Devolution in a ‘Stateless Nation’: Nation‐building and Social Policy in Scotland

The implications of the 2011 Scottish election and the proposed referendum on Scottish independence for the future of social policy across the devolved UK are profound but far from certain. It is crucial to understand not only the historical nature of this conjuncture but to develop an adequate conceptual understanding of the place of social policy in the dialectic between state and nation in Scotland. To this end, we critically examine theories that depict Scotland as an essentially ‘stateless nation’ in the light of recent developments. In so doing, we examine the implications for social policy of the changing character of statehood in Scotland, the nature of civil nationalism, and the problem of legitimacy in Scotland for the UK as a multinational state. As the architecture of statehood is re‐negotiated, strong centrifugal pressures are being created for a more distinct divergence of social policy in Scotland from the rest of the UK regardless of the outcome of the independence referendum. Policy‐making is ensnared in a series of tensions, not just between Westminster and Holyrood but also, more broadly, tensions between competing principles of social justice and territorial justice, and competing demands between welfare nationalism and competitive nationalism.     

The origins of the ‘creative class’: provincial urban society,scientific culture and socio-political marginality in Britain in the eighteenth and nineteenth centuries1

Recent historiography has revealed the importance of scientific culture in British society during the eighteenth and nineteenth centuries, with scientific knowledge shown to have been central in a wide range of sites and contexts, from botanical gardens to mechanics’ institutes. The article draws upon the insights of historians of science, urban historians and others to argue that the concept of the English ‘urban renaissance’, the Habermasean model of the public sphere, various aspects of post-structural, post-modern and feminist theory, and attention to ‘the space’ and geography can all be used to enhance the understanding of this culture. Given that scientific culture has often been associated with social groups that have sometimes been described as ‘marginal’, the article explores the historiography of various aspects of what it defines as the ‘marginal model’ of cultural expression. Aspects of its various manifestations are explored with special reference to groups often perceived as ‘alternative’ or ‘peripheral’ to ‘dominant’ or majority culture, such as women, dissenters, gays or immigrants, including recent work in the United States concerning the activities of the ‘creative class’. It is contended that this can illuminate our understanding of British scientific culture, for instance through its emphasis on urban and regional differentiation and on the irrational aspects of intellectual endeavour. The study assesses how successfully models of social marginality account for the varied character and geography of this culture, using case-studies of scientific societies in different types of English town and a review of Scottish Enlightenment science.     

Conditionality in the context of housing-led homelessness policy: Comparing Australia’s Housing First agenda to Scotland’s “rights-based” approach

Homelessness services and policy have historically tended to be organised by an explicitly conditional logic, wherein people experiencing homelessness must prove their “housing readiness” before accessing settled housing. This model has been robustly challenged in recent decades by “housing-led” approaches that ostensibly eschew conditionality and prioritise the rapid rehousing of people experiencing homelessness. Various countries now include housing-led approaches in the national policy frameworks, including Australia, which overhauled its approach to homelessness in 2008, and Scotland, where a housing-led approach is supported by a legal right to housing for homeless households. Notwithstanding this policy shift, conditionality remains an enduring feature of responses to homelessness in both jurisdictions. This paper sheds light on this phenomenon by comparing the Australian experience with that of Scotland. We demonstrate how conditionality remains a feature of both jurisdictions; however, there is greater effort in Scotland to identify and minimise conditionality, whereas in Australia it is able to persist relatively unchallenged. We conclude with some reflections on what Australia can learn from Scotland’s relative success, highlighting the importance of a national-level policy framework and an adequate affordable housing supply.     

Family support and the Scottish children's hearings system

ABSTRACT Evidence from a study of 1155 children referred to the children's hearings system in Scotland in 1995 found many of the children could be characterized as ‘children in need’. As found in other child care research, limited voluntary help was available to them, the majority received ‘no action’ and a substantial group a compulsory supervision requirement. The critical need for the strategic development of family support services in child welfare policy in Scotland for children referred to the hearings system is argued. The potential misuse of compulsory measures of supervision as a key to accessing resources is examined.     

