Decentralization of decision making: the case of payment policies for children's daycare

To bring about equality, the Nordic welfare states have provided a broad range of services with as homogenous eligibility criteria as possible. This homogeneity of social benefits has been obtained by centralized decision making and a high degree of statutory regulation. Recent trends in all welfare states veer towards greater local independence and decentralization. This article examines how the decentralization of decision making in Finland has affected the realization of basic welfare state principles. The specific aspect from which the topic is examined are user fee policies for children's daycare. The analysis gives a rather inconsistent picture of possible explanations for the differences between daycare payment policies. Municipal decision making is influenced by economic rather than political or structural factors. However, logical economic explanations are found only in large municipalities. This study highlights that decentralization of decision making has put families in very different economic positions in different municipalities - municipal traps are emerging. The relationship between welfare services and income redistribution has become ever more complicated as decision-making powers have been localized. A family may, for example, be paying the highest daycare fees but at the same time be entitled to social assistance.     

Policy-makers in social services in Finland: the municipality and the state

Finland has been a latecomer in its development of social services. Nevertheless, during the 1970s and 1980s, it constructed a wide-ranging system of social services. This is a result of cooperation, but also of inter-administrational struggle between central and local government. The provision of Finnish social services has been the responsibility of self-governing local municipalities, although it is subsidized and controlled by the state. The proportion of state financing has increased remarkably during the last decades, but the municipalities still finance half of their social service expenditure themselves. The economic recession of the 1990s has led to a restructuring of the Finnish model of social services, but local government will evidently remain at the center of decision-making on social service provision.     

What are Children's Centres? The Development of CC Services, 2004–20081

Children's centres are intended to be a mainstream, universal service. They began in 2004 and their origins are diverse. Some replaced various forms of local provision, most notably Sure Start programmes; others were established from scratch. Issues for exploratory empirical work have been identified from the guidance issued by central government. Using interview data from three urban local authorities, this article explores the nature of the ‘core offer’ that centres are expected to provide and the way in which they have pursued the goal of integrating staff and services. The article highlights the problems of balancing a focus on the child and on the parent; of reconciling childcare provision as part of the employability agenda and as a means to educational achievement for the child; of permitting local variation while achieving consistency; of the role of monitoring in relation to developing good practice; and of achieving integration in a mixed economy of care. We find that despite the greater specification of the core offer for children's centres compared to that for Sure Start, there are substantial differences between children's centres in terms of services, while the mixed economy of provision poses considerable challenges to the goal of integration.     

Stepping through the door – exploring low‐threshold services in Norwegian family centres

Public policies encourage the service system to work in new ways to promote health and increase social equality. This paper presents four categories that show the character of the low‐threshold services in Norwegian family centres from the professionals' and parents' perspectives, focusing on accessibility and participation: easy access, low level of bureaucracy, collaborative competences and inclusive arena. This paper is based on an inductive study in three municipalities that have chosen to establish family centres as interdisciplinary co‐located services that aim to offer low‐threshold services for children and their families. Data were generated through a fieldwork, and participatory observation and interviews were the main source of data. The methodological framework for the analysis was grounded theory, in which the data generation and analysis interchanged throughout the study, and theoretical sampling set the focus for the fieldwork. Exploring the actor's perspective highlighted both strengths and challenges with the low‐threshold services in the family centres. The four elements presented emphasize that the value of these low‐threshold services are not found in one single hallmark; rather, the value depends on an interaction between different elements that must be addressed when establishing, evaluating and developing low‐threshold services in family centres.     

