Externalizing an ‘Asset Model’ of Activation: Creative Institutional Work by Frontline Workers in the Norwegian Labour and Welfare Service

The past two decades have brought significant shifts in Norwegian activation policy towards a joined‐up and employability‐enhancing approach to labour market inclusion in order to promote return‐to‐work despite health problems or disabilities. Utilizing a concept from health promotion, we term this approach an ‘asset model’ of activation. The Norwegian Labour and Welfare Service (NAV) and its local offices are the main agents implementing the new policy. This article aims to investigate the strategies that the frontline workers of NAV engage in, in order to externalize an ‘asset model’ in the adjacent medical field and to the general practitioners (GPs) in particular. We analyze these strategies as forms of creative institutional work – the purposive actions undertaken to change existing presumptions and opinions among relevant actors. We argue that although the new activation policy is not theirs to develop, in order to bring about changes in practice, ‘creating’ institutional work by the frontline workers is required. Our findings show that the frontline workers develop strategies in order to externalize an asset model to the GPs, as part of operationalizing an ‘activation’ reform into practice. We identify four forms of ‘creating’ institutional work undertaken by the frontline workers: ‘defining’ – enacting legislation and regulation in relation to GPs; ‘constructing normative networks’ – creating a more collaborative relationship with the GPs; ‘educating’ – teaching the GPs about the rules and regulations, and the opportunities and assistive measures they can offer to the injured; and thereby also ‘changing normative associations’ of GPs towards the activation policy.     

Developing geriatric social work competencies for field education

Preparing social workers to effectively practice with the growing older population requires the identification of geriatric competencies for the profession. The John A. Hartford Geriatric Social Work Initiative provided the impetus and direction for a national strategy to improve the quality of preparation of geriatric social workers. The Geriatric Social Work Practicum Partnership Program (PPP) is the project with the Hartford Initiative that emphasizes field education. The Geriatric Social Work Education Consortium (GSWEC), one of the PPP programs, initiated the development of competencies for work with older adults. GSWEC utilized Geriatric Social Work White Papers and the pioneering work of the Council on Social Work Education's (CSWE) Strengthening Aging and Gerontology Education for Social Work's (SAGE-SW) comprehensive competency list as well as conducted focus groups locally to delineate key competencies for field education. The Coordinating Center for the PPP, located at the New York Academy of Medicine, led in collaboratively developing knowledge based skill competencies for geriatric social work across all 6 demonstration sites (11 universities). The competencies adopted across sites include skills in the following five major domains: values and ethics; assessment (individuals and families, aging services, programs and policies); practice and interventions (theory and knowledge in practice, individual and family, aging services, programs and practice) interdisciplinary collaboration; and evaluation and research. The identified competencies have proven effective in evaluating students (n = 190) pre- and post PPP field education. The implications for further development of competency driven education for geriatric social work are discussed.     

‘Street‐level Bureaucracy’ Revisited: The Changing Face of Frontline Discretion in Adult Social Care in England

This reassessment of the continuing significance of Lipsky's (1980 ) work on ‘street‐level bureaucracy’ for frontline decision making is based on a retrospective review of the author's research on assessment practice in adult social care in England. The studies span the past two decades during which time successive governments have restructured and modernized social services departments. When these were established in 1970, they represented the high watermark of bureau‐professionalism – a mode of administration which dominated social welfare at the time Lipsky was writing. The subsequent dismantling of bureau‐professionalism calls into question the validity of his findings, and the author draws on her own research to assess conflicting views about the impact of social care reforms on the discretion which social workers exercise as street‐level bureaucrats. She concludes that the distinct types of discretion to emerge from her findings, represented in a taxonomy, are shaped by the differing micro environments of frontline practice which, in turn, affect the relative force of managerialism, professionalism and user empowerment in countering the defensive exercise of discretion described by Lipsky. Whilst her analysis affirms the continuing significance of Lipsky's analysis, it also points to the need for some revision to accommodate major shifts in welfare administration since the publication of his work. She highlights the potential relevance of these insights for investigating the next planned transformation of adult social care, personalization, as well as for the implementation literature more widely.     

