Intensity,moderation, and the pressures of expectation: Calculation and coercion in the street-level practice of welfare conditionality

This article offers a street-level perspective on welfare conditionality as it was practiced in contracted-out UK activation programs between 2008 and 2015. Drawing on observation and in-depth interviews, the article illustrates the ways that behavioral conditionality provided street-level workers with the means to intensify or moderate activation for particular claimants. Responding to arguments about the curtailment of street-level discretion, the article argues that in the particular context of target-driven, work-first, and otherwise highly constrained services, discretion resided in the ability to intensify or moderate conditionality and its coercive potential—in decisions about how, on whom, and to what extent it would be applied. The article argues that attending to this form of discretion provides an alternative frame through which to view the differentiated treatment typically understood as “creaming” and “parking.” In so doing, the article problematizes accounts that draw clear lines between calculative, normative, and dispositional forms of street-level reason and practice. It shows how advisors' responses to the “street-level calculus of choice” were articulated in terms of expectation, where attempts at future-oriented calculation necessarily entailed making other forms of speculative and normative judgement about claimants and their situations. The article thus contributes to an understanding of both the causes and meaning of differentiated treatment in conditional welfare services.     

Making welfare conditional: A street-level perspective

This article looks at how welfare conditionality is delivered at the street level. It argues that the street-level delivery of welfare conditionality is structured by policies, the governance context in which workers deliver welfare conditionality, the organization in which they work, and the occupation they are part of. Characteristics of these contexts present street-level workers with a variety of signals and incentives that direct their decision making. The article elaborates on this proposition on the basis of a review of academic studies analysing the street-level delivery of various aspects of welfare conditionality: the use of sanctions, service personalization, and the treatment of vulnerable clients. The review shows that context characteristics together have a significant impact on the street-level transformation of welfare conditionality policies into practices. Street-level decision making concerning the use of sanctions is far more complex than can be captured by a perspective on street-level workers as merely policy implementers. Sanctioning practices are sometimes harsher, sometimes more lenient than policies lead us to expect. The “soft” side of welfare conditionality—represented by service personalization—is often under pressure at the street level, potentially strengthening welfare conditionality's tough side. This affects vulnerable jobseekers most: Street-level studies show that the balance between disciplining and enabling aspects of welfare-to-work is most at risk for more vulnerable groups. The article concludes that the contextual pressures street-level workers have to deal with in their daily work hardly reflect the “delicate equilibrium” that they need to deliver welfare conditionality in a professional, responsive, and responsible way.     

Welfare risks in early adulthood: A longitudinal analysis of social assistance transitions in Norway

Lorentzen T, Dahl E, Harsløf I. Welfare risks in early adulthood: a longitudinal analysis of social assistance transitions in Norway This study assessed the significance of critical life events and socio‐economic background in relation to the likelihood of young Norwegians receiving social assistance, asking how each of these factors contributes both independently and interactively. The data set was derived from a nationwide, longitudinal register and includes the entire 18‐year‐old cohort in 1993. A discrete‐time proportional hazard rate analysis controlling for unobserved heterogeneity was applied. The results indicate that both socio‐economic background and indicators of critical life events have strong independent effects on the likelihood of receiving social assistance. Significant interaction effects between socio‐economic background and certain indicators of critical life events were detected. However, contrary to our expectations, under certain circumstances, coming from a group with low socio‐economic status does not seem to ameliorate the effect of being exposed to critical life events.     

Debate Privatization in the social welfare state: the case of Norway

The method of deviant case analysis is used to study privatization under the least hospitable circumstances. Norway, a country steeped in principles of egalitarianism, is moving in new directions, mostly due to forces from the global economy. This article puts contemporary trends in sociocultural context. The implications for the health and mental health fields are discussed.     

New conditionality in Australian social security policy

The past two decades have witnessed the application of new forms of conditionality to Australian social security policy. This paper argues that a distinctive feature has been the attempt to link receipt of government benefits to parental behaviour in order to address concerns about the welfare of children. With a view to providing a framework that can help to inform debates regarding the merits of these new forms of conditionality, this paper outlines the historical antecedents and philosophical framework of new conditionality. The paper also examines three pertinent Australian social security initiatives: the Maternity Immunisation Allowance, the Improving School Enrolment and Attendance through Welfare Reform Measure, and Compulsory Income Management. The paper concludes with some consideration of the potential pitfalls of new conditionality.     

