Sebastian Künzel. Implementing Activation Polides

Transcription

1 Sebastian Künzel Implementing Activation Polides An Analysis of Social and Labour Market Po Hey Reforms in Continental Europe with a Focus on Local Case Studies in France and Germany PL ACADEMIC RESEARCH

2 Contents List of figures XV List of tables XVII List of abbreviations XIX 1. Introduction 1 2. The challenge of rising numbers of minimum income recipients in Bismarckian-type Continental welfare systems The welfare system in open, market-driven and individualised societies Minimum income schemes in the welfare system Institutional filter regulation of minimum income schemes Internal filter regulation of minimum income schemes External filter regulation of minimum income schemes Organisational issues of specific institutional filter of minimum income schemes National institutional Orders of filter arrangements of minimum income schemes Conclusion: minimum income schemes as a matter of institutional filter The role of minimum income schemes in the Bismarckian welfare system Bismarckian institutional filter regulation of minimum income schemes Bismarckian welfare systems' external filtering of minimum income programmes 35 V

3 Bismarckian welfare systems' internal filtering of minimum income programmes The fragmented regulatory logics of Bismarckian filtering institutions Organisational features of the Bismarckian filter of minimum income schemes Organisational features of Bismarckian external filtering institutions Organisational features of the Bismarckian internal filtering institutions The fragmented Organisation of Bismarckian filtering institutions Conclusion: Bismarckian filtering institutions of residual minimum income schemes Dynamics of welfare system change Retrenchment Re-commodification Recalibration Development dynamics of minimum income schemes in Bismarckian-type continental welfare systems The erosion of the Bismarckian employment model's external filter function The erosion of the Bismarckian family model's external filter function The erosion of the status-based Bismarckian social Protections external filter function The rise of minimum income claimants: a crisis of classical Bismarckian filter institutions Conclusion: recalibration demands of Bismarckian institutions in face of rising numbers of minimum income beneficiaries Activation reforms in Bismarckian-type continental welfare systems Activation into employment as a new concept for welfare systems Flexicurity as reference point for employmentcentred welfare systems Areas of an employment-centred welfare system Flexible labour markets for the activation into employment Workfare elements for the activation from benefits into work Integrated social protection systems for unemployed 66 VI

4 3.3.4 Services as enabling elements of activation Summarising the components of an employment-centred welfare State Between European diffusion of good' governance and national activation regimes Employment-centred welfare as new filter for minimum income schemes in Bismarckian-type continental welfare systems Changes in labour market regulation in continental European welfare states Reforms of the Bismarckian benefit system in continental European welfare states Work incentives and requirements in continental European welfare states Social services in continental European welfare states Activation as a new approach to regulate minimum income schemes Conclusion: activation as a new institutional filter of minimum income receipt Re-organising minimum income schemes: the local dimension of Bismarckian activation regimes The local level's role in institutionalising employment-centred welfare The traditional role of local authorities in continental European welfare systems Activation as a matter of the local delivery of services and policies The co-production of services: a matter of institutionalising local organisational fields Co-producing policies and services of diiferent fields Co-producing services and policies from different policy levels Co-producing services between public, private and third sector providers Three local challenges of activating minimum income recipients First hypothesis: local organisational fields as requirement to implement the Bismarckian activation regime 101 VII

5 4.2 unteren: locai governance patterns of employment-centred welfare Concepts of individual behaviour underlying the co-production of activation The Organisation of co-produced policies and services for minimum income recipients Local institutional conditions for co-produced policies and services Local modes of interaction for the delivery of co-produced policies and services Local control techniques for the delivery of co-produced policies and services Second hypothesis: activation approaches increase variance in local Service delivery Conclusion: two hypotheses on a local dimension of activation A methodology for comparative empirical studies on the reorganisation of minimum income schemes Exploring the local levels role: elements of a case study approach The strengths of a case study approach: explaining and exploring Defining the case, unit, levels and timeframe of analysis Proposing a design for the local study of Bismarckian activation regimes Application of various data collection techniques Selection of local cases in two criticat Bismarckian countries in continental Europe The theoretical framework: a guide for the exploratory analysis of local mechanisms Methods and techniques applied for the local case study series Semi-structured expert Interviews Qualitative content analysis and case study reports Conclusion: combining local study and welfare State analyses The traditional role of minimum income schemes in France and Germany 139 VIII

