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Implementing Activation Policies

An Analysis of Social and Labour Market Policy Reforms in Continental Europe with a Focus on Local Case Studies in France and Germany

by Sebastian Künzel (Author)
©2015 Thesis XII, 327 Pages

Summary

Continental Europe’s welfare states have recently initiated a shift from passive policies towards goals of an activation of the unemployed. Their aim is to organise more individualised approaches and to provide targeted job placement, active labour market policy and social services. Analysing these reforms, this book illustrates that a successful implementation of activation policies is highly contingent on their local organisation. This finding is reinforced by a series of case studies in France and Germany revealing large differences in the local application of the reforms. Consequently, the question of reliable multilevel governance solutions becomes a key issue. In view of this challenge, the book compares different approaches practiced to govern activation policies in Continental Europe.

Table Of Contents

  • Cover
  • Title
  • Copyright
  • About the author
  • About the book
  • This eBook can be cited
  • Contents
  • List of figures
  • List of tables
  • List of abbreviations
  • 1. Introduction
  • 2. The challenge of rising numbers of minimum income recipients in Bismarckian-type continental welfare systems
  • 2.1 The welfare system in open, market-driven and individualised societies
  • 2.2 Minimum income schemes in the welfare system
  • 2.2.1 Institutional filter regulation of minimum income schemes
  • 2.2.1.1 Internal filter regulation of minimum income schemes
  • 2.2.1.2 External filter regulation of minimum income schemes
  • 2.2.2 Organisational issues of specific institutional filter of minimum income schemes
  • 2.2.3 National institutional orders of filter arrangements of minimum income schemes
  • 2.2.4 Conclusion: minimum income schemes as a matter of institutional filter
  • 2.3 The role of minimum income schemes in the Bismarckian welfare system
  • 2.3.1 Bismarckian institutional filter regulation of minimum income schemes
  • 2.3.1.1 Bismarckian welfare systems’ external filtering of minimum income programmes
  • 2.3.1.2 Bismarckian welfare systems’ internal filtering of minimum income programmes
  • 2.3.1.3 The fragmented regulatory logics of Bismarckian filtering institutions
  • 2.3.2 Organisational features of the Bismarckian filter of minimum income schemes
  • 2.3.2.1 Organisational features of Bismarckian external filtering institutions
  • 2.3.2.2 Organisational features of the Bismarckian internal filtering institutions
  • 2.3.2.3 The fragmented organisation of Bismarckian filtering institutions
  • 2.3.3 Conclusion: Bismarckian filtering institutions of residual minimum income schemes
  • 2.4 Dynamics of welfare system change
  • 2.4.1 Retrenchment
  • 2.4.2 Re-commodification
  • 2.4.3 Recalibration
  • 2.5 Development dynamics of minimum income schemes in Bismarckian-type continental welfare systems
  • 2.5.1 The erosion of the Bismarckian employment model’s external filter function
  • 2.5.2 The erosion of the Bismarckian family model’s external filter function
  • 2.5.3 The erosion of the status-based Bismarckian social protection’s external filter function
  • 2.5.4 The rise of minimum income claimants: a crisis of classical Bismarckian filter institutions
  • 2.6 Conclusion: recalibration demands of Bismarckian institutions in face of rising numbers of minimum income beneficiaries
  • 3 Activation reforms in Bismarckian-type continental welfare systems
  • 3.1 Activation into employment as a new concept for welfare systems
  • 3.2 Flexicurity as reference point for employment-centred welfare systems
  • 3.3 Areas of an employment-centred welfare system
  • 3.3.1 Flexible labour markets for the activation into employment
  • 3.3.2 Workfare elements for the activation from benefits into work
  • 3.3.3 Integrated social protection systems for unemployed
  • 3.3.4 Services as enabling elements of activation
  • 3.3.5 Summarising the components of an employment-centred welfare state
  • 3.4 Between European diffusion of ‘good’ governance and national activation regimes
  • 3.5 Employment-centred welfare as new filter for minimum income schemes in Bismarckian-type continental welfare systems
  • 3.5.1 Changes in labour market regulation in continental European welfare states
  • 3.5.2 Reforms of the Bismarckian benefit system in continental European welfare states