The mentor/monitor debate in criminal justice: 'what works' for offenders

Summary There is a move - which originated in England and Wales butis now infiltrating Scottish criminal justice policy and practice- towards increased managerialism and auditing within criminaljustice social work supervision and towards more formalizedand tenuous relationships between worker and service user. Itis suggested that this runs contrary to the needs and expectationsof offenders themselves, who rarely have the opportunity tocontribute their views on criminal justice social work or on'what works'. This article looks at the views of probationersand ex-prisoners about social work supervision both in Englandand Wales and Scotland. It describes one Scottish study, whereprobationers and parolees considered their 'ideal model' ofthe social worker to be someone who was proactive and constructive,offering encouragement and emotional support and acting, intheir eyes, more like a mentor than a monitor. The researchfindings demonstrate the need for offenders' views to be givenmore prominence in both policy and practice, not least in recognizingthe significance of factors other than behaviour in determiningeffective longer-term outcomes; in so doing, it also arguesfor a more balanced view of the role of criminal justice supervisionthat incorporates elements of both justice and welfare.     

When farmers are planting houses …

This paper examines the reasons behind the continual growth of the phenomenon of famers ‘planting’ cheap and substandard houses on farmland in rural China repeatedly and without government permission. The practice has been commonly interpreted by local governments as schemes instigated by greedy farmers to maximise compensation payments from the government when their properties are requisitioned for public infrastructural or private development projects. Researchers however have found that such practices are measures farmers learnt from others to insure themselves against land grabs as well as inadequate compensation offered by local governments and developers. Their vulnerability however also spanned a growing illegal industry where farmers short of cash were lured into participating in organised ‘house planting’ projects although they could be caught and put in jail by local authorities. Other researchers are equally concerned by the threat of food security should these incidences continue to escalate. However, these problems would not be easily addressed because the survival of local governments has grown to be heavily dependent on both the huge revenues generated by and winning political mileage from urbanising the rural, or converting agricultural to non-agricultural lands.     

What do social workers and children do when they are together? A typology of direct work

There is renewed interest in the place of direct work and relationship‐based practice in social work. This paper explores the day‐to‐day direct work that happens where children and young people are ‘looked after’ at home, from the perspectives of children, social workers and those supervising practice. It is based on interviews with eight children and 25 professionals about their experiences. In this paper, I highlight that despite barriers, direct work, which is characterized as meaningful by children and professionals, happens and that the relationships formed between children and social workers are an important precursor to and an outcome of direct work. The research was undertaken in Scotland, and although the legislation, policy and guidance differ from other jurisdictions, the messages about direct work are relevant for practice in other countries.     

Family relations, adjustment and well-being in a longitudinal study of children in care

The article reports on a longitudinal study of children placed in a children's home during the first two years of the 1980s. The 26 children placed when younger than 4 years of age and staying more than 4 weeks were followed up 3 and 9 months after leaving the children's home and 5, 10, 15 and 20 years later. The children's family relations, including early attachments and later parental relationships and the perception of who is their family, have been one of the predominant themes in the recurrent studies. None of them had lived with both parents after leaving the children's home and 20 of them had been in foster care for periods or permanently. At the time of the last study the children were young adults, aged 20–25. They are categorized in three rather distinct categories, one for those with a ‘good’ and one for those with a ‘moderate’ social adjustment and well‐being and one for those with a ‘bad’ social adjustment and well‐being insofar as involvement with drugs, criminal behaviour and legal sanctions are concerned. Their contacts and relationships with birth parents and foster parents and the perception of who is their family are analysed by use of attachment theory and developmental psychopathology.     

Poverty and anti-poverty measures in China

During three decades of rapid economic development and governmental anti-poverty measures, China achieved considerable success in poverty alleviation. However, because poverty remains a severe problem, this research analysed the causes and implications of poverty as well as the associated social policies, based on official statistics and survey data. Three decades of successful anti-poverty measures, have largely reduced ‘absolute poverty’, yet ‘relative poverty’ is still severe and substantial challenges remain, caused by the changing socioeconomic circumstances. To enhance poverty alleviation, relevant social policies should be reformed, including changing the underlying approach from addressing absolute poverty to addressing relative poverty, increasing the beneficiary coverage and raising the level of benefits, increasing public funding and improving the relevant administrative systems.     