Choosing Whether to Buy or Make: The Contracting Out of Employment Reintegration Services by Dutch Municipalities

The Western welfare states are under reform. An important part of these reforms is the introduction of market type mechanisms for the deliverance of public services. Over the years, many countries have chosen to contract out employment reintegration services. The underlying notion of contracting out is the belief that the introduction of market elements in the production of public services increases effectiveness and efficiency. In addition to the cost benefit argument for contracting out public services, ideology is often brought forward as an important factor explaining why public services are provided in‐house. In this article, we analyze to what extent cost benefit arguments and ideology affect the make or buy decision of Dutch municipalities. The Dutch employment reintegration market poses an interesting case in point since Dutch municipalities have the option to either provide employment reintegration services themselves or to buy services on the market. Our analysis shows that cost benefit arguments do not play a role in the make or buy decision of Dutch municipalities. Ideology, however, does. Municipalities that adhere to the principles of New Public Management more often opt to buy employment reintegration services on the market. Also the outcomes of municipal elections have been found to be of importance – left‐wing municipalities more often choose in‐house service provision.     

Vulnerable children's rights to participation,protection, and provision: The process of defining the problem in Swedish child and family welfare

This study addresses the relationship between children's participation and the protection and provision offered to them by social services in Sweden. It applies a theoretical framework for analysing child welfare that is anchored in the United Nations Convention on the Rights of the Child. How child participation may affect child protection and provision is examined empirically using case documentation from 2 municipalities. The main finding is that when children are not given voice or opportunity to influence the framing of what “the problem” is, the design of protection and care tends to be poorly matched to the actual problems documented in the child investigation and vice versa; when children can influence framing, this is associated with well‐matched protection and care. This suggests that traditional child welfare ethos, to the effect that protection should be of such overriding concern that children even should be protected from participation, is misguided. The study further illustrates the intrinsic problems with the family orientation of Swedish social services and its reliance on partnership with parents, which makes it difficult to live up to the Convention on the Rights of the Child. Incorporating child participation into existing service models can transform Swedish social services to an augmented child‐focused system that by ensuring participation also promotes protection and provision.     

Developments in home help for elderly people in Denmark: the changing concept of home and institution

The official figures on provision of home help in Denmark are compromised in that they include figures for help delivered to people living in assisted-living dwellings, facilities that were formerly considered nursing homes. Furthermore, many municipalities have integrated home help and nursing-home care and report this as home help. This article examines the effect of these administrative arrangements on the provision of home help and the distribution of home help in terms of hours per week. There has been a polarisation in size of care packages: a smaller group of recipients composed largely of people residing in assisted-living dwellings receive larger care packages, whereas the care packages to people living in their own dwellings have decreased in size. However, a sleight of hand of definitions regarding the concept of home has made the official figures on provision of home help look even more generous than they are.     

Substitution in statutory and voluntary support for relatives of older people

This study investigates the relationship between statutory and voluntary activity in the field of support to family carers of older people in Sweden. The relationship is considered in regard to substitution theory. A survey was conducted comprising 80 local authorities and 358 voluntary organisations. All the local authorities and about a third of the voluntary organisations arranged support activities. The number of activities varied substantially across the municipalities. However, correlation analysis found no significant relationship between local authority and voluntary activity, even though both sometimes arranged the same kinds of activities. In other words, this study finds no support for substitution theory. On the contrary, it shows that a higher level of voluntary activity is found in municipalities where the local authority cooperates with or supports voluntary organisations.     

Inequality in the welfare state? Local variation in care of the elderly – the case of Sweden

This article uses Sweden as an example to describe and analyse municipal variation in services and care for elderly people. Responsibility for these services lies with the municipalities. National statistical data on municipalities are analysed to map out the variations in old-age care; to study compensating factors in the care system; and to explore the connection with municipal structural and political conditions. The overall finding of the bivariate analyses was that most relations with structure and policy were weak or non-existent. The final multivariate model explained only 15% of the variance. The large differences between municipalities makes it more appropriate to talk about a multitude of 'welfare municipalities' rather than one single welfare state. The article concludes that this municipal disparity constitutes a greater threat to the principle of equality in care of the elderly than gender and socio-economic differences.     

Language Policy and Provision in Social Service Organizations

This paper reports the findings of a survey into minority languagepolicy and provision in social service departments and largevoluntary social service agencies in England and Wales. It foundthat many organizations lacked specific policies on the provisionof services to minority language communities and that most werepoorly prepared to meet their needs.     

