Discourse change and policy development in social assistance in China

Zhang H. Discourse change and policy development in social assistance in China Since the introduction of a new social assistance programme in urban China, the state was eventually able to expand the programme to rural areas as a further step towards integrating the development of social assistance in urban and rural areas. This article argues that the development of social assistance in China can be explained by the change of discourse among the officials and the elites in central government. The discourse on social assistance can be conceptualised in three periods: the urban‐first discourse (1999–2003); the discourse debate (2003–2007); and the urban–rural integration discourse (2007–present). Through scrutinising specific discourses and the policy development of social assistance in these three periods, it appears that in company with the change in the discourse process, rural social assistance was developed rapidly in order to construct an integrated social assistance system. The article concludes that discourse plays a significant role in Chinese social assistance policy development.     

Facilitating access to services for children and families: lessons from Sure Start Local Programmes

With the introduction of the highly publicized Sure Start Local Programme (SSLP) initiative in 1998, the UK government introduced a community‐based set of provisions targeted at families with children under 4 years who were living in some of the 20% most deprived and disadvantaged geographical areas in England. These programmes were designed to combat the adverse effects of poverty and disadvantage on the long‐term outcomes for children and families. One challenging dimension for programme development has been the facilitation of access to the services on offer in these programmes. Drawing on findings from the implementation module within the government‐commissioned National Evaluation of Sure Start, this paper examines the way in which SSLPs have sought to facilitate access to services for their local communities and to encourage community members to take up and continue using those services. This paper presents a detailed overview of programme activity in respect of access. It identifies a continuum of access and a model of three styles of parental service use. The paper highlights the implications of the SSLP implementation process for the development of subsequent related initiatives such as children’s centres and extended schools.     

How are policies implemented in children's services? Developing an initial programme theory to evaluate the implementation of the new Child Sexual Exploitation guidance in Wales

Although children's social care is an area rich in guidance, there is very little research looking at the implementation of new policies in the United Kingdom. In this article, we report on the first stage of a realist evaluation of the implementation of the new Safeguarding Children from Child Sexual Exploitation guidance in Wales. We discuss the development of an initial programme theory, for which we conducted semi-structured interviews with practitioners and managers in three local authorities. We developed programme theories across three areas: policy nature and development, implementation plans and organizational context. Findings suggest that, for policies to produce a significant impact on practice, they need to be sufficiently different to social workers' current perceptions of practice. Second, we found that the coordination between national and local policies is critical for successful implementation as contradictions between them might lead to confusion in what local teams should prioritize. Finally, our findings highlight the importance of effective communication of policy changes, as well as a supportive organizational culture to strengthen implementation in local contexts. These findings illustrate the complexity of policy implementation and the need for policymakers to consider the meaningful involvement of local practitioners in national policy development.     

Inadequate Policy or Operational Failure? The Potential Crisis of the Korean National Pension Programme

The Korean National Pension Programme is one of the main pillars of the Korean welfare state. From its introduction in 1988, the Programme had come to include 26.8 per cent of the economically active population and had accumulated a pension fund equal to 24 per cent of government expenditure by 1994. Behind such a promising facade, the Korean National Pension Programme is likely to face financial crisis without a major reform. This paper seeks to answer the question as to whether the crisis will arise due to inadequate policy design or to operational failure. The latter cause may require privatizing the Pension Fund in order to operate more efficiently, while the former one would demand rectifying the defects of policy design. This study argues that the crisis is strongly related to inadequate policy design, which promises generous pensions and at the same time requires only a small amount in contributions; although there have also been operational inefficiencies in running the programme. It also argues that inadequacy in policy design stemmed from developmentalism embedded in the Korean welfare state, which regards the National Pension Programme mainly as a measure for mobilizing cheap capital. In conclusion, this paper argues that the Korean welfare state, created in the era of economic development, is transient in nature and that it needs a major reform not only to contain the cost but also to meet the growing demand for social welfare.     

