Policy Diffusion and Policy Transfer in Comparative Welfare State Research

For many years, comparative welfare state research has followed a ‘methodological nationalism’ in the sense that countries were treated as independent units. Yet the recent ‘spatial turn’ in comparative politics has also influenced welfare state research. For some years now, the field has been witnessing a growing interest in questions about interdependencies and policy diffusion between countries. In this article, we provide a structured overview of the state of the art in the policy diffusion and transfer literature that deals specifically with social policy. We present and critically evaluate existing theoretical concepts and quantitative and qualitative methodological approaches that enable the analysis of interdependencies between countries. Moreover, we summarize the empirical findings of quantitative and qualitative studies on the diffusion and transfer of social policy, from some pioneering studies to the latest findings. Against this background we point out what we believe to be promising avenues for future research. We focus on five areas: theoretical work on the mechanisms underlying diffusion and transfer; methodological approaches; the impact of domestic institutions and policy characteristics on social policy diffusion and transfer; programme‐specific dynamics; and the systematic combination of horizontal and vertical interdependencies.     

Common paths,divergent patterns: The social protection by other means approach in Australia and Japan

This article reports on a study of the welfare reform trajectories of two countries that are often identified in the literature as having institutional patterns of the ‘social protection by the other means’ approach. It is questioned in the article whether these two countries have undergone a converging reform trajectory against the increasing forces of economic liberalisation and whether their distinct ways of doing social policy have now come to an end. It argues that while both Australia and Japan have followed a similar neoliberal path in their social policy reform direction, the forms and patterns they have taken to follow have been distinct, largely aligned with the existing structure of social protection in each. Distinctive strategies of welfare adopted by each country have led to a divergent pattern in their way of doing social policy.     

‘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.     

Privatisation and Welfare Services

This paper traces some of the persistent criticisms which have attended welfare provision in Australia and many other western industrialised nations over the past twenty years. Clearly, the most concerted attacks on the welfare system have come from the radical Right, who are becoming more adept at manipulating and hijacking the language and sentiments of supporters of welfare. The paper argues that the welfare crisis debate, of which privatisation has become an important component, has deceptively seized upon a particular, and simplistic, interpretation of economics and the economy of welfare, as a means of unfurling a broader ideological position on social and economic policy. The rhetoric of the ‘rational’ Right can have no legitimate place in the restructuring and improvement of welfare provision in Australia. It is essential to the continued development of the welfare system, that the ‘backlash’ proposals of the Right be comprehensively rejected, and exposed for their destructive capacity. Efforts to reverse the ideological shift created by the ‘New Right’, need to consciously reclaim and reinstate concepts of social justice and equity on the social policy agenda.     

Housing policy and asset building: exploring the role of home ownership in East Asian social policy

Western societies promote home ownership in the belief that it provides a means to build up individual welfare and security, potentially offsetting the inadequacy of social security to meet needs in retirement. Some East Asian economies have long focused on advancing ‘asset building’ through housing policy. These efforts have two purposes: to use housing investment to drive economic development and to build family assets throughout life as a component of income protection for old age. These purposes work well in some countries but not as well in others. In policy terms, the common element among them is that governments promote home ownership as a component of social policy or as a complement to mainstream welfare. This article examines how home ownership fares as a form of asset-based welfare in selected East Asian countries (Singapore, Hong Kong and Japan) and considers the implications for understanding the role of institutions in development.     

From Social Instrument to Migration Management Tool: Assisted Voluntary Return Programmes – The Case of Belgium

The return of migrants to their country of origin and the development of efficient return measures have become more prominent on the political agenda of many Western European countries. Since policymakers prefer ‘voluntary’ return, governmental programmes to support the return of migrants – Assisted Voluntary Return (AVR) programmes – were developed as far back as the 1970s and have played an increasingly important role in migration policy over the last three decades. At the same time, general migration policy and welfare systems have undergone profound change, including in the meanings and connotations attached to social welfare, return support and return policy. This raises questions about the implications of these broader societal and policy changes for the widely implemented AVR programmes. In this article, we discuss the interpretation and evolution of AVR programmes by analyzing how one particular European country, Belgium, has developed its AVR programme over time. We explore the evolution of the programme's content, target group and institutional positioning, which shed light on its changing goals and are closely linked to a broader shift towards a ‘managerial’ approach to migration policy and the welfare state. We argue that return support may become decontextualized when it adopts ‘conditional entitlement’ as a central principle. This leads to strong differentiation, based on personal responsibility, between ‘deserving’ and ‘undeserving’ migrants, the levelling down of the support given to returnees, and a more coercive voluntary return policy in which social support is linked to deportation.     