  • 3.5.3 Work incentives and requirements in continental European welfare states
  • 3.5.4 Social services in continental European welfare states
  • 3.5.5 Activation as a new approach to regulate minimum income schemes
  • 3.6 Conclusion: activation as a new institutional filter of minimum income receipt
  • 4 Re-organising minimum income schemes: the local dimension of Bismarckian activation regimes
  • 4.1 The local level’s role in institutionalising employment-centred welfare
  • 4.1.1 The traditional role of local authorities in continental European welfare systems
  • 4.1.2 Activation as a matter of the local delivery of services and policies
  • 4.1.3 The co-production of services: a matter of institutionalising local organisational fields
  • 4.1.3.1 Co-producing policies and services of different fields
  • 4.1.3.2 Co-producing services and policies from different policy levels
  • 4.1.3.3 Co-producing services between public, private and third sector providers
  • 4.1.3.4 Three local challenges of activating minimum income recipients
  • 4.1.4 First hypothesis: local organisational fields as requirement to implement the Bismarckian activation regime
  • 4.2 Different local governance patterns of employment-centred welfare
  • 4.2.1 Concepts of individual behaviour underlying the co-production of activation
  • 4.2.2 The organisation of co-produced policies and services for minimum income recipients
  • 4.2.2.1 Local institutional conditions for co-produced policies and services
  • 4.2.2.2 Local modes of interaction for the delivery of co-produced policies and services
  • 4.2.2.3 Local control techniques for the delivery of co-produced policies and services
  • 4.2.3 Second hypothesis: activation approaches increase variance in local service delivery
  • 4.3 Conclusion: two hypotheses on a local dimension of activation
  • 5 A methodology for comparative empirical studies on the reorganisation of minimum income schemes
  • 5.1 Exploring the local level’s role: elements of a case study approach
  • 5.1.1 The strengths of a case study approach: explaining and exploring
  • 5.1.2 Defining the case, unit, levels and timeframe of analysis
  • 5.2 Proposing a design for the local study of Bismarckian activation regimes
  • 5.2.1 Application of various data collection techniques
  • 5.2.2 Selection of local cases in two ‘critical’ Bismarckian countries in continental Europe
  • 5.2.3 The theoretical framework: a guide for the exploratory analysis of local mechanisms
  • 5.3 Methods and techniques applied for the local case study series
  • 5.3.1 Semi-structured expert interviews
  • 5.3.2 Qualitative content analysis and case study reports
  • 5.4 Conclusion: combining local study and welfare state analyses
  • 6 The traditional role of minimum income schemes in France and Germany
  • 6.1 A circumscribed field: unemployment policy in France and Germany
  • 6.1.1 Corporatist institutions in social and labour market policy in France and Germany
  • 6.1.2 Services and programmes for ‘normal’ unemployed in France and Germany
  • 6.1.3 Conclusion: status-oriented unemployment policy fields in France and Germany
  • 6.2 A field apart: minimum income schemes in France and Germany
  • 6.2.1 The traditional role of the general minimum income scheme in France
  • 6.2.2 The traditional role of the general minimum income scheme in Germany
  • 6.3 Conclusion: a Bismarckian legacy of fragmented providers, services and policies
  • 7 The institutionalisation of employment-centred welfare in Germany
  • 7.1 Labour market- and social policy reforms in Germany
  • 7.1.1 A reformed entitlement structure of the benefit system
  • 7.1.2 A new organisation of services and work incentives
  • 7.1.3 Increased flexibilisation of the German labour market
  • 7.1.4 The selective focus of a Bismarckian activation regime in Germany
  • 7.1.5 Conclusion: activation as new filter against minimum income receipt in Germany
  • 7.2 The re-organisation of service delivery for minimum income recipients in Germany
  • 7.2.1 An integrated framework for different benefits and services
  • 7.2.2 The distribution of financing responsibilities for the Jobcenter
  • 7.2.3 The organisation of services reacting to work-related and social exclusionary risks
  • 7.2.4 Instruments for controlling local activities
  • 7.2.5 Staff of the Jobcenter
  • 7.2.6 Decision-making bodies of the Jobcenter
  • 7.2.7 Conclusion: an integrated framework for the local activation of benefit recipients