It's More Than an M‐shape: The Political Economy of Female Non‐Standard Workers in the Republic of Korea

This study examines the re‐entrance of female workers into the Korean labor market. We highlight that women in their 40s have the highest rate of employment among all female workers and that a large proportion of these women are entering into non‐standard employment. In approaching this question, we examine the political economy of this phenomenon by first discussing the demand side of the Korean labor market using the gendering of the varieties of capitalism argument and then the supply side with the work–life balance argument. When examining re‐entrance into the labor market, women with general skills with lower education and higher education both found it more feasible to re‐enter the labor market as non‐standard workers. While work–life balance is a prominent reason for women's choice of opting out of the labor market, work–life balance choice mattered less for women re‐entering the labor market as non‐standard workers in their 40s and 50s but instead firmly based skill formation mattered more. In addition, the retail service industry is suggested to absorb a large number of female workers with lower skill levels who would have had difficulties in re‐entering other male‐oriented companies.     

Activation,Public Employment Services and their Clients: The Role of Social Class in a Continental Welfare State

This article fills a gap in the existing literature by investigating how public employment service (PES) staff actually deal with their clients under a continental regime of activation. The results reported here are based on interviews both with PES staff and their unemployed clients in Germany. We argue that due to its Bismarckian origins as an insurance‐based system of ‘unemployment protection’, Germany's system of unemployment compensation is attractive not only for the marginalized, but also for core workers. As a result, PES staff deal with clients from very heterogeneous class backgrounds. We demonstrate that social class is a significant factor in client outcomes, and that earlier research has perhaps overemphasized the role of frontline staff as ‘street‐level bureaucrats’. While staff do have considerable power, the result of the encounters between the administration and clients also depends on the capabilities of the clients, which, in turn, are strongly related to social class.     

Marketisation policies in different contexts: Consequences for home‐care workers in Germany,Japan and Sweden

Market‐oriented restructurings of long‐term care policies contribute significantly to the aggravation of care workers’ situations. This article focuses on the effects of broader long‐term care policy developments on market‐oriented reforms. Germany, Japan and Sweden are three countries that have introduced market‐oriented reforms into home‐based care provision embedded in distinct long‐term care policy developments. Conceptually, this article draws on comparative research on care to define the institutional dimensions of long‐term care policies. Empirically, the research is based on policy analyses, as well as on national statistics and a comparative research project on home‐care workers in the aforementioned countries. The findings reveal the mediating impact of the extension and decline of long‐term public care support and the corresponding development of the care infrastructure on both the restructuring of care work and the assessments of the care workers themselves.     

Frontline implementation of welfare conditionality in Norway: A maternalistic practice

Welfare conditionality is both ambitious and ambiguous for the frontline workers who put policy into practice. Since January 2017, the Norwegian frontline service should require social assistance benefit recipients under the age of 30 to participate in some sort of work-related activation, so-called mandatory activation. Drawing on qualitative interviews with frontline workers at local offices in the Norwegian Public Welfare Service (NAV), we investigate how the requirement is implemented in a context of a professionalised social welfare service. Mandatory activation is arguably a paternalistic measure. Drawing on Bernardo Zacka's concept of moral dispositions and Laura Specker Sullivan's concepts of maternalism, our findings indicate that at the frontline, mandatory activation policies are implemented by maternalistic decision making, emphasising the interpersonal relation between trained caseworkers and clients. The caseworkers use their discretionary powers in the implementation of conditionality and sanctions by emphasising care and support as embedded in the strict rules.     