Forced cooperation from above: the case of Sweden's establishment reform

In December 2010, significant parts of Swedish integration policy were changed. Through the ‘establishment reform’, a centralization was implemented in which the national level overtook the responsibility of municipalities for the establishment of newly arrived immigrants. In today's system, the responsibility is shared between several authorities, the municipalities, and publicly financed private actors. Recent governmental reports have described the current situation as being characterized by coordination problems and shortcomings in accountability. This policy creates an institutional landscape that spans both vertical and horizontal dimensions, reflecting several levels of the public administration and actors that originate from several sectors. The purpose of this article is to explore the governance of Swedish integration policy, with a theoretical focus derived from the ideal types of hierarchy, market, and network. We examine one Swedish region in which parts of the establishment reform were applied as a pilot project before being applied to the rest of Sweden. The theoretically driven results are unexpected in that they reveal traits of governance steering but also of top-down perspectives and restrictions for involved actors in a way that counteracts theoretical logics.     

Food, Social Policy and the Environment: Towards a New Model

Food policy is high on the public policy agenda, but still suffers from a lack of overview and integration. The paper reviews examples of policy limitations where tighter and more explicit links could usefully be made between environmental, social and public health considerations. The paper proposes a new ecological health approach to public policy. This offers marked advantages over the present "productionist" approach to food policy. With this old policy regime in crisis, the paper reviews current moves towards adoption of the ecological health model in Britain, Europe and globally.     

Welfare and the unemployment crisis: Sweden in the 1990s

In the 1990s Sweden went through a deep economic recession accompanied by a massive increase in unemployment and a rapidly growing budget deficit. The crisis had large repercussions for the welfare of many citizens and it generated cutbacks in virtually all social policy programmes. This halted a welfare-state expansion that had been going on for decades. It also caused great concern about the state of welfare of the nation. In 1999 the Swedish Government appointed a 'Welfare Commission', a team of academic researchers who were assigned the task of drawing up a balance sheet for the development of welfare in the 1990s. The Commission delivered its final report in October 2001. This article is a condensed account of one of the more central issues for the Commission; namely, how the unemployment crisis affected already socially and economically vulnerable groups. Looking at the development over the entire decade, three groups stand out as particularly disadvantaged in terms of individual welfare resources: young adults, immigrants and single mothers. The downturn for these groups was especially accentuated in terms of employment and income. Young people and immigrants trying to get into the labour market during the crisis years faced the problems of newcomers to the systems of social protection. The poor economic development for single mothers could essentially be attributed to the shortage of work in general and of full-time work in particular that followed from the unemployment crisis. As a consequence, the importance of selective benefits increased and the relative size of all public transfers – despite rationing measures – stayed fairly unchanged. The results highlight the great influence of macroeconomic conditions and policy making for the welfare of vulnerable groups in society.     

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 Psychology of Immigration

The discipline of psychology has much to contribute to our understanding of immigrants and the process of immigration. A framework is proposed that lays out two complementary domains of psychological research, both rooted in contextual factors, and both leading to policy and program development. The first (acculturation) stems from research in anthropology and is now a central part of cross- cultural psychology; the second (intergroup relations) stems from sociology and is now a core feature of social psychology. Both domains are concerned with two fundamental issues that face immigrants and the society of settlement: maintenance of group characteristics and contact between groups. The intersection of these issues creates an intercultural space, within which members of both groups develop their cultural boundaries and social relationships. A case is made for the benefits of integration as a strategy for immigrants and for multiculturalism as a policy for the larger society. The articles in this issue are then discussed in relation to these conceptual frameworks and empirical findings.     

