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.     

Evidence-based Engagement in the Voluntary Sector: Lessons from Canada

The shift towards governance and greater reliance on third parties in the design, implementation and evaluation of policy has created new pressures to ensure that policies are designed and delivered in a consistent and effective manner. In the interest of improving transparency, accountability, effectiveness and efficiency, governments in Canada and in the UK, as in many industrialized countries, have begun to emphasize the need for evidence‐based policy‐making. As a result, knowledge and research have become key assets in the production of policy. Yet, with their current capacity and knowledge base wanting, governments have increasingly relied on the knowledge and information of external actors and have afforded greater authority to them on this basis. This has created a situation in which evidence‐based inputs are given greater weight. This shift has particular implications for voluntary sector organizations whose basis for intervention has lain historically with the interests that they represent. Already, in the Canadian case many national organizations have seen their focus shift to research activities under the impetus of new funding initiatives explicitly encouraging activities grounded in knowledge and policy analysis. Moreover, policy guidelines have been elaborated in order to enhance the sector's capacity to contribute to the development of policy in a depoliticized manner. Using a series of interviews conducted with representatives from national voluntary organizations in Canada, this article explores the implications of such a shift for the voluntary sector in Canada, and asks whether the Canadian case holds some lessons for voluntary sector–state relations in other jurisdictions.     

Racial Disparities in Access to Mortgage Credit: Does Governance Matter?*

Objectives. This article examines the effect of community organizing on the likelihood that minority borrowers pursue home mortgage credit from regulated lenders. Methods. Governance perspectives suggest that community organizations exert significant influence on policy outcomes. We use logistic regression with interaction terms to test the effect of community organizing on the lending outcomes of minority borrowers. We use a matched control sample of cities, drawing on 2004 loan data from two midwestern cities similar in racial and economic composition but with different histories of organizing around the Community Reinvestment Act (CRA). Results. We find differential effects based on an applicant's race or ethnicity. Overall, African‐American applicants are less likely to pursue mortgage credit for home ownership from regulated lenders than their white, non‐Hispanic counterparts. However, African Americans seeking mortgage credit in a city with a history of CRA organizing are more likely to apply to regulated lenders than their racial counterparts in a city without CRA organizing. However, while organizing reduces the disparities between white and African‐American applicants, a gap still remains. Conclusion. African‐American borrowers living in cities with a history of community organizing around CRA appear more likely to pursue mortgage credit from traditional, regulated lenders, suggesting that governance matters.     

Organizational support for evidence-based practice within child and family social work: a collaborative study

Research in Practice works in collaboration with over 50 English local authorities and voluntary childcare organizations, to explore new and dynamic ways to increase the use of quality evidence to improve services to children and families. One Research in Practice initiative was a two‐year collaborative project involving the social services departments of six local authorities. This paper reports on how the views of more than 100 professional staff involved with the provision of services to children and families have been gathered to offer insight into how evidence‐based practice can be supported or frustrated in social care organizations. The findings suggest considerable uncertainty about the nature of evidence in social care and its validity in relation to decision‐making, policy and planning. Mechanisms essential for the dissemination, implementation and adoption of research messages are underdeveloped and tensions exist around the explicit use of research evidence within reports and reviews. Many practitioners and teams may be excluded from making decisions based on the best available research evidence through lack of access to internet resources and adequate information dissemination mechanisms. The paper concludes that there remain considerable areas for further debate if evidence‐based practice is to become a reality in work with children and families.     

Training,Geography, and Provision of Aging Services to Lesbian,Gay, Bisexual,and Transgender Older Adults

This research study surveyed leaders of Area Agencies on Aging (agencies) to understand their services, training, and beliefs about serving lesbian, gay, bisexual, and transgender (LGBT) older adults. Half of the existing agencies in the United States (320) participated. Few agencies provided LGBT services or outreach. One-third had trained staff around LGBT aging and four-fifths were willing to offer training; these numbers were significantly higher for urban-based agencies. Agencies that had provided staff training and urban-based agencies were more likely to provide LGBT outreach and services, to believe in addressing LGBT issues, and to receive LGBT assistance requests. Training, policy, organizing, and research implications are considered.     

Training, geography, and provision of aging services to lesbian, gay, bisexual, and transgender older adults

This research study surveyed leaders of Area Agencies on Aging (agencies) to understand their services, training, and beliefs about serving lesbian, gay, bisexual, and transgender (LGBT) older adults. Half of the existing agencies in the United States (320) participated. Few agencies provided LGBT services or outreach. One-third had trained staff around LGBT aging and four-fifths were willing to offer training; these numbers were significantly higher for urban-based agencies. Agencies that had provided staff training and urban-based agencies were more likely to provide LGBT outreach and services, to believe in addressing LGBT issues, and to receive LGBT assistance requests. Training, policy, organizing, and research implications are considered.     