Social Work and Criminal Justice in Scotland: Developments in Policy and Practice

Correspondence to Dr Gill Mclvor, Social Work Research Centre, Department of Applied Social Science, University of Stirling, Stirling FK9 4LA, Scotland. Summary In the last five years major changes have occurred in the provisionof social work services to the Scottish criminal justice system.The present article charts recent developments in statutoryand voluntary community-based social work services to offenders,locating them in the context of contemporary penal policy. Thecontribution of social work at various points in the criminaljustice process is discussed with particular reference to theintroduction of national standards and full central fundingof statutory social work services. The new funding arrangementshave, it is suggested, provided an impetus to the developmentof statutory services but at the expense both of services notcurrently subject to the 100 per cent funding mechanism andof increased central government control. The article concludesby outlining the challenges to be faced by social work departmentsover the next few years, including an ever-widening remit andthe uncertainties surrounding local government re-organization.     

Housing and the Social Exclusion Agenda in England

In the period immediately following its election in 1997 the current Labour government in the UK declared a commitment to ‘combating social exclusion’ to be at the core of the domestic policy agenda. The interpretation of the term ‘social exclusion’ has been the source of extensive debate. This paper focuses on one aspect of the current debate, exploring the relationship between housing and social exclusion, both in theory and in contemporary central government policy in England. I argue that theoretical imprecision is a very real issue, not least because it allows policy makers to refer to rather vague causal mechanisms or social processes to justify actions and interventions. I identify some of the areas that require further exploration and theoretical development if we are to have a rigorous understanding of the concept of social exclusion and its link to housing. Most fundamentally, I suggest that the question of whether the concept of ‘social exclusion’ contributes anything valuable to our ability to understand social disadvantage needs to be addressed directly.     

The Civilizing Process of Trust: Developing Quality Mechanisms which are Local,Professional‐led and thus Legitimate

‘Quality’ and ‘performance’ have become defining concepts for policymakers and health‐care systems alike. Yet whilst these principles are of fundamental importance, their practical implementation and assurance are far from straightforward. This commentary analyses the difficulties faced in enhancing quality and performance in the English NHS. Many recent initiatives have been driven through incentives and external auditing of the professionals providing health care on the frontline. Drawing on recent literature and research findings, we argue that this checking‐based ‘audit culture’ is fundamentally flawed in driving quality and performance. Many targets and measures are too crude to reflect important aspects affecting patient outcomes and therefore these frameworks lack legitimacy amongst professionals. An alternative, trust‐based model is proposed – one more capable of acknowledging the meaning, complexity and specificities inherent to professional work. Quality mechanisms developed locally by professionals are able to produce the legitimacy crucial for their effectiveness. It is argued that the normative obligation of approaches based on conditional trust is a more compelling incentive towards good practice than targets and sanctions. This governance by ‘the social’ is able to motivate a more holistically enlightened and consistent reflexivity towards practice, though it is only able to flourish in the absence of purposive‐rational systems.     

New Labour, Work and the Family

New Labour has put support for the family at the core of its notion of the “strong community”. Across a range of policy areas the Labour government can be seen to be developing a direct and explicit family policy. But what kind of community is the government trying to shape by these policies? On the one hand, Labour appears to support the family as the basis of a more moral, dutiful and cohesive community. On the other hand, the government has given weight to policies that support social inclusion in the community through paid work. This paper examines whether there is a tension in Labour’s social policies between its emphasis on the importance of stable family life and the primacy given to paid work. Are critics like Ruth Levitas right when they argue that the government’s emphasis on paid work devalues, and is unsupportive of, unpaid work, especially caring for children and other family members? Alternatively, can this combination of communitarianisms—community as “stable family” and community as “paid work”—be seen to be marking out some “third way” on the family? We shall show that different aspects of the government’s family policies reflect different perspectives and policy agendas within New Labour and third‐way thinking more broadly. And while recognizing the tensions between work and the family, we shall suggest that they are often overstated and fail to give sufficient weight to the complementary aspects of Labour’s welfare reforms.     

‘Undeserving’ mothers? Practitioners’ experiences working with young mothers in/from care

Although teen pregnancy is on the rise in Canada, and while adolescent mothering in general has received considerable recent attention from researchers, there is a paucity of information about the particular experiences of young women who become mothers while in government care. Emerging out of a study guided by a grounded theory methodology to address this knowledge gap, this paper examines the experiences and perspectives of government‐based social workers who work with young mothers in/from care. Our findings indicated that social workers reflect prevailing middle class values, including norms about ‘good’ and ‘bad’ parenting, and centred around the belief that adolescent pregnancy is, in and of itself, bad. One of the most significant ramifications of workers’ values was their belief about the inevitability of ‘the cycle’: of children in care begetting children who ultimately came into care. Ironically, though workers and young mothers were both preoccupied by the concept of ‘the cycle’, and each were determined to break it, the two groups had very different ideas about what the cycle was all about and what perpetuated it. Unfortunately, this disjunction in perspectives, along with major recent shifts in the direction of child welfare policy and practice and related constraints in the resources at workers’ disposal, conjoined to create significant barriers to what workers and young women both recognized as supportive practice with youth in care.     