Governing Deviance in Public Space through Mayoral Orders: Fields Mismatch and Metropolitan Turbulence

This article addresses the issue of policy change and its consequences on the organizational field and institutional context, looking at the role of an instrument transfer process. We adopt a political sociology approach to policy instruments to account for the impact that the introduction of a securitarian instrument, the mayoral order, had on the implementation process of a social policy. Through a genealogy of the instrument we identify a constitutive, normative and cognitive dimension. Our aim is to explain the interaction between these institutional dimensions, the re‐definition of the organizational field of the policy, and the dynamics of metropolitan politics. Following a synthesis of the policy process and the institutional arrangements where the policy is implemented, we show how the instrument transfer triggered a division within the organizational field, and the rise of institutional tensions amongst local authorities. In the conclusion, we identify the institutional dimensions of the instruments and the policy implementation scale as elements that are to interact with public‐private relationships and institutional arrangements, and that have an impact on implementation process and policy outcome.     

The emergence of social assistance in China

This article outlines the development of China's social assistance programme, including its design, implementation and trends. The Chinese government has given high priority to the establishment and institutionalisation of this programme. To have an effective social assistance programme in the context of an increasingly pluralistic society, China is facing the profoundly challenging task of designing a coherent and over-arching social protection system that would cover retirement, medical care, unemployment and poverty alleviation.     

Activation and Local Welfare in Italy: Trends and Issues

This article deals with the development of local welfare in Italy and is grounded on a research project focusing on activation as a main feature of change in Italian social policies. Along with decentralization processes, many Italian regions have been acting as policy laboratories, developing and testing very different approaches according to their political attitude. On the one hand this results in a fragmented policy landscape which is difficult to recompose, and, moreover, in growing inequalities in the Italian welfare system. On the other hand, it opens opportunities for experimentation on institutional and organizational structures on a regional scale, creating a variety of practices for research and policy analysis. In the article we first describe the main trends in national social policies, with a specific focus on the dynamics of change referring to activation. We will then focus on a pilot programme which is aiming at the promotion and implementation of innovative practices in health and social care services in Friuli‐Venezia Giulia, a region in which there is a significant orientation towards enhancing social citizenship and enforcing the central position of the public actor. We investigate how the dynamics of territorialization and personalization, implied by the programme, trigger specific logics and practices of activation. Finally, referring to this case study, we propose an analytical overview of some relevant issues in the development of ‘local active welfare’ in Italy.     

Frontline managers' perceptions and justifications of behavioural conditionality

The debate on behavioural conditionality is characterised by abundant controversies. Frontline managers have a particularly important role in implementing these policies because their interpretation of the welfare policies regulates the frameworks of street-level bureaucrat's discretionary powers. A nationwide survey among frontline managers in the Norwegian Labour and Welfare Administration revealed that 86% of the managers expressed strong normative support towards welfare conditionality. With this as a backdrop, this paper develops a better understanding of managers' perceptions and justifications of the Norwegian type of behavioural conditionality. Analysis of focus group interview data showed that the managers adopted a broad definition of conditionality, meaning promotion of an overall (re)integration of the client into the society as opposed to the narrow definition focusing solely on labour market integration. Furthermore, the implementation of welfare conditionality primarily was perceived as mild and client sensitive. The managers mainly justified welfare conditionality in terms of care and paternalistic defences, arguing that requirement of work and activities are in the client's best interest, understood in terms of social democratic values.     

Parents, Power and Public Participation: Sure Start, an Experiment in New Labour Governance

This paper examines parent participation in local Sure Start partnerships within the broader context of public involvement in policy‐making processes. Public participation is set against a background where an emphasis on participatory democracy is seen as a solution to shortcomings identified with policy‐making and implementation. However, the meaning of public participation is by no means straightforward and gives rise to problems at several levels. Many of these problems emanate from concerns with power and legitimation. While these concerns highlight important aspects of public participation in public and social administration, this paper, drawing on Foucault's concept of “pastoral power”, examines whether public participation is better viewed as a predictable part of governance in modern Western democracies where subjects need to be recruited to exercise power over themselves.     