"So Many Tiers, So Many Agendas, So Many Pots of Money": The Challenge of English Regionalization for Voluntary and Community Organizations

This paper looks at the challenges facing voluntary and community organizations (VCOs) within the new policy context of English “regionalism”, drawing primarily on an empirical study in one of the emerging Regions. Barriers to voluntary and community sector (VCS) engagement with the new regional governmental organizations and the new regional policy agenda are identified. The role of VCS “infrastructure” organizations in facilitating relationships with regional levels of government is also considered. The concepts of exchange, ownership, trust and legitimacy are then employed to analyse and explain the implications for English VCOs of working with a new tier of government at regional level. The paper concludes by reconsidering the nature of the relationship between VCOs and “government” in the light of the new policy context presented by English regionalism combined with central government interest in building the capacity and infrastructure of the voluntary sector.     

Developmental Social Policy,Social Welfare Services and the Non‐profit Sector in South Africa

The potential and challenge of constructing a democratic developmental welfare state through synergistic state‐civil society relations is the focus of this article. The author argues that while South Africa's pluralist approach, involving a leading role for the state in partnership with voluntary organizations, is a viable policy option to address the country's developmental challenges, anomalies between policy proclamations and actual practice raises questions about the efficacy of the partnership model and the gendered nature of welfare provision. Key governance issues and challenges, namely financial policies and institutional capability, underlie current failures in the delivery of welfare and care services, resulting in the non‐realization of these constitutionally guaranteed social rights. Further public action is needed to remedy the situation. Non‐profit organizations can advocate for policy reforms and challenge the instrumental nature of state‐civil relations and the abrogation of state responsibility for welfare services in contemporary South Africa.     

Market Transition and Gender Segregation in Urban China*

Objectives. This article analyzes the impact of the new form of economic segmentation, which emerged in urban China during the market transition, on gender segregation and earnings differentials. Methods. I compare both over‐time and across‐city change in gender segregation, and use a series of multi‐level cross‐classified models based on data at three levels: a 1995 national sample of individual workers, industry‐sector data for 1990 and 1995, and city‐level data for 1995. Results. Gender segregation by ownership sector has declined over time now that the state sector has become differentiated and its relative economic advantages wanes. Both earnings differentiation and gender segregation among industries have increased with marketization. In the most marketized cities, the earnings of workers of both sexes in jobs with high rates of female entry are penalized, indicating that marketization exacerbated the negative effect of job feminization on earnings. Conclusions. These findings lend support for the “queuing” perspective that a decline in jobs' relative wages leads to feminization. The making of the Chinese market economy has created a new set of institutional arrangements, which includes that between job feminization and wages.     

Canada's Social Security Review – A Comment from the Outside

The voluntary sector in Canada made largely unavailing efforts to participate in Canada's Social Security Review from 1973 to 1977, although it was clear that it had a legitimate and direct interest in the outcome of the review. The story of these efforts highlights a dilemma facing the voluntary sector. It desires to promote improved federal/state coordination and planning in the social services and social security. At the same time it claims the right to participate in policies which will vitally affect it. The Canadian experience suggests that to promote the first leads to a retreat from the second. This is not necessarily inevitable but some would argue that the only satisfactory answer lies in a Freedom of Information Act which will force policy making processes out into the open.     

Neoliberalism and the reform of regulation policy in the Australian trucking sector: policy innovation or a repeat of known pitfalls?

This study explores the influences of neoliberalism on the design and operation of regulation policy in the Australian trucking sector. It examines the introduction of a programme of voluntary self-regulation and considers why despite known weaknesses, regulators persist with such policy reforms. The study draws on qualitative research involving representatives of policy and regulatory agencies as well as industry participants. The analysis examines the role of markets in directing truck operator interest towards public policy compliance objectives. This generates a diversity of responses from firms ranging from willing compliance to deceptive ritualism. The findings reveal how voluntary self-regulation appeals to some segments of industry and how in this case it also signals a shift in regulatory culture, facilitating a new and more engaging dialogue between industry and regulators around compliance and safety concerns. This study shows that advances in industry-regulator engagement help explain why neoliberal policy influences are often readily embraced by regulatory agencies. Here, we see how programmes of voluntary self-regulation present both symbolic and substantive value for key policy actors.     