Ageing Populations and Housing Needs: Comparing Strategic Policy Discourses in France and England

Set against a broad European policy agenda which promotes ‘ageing in place’ and representations of older people as active, independent citizens, this article compares recent English and French policy discourses on population ageing and its implications for the housing needs of increasingly large numbers of older citizens. Through analysis of six recent strategic policy statements representing each government's official responses to population ageing and its social policy implications for the 21st century, we demonstrate how differences in the social representation of the ageing process and of older peoples themselves permeate policy discourse, influencing the perceptions of the housing needs of older citizens and the role that housing itself may play in promoting independent living. In England, demographic ageing, housing and its role in facilitating independent living and active ageing are explicitly articulated, whilst in France, the housing environment has until recently, been portrayed as one which must accommodate the illness, incapacity and dependency of later life. Our article offers explanations for these differences in terms of cultural variations in the social representations or ‘constructions’ of later life, divergences in political philosophies and welfare principles.     

New procreative technologies, donor gametes and the law's response: developments in Australia

The availability of artificial insemination by donor (AID) and in vitro fertilization (IVF) has generated considerable ethical, moral, social and legal discussion. Commonwealth and state government inquiries all recommend legislation regulating the experimental and clinical application of new procreative technologies and Victoria and South Australia have passed such laws, A central aspect of the debate regards donated gametes and the status of children. The paper argues that much of the concern over donated sperm and ova is premised on the assumption that ‘true’ parentage has a biological base and that a person's ‘true’ identity is determined genetically. This asocial conception of the family de-emphasizes both the social influences on personality formation and the relationships which constitute kinship as a social institution.     

Motoring Offences as Crime: Some Priorities for Social and Action Research

This paper highlights recent trends in criminology and assesses their relevance for road safety research. It is concluded that research priorities should be in the areas of general deterrence (particularly the value of random breath testing), physical prevention and study of the criminal justice system (especially the police). In addition, close attention should be paid to the political context within which the research is carried out. Lessons for methodology include greater use of direct and self reported measures of behaviour in addition to official statistics, experimental techniques rather than ‘quasi-experimental’, where possible, and interrupted time series analyses of the effects of legislative changes. There is a great need for a close analysis of the way in which traffic crash and violation data are recorded.     

Protecting children in Scotland: examining the impact of the Children (Scotland) Act 1995

This paper discusses findings from a small‐scale study of the impact on child protection practice following implementation of the Children (Scotland) Act 1995. The Act introduced three new measures to allow the state to intervene in families to protect a child where there is a risk of significant harm. These include the child protection order, the child assessment order and the exclusion order. The child protection order provides for the removal of a child to (or his or her retention in) a place of safety. In the first two years of the operation of the 1995 Act fewer applications were made for this order compared with similar provisions under the previous legislation. This reduction in applications appears to be related to unfamiliarity with new legislation; greater scrutiny resulting from the more formal application to the sheriff court; and the introduction of a new legal criterion for intervention, the presence or likelihood of ‘significant harm’. The introduction of the ‘no order’ principle into Scottish child care law is also likely to be a factor.     

Nudge or nuzzle? Improving decisions about active citizenship

In recent years ‘nudge’ has come into fashion as a form of policy intervention, under the inspiration of behavioural economics. It has encouraged policy analysts to move away from models of the ‘rational actor’ and instead to start from consumers, clients and citizens as they actually are. Nevertheless, nudge raises larger questions about public policy and the relationship between government and the citizen. This paper takes critical stock of nudge, offers an alternative in terms of ‘nuzzle’ and lays out the very different standpoint on policy to which this points. In doing so, it also puts in question the disciplinary paradigms which underpin ‘nudge’ in the scientific literature, and their underplaying of the social and institutional context of individual behaviour. It offers a perspective on public policy as providing security and supporting creativity: with government under critical scrutiny by citizens, rather than vice versa.