Negotiating dilemmas in the practices of street‐level welfare work

Hjörne E, Juhila K, van Nijnatten C. Negotiating dilemmas in the practices of street‐level welfare work Int J Soc Welfare 2010: 19: 303–309 © 2010 The Author(s), Journal compilation © 2010 Blackwell Publishing Ltd and International Journal of Social Welfare. The theme of this mini‐symposium is based on the core ideas of two influential books published about 30 years ago, namely Michael Lipsky's Street‐Level Bureaucracy – Dilemmas of the Individual in Public Services (1980) and Jeffrey Prottas's People‐Processing – The Street‐Level Bureaucrat in Public Service Bureaucracies (1979). In these books, three dilemmas were identified that have great importance for welfare workers' position as mediators between institutions and citizens: autonomy versus control, responsiveness versus standardisation, and demand versus supply. In this editorial, we discuss these dilemmas with regard to the present context of street‐level welfare work, which is strongly influenced by managerialist policies (also called new public management). It is emphasised that in the era of managerialism, the dilemmas should be approached as empirical matters: how they are present, talked into being and negotiated in naturally occurring practices of street‐level welfare work, and with what consequences.     

The Political Consequences of Outsider Labour Market Status in the United States: A Micro‐level Study

This article contributes to recent research that seeks to understand the political consequences of ‘outsider’ labour market status. There is an emerging consensus that labour market outsiders have systematically different policy preferences and display systematically different political behaviour to securely employed ‘insiders’ in Europe. Yet the political consequences of outsider status in the USA are less clear. They may be expected to differ from those that have been documented in the European context, because: (1) the USA is characterized by low employment protection of insiders; and (2) there is evidence that Americans are more reluctant than Europeans to hold governments responsible for personal economic hardship. We therefore use the General Social Survey to examine how outsider labour market status is related to voting behaviour and to social policy preferences in the USA. We find that the concept of ‘labour market outsider’ – as conventionally operationalized – holds little explanatory power in the American context. Disaggregating the outsider category, our results suggest that the political consequences of outsider labour market status may be contingent on individual beliefs about government responsibility.     

Voluntary Organizations as New Street‐level Bureaucrats: Frontline Struggles of Community Organizations against Bureaucratization in a South Korean Welfare‐to‐Work Partnership

In recent years, the role of voluntary organizations in welfare partnership has received considerable critical attention from scholars working in the field. While mainstream debates have valued state–voluntary sector partnership as participatory governance, critical studies have argued that it leads voluntary organizations to serve as a shadow state. The present study, however, contends that partnership does not necessarily entail participatory welfare or the complete subordination of the voluntary sector to the state's bureaucratic system. Rather, as new street‐level bureaucrats, voluntary organizations can exercise a degree of autonomy on the frontline despite the bureaucratic constraints engendered by partnership. Through an ethnographic analysis of Korean community organizations engaged as frontline agencies in a welfare‐to‐work partnership, this study unveils how the former have recreated democratic and inclusive environments in a particular policy setting by organizing non‐work activities and transferring administrative authority to recipients. Delineating such street‐level practices, this article demonstrates that state–voluntary sector partnerships may be sites of struggle where voluntary organizations continuously strive to actualize participatory governance in diverse and indirect ways.     

Children's services in the iron cage of performance management: street‐level bureaucracy and the spectre of Švejkism

Wastell D, White S, Broadhurst K, Peckover S, Pithouse A. Children's services in the iron cage of performance management: street‐level bureaucracy and the spectre of ?vejkism Int J Soc Welfare 2010: 19: 310–320 © 2010 The Author(s), Journal compilation © 2010 Blackwell Publishing Ltd and International Journal of Social Welfare. Recent UK government reforms have introduced a range of measures to regulate practice in child welfare, with professional work increasingly structured into formal processes embedded in information technology. This prompts obvious anxieties about the erosion of professional discretion. Using Lipsky's concept of the street‐level bureaucrat, we report on an ethnographical study examining how social workers organise their practice in an atmosphere of performance management. Clear indications of attenuated discretion are revealed, reflecting the shift to a managerial model of control. Of concern is the emergence of a pattern of formally conformant behaviour in which the letter of the organisational law is obeyed but without genuine commitment. Drawing on the anti‐hero of Ha?ek's celebrated satire, we denote this form of passive resistance ‘?vejkism’. While showing up the absurdities of excessive managerial power, such behaviours are ultimately dysfunctional for the organisation; an alternative governance paradigm, based on professional values, is briefly outlined.     