Practices of activation in frontline interactions: Coercion,persuasion, and the role of trust in activation policies in Germany

Following Michael Lipsky's well‐known argument that policy is made in the daily encounters between street‐level bureaucracy and citizens, a growing body of research emphasizes that actors and organizations delivering social and labor‐market policy play a crucial role in welfare‐state politics. Using qualitative data collected at three local employment agencies in Germany, this article explores worker‐client relations as a crucial mechanism through which activation policies are translated into practice. The analysis investigates how caseworkers define their role and their relationships with clients. The findings show that it is essential for caseworkers to achieve client compliance. In such a context, building relationships of trust is a strategic instrument in overcoming possible barriers to co‐operation in the caseworker‐client interaction. Caseworkers develop strategies to create the impression of trustworthiness and to motivate both unemployed clients and employers to become trust‐givers in the caseworker‐client relation. While research has often stressed the dichotomy between disciplining and enabling elements of activation policies, our explorative study shows that persuasion and trust‐building are a further important dimension of the frontline delivery of activation policies. These strategies reflect the importance of emotional aspects of frontline work.     

Medical and housing needs of older part-time migrant workers and the role of government: the Linyi model in China

The political, social and academic attention on migrant workers in China has been focused on the full-time worker while those who seek part-time work are rarely studied. We explore the effect of part-time day-labour employment of older migrants in an odd-job market in Linyi City. The medical, housing needs and available services for them are analysed. The Linyi government pioneered a program providing comprehensive services to part-time migrant workers, allowing this study to explore the strengths and weakness of the model. Building the appropriate social service industry competencies demands a joint effort from the government, community, organizations, researchers and enterprises.     

Competency‐based Education: Evidence from Social Work Postgraduates from Five Universities in China

Social work education in China has undergone rapid development during last two decades. However, methods to define, measure, and evaluate social work students' competency remain largely unexplored. In this study, we evaluated competency in graduate social work students in China and examined factors that impacted competency, based on learning theory. Findings indicated that knowledge and skills learned in class, field placement, and social context all have effects on competency. How students think about individual development and the social work profession has the most significant effect. These findings carry implications for social work education in the Chinese context. The rapid development of social work education in China requires the effective measurement and evaluation of students' core competencies.     

Moral distress among social workers: The role of insufficient resources

The present study examined moral distress among Finnish social workers and the role of perceived resource insufficiencies in explaining it. The aim was to shed light on this understudied phenomenon in the field of social welfare. The study focused on work‐related moral distress, defined as impaired wellbeing that is connected to the continual inability to implement actions that one considers morally appropriate. The survey data were collected with an electronic questionnaire between the years 2011 and 2012. The respondents (n = 817) were social workers in the public social welfare services and the overall response rate was 46.5 per cent. Nearly 11 per cent of the respondents reported experiencing moral distress and perceived resource insufficiencies strongly explained this experience. Moreover, social workers with moral distress reported that they were less willing to continue in their post, were more frequently on sick leave and had positive work‐related experiences less often than their colleagues who did not experience moral distress. Key Practitioner Message: ● The concept of moral distress is useful in describing the experiences of social welfare workers when they are unable to practise their profession according to their moral code and the emotional burden related to this inability; ● Perceived resource insufficiencies are strongly associated with experiences of moral distress among frontline social workers; ● Social workers experiencing moral distress are less willing to continue in their work, take sick leave more often and less frequently have positive experiences related to their work.     

Performance Management,Caseloads and the Frontline Provision of Social Services

Caseloads and performance management are important working conditions of workers delivering public social services in street‐level organizations. The literature on these working conditions argues that high caseloads and performance management have considerable consequences for workers' performance in terms of the quality of services they provide and the results they realize. This article empirically investigates and compares these consequences, drawing on the results of a quantitative study of frontline workers in 14 local welfare agencies in the Netherlands. These workers are responsible for the delivery of welfare‐to‐work policies to social assistance recipients. The findings show that high caseloads do, indeed, have a detrimental effect on workers' performance, whereas the impact of performance management is more modest, though confirming some of the findings reported in other studies on performance management. The results also show that by focusing service provision on a proportion of their caseload, workers are able to reduce the negative impact of high caseloads somewhat. Overall, the article finds that the negative impact of high caseloads is more pervasive than that of performance management. The article concludes that the recent focus in the literature on performance management and its consequences for public services should not turn scholars' attention away from the ‘traditional’ public administration problem of high caseload sizes.     