Introduction to the special issue on welfare conditionality in Australia

Conditionality in Australia’s welfare state has sustained a significant academic critique, including the critique published in this journal. In this Special Issue of the Australian Journal of Social Issues, we contribute to the existing critical literature on welfare conditionality. This Special Issue aimed to provide empirical scrutiny into welfare reform and conditionality in Australia. The articles extend our understanding of welfare conditionality’s underpinnings and its lived effects. These case studies illuminate the aspects of welfare conditionality that have not received enough attention: the role of technology, the question of mobility, the relationship with housing and the little thought given to the state’s role in mutual obligation. What is clear is that the individualisation of structural problems is not just a theoretical and political misstep ripe for critique, but leads to the formulation of policies that impact marginalised people’s capacity to shape life on their own terms. Through different empirical foci, all papers in this Special Issue demonstrate how welfare conditionality is put forward as a solution to address the consequences of structural disadvantage.     

The moral hazard of conditionality: Restoring the integrity of social security law

This article examines the extent to which the Australian and UK social security systems meet their legal obligations to provide basic relief to citizens in need. Conditionality and “mutual obligation” are at the core of both the UK and Australian social security systems and are based on the concept of moral hazard, the goal being to ensure that claimants do not consider living on benefits to be preferable to engaging in paid work. Yet, we argue that the element of “mutuality” is missing in both systems; welfare claimants are subject to myriad conditions and obligations, whilst the state operates free of any legal responsibility to provide even basic relief to those in need, to prevent or alleviate extreme poverty and destitution. We outline the extent to which Australian and UK social security laws require governments to relieve destitution, examining both domestic and human rights law. We conclude that legal protections are weak and that both systems fail to meet the basic conditions of humanity toward their citizens. On this basis, we argue that such failings demonstrate a lack of integrity which undermines the standing of both the UK and Australia to invoke a claim of moral hazard to defend claimant conditionality.     

The role of law in welfare reform: critical perspectives on the relationship between law and social work practice

This article considers the complex relationships between law, welfare policy and social work practice, in order to address the question of what role legal frameworks might play in achieving welfare policy and professional practice goals. It traces how law has developed as a core component of professional practice, and challenges some of the false expectations placed upon it. It then draws on findings from an international knowledge review of law teaching in social work education to propose a model for understanding how professional practice incorporates legal perspectives, and proposes ways in which legal frameworks can provide positive and constructive vehicles for accountable practice.     

Work,welfare, and wellbeing: The impacts of welfare conditionality on people with mental health impairments in the UK

The personal, economic, and social costs of mental ill health are increasingly acknowledged by many governments and international organisations. Simultaneously, in high-income nations, the reach of welfare conditionality has extended to encompass many people with mental health impairments as part of on-going welfare reforms. This is particularly the case in the UK where, especially since the introduction of Employment and Support Allowance in 2008, the rights and responsibilities of disabled people have been subject to contestation and redefinition. Following a review of the emergent international evidence on mental health and welfare conditionality, this paper explores two specific issues. First, the impacts of the application of welfare conditionality on benefit claimants with mental health impairments. Second, the effectiveness of welfare conditionality in supporting people with experience of mental ill health into paid work. In considering these questions, this paper presents original analysis of data generated in qualitative longitudinal interviews with 207 UK social security benefit recipients with experience of a range of mental health issues. The evidence suggests that welfare conditionality is largely ineffective in moving people with mental health impairments into, or closer to, paid work. Indeed, in many cases, it triggers negative health outcomes that make future employment less likely. It is concluded that the application of conditionality for people with mental health issues is inappropriate and should cease.     

Dynamics of social assistance: the Norwegian experience in comparative perspective

In the article we ask how long Norwegian recipients of social assistance stay on aid over an eight‐year period? We focus on the populations selected, the design of the study and how spells are recorded and measured. The data set includes nearly the entire 1995 cohort of social assistance claimants (n = 155,000), and contains individual information over eight years (1992–1999), which is the maximum length of a single continuous spell. The study combines a retrospective and a prospective multiple cohort design. The data analysis shows that there is no simple answer to our question; the answer depends on the sample selected, the design, number of spells counted and the chosen measure of central tendency. We find that median duration times vary from two months to 40 months. The conclusion is that a point‐in‐time sample has clearly the longest duration. It makes a big difference whether one measures one or more spells. Because cycling is a common phenomenon, the sum of all spell durations is much higher than that of the first continuous spell. A retrospective design severely underestimates spell durations since many spells are right‐hand censored. As there is no single, adequate answer to our initial question, it is recommended that analysts of social assistance dynamics carefully specify their sample, design and spells counted.     

