers, this paper addresses how NPT helps to explain the (non)implementation of P2PC, how such an analysis differs from other policy implementation approaches, and what this means for our understandings of policy implementation more broadly. NPT proved useful in understanding mechanisms leading to (non)implementation of the intervention: fuzzy alignment with existing practice, faulty communication of purpose, and inattention to discretionary implementation spaces. It helped us understand why the intervention came to be invisible. Dwarfed by its organisational context, made institutionally hard to read by a lack of formal protocols, and given restricted view to police officers, it was compromised by a failure to instigate systems of organisational learning. More broadly, NPT helped reveal practices intersecting top‐down and bottom‐up implementation theory. The paper concludes by asking how NPT and theories of street‐level bureaucracy might be better used in tandem and, particularly, how this might help explorations of policy implementation where human actors are joined by technological actors in interpreting and making policy in vivo.     

Family centres: a focus for the children in need debate

The development of child care policy has been characterized by debates organized along various intersecting constructs such as universal vs. selective services and prevention vs. treatment. Family centres, as a site of service delivery, represent a point of intersection of many of these arguments. Their role is contested between protagonists of all positions within the child care policy debates: whether they should be professionally managed, led by service users, provide a service to referred families, or offer a universal resource for local communities. This paper argues that a needs-led approach to family centre development may supersede the sterile dichotomies of many of these debates. A case study is presented of an evaluation research project, designed to inform a needs-led family centre policy for an urban unitary social services department. The methodology utilizes an approach combining quantitative analyses of geographical distributions of family need with qualitative presentation of the perspectives of actual and potential centre users, and agency stakeholders. The outcome is a family centre model which, by focusing on need, seeks to transcend the limited oppositions of the child care debates.     

Organisational transformation: a case study of the Chinese Mainland

It is necessary to develop a social service system as an efficient and effective system that is fit-for-purpose from the moment it is commissioned and flexible enough to adapt to a different social economic environment. In this paper, the case being studied is a small-scale social work organization in X city of Guangdong Province. The agency has to restructure itself in order to face the external changes in the environment. A 3PE model is originally an industrial service engineering model which is adapted and applied in this case study. The 3PE concepts represent the product, process, people and environment. This article brings significant implications to knowledge building in the social service sector. Moreover, it suggests ways for social work managers on how to act quickly to environmental changes.     

The assembly of active participation by parents of children subject to a multi‐agency model of early intervention in child and family services

The Common Assessment Framework provides a model of early intervention, which is familiar in local authorities throughout England, and asserts a participatory framework of child and family engagement. This paper is based on a qualitative study of parents and children who were subject to a multi‐agency process of early intervention in children's social care in a local authority in the Midlands of England. I advance the concept of assemblage to consider the basis of an active service user participation as rather more a struggle to achieve than something that has been granted by practitioner agencies. Interview extracts are used to show the enrolment and assembly of participation as a process of service users developing their active human agency in a multi‐agency setting. The article explores the assembling of skills in administration and management of meetings and plans, accessing knowledge and expertise through service user networks, and challenging professional expertise and institutional space while developing personal qualities of confidence and voice as a means of marshalling an effective participation in a multi‐agency setting.     

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.