Envisioning the Third Sector's Welfare Role: Critical Discourse Analysis of ‘Post‐Devolution’ Public Policy in the UK 1998–2012

Welfare state theory has struggled to come to terms with the role of the third sector. It has often categorized welfare states in terms of the pattern of interplay between state social policies and the structure of the labour market. Moreover, it has frequently offered an exclusive focus on state policy – thereby failing to substantially recognize the role of the formally organized third sector. This study offers a corrective view. Against the backdrop of the international shift to multi‐level governance, it analyses the policy discourse of third sector involvement in welfare governance following devolution in the UK. It reveals the changing and contrasting ways in which post‐devolution territorial politics envisions the sector's role as a welfare provider. The mixed methods analysis compares policy framing and the structural narratives associated with the development of the third sector across the four constituent polities of the UK since 1998. The findings reveal how devolution has introduced a new spatial policy dynamic. Whilst there are elements of continuity between polities – such as the increasing salience of the third sector in welfare provision – policy narratives also provide evidence of the territorialization of third sector policy. From a methodological standpoint, this underlines the distinctive and complementary role discourse‐based analysis can play in understanding contemporary patterns and processes shaping welfare governance.     

‘Best of Both Worlds’? A Comparison of Third Sector Providers in Health Care and Welfare‐to‐Work Markets in Britain

This article compares the welfare markets in primary health care and ‘welfare‐to‐work’ in the UK since the late 1990s. A longitudinal comparison of two different policy areas enables us to study the context in which marketization and the resulting shift of welfare provision takes place. We outline the general background of the market‐based reforms and highlight in what way policymakers have ascribed third sector organizations (TSOs) a number of positive characteristics, particularly the ability to address concerns about well‐known market failures. While consecutive governments promoted these organizations as welfare providers, case studies of two illustrative provider organizations in each policy area reveal a number of problems regarding their distinctiveness in increasingly competitive welfare markets. We conclude that the crisp distinction made by policymakers between the third and other sectors as well as the alleged advantages of the former present a rather naïve picture of a complex reality and argue for a more critical view of third sector characteristics and performance. The third sector is not only characterized by a high degree of fuzziness at the boundaries to other sectors, but even within single organizations, which often undergo significant transformations over time. As a result, policy intentions and practical outcomes are contradictory with TSOs losing their alleged distinctiveness as players in increasingly competitive markets. Furthermore, we contend that detailed longitudinal studies of organizations are essential in the advancement of the discussion of the third sector concept as they provide conceptual insights into organizational change and behaviour.     

Third Sector In Transition – A Question of Sustainability for Community Service Organizations and the Sector?

Third sector organizations are transitioning towards entrepreneurial and managerial models as a result of quasi‐market strategies. This paper reports on the research findings of a survey of nonprofit disability organizations in Queensland and Victoria impacted upon by quasi‐market reform. Enterprising organizations were found to have made substantial change to organizational structures and systems, whilst more traditional organizations made few changes. All organizations demonstrated commitment to a social justice ethos. However across the organizational archetypes there were reports of an organizational ‘fragility’. It is argued that the problems of sustainability of community service organizations that existed prior to quasi‐market reforms remain. This implies community service organizations will experience ongoing difficulties in the post‐market era without further rationalization and change. A conceptual framework for sustainability of the community service sector is presented at the policy and organizational level.     

Why It Is Bad to Be Kind. Educating Refugees to Life in the Welfare State: A Case Study from Norway

In Norway, as elsewhere in Europe, the aim of policy‐making is to ensure the integration of immigrants into mainstream society. This paper focuses on one of the most concrete and practical measures Norwegian authorities have ever taken in this field, namely the recent establishment of a compulsory two‐year introduction programme for newly arrived refugees. This is an activation‐style programme involving both a financial and an educational component, where out‐payments depend on participation in a full‐time training programme aimed at enabling participants to become self‐sufficient members of Norwegian society. In the first part of the paper the establishment of this policy is located within a broader context of integration crisis, before it moves on to look more specifically at the background for the programme and the problems it is set up to address. The latter part of the paper addresses the implementation of the introduction programmes in one medium‐sized Norwegian city. The local discourse here is one of before and after, where the failings of previous policies have been overcome and new and productive practices have been established. Connections can be made between public and political discourses on integration crisis and the local discourses of implementation through the notion of kindness and the idea that kindness has hampered the integration efforts of the state. Herein lies a story not only about views on immigrants and diversity, but also about how immigration has challenged the Norwegian welfare state model.     