Street‐level discretion,emotional labour and welfare frontline staff at the Australian employment service providers

Despite the current controversial debates about discretion in public bureaucracies in general, and in welfare agencies in particular, the current literature on street‐level bureaucracy mainly assumes that discretion is a distinctive feature of the daily work of public servants. Nonetheless, a pertinent question has not specifically been asked in this literature, that is, given the context of privatisation and increased welfare conditionality in the welfare sector that are seriously challenging welfare frontline staff's commitment to social justice and human rights‐based practices, what are forms of street‐level discretion likely to contribute to improving the quality of welfare services? In this study, we attempt to address this question by exploring discretion displayed by welfare frontline staff in four Australian employment service providers. We argue that emotional labour, especially when being informed by critical empathy, is an important and effective form of street‐level discretion that welfare frontline workers can perform to better support welfare recipients and minimise the punitive aspects of welfare policy.     

Combining generalist and specialist social work in activation policies: A participatory action research

In the last decades, activation policies and practices aimed at getting people off benefits and into work have been at the forefront of social policy. One of the challenges of activation practices is that social services with a narrow specialist focus fall short in supporting vulnerable target groups. A growing body of social work literature recognises that both generalist and specialist social works play an important role in supporting vulnerable target groups that face wicked problems. We conducted a participatory action research on how specialist social workers may adopt the principles of generalist social work in counselling and guiding people with multiple and complex needs towards the labour market.     

Implementation of Active User Principle: Learning from the Czech Social Services Reform

ABSTRACT

The active user principle introduced in Czech social services by the new Act on Social Services (2007) was expected to induce change of the prevalent paternalistic nature of social service provision. This study examines the relationship between clients and social service workers in social service facilities designed for people without shelter. From 2001 to 2008, instrumental case studies were examined from three different shelter facilities using qualitative interviews (with 17 members of staff) and document analysis. The findings indicated that neither the frontline workers nor the managers could always understand how to implement this principle. Response patterns and the effect it had on recipients are examined. These findings imply that such a profound change needs to be supported with proper explanation, professional training, and practical application skills. Directions for further application and future research are suggested.     

Activation and ‘coercion’ among Swedish social assistance claimants with different work barriers and socio‐demographic characteristics: What is the logic?

Nybom J. Activation and ‘coercion’ among Swedish social assistance claimants with different work barriers and socio‐demographic characteristics: What is the logic? The study analysed how the work barriers and socio‐demographic characteristics of both activated and non‐activated social assistance claimants influence their participation in activation and exposure to coercion, measured as two opposite indicators – sanctions and exemptions. The study covered 372 social assistance claimants in four municipalities during a period of 1 year. The results suggest that resource activation, which entails education and/or work practice in regular workplaces, often targets claimants who lack work motivation, whereas job activation, which aims at quick entry into the labour market, targets young claimants and claimants who lack formal skills (education and/or work experience). Swedish men older than 25 years appear to run the highest risk of facing sanctions irrespective of participation in activation. Exemptions vary more than sanctions between activated and non‐activated claimants. The results are discussed in terms of five logics operating in social work.     

Social Work Knowledge of Community-Based Services for Older Adults: An Educational Model for Social Work Students

Social workers are often the key link between older adults, their families and community-based services. Thus, knowledge about older adults and community-based care is imperative for social work practice. Evaluation data are provided on a national multisite effort (N = 353) from 35 schools to assure graduate social work student's competency related to community services for older adults. Results suggest that the educational model as described in this article sets forth positive outcomes in the education of aging savvy social workers. Ongoing social work education is needed to meet the burgeoning needs of the geriatric population.     

Social work knowledge of community-based services for older adults: an educational model for social work students

Social workers are often the key link between older adults, their families and community-based services. Thus, knowledge about older adults and community-based care is imperative for social work practice. Evaluation data are provided on a national multisite effort (N = 353) from 35 schools to assure graduate social work student's competency related to community services for older adults. Results suggest that the educational model as described in this article sets forth positive outcomes in the education of aging savvy social workers. Ongoing social work education is needed to meet the burgeoning needs of the geriatric population.