  • 7.3 The local implementation of activation reforms in Germany
  • 7.3.1 Local governance of welfare interventions in local authority G-A
  • 7.3.1.1 Local institutional conditions for the take-up of services and policies
  • 7.3.1.2 Local modes of interaction for the delivery of services
  • 7.3.1.3 Local control techniques
  • 7.3.1.4 Towards a bureaucratic activation logic in region G-A
  • 7.3.2 Local governance of welfare interventions in local authority G-B
  • 7.3.2.1 Local institutional conditions for the take-up of services and policies
  • 7.3.2.2 Local modes of interaction for the delivery of services
  • 7.3.2.3 Local techniques of control
  • 7.3.2.4 Towards a bureaucratic activation logic in region G-B
  • 7.3.3 Local governance of welfare interventions in local authority G-C
  • 7.3.3.1 Local institutional conditions for the take-up of services and policies
  • 7.3.3.2 Local modes of interaction for the delivery of services
  • 7.3.3.3 Local techniques of control
  • 7.3.3.4 Towards a participatory logic of activation in region G-C
  • 7.3.4 Local governance of welfare interventions in local authority G-D
  • 7.3.4.1 Local institutional conditions for the take-up of services and policies
  • 7.3.4.2 Local modes of interaction for the delivery of services
  • 7.3.4.3 Local techniques of control
  • 7.3.4.4 Towards a market-oriented logic of activation in region G-D
  • 7.4 Conclusion: varying local activation approaches in Germany
  • 8 The institutionalisation of employment-centred welfare in France
  • 8.1 Labour market- and social policy reforms in France
  • 8.1.1 Changes in the French benefit system
  • 8.1.2 A reformed regulation of services, incentives and work requirements
  • 8.1.3 An increased flexibilisation of the French labour market
  • 8.1.4 The selective focus of a Bismarckian activation regime in France
  • 8.1.5 Conclusion: activation as new filter against minimum income receipt in France
  • 8.2 The re-organisation of service delivery for minimum income recipients in France
  • 8.2.1 A local framework for the delivery of diverse benefits and services
  • 8.2.1.1 Financing responsibilities
  • 8.2.1.2 The organisation of services reacting to work-related and social exclusionary factors
  • 8.2.1.3 Social welfare services for minimum income recipients
  • 8.2.1.4 Active labour market policy services for minimum income recipients
  • 8.2.1.5 The department as social welfare provider in need of external competences
  • 8.2.2 Coordination and activation through local case management
  • 8.2.2.1 Coordination and control of access to the different services and programmes
  • 8.2.2.2 Orientation through case management
  • 8.2.2.3 The crucial role of case management in the French system
  • 8.2.3 Local coordination bodies
  • 8.2.4 The organisation of benefit payment
  • 8.2.5 Conclusion: a fragmented framework for the local activation of benefit recipients
  • 8.3 The local implementation of activation approaches in France
  • 8.3.1 Local governance of welfare interventions in local authority F-A
  • 8.3.1.1 Local institutional conditions for the take-up of services and policies
  • 8.3.1.2 Local modes of interaction for the delivery of services
  • 8.3.1.3 Local techniques of control
  • 8.3.1.4 Programmatic renewal but organisational continuity: social treatment in local authority F-A
  • 8.3.2 Local governance of welfare interventions in local authority F-B
  • 8.3.2.1 Local institutional conditions for the take-up of services and policies
  • 8.3.2.2 Local modes of interaction for the delivery of services
  • 8.3.2.3 Local techniques of control
  • 8.3.2.4 Continuity of a social treatment approach in local authority F-B
  • 8.3.3 Local governance of welfare interventions in local authority F-C
  • 8.3.3.1 Local institutional conditions for the take-up of services and policies
  • 8.3.3.2 Local modes of interaction for the delivery of services
  • 8.3.3.3 Local techniques of control
  • 8.3.3.4 Towards a participatory activation logic in local authority F-C
  • 8.3.4 Local governance of the minimum income scheme in local authority F-D
  • 8.3.4.1 Local institutional conditions for the take-up of services and policies
  • 8.3.4.2 Local modes of interaction for the delivery of services
  • 8.3.4.3 Local techniques of control
  • 8.3.4.4 Towards a bureaucratic activation logic in local authority F-D
  • 8.4 Conclusion: varying local welfare interventions in France
  • 9 Conclusion: local coordination of fragmented Bismarckian welfare states
  • Literature