Digital by default? A qualitative study of exclusion in digitalised welfare

Digitalisation reforms have become increasingly pervasive across European welfare agencies and public sector institutions. As welfare provision becomes premised on the use of digital technologies, often in the form of “self‐service” solutions, new demands are imposed on citizens, including already disadvantaged groups. Although existing research has showcased how digitalisation often reproduces existing lines of stratification, little to no work has been conducted on such processes in the context of welfare provision and public administration. Through a study of citizen service centres in Denmark, based on ethnographic observations and qualitative interviews, this article analyses the new exclusionary mechanisms that emerge at the frontline of the digital agenda. The article argues that digitalised welfare agencies simultaneously sustain existing lines of social stratification and enhance these by producing new forms of digital exclusion. Taken together, the article contributes with new knowledge on the impact of digitalisation policies and their exclusionary consequences for disadvantaged citizens.     

Facilitating the professional transition of migrants in Australia: does gender matter?

This article explores the provision and effects of a program devised to facilitate the professional transition of skilled migrants from non‐English‐speaking backgrounds (NESB) arriving in Australia on permanent visas. The program (‘Skilled Professional Migrants Program’—SPMP) was delivered by AMES Australia and internally evaluated through a telephone survey of 337 past participants. A report of survey results, primarily gauging short‐term post‐program employment outcomes, presented a very positive picture. In this paper we take a fresh look at the quantitative and qualitative survey data in order to analyse the success of the program from the perspective of gender. The paper focuses on gender differences in professional employment transition post‐program in the context of the structural impact of the gendered labour market. We found a significant difference between NESB men and women in their post‐program labour market incorporation into professional jobs that matched their skills. The gendered structures also influenced the ‘networking effect’ of the professional transition program.     

The impact of policy measures and coaching on the availability and accessibility of early child care: A longitudinal study

We conducted a study of changes in the availability, accessibility and enrolment of children from low‐income, single‐parent and ethnic minority families in early child care centres. The study was carried out in Brussels which offers unique possibilities to study accessibility in a context in which quality and costs are controlled across centres. A survey on access policies in 89 day care centres, and on 150 mothers regarding their search process, was complemented by two focus groups attended by centre directors. The results were compared with data from a similar study we conducted in 2005. The results show that while inequality in availability has remained, centre directors' awareness of social priority criteria has changed, resulting in a significant increase in the enrolment of children from single‐parent and ethnic minority families, and – to a lesser extent – an increase in the enrolment of children from low‐income families. The results support the hypothesis that policy measures, combined with support, can influence inequalities in enrolment rates.     

A marketization process in dispute: An analysis of serviced housing for the elderly in Finland, 2000–14

Marketization can be viewed as a potential response to the economic challenges of the public sector. The present study is focused on the development of marketization in serviced housing for the elderly in municipalities within Finland. Marketization is approached by asking the question: What kind of municipality‐level factors are associated with marketization and its development? The data consist of 290 municipalities and cover the years 2000–14. According to the study, the size of the municipality, the political distribution of the municipality council, and the economic situation of the municipality are found to be associated with marketization. More preciesly, the municipality size was found to be a kind of prism, which creates two different realities when it is linked with political distribution and transfers. In the case of big municipalities, the big share of Green‐Left council members on municipality councils has been associated with a low level of marketization. However, in the case of small‐ and medium‐sized municipalities, the low level of marketization has been associated with the government statutory transfers between the state and municipalities, which has helped smaller municipalities to avoid fiscal stress. In a policy context, the present study suggests that the marketization process can be slowed down by supporting the economically weakest municipalities to avoid fiscal stress. On the other hand, the marketization process can be supported by creating bigger municipalities which are then attractive enough to create an effective market mechanism.     