A family-centred practice supervision project conducted for a child welfare agency

ABSTRACT

This paper reports on a supervision project that aimed to enhance a child welfare agency staff’s professional competence in family-centred practice through a strength-based approach. A qualitative study was designed to explore the effectiveness and the change agents of the supervision. Purposive sampling was used. Two agency supervisors and two social workers participated the study voluntarily. The findings indicated that after the period of supervision, the staff had changed in three respects: their conceptualisation of the meaning of family work in the care context; their understanding of the importance of relationship-based interventions with families; and their development of alternative ways of practice. The agents of change from the supervision were the consultants’ modelling effect and the co-worker experience of the consultants and the social workers. This supervision approach can discern the synergistic effect of supervision on an agency’s routine supervision and balance the cultural beliefs in qing, yuan and ‘face’ embedded in the supervisory process.     

Work, welfare and the attack on the welfare state: the mixing of politics and policy

This article considers the current ideological and political attack against the floor of benefits for poor families in the United States. It examines a number of punitive approaches to the treatment of families on welfare that were developed in the United States in the late 1980s and the 1990s and contends that such policies will not effectively deter the dysfunctional behavior of some of the poor. Rather these policy developments reflect an attack on current national policies of developing an income maintenance floor that seeks to economically sustain poor families, albeit often inadequately. The article contends that current welfare proposals by conservatives and social liberals are not satisfactory for dealing with the problems of the welfare poor and offers suggestions for dealing with these deficits. It also notes that criticisms of welfare state protection for the poor raised in the United States are much more categorical than those raised in Sweden.     

Labour market integration of unemployed youth from a life course perspective: the case of Norway

The aim of this article is to analyse the labour market integration of previously unemployed youth in a life course perspective. 'Work, Lifestyle and Health' is a longitudinal panel survey following a sample of nearly 2,000 individuals who are representative of the Norwegian cohorts born between 1965 and 1968. The survey was first conducted in 1985 with follow-ups in 1987, 1989, 1993 and again in 2003. Unemployment among young people does not necessarily lead to marginalisation and social exclusion. Long-term effects will be dependent upon how the youths cope with unemployment, the duration of the unemployment period, their mental health status and educational qualifications. Many young unemployed people are not entitled to unemployment benefits because they lack work experience. Consequently, they are dependent on support from their family and/or social assistance. However, there is still much to learn about the long-term consequences of youth unemployment, e.g. whether or not the youths have received social assistance and what are the long-term consequences for their future labour market career and labour market integration.     

Punitive welfare reform and claimant mental health: The impact of benefit sanctions on anxiety and depression

Internationally, policymakers assume that sanctioning claimants of unemployment benefits will engender both improved employment outcomes and wider positive effects. A growing evidence‐base challenges these expectations, though additional insight is needed from large‐scale longitudinal research. This article contributes by conducting a quantitative investigation into the mental health impacts of benefit sanctions. To do so, it focuses on a recent period in UK sanctions policy in which rates of sanctions varied markedly and their length was substantially increased. Using quarterly panel data for local authorities in England (Q3 2010–Q4 2014) and fixed effects models that control for important confounders, the analysis provides robust evidence that Jobseeker's Allowance (JSA) sanctions lead to increases in self‐reported anxiety and depression. Evidence of this adverse impact is particularly clear following the increase in the length of sanctions in October 2012. The results have important implications for contemporary social security policy, which is underpinned by a similarly punitive sanctions regime. Whilst additional individual‐level research is needed to fully consider the causal relationships in operation, the findings support a precautionary approach that should seek to minimise the harm associated with sanctions. This implies taking steps to reduce both the severity and frequency of applied sanctions.     