Voluntary Leaders in Voluntary Welfare Agencies

The voluntary sector is an increasingly important component of our system of welfare provision. This paper focuses on voluntary leaders of welfare agencies in the voluntary sector; the chairpersons of governing bodies. It draws on a study carried out in an outer metropolitan borough with a socially mixed population. The characteristics of chairpersons and the background to their involvement are described. It appears that most are drawn in to their agencies and in to the role of chairperson more by chance than through positive commitment to a cause, but that, once in post, they rise rapidly to the challenge. Leadership of the local voluntary sector is found to be part of a wider commitment to community benefit and to collective provision of welfare. Some implications of the findings for the development of voluntary sector welfare agencies and for social policy are discussed.     

‘Active Families’: Familization,Housing and Welfare across Generations in East Asia

Debates around welfare change have tended to concentrate on the balance between market and state provision. Although there is increasing reference to a mixed economy of welfare, this generally signifies a greater emphasis on a third sector of voluntary/community level provision. However, the family sphere has been, and still remains, an important and dynamic source of welfare provision across changing regimes and between generations. With this as background, the article addresses three particular questions. First, how has the role of families in the welfare mix changed over time? Second, how do family ‘strategies’ adapt to structural changes in order to maximize collective/individual benefits in certain areas and how do these strategies evolve over generations? Third, is such family engagement in welfare influenced by policy shifts appropriately conceptualized as ‘re‐familization’ or ‘de‐familization'? These issues are explored in the comparative socio‐economic and cultural contexts of China and Japan and draw on qualitative research with three generations of families in Shanghai and Tokyo.     

Organizational Form as a Mechanism to Involve Staff,Public and Users in Public Services: A Study of the Governance of NHS Foundation Trusts

In addition to introducing markets and market‐like structures into public services, New Labour wished to promote the involvement of users and the public in decision‐making in other ways than as individual consumers. One way was to involve the public in the governance of organizations. This could be done by removing public services from state control, and transferring them to mutual ownership; or by increasing public involvement in the governance of public bodies. NHS foundation trusts (FTs) were presented as mutuals. Our study shows FTs are not mutuals, as they continue to be owned by the state. Moreover, staff of FTs were generally not engaging with the new governance structures. In general, there was mixed experience of the new structures enabling governors to increase accountability of the hospitals to the public. On the other hand, having a membership did enhance the legitimacy of FTs, as opposed to other NHS organizations. The findings of the study are of current interest as the coalition government is continuing with the policy of FTs, and also encouraging mutuals and other forms of public involvement.     

The role of the voluntary,community and social enterprise sector in Early Help: Critical reflections from embedded social care research

The independent review of children's social care (2022) has proposed a radical reset of England's children's services, shifting a remote, assessment heavy system towards one that works alongside communities to help prevent statutory interventions. However, notions around the harnessing of community resources to deliver Early Help are often underpinned by assumptions regarding the voluntary, community and social enterprise (VCSE) sector and the ease with which such organizations can be integrated into preventative strategies. This paper reports findings from embedded research within a unitary authority in Southwest England during remodelling of its Early Help service to work more collaboratively with local VCSE organizations. The study generated data from ethnographic observations, semi-structured interviews and focus groups with 95 participants, including local parents, service providers, VCSE organizations and Council leaders. The findings illustrate that families value the compassionate, responsive and flexible support available within many VCSE settings. However, differences in practice cultures, regulatory pressures on statutory providers, the need to (re)build trust in communities and sensitivities around power-sharing and resourcing meant negotiating VCSE sector integration was fraught with complexities. Few studies have gained such privileged access to a Local Authority's remodelling of Early Help services, and this paper has significant insights for the debates surrounding the independent review of children's social care (2022) and its recommendation to bring services ‘closer to communities’.     

Rolling Back the African State: Implications for Social Development in Ghana

The New Policy Agenda of the Reagan and Thatcher years has profoundly influenced aid flows from the industrialized countries of North America and Western Europe to the developing nations of sub‐Saharan Africa. The application of neo‐liberal principles to the disbursement of multilateral and bilateral aid for social development has resulted in the diversion of donor funding away from the public sector towards non‐governmental organizations. The consequences of relegating the role of the public sector in social development is explored through qualitative research conducted in Ghana with state‐employed community development workers. The study exposes how severe financial constraint within the state sector distorts the targeting of beneficiaries and social development activity. This differs from findings revealed by interviews with social development workers employed by international non‐governmental organizations. These indicate that such agencies are able to sustain effectively resourced fieldworkers who are in a position to form positive working relationships with beneficiaries. The circumstances of the Department of Community Development and its relationships with non‐governmental agencies in Ghana are used to explore the effects on state‐building of the New Policy Agenda in the sub‐Saharan region.