List of figures

Fig. 1:  Development of the number of minimum income benefit recipients in Germany

Fig. 2:  Development of the number of minimum income benefit recipients in France

Fig. 3:  The institutional filter of minimum income schemes

Fig. 4:  The institutional filter of minimum income schemes in the Bismarckian welfare state model

Fig. 5:  Employment rate people age 15–64

Fig. 6:  Part time workers in percentage of total employment

Fig. 7:  Full time workers in percentage of total employment

Fig. 8:  Percentage of employees with temporary contracts

Fig. 9:  Strictness of employment protection

Fig. 10: Labour market services in percentage of the GDP

Fig. 11: Employment incentives in percentage of the GDP

Fig. 12: Direct job creation in percentage of the GDP

Fig. 13: Early retirement in percentage of the GDP ← XV | XVI →

List of tables

Tab. 1:  Continental European filtering institutions of minimum income schemes

Tab. 2:  Ideal types of the local organisation of welfare interventions

Tab. 3:  Research design

Tab. 4:  Local organisations of welfare interventions in France and Germany ← XVII | XVIII →

List of abbreviations

1.  Introduction

Steadily increasing reliance of persons on meagre to moderate minimum income benefits in continental European countries like France and Germany (cf. Fig. 1 and Fig. 2) is atypical for these welfare state types. Both countries belong to the Bismarckian welfare state model which is normally characterised by generous coverage of status-protecting social insurance. Does the rise in the number of beneficiaries of typically residual minimum income schemes in both countries thus indicate a demise of the Bismarckian welfare state? According to widespread interpretations (Pierson 1995; Pierson 2001), the increasingly prominent role of so called last-resort financial safety nets fits into the picture of a retrenchment of the welfare state.

Fig. 1: Development of the number of minimum income benefit recipients in Germany (in Thousands; blue: total; orange: Germans; yellow: foreigners).

img1.jpg

Source: Statistische Ämter des Bundes und der Länder 2008: 13. ← 1 | 2 →

Details

Pages
XII, 327
Year
2015
ISBN (PDF)
9783653042245
ISBN (ePUB)
9783653987225
ISBN (MOBI)
9783653987218
ISBN (Hardcover)
9783631651070
DOI
10.3726/978-3-653-04224-5
Language
English
Publication date
2014 (December)
Keywords
Sozialpolitik Arbeitsmarktreformen Arbeitsvermittlung Jobcenter Aktivierungspolitiken
Published
Frankfurt am Main, Berlin, Bern, Bruxelles, New York, Oxford, Wien, 2014. XII, 327 pp., 9 coloured fig., 2 b/w fig., 4 tables

Biographical notes

Sebastian Künzel (Author)

Sebastian Künzel is researcher at the International Labour Organization. He works on public employment services, employment, active labour market and welfare policy. As member of the European Union’s Research Framework Programme, he had had research and university assignments in Oldenburg (Germany), Bordeaux and Marseille (both France).

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