Factors Impacting Market Occupancy of Non‐profit Human Service Organizations in the Public Social Service Market: Focused on an Individual Level

This study aims to experientially verify which factors of non‐profit human service organizations affect market sharing activities in the public social service market. Due to market‐oriented government policies, non‐profit human service organizations, which used to enjoy stable financial resources, are now placed in a competitive position to provide their services. It is necessary to find out which organizational factors give a competitive advantage to various service providers in competition, including profit organizations, and apply them to the management and operation of non‐profit human service organizations. This is how this study started. Independent variables were organizational characteristics (organization age, total budget, number of employees), externally oriented culture (development culture, rational culture), and organizational structure (centralization, formalization), while dependent variables were the number of vouchers and total profits. Data was collected from 35 community welfare centers, rehabilitation centers, and senior centers (163 respondents) in Busan, Korea. Multiple regression analysis was conducted for data analysis. As a result of the analysis, the number of vouchers was found to be affected by development culture (+) and formalization (?), and total profit from voucher business was determined by organization age (?), total budget (+), and number of employees (+). Based on the results, this study suggests that non‐profit human service organizations should have an externally oriented culture and a flexible organization system to hold more market share in the public social service market.     

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

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

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.     

Thank God you're here: the coming generation and their role in future‐proofing Australia from the challenges of population ageing

Like much of the industrialised world, Australia's population is ageing, the implications of which are twofold: increasing demand for publicly funded services and a decline in the supply of prime working‐age people. In grappling with the challenges of a diminishing workforce, the Australian Government is currently relying on its migration programs to provide both the much‐needed labour and skills for the resource boom and also to stimulate the economy through population growth. However, there may be another, not yet fully considered solution to the upcoming demographic problem. This paper investigates how the grandchildren of the baby boomers, termed here the Thank God You're Here generation (Gen TGYH), might impact on Australia's predicted workforce shortage. This generation of workers will enter the labour force as the last of the baby boomers reach retirement age, and will not only be bigger in size than preceding generations (Y, X and Baby Boomers), but also potentially be better educated than the retiring generation. This paper will also canvas the opportunities for both Gen TGYH and employers as well as the challenges for policymakers and governments in maximising the opportunity provided by this generation in the Australian economy.     

Social perception of natural risks by local residents in developing countries—The example of the coastal area of Benin

Risk management and planning activities cannot be sustainably and efficiently implemented unless being based on a participative approach resulting from the problem consciousness and perception of the local inhabitants. This requires that the measures linked to problem perception and assessment by local stakeholders, above all by the population affected, are known. This investigation conducted in the flat Beninese coastal lagoon areas aims to assess the local inhabitants’ risk perception. The results are the following: (i) the stakeholders have group-specific ways of risk perception (according to ethnicity, social group, age); (ii) every risk management strategy should be based on the group-specific ways of risk perception and assessment; (iii) the acceptance of a given risk management strategy including interactive ways of participation can be advanced through education, dissemination of risk information as well as through communication between stakeholders.     

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

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

The role of informal caregivers in the well‐being of orphans in Botswana: a literature review

With the orphan population escalating, communities continue to rely on relatives to provide care to orphans. Therefore, there is a need to explore the role of caregivers with regard to the well‐being of orphans, the challenges they face, as well as how they could be empowered to be more responsive to children's needs. The paper acknowledges that informal caregivers play an important role in the lives of orphans. The paper also concedes that, in the process, caregivers are faced with challenges which make it difficult for them to fulfil their responsibilities and roles. As a result, they sometimes act as sources of stress to orphans, which eventually complicate the children's adjustment to the loss of their parents. Lastly, the paper paves the way to ensuring that challenges faced by informal caregivers are addressed in a manner that will make them more supportive to orphans.     

Immigrants’ support for social spending,self‐interest and the role of the group: A comparative study of immigrants in The Netherlands

This study examined immigrants’ support for social spending. We tested the dominant self‐interest hypothesis for a number of immigrant groups in the Netherlands with highly varying socio‐economic positions. We additionally examined the effect of immigrants’ group interest by testing the relevance of in‐group immigrant benefit participation rates and their effect on support for social spending. In this article, we discuss how immigrants’ sense of belonging to a group affects the association between immigrants’ self‐ and group interests in welfare and their support for social spending. We found that self‐interest has explanatory relevance, but that this is strongly correlated with level of income. Results showed weak support for the effect of group interest. Instead of the expected moderation effects of sense of belonging on the self‐ and group‐interest explanations of support for social spending, the results showed a direct effect of sense of belonging on support for social spending.     

The Associations between income,informal social networks,and health among older adults in South Korea: A multi‐group analysis based on the level of age‐friendly environments

The aim of the present study was to empirically investigate the role of age‐friendly environments (AFE) on the associations between income, informal social networks, and health among South Korean older adults. We used data from the “2017 Age Integration Survey” collected nationally and ultimately analyzed 615 older adults over 50 years of age. Structural equation modeling and multi‐group analysis were used to test the hypothesis. Specifically, two groups of perceived levels of AFE (top 25%, bottom 25%) were compared in order to examine the moderating effects. The results indicated that poor income and scarce informal social networks each had a significantly adverse impact on health. However, the effect of income on health was no longer significant for older adults living in environments that were more age‐friendly. In both groups, the presence of fewer informal social networks adversely impacted health, although the sizes of the effects decreased when the level of AFE perceived by older adults was improved. Finally, several implications of the study findings were discussed.