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.     

Motivating the unemployed: A full-range model of motivational strategies that caseworkers use to activate clients

Governments use activation policies to stimulate unemployed citizens in finding work. Caseworkers are, as front-line workers, responsible for concrete activation trajectories based on these activation policies. Little is known about how caseworkers try to get clients to participate in these activation trajectories. In a qualitative, inductive study (consisting of observations and reflective interviews) in two welfare agencies, we identified 10 motivational strategies that caseworkers employed. The full-range leadership model appeared to be an appropriate perspective to understand, systematize, and reflect on these strategies, in particular as our analyses show that these motivational strategies can be placed on a continuum ranging from laissez-faire to transactional and transformational strategies. We found that caseworkers matched their motivational strategy to the situation and client but preferred transformational strategies. Our findings implicate chances but also challenges for activation in practice and literature on front-line workers.     

Frontline workers' competency in activation work

Frontline workers play a crucial role in implementing activation policies. Nevertheless, research on what competencies are required for activation work is limited. We explored activation competency based on a survey of 1,735 frontline workers in the Norwegian labour and welfare administration. Factor analysis revealed two distinct underlying dimensions in activation competency: market competency and user‐oriented competency. We found that the social workers in the study viewed themselves as having significantly less market competency and slightly more user‐oriented competency than non‐social workers have, but the differences were small. The results also indicate that these effects are partially mediated by attitudes towards conditionality. The results give reason to treat activation competencies as twofold and raise the question of whether social work education improves frontline workers' competency in activation work compared with frontline workers with other educational backgrounds.     

The will to sanction: How sensitive are caseworkers to recipients’ responsibility when imposing sanctions on non-compliance in a welfare-to-work programme?

The activation trend in social policy entails that caseworkers on the frontlines of the welfare state are expected to decide ‘reasonable’ activation requirements for clients and when and how non-compliance should be sanctioned. This study investigates how caseworkers form judgements about their clients’ personal responsibility when activation requirements are violated and how their judgements about responsibility matter for the sanctions they impose. We find that caseworkers are sensitive to personal responsibility, varying the motivation for not fulfilling the activation requirement from a case where the client has less control (circumstances) to one with more control (choice) more than doubles sanctions.     

Resettled Refugees and Food Insecurity in the U.S.; Exploring the Caseworker’s Role

When refugees arrive in their new resettlement country, they are designated to work with a caseworker employed with a resettlement agency who helps them acclimate to their new environment and break down new challenges. Food insecurity is one such challenge that resettled refugees face. This study looked at the role that caseworkers play in helping clients navigate food security. Eight caseworkers from three resettlement agencies participated in semistructured qualitative interviews. Data analysis revealed four categories: the caseworker’s role, linking clients to benefits, concerns about food, and caseworkers’ perspectives. The main concerns revolved around federal food assistance benefits, reflecting past study findings, and warrants further investigation into the efficacy of such programs. Moreover, the caseworkers’ perceived role in terms of food security was vague and inexplicit from the Cooperative Agreement protocols. Food security focused training could improve caseworker’s capacity to help clients adapt to their new food environment.     

Stepfather involvement in social interventions made by youth protection services in stepfamilies

Despite efforts made by management and caseworkers to promote active parental participation in the protective context, fathers or other male figures are often brushed aside from intervention. This paper presents the results of qualitative research on methods used by youth protection caseworkers (n = 22) working with stepfather families. The main objective is to identify items that encourage or discourage stepfather involvement in psychosocial interventions. Results showed that certain items do not apply solely to stepfathers, but influence youth protection caseworker decision‐making from a broader perspective. Particular characteristics associated with being a stepfather significantly influence involvement practices espoused by caseworkers, notably the absence of legal status and biological connection with the mother's children.     

“I don't know what to do—Could it be cultural?” The operationalization of cultural sensitivity among street‐level workers in the Norwegian Labour and Welfare Administration

Faced with increased global migration and a more ethnically diverse clientele, several studies stress the need for more culturally sensitive welfare services. Others warn that the focus on culture might lead to the culturalization and othering of clients from ethnic minority or migrant backgrounds. In the Norwegian context, cultural sensitivity is implemented in policy documents of the Norwegian Labour and Welfare Administration (NAV) to improve services for immigrant clients. However, the operationalization of cultural sensitivity into service delivery remains unscrutinized. Based on ethnographic fieldwork at a frontline NAV‐office, this article unpacks the practical work embedded in being culturally aware, by exploring the circumstances in which street‐level workers factor culture into their comprehension and consideration of a case. The article employs a process‐oriented approach to its analysis of caseworkers' discussion of cases. Findings show that caseworkers explicitly consider culture mainly when cases appear diffuse and intangible. The caseworkers discuss plausible explanations to make sense of these cases, only one of which is culture. Thus, the caseworkers distinguish culture from the client's ethnicity or migrant background. These findings refine the perception of street‐level workers' inability to respond to questions of ethnicity and culture, by describing the dynamic processes of implicit categorization and sensemaking embedded in being aware of culture. The study also highlights the importance of empirical, ethnographic accounts to unpack the operationalization of such theoretical and ambiguous concepts into practice.     