6 6.1 A circumscribed field: unemployment policy in France and Germany Corporatist institutions in social and labour market policy in France and Germany Services and programmes for normal' unemployed in France and Germany Conclusion: status-oriented unemployment policy fields in France and Germany A field apart: minimum income schemes in France and Germany The traditional role of the general minimum income scheme in France The traditional role of the general minimum income scheme in Germany Conclusion: a Bismarckian legacy of fragmented Providers, services and policies The institutionalisation of employment-centred welfare in Germany Labour market- and social policy reforms in Germany A reformed entitlement structure of the benefit system A new Organisation of services and work incentives Increased flexibilisation of the German labour market The selective focus of a Bismarckian activation regime in Germany Conclusion: activation as new filter against minimum income receipt in Germany The re-organisation of service delivery for minimum income recipients in Germany An integrated framework for different benefits and services The distribution of financing responsibilities for the Jobcenter The Organisation of services reacting to work-related and social exclusionary risks Instruments for Controlling local activities Staff of the Jobcenter Decision-making bodies of the Jobcenter Conclusion: an integrated framework for the local activation of benefit recipients The local Implementation of activation reforms in Germany 161 IX

7 X Local governance of welfare interventions in local authority G-A Local institutional conditions for the take-up of services and policies Local modes of interaction for the delivery of services Local control techniques Towards a bureaucratic activation logic in region G-A Local governance of welfare interventions in local authority G-B Local institutional conditions for the take-up of services and policies Local modes of interaction for the delivery of services Local techniques of control Towards a bureaucratic activation logic in region G-B Local governance of welfare interventions in local authority G-C Local institutional conditions for the take-up of services and policies Local modes of interaction for the delivery of services Local techniques of control Towards a participatory logic of activation in region G-C Local governance of welfare interventions in local authority G-D Local institutional conditions for the take-up of services and policies Local modes of interaction for the delivery of services Local techniques of control Towards a market-oriented logic of activation in region G-D Conclusion: varying local activation approaches in Germany 206

8 8. The institutionalisation of employment-centred welfare in France Labour market- and social policy reforms in France Changes in the French benefit system A reformed regulation of services, incentives and work requirements An increased flexibilisation of the French labour market The selective focus of a Bismarckian activation regime in France Conclusion: activation as new filter against minimum income receipt in France The re-organisation of Service delivery for minimum income recipients in France A local framework for the delivery of diverse benefits and services Financing responsibilities The Organisation of services reacting to work-related and social exclusionary factors Social welfare services for minimum income recipients Active labour market policy services for minimum income recipients The department as social welfare provider in need of external competences Coordination and activation through local case management Coordination and control of access to the different services and programmes Orientation through case management The crucial role of case management in the French system Local coordination bodies The Organisation of benefit payment Conclusion: a fragmented framework for the local activation of benefit recipients The local Implementation of activation approaches in France 235 XI

9 8.3.1 Local governance of welfare interventions in local authority F-A Local institutional conditions for the take-up of services and policies Local modes of interaction for the delivery of services Local techniques of control Programmatic renewal but organisational continuity: social treatment in local authority F-A Local governance of welfare interventions in local authority F-B Local institutional conditions for the take-up of services and policies Local modes of interaction for the delivery of services Local techniques of control Continuity of a social treatment approach in local authority F-B Local governance of welfare interventions in local authority F-C Local institutional conditions for the take-up of services and policies Local modes of interaction for the delivery of services Local techniques of control Towards a participatory activation logic in local authority F-C Local governance of the minimum income scheme in local authority F-D Local institutional conditions for the take-up of services and policies Local modes of interaction for the delivery of services Local techniques of control Towards a bureaucratic activation logic in local authority F-D 271 Conclusion: varying local welfare interventions in France 272

10 9. Conclusion: local coordination of fragmented Bismarckian welfare states 285 Literature 307 XIII