Faith‐based organisations and social policy in Melanesia

This paper examines the contribution that faith‐based organisations (FBOs) make to social policy in Papua New Guinea, the Solomon Islands, Vanuatu and Fiji. The paper sets contemporary relationships between church and state in these independent states of Melanesia in their individual historical contexts of missionisation, colonisation and decolonisation. Since independence these sovereign nations have relied on the networks and social capital of faith‐based communities and organisations in policy implementation in critical areas such as health and education. FBOs, for their part, have endeavoured to participate in policy and programme implementation without losing their autonomy. This pattern of selective cooperation has produced a unique policy environment, in which policy coordination continues to challenge government officials. Despite close association between FBOs and social policy in the Melanesian states, the slow progress with human development indicators and the Millennium Development Goals highlights the need to find more effective approaches to agenda‐setting, policy articulation and implementation.     

Youth‐oriented active labour market policies and economic crisis: Explaining policy effort in Greece and Portugal

The starting point of this study is the implementation of seemingly similar youth‐oriented labour market policies in Greece and Portugal. Both countries have suffered high youth unemployment rates and have been pressured to restructure their labour market as part of the rescue programmes adopted during the European sovereign debt crisis. Despite convergence in terms of policy trajectories, there is a significant divergence in employment outcomes. In Portugal, youth‐oriented policies were better‐targeted and structured. Their implementation has been more effective and has involved the social partners from the outset of the crisis. In Greece, policy design failures, administrative weaknesses and unfavourable macroeconomic conditions have limited the dynamics of youth‐oriented policies thus increasing youth insecurity. Τhe analysis suggests that convergence in policy content can be compatible with divergence in terms of outcomes.     

Working the ‘spaces’ between policy and practice: the contributions offered by resilience theory and action research

The policy‐practice dimension often presents challenges particularly in the policy arena of child well‐being. Policy designers identify risk factors and design programmes intended to develop protective factors in areas of need. The 2004 Australian Communities for Children (CfC) initiative aimed to improve the social, health and educational outcomes for young children living in socio‐economically disadvantaged localities. Its method was to engage local community members to contribute towards developing protective factors. Rather than considering this national–local arrangement, an unworkable alliance, we examine the performance of CfC through three examples and demonstrate how resilience theory and action research can assist this programme achieve its social inclusion aims and well‐being outcomes. We choose not to disregard policy programmes like CfC, rather we emphasize the possibilities offered when working these complex spaces involving multiple and inherent contradictions. The spaces that often exist between the policy and its implementation are rethought to allow a greater opportunity for the growth of innovation and change.     

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.     

Explaining Italian “exceptionalism” and its end: Minimum income from neglect to hyper-politicization

Traditionally at the margins of the political debate, minimum income protection has recently become a key issue in Italian politics. After decades of social and political “neglect” letting Italy the only European country (with Greece) still lacking an anti-poverty minimum income safety net in the 2010s, finally a national programme called Inclusion Income was introduced in 2018, then replaced by a more robustly financed scheme, the Citizenship Income in 2019. The introduction of these new programmes was the object of an intense political debate, which raises two main puzzles. Why a policy field characterized by the low political resources of would be beneficiaries and low incidence on the overall welfare budget has become so important in the political debate? How did it occur in Italy, where minimum income protection had been absent in political discourses for at least five decades after World War II? To answer these questions, this article first elaborates a novel theoretical framework which combines the main properties of socio-political demand and political supply in order to explain the scope and direction of minimum income reforms. Second, it provides an analytically oriented reconstruction of MIS policy trajectory in Italy in the three different phases: the phase of MIS “neglect” (1948–1992) characterized by inertia; the period of political “contentiousness” (1993–2012), marked by attempts of path departure followed by policy reversals; the more recent phase leading to the introduction and institutionalization of a MIS. Third, the article provides a theoretically framed interpretation of the overall MIS trajectory in Italy.