Disciplining Disability under Danish Active Labour Market Policy

This article explores how caseworkers are re‐constructing disability in the Danish welfare system and disciplining themselves and clients according to the active labour policy paradigm. Combining Foucault's ideas about discipline with Maynard‐Moody and Musheno's method of interpreting street‐level bureaucrats' stories ( Foucault 1977 ; Maynard‐Moody and Musheno 2003 ), we analyze caseworkers' stories about their clients, fellow caseworkers and themselves to understand how they practice the ideology behind active labour policy. Our analysis uses Møller's (2009 ) interviews with 24 Danish caseworkers who administer social welfare and sick leave benefits based on disability as the primary eligibility criterion. We selected stories told by caseworkers that exemplify archetypes of good and bad citizens, good and bad clients, and good and bad caseworkers. Through interpretative analysis, we elucidate how caseworkers make sense of active labour policy and internalize the pressures of managerial reforms to discipline both citizens and each other.     

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.     

Do social work education,job description,and cultural competence foster child‐welfare caseworkers' therapeutic alliances?

We explored whether the strength of caseworkers' engagement with families in the child‐welfare system was associated with the caseworkers' academic degrees, job responsibilities and environments, and/or ethnicity. We extracted data from a national data set describing 1,714 caseworkers. Results confirmed significant association between caseworkers' confidence in their engagement with families and (a) master's‐ and bachelor's‐level social work education, (b) adequate supervision at work, (c) cultural‐diversity training, (d) job focus (screening/investigation, out‐of‐home placement, or reunification), and (e) homogeneous race/ethnicity of caseworker and client.     

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

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

Bridge Builders: A Qualitative Study Exploring the Experiences of Former Refugees Working as Caseworkers in the United States

ABSTRACT.

Individuals who come to the United States as refugees and work as resettlement caseworkers offer peer support, modeling, and assistance with integration to newly arriving refugees, despite often having limited training or experience in social service provision. A phenomenological approach was utilized to gain understanding about the experiences of refugee caseworkers. Nine caseworkers who came to the United States as refugees completed in-depth interviews. Thematic analysis was used to identify primary themes, including: a) the caseworker's bridge-building role with clients; b) their role in building bridges with others in the community, including the resettlement agency; and c) the caseworkers’ experience as bridge builders, including motivations, perspectives toward their role, and needed supports. Refugee service providers face unique challenges in negotiating boundaries with clients and meeting the expectations of their ethnolinguistic community members. Their strengths in understanding household experiences and in building agency and community understanding highlight their ability to contribute to positive resettlement outcomes. The findings from this study have implications for agencies serving refugees and for other social services that utilize peer-support strategies, particularly in regards to staff training and support. Findings highlight the need for research examining effective resettlement strategies and the perspectives of refugees toward resettlement approaches.     

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.     

Going the Extra Mile? How Street‐level Bureaucrats Deal with the Integration of Immigrants

Dutch immigration and integration policies are being interpreted and implemented by local street‐level bureaucrats. We carried out 28 semi‐structured interviews with integration coaches, integration teachers and client managers in order to understand the dilemmas they face, and to explain their subsequent behaviour. The results show that although organizational characteristics such as the bureaucratic burden made street‐level bureaucrats reluctant to enlarge their discretionary space at the expense of policy rules, their willingness to help clients often transcends these boundaries under a combination of three conditions: high client motivation, extreme personal distress of the client, and negative assessment of existing policies and policy instruments (both in terms of fairness and practicality). Furthermore, street‐level bureaucrats were found to be constantly reinterpreting and revising their roles.     

Client Experiences of Trauma-Informed Care in Social Service Agencies

This paper describes a qualitative study of individual client interviews (n?=?26) from four social service agencies to understand how clients experience trauma-informed care services and implementation challenges. We used the Fallot and Harris framework to explore client experiences of the five core concepts of trauma-informed care (safety, trustworthiness, choice, collaboration, and empowerment) using semi-structured interview questions with each client. The four agencies consisted of: refugees (n?=?4), substance abuse (n?=?8), older adults (n?=?12), and maternal/child health (n?=?2), and the agencies varied in size, service goals, and clientele. The results of the study suggest that clients’ experience of these concepts was shaped by the actions of other clients, and these experiences were either mitigated or hindered by actions of the agency employees. Agency policies either supported or enhanced their experiences as well. The results also suggest that it was challenging for agencies to provide for all of the trauma-informed care (TIC) concepts at the same time. We discuss the implications of these findings for social service delivery in a range of agency types. Future research should examine the effects of trauma-informed policies on client experiences of each TIC domain.     

Psychosocial Intervention and Clinical/Educational Outcomes for Students with Emotional and Behavioral Disorders: An Evaluation of the Astor Transitions Program

The Astor Transitions Program (ATP) was developed to assist youth with emotional and behavioral disorders moving into a new educational environment where the services would often be less integrated. A research/evaluation consultant was hired to conduct a program evaluation of the ATP. The study sample consists of the charts of 150 consecutive students admitted to ATP between April 2010 and March 2013. The following hypothesis was tested: the ATP service in terms of caseworkers’ contacts will be associated with better clinical and educational outcomes. The major findings were the impact of caseworker contacts on clinical outcomes was indirect and greatest on type of placement; caseworker contacts had no effect on school attendance, yet ATP students were present about 85% of the time; and casework activity increased for chronic cases in placement but decreased after hospitalization. Recommendations were made to program staff on how to improve ATP services.