The residential home – what difference does it make?: Comparing the public systems of care for the elderly and disabled in two Swedish municipalities

Two municipalities in Sweden – Solna and Sigtuna – have taken part in a project (the ASIM project) aimed at developing a system for monitoring and analysing the public system of long-term care and assistance for elderly and disabled people. The two municipalities have chosen different alternatives in the question of residential homes. In Solna they have been retained and in Sigtuna they have been converted into sheltered housing. By separating the clients into different classes of dependence using the ASIM assessment, it is shown that in Solna, compared with Sigtuna, fewer of the most dependent clients are in long-term hospital care and fewer of the high-medium category are in domiciliary care. The data were used to calculate the distribution of the clients and the average dependence on the different levels of care if Solna were to apply the care pattern of Sigtuna and vice versa.     

Is Sweden Being Torn Apart? Privatization and Old and New Patterns of Welfare State Support

This article examines the potential impact of institutional change on popular welfare support. The encompassing welfare state of Sweden provides an interesting case where the privatization of social service delivery has been widespread over the last decades. We use survey data from five rounds of the Swedish Welfare State Survey (1992, 1997, 2002, 2006 and 2010) in order to study how public preferences for the financing and organization of welfare services have changed over time. Based on a theory describing an ideal‐typical pattern of public support for an encompassing welfare model, we derive three types of public preferences: support for a pure state model, a pure market model and a mixed model (welfare services are funded by taxes but provided by private firms). We begin by tracking the development of these ideal‐typical attitude patterns between 1992 and 2010. We then investigate how preference patterns vary across municipalities displaying different degrees of privatization of social service delivery. Our results show that welfare support among Swedes over the last decades is better characterized as dynamic rather than stable. Swedes seem to take an overall more ideologically based position on the role of the welfare state over time. The share of respondents expressing such ideologically based preferences has increased from 54 per cent in 1992 to 78 per cent in 2010. This change is principally manifested in increased support for the state and mixed models. This trend seems to be parallel to the increasing share of private welfare service providers over the last decade. We also find a link between the municipal degree of privatization and support for our three ideal‐typical welfare models. Public support for a mixed welfare model and, to some extent, a market model, is comparatively stronger in municipalities where welfare services to a large extent are carried out by private actors. Conversely, data shows that public support for the traditional Swedish state model is more widespread in municipalities having a low degree of welfare services privatization. Lastly, we discuss some theoretical implications of our findings.     

Population Redistribution in Australia: The Problem of Competing Location Preferences

Results from an exploratory survey are used to indicate the importance of the subjective dimension in relocation decisions and policies directed towards population redistribution. The competition between alternative residential location preferences amongst the sample surveyed indicates possible obstacles to the implementation of selective decentralization programmes and the rapid development of designated growth centres.     

DECRIMINALISATION OF PUBLIC DRUNKENNESS IN WESTERN AUSTRALIA: THE PROCESS EXPLAINED

Two alternative models of service provision are associated with decriminalisation of public drunkenness – the medical or sickness model and the social welfare model. In the development of alternative strategies to accompany decriminalisation, Australian jurisdictions have largely followed the latter welfare approach. In Western Australia, decriminalisation of public drunkenness was spurred by the recommendations of the Muirhead Interim Report on Aboriginal Deaths in Custody. A community development approach was used to establish local management structures for sobering-up programs in areas of greatest need. Three sobering-up centres are now operating in the State with a fourth centre due to open in mid 1993. Some preliminary evaluation of the Western Australian program has been carried out but a more comprehensive research and evaluation program is being conducted to assess the impact of decriminalisation and the development of alternative responses.     

Getting a head start: early provision of day care among municipalities in Norway

Municipal day care services for children in Norway have experienced two important reforms: the introduction of the Kindergarten Act in 1975, and the introduction of preschools for 6-year-olds in 1991. Focusing on the relationship between environmental inputs and policy outcomes, this article attempts to identify characteristics influencing the propensity towards early provision of day care in the municipalities. Applying logistic regression, service-specific factors show the greatest importance, as opposed to more general municipal features. The political system, in terms of high female representation and low representation from the Christian Democratic Party, the Center Party, and the Progress Party in local councils, seems responsive to the proportion of children, the percentage of women working full time, and average net income per capita. The persisting importance of gender-specific variables is discussed – suggesting different interpretations of the results in relation to the feminization of politics.     

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.