From Subsidiarity to 'Free Choice': Child- and Elder-care Policy Reforms in France, Belgium, Germany and the Netherlands

This article analyses the patterns of reform in care policies in Bismarckian welfare systems since the early 1980s. Based on a comparison of France, Germany, Belgium and the Netherlands, the article shows that these reforms share similar logics and trajectories, which can be explained by the shared conservative and corporatist traits of Bismarckian labour markets and welfare state institutions and their impact on labour market adjustment possibilities and preferences. Indeed, we argue that care policy reforms have been very closely linked to specific employment strategies, and the politics of welfare without work and subsequent attempts to shift away from such a labour-shedding strategy go a long way in explaining both the nature and the timing of child- and elder-care policy reforms in Bismarckian welfare systems. The article also shows how a focus on promoting ‘free choice’ in all four countries has justified the introduction of measures that have simultaneously reinforced social stratification in terms of access to the labour market – meaning that some women have much more ‘free choice’ than others – and weakened certain labour market rigidities. To conclude, we argue that care policy reforms have provided a backdoor for the introduction of labour-cheapening measures and for increasing employment flexibility in otherwise very rigid labour markets.     

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.     

Conceptualising the politics of social protection expansion in low income countries: The intersection of transnational ideas and domestic politics

The growing literature on social protection in low income developing countries has tended to focus on definitional debates, policy design and impact evaluations, with relatively little consideration of the ways in which politics shape policy. This article argues that politics needs to be at the centre of efforts to understand social protection and outlines a new conceptual framework for investigating this, with a particular focus on explaining the variation in progress made by low income countries in adopting and implementing social protection. We propose that an adapted ‘political settlements’ framework that incorporates insights from the literatures on welfare state development – notably ‘power constellations’ theory, discursive institutionalism and global policy networks – can help frame political commitment to social protection as flowing from the interaction of domestic political economy and transnational ideas. Importantly, this approach situates social protection within a broader political and policy context, and highlights the influence of underlying power relations at multiple levels.     

An Audit of the Welfare Modelling Business

The ‘welfare modelling business’ has become central to comparative social policy in recent years. However, we argue that one important element in this literature, the usefulness of identifying ‘ideal types’ of welfare production that support theoretical development, has been neglected. While much effort has been devoted to the results of the number and composition of the worlds, insufficient attention has been paid to the analytical basis of welfare regimes. This article attempts an audit of the ‘welfare modelling business’, with a review and consideration of the main concepts used in the literature. Our main conclusion is that definitions, concepts and methods need to be given urgent priority for the investment in the business to produce future returns.     

Straddling Two Continents: Social Policy and Welfare Politics in Turkey

There has been an increasing academic interest in understanding the dynamics of social policy in the Middle East and developing a conceptual ‘model’ to account for the particular characteristics of welfare arrangements in the countries of the region. While part of this framework, Turkey represents an exceptional case due to the Europeanization processes the country is undergoing in various policy areas, including social policy. The influence of the European Union on the shape of Turkish social policy, as illustrated by the government's recent reforms in the labour market and social security domains, is hereby used to outline the position of Turkey vis‐à‐vis both the Southern European welfare regime and the Middle Eastern pattern. This article seeks to assess the dynamics of Turkish social policy in light of the country's political, and socio‐economic dynamics, as well as the external influence exerted by the EU and international financial institutions. The aim is to examine Turkish welfare arrangements in a comparative manner and consider its suitability with reference to either of the two models. Looking at major trends in social security and the labour market, the article argues for a Turkish ‘hybrid’ model embodying the characteristics of both. Subject to EU explicit pressures for reform absent elsewhere in the Middle East, the data nevertheless show that Turkey has yet to make the qualitative leap forward that could place it firmly within the Southern European welfare group.     

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.     

Characteristics of China's residual welfare system for elderly people

By focusing on China's residual features of a welfare system for elderly people, this paper examines three major issues: (i) The residual welfare provision in China presents informal, incremental, hysteretic and multitrack characteristics; (ii) This residual welfare is the result of the interaction of multiple factors, including modernization, social interests, state function, political structure and cultural values; (iii) From a welfare state perspective, the ‘universal’ policy and programmes currently advocated in China are largely a modified residual model. Although certain improvements have been incorporated into the theoretical discussion of social policy, in practice, effective solutions to the existing problems of China's welfare system require a further elevation of theoretical concepts and a reformation in governance structures.     

Punitive benefit sanctions,welfare conditionality,and the social abuse of unemployed people in Britain: Transforming claimants into offenders?