Social welfare and social work: the meaning of poverty programs in Latin America

During the last decade, the concern about poverty has turned into a key issue in the government discourse, and participatory poverty programs have multiplied all over Latin America. Nevertheless, poverty and social unrest keep growing. The objective of this article is to explain this apparent paradox. First there is an analysis of the relationship between structural adjustment, the growth of poverty, and the reorientation of broad social policy away from social rights towards selective and targeted poor relief. In order to illustrate the content and operation of a typical Latin American poverty program, the Mexican National Solidarity Program is examined. The initial question posed is whether this program alleviates poverty and grants a social minimum for the poor in view of the magnitude of poverty, the quantity of resources and their allocation. Next the participatory approach of the program is analyzed in relation to the empowerment of poor groups and communities. Finally, there is a reflection on the place of social work in this program and how the role of the social worker has been transformed.     

Unemployment and economic security for young adults in Finland,Norway and Sweden: From unemployment protection to poverty relief

In this study, we investigated if there has been a displacement in the type and coverage of welfare services available for young unemployed adults in Finland, Norway and Sweden over the last two decades. This question is important because a number of studies have argued that the generous unemployment benefits and extensive labour market intervention found in the Nordic welfare states shield young people from the most severe consequences of economic inactivity. In this article, we instead show that during this period, less generous means‐tested unemployment and social assistance benefits have become the most important form of income protection for young people. In evidence, earnings‐related unemployment benefits now cover only 10 per cent of unemployed Swedes and Finns and 45 per cent of unemployed Norwegians aged 24 years or younger. This development marks a significant change in our understanding of unemployment protection for young people in Nordic countries.     

Emergency out‐of‐home placements in Norway: Parents' experiences

The number of emergency placements of children has increased rapidly in Norway over the recent years. Nevertheless, there is little knowledge about how parents experience the processes involved in emergency placements. We conducted 64 survey interviews with parents who have experienced this kind of placement of their children. One third of the participants' children had received interventions prior to the emergency placement. Another third were known by Child Welfare Services (CWS) through reports of concern, which were dismissed without interventions and, in some cases, without investigation. The final third had no prehistory from CWS ahead of the emergency placement. A large proportion of the participants emphasized that they had experienced problems for a long time and had earlier requests for help unmet. Another large group of parents notified CWS themselves, and some of them wanted their child emergency placed. On the basis of parents' experiences, we suggest different implications for practice: (a) CWS should be more thorough in their investigation and assessment of the families, both when it comes to reports of concern and evaluation of initiated interventions. (b) Planned placement should be promoted to a greater degree, wherever possible. (c) A greater emphasis on follow‐up of parents after emergency placements is needed.     

Progress of the social service professions in South Africa's developmental social welfare system: Social work,and child and youth care work

This paper examines the progress of the social service professions delivering developmental social welfare in South Africa, a subject we have followed closely over the last 20 years. Being policy-driven, developmental social welfare stemmed from expert social analyses that resulted in technically oriented solutions, including the broadening of social service professions. Twenty years on, it is hard to see developmental social welfare, as envisaged in government policy, in action, since the practice reality does not differ drastically from the prior apartheid system with the government's heavy reliance on social security as a poverty-alleviation measure. The expanded social security budget has led to underfunded services and a crisis for social service professionals. This paper focuses on the regulated professions of social workers, and child and youth care workers. Our examination of critical issues for these occupational groups revealed that South Africa still has a long way to go in building a strong social service workforce.     

Subsidiarity and social citizenship: Social assistance schemes in Austria,Belgium, Switzerland and Norway

Previous research has emphasised that conditionality impinges on social citizenship. However, a systematic assessment examining the impact of functional and territorial subsidiarity has been overlooked. Developing seven operational criteria – rights, means testing, conditionality, voice and choice, discretion, benefit's adequacy and supplementary system – we determined levels of subsidiarity and social citizenship in social assistance schemes. Analysing the benefit reform trajectories of Austria, Belgium, Norway and Switzerland, we conclude that social assistance schemes have not improved. Low benefits, means testing and work linkage have strengthened functional subsidiarity, whereas questions of voice and choice are rarely on the agenda. Caseworkers’ discretion and local administration have sustained territorial subsidiarity. Therefore, considering the potential role that benefits could play in the welfare state, low up‐take minimises the redistributive potential and, in general, risk has substantially shifted towards social assistance.