A defining feature of U.K. welfare reform since 2010 has been the concerted move towards greater compulsion and sanctioning, which has been interpreted by some social policy scholars as punitive and cruel. In this article, we borrow concepts from criminology and sociology to develop new interpretations of welfare conditionality. Based on data from a major Economic and Social Research Council-funded qualitative longitudinal study (2014–2019), we document the suffering that unemployed claimants experienced because of harsh conditionality. We find that punitive welfare conditionality often caused symbolic and material suffering and sometimes had life-threatening effects. We argue that a wide range of suffering induced by welfare conditionality can be understood as ‘social abuse’, including the demoralisation of the futile job-search treadwheel and the self-administered surveillance of the Universal Jobmatch panopticon. We identify a range of active claimant responses to state perpetrated harm, including acquiescence, adaptation, resistance, and disengagement. We conclude that punitive post-2010 unemployment correction can be seen as a reinvention of failed historic forms of punishment for offenders.     

'Sifting the Wheat from the Chaff': A Two-dimensional Discriminant Analysis of Welfare State Regime Theory

Welfare state modelling has long been an important strand within comparative social policy. However, since the publication of Esping‐Andersen's ‘Worlds of Welfare’ typology, welfare state classification has become particularly prominent and a multitude of competing typologies and taxonomies have emerged. Each of these is based on different classification criteria, and each is trying to capture what a welfare state actually does. The result is that the literature is in a state of confusion and inertia as it is unclear which of these rival systems is currently the most accurate and should be taken forward, and which are not and should perhaps be left behind. This article extends Bonoli's two‐dimensional analysis of welfare state regimes by using multivariate analysis of variance and discriminant analysis to compare and contrast the various classifications on universal criteria. It also examines the usefulness of the two‐dimensional approach itself and suggests how it can be enhanced to benefit future attempts at holistic welfare state modelling. The article concludes that there are some welfare state classifications that are more useful than others, especially in terms of reflecting a two‐dimensional analysis: it thereby ‘sifts the wheat from the chaff’ in terms of welfare state regime theory.     

Rise of the Regulatory Welfare State? Social Regulation in Utilities in Israel

This article explores the relation between economic liberalization, regulation and welfare. It asks how the state regulates, delays or prevents service disconnection due to debt and arrears, and what this kind of policy implies regarding the use of regulation as a form of social policy. This is done through a comparative study of the electricity and water sectors in Israel after liberalization. It finds that after initial economic reform, both sectors saw a growth in regulation intended to compensate for the social effects of reform, in what may be termed the ‘regulatory welfare state’. However, this form of social protection has been residual and incoherent. The article argues that trying to separate economic reform from its social consequences is unrealistic and may lead to adverse social and economic results. Second, findings raise concerns regarding the potential of the regulatory welfare state to deliver effective and fair social policy.     

From altruism to sociality: A switch in perception

The article critically reviews concepts and uses of the term altruism in relation to the emergence of the capitalist welfare state. It argues that altruism may be regarded as a fetishized representation of ‘sociality’ and that notions of altruism tend to obscure or distort understandings of the essential social interdependence that characterises humanity as a species. The article reaches back to anthropological evidence, to religious and philosophical influences, and to insights from scientific inquiry and it makes a case for a humanistic switch in perspective within the study of social policy.     

Unemployment Protection and Family Policy at the Turn of the 21st Century: A Dynamic Approach to Welfare Regime Theory

This article contributes to the welfare state regime literature from a substantive and methodological perspective. At a very abstract level we confirm the relevance of the welfare state regime theory and stability for the period from 1971 to the end of the 1990s. However, by analyzing family policy and unemployment protection, we observe a dual transformation of the welfare state, consisting of a trend towards a ‘socialization’ of family policies and a retrenchment in unemployment insurance benefits. Our Multiple Correspondence Analysis (MCA) of the two policy domains captures the multi‐dimensionality of the decommodification and defamilialization concepts and visualizes welfare state developments over time in a Cartesian space. This dynamic analysis provides us with a nuanced understanding of welfare state regime stability and change.     

Lineages of the Iranian Welfare State: Dual Institutionalism and Social Policy in the Islamic Republic of Iran

This article examines the relationship between welfare and state governance in Iran since the 1979 Revolution. It argues that the contemporary set of social welfare organizations in Iran arose as a corollary to post‐revolutionary state formation, particularly during the 1980–8 war with Iraq. The Revolution itself resulted in a process of ‘dual institutionalization’ where new revolutionary organizations appeared in tandem with the inherited bureaucracies of the Pahlavi Monarchy, and both sets of institutions were directed by the new regime towards social welfare in areas relatively untouched by the ancien régime. These institutions were locked in place by the exigencies of the long war that followed, and most have continued to the present. This is followed by a discussion of the main developmental outcomes of the past three decades in Iran in literacy, health and poverty. The article concludes by discussing how the successes and shortcomings of the Islamic Republic's welfare system are consequential for understanding broader developments in Iran today.