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
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 21 2.1 The welfare system in open, market-driven and individualised societies 23 2.2 Minimum income schemes in the welfare system 26 2.2.1 Institutional filter regulation of minimum income schemes 27 2.2.1.1 Internal filter regulation of minimum income schemes 27 2.2.1.2 External filter regulation of minimum income schemes 29 2.2.2 Organisational issues of specific institutional filter of minimum income schemes 31 2.2.3 National institutional Orders of filter arrangements of minimum income schemes 33 2.2.4 Conclusion: minimum income schemes as a matter of institutional filter 34 2.3 The role of minimum income schemes in the Bismarckian welfare system 35 2.3.1 Bismarckian institutional filter regulation of minimum income schemes 35 2.3.1.1 Bismarckian welfare systems' external filtering of minimum income programmes 35 V
2.3.1.2 Bismarckian welfare systems' internal filtering of minimum income programmes 38 2.3.1.3 The fragmented regulatory logics of Bismarckian filtering institutions 39 2.3.2 Organisational features of the Bismarckian filter of minimum income schemes 40 2.3.2.1 Organisational features of Bismarckian external filtering institutions 40 2.3.2.2 Organisational features of the Bismarckian internal filtering institutions 41 2.3.2.3 The fragmented Organisation of Bismarckian filtering institutions 42 2.3.3 Conclusion: Bismarckian filtering institutions of residual minimum income schemes 42 2.4 Dynamics of welfare system change 43 2.4.1 Retrenchment 44 2.4.2 Re-commodification 45 2.4.3 Recalibration 45 2.5 Development dynamics of minimum income schemes in Bismarckian-type continental welfare systems 47 2.5.1 The erosion of the Bismarckian employment model's external filter function 47 2.5.2 The erosion of the Bismarckian family model's external filter function 49 2.5.3 The erosion of the status-based Bismarckian social Protections external filter function 50 2.5.4 The rise of minimum income claimants: a crisis of classical Bismarckian filter institutions 52 2.6 Conclusion: recalibration demands of Bismarckian institutions in face of rising numbers of minimum income beneficiaries 55 3. Activation reforms in Bismarckian-type continental welfare systems 59 3.1 Activation into employment as a new concept for welfare systems 61 3.2 Flexicurity as reference point for employmentcentred welfare systems 63 3.3 Areas of an employment-centred welfare system 65 3.3.1 Flexible labour markets for the activation into employment 65 3.3.2 Workfare elements for the activation from benefits into work 66 3.3.3 Integrated social protection systems for unemployed 66 VI
3.3.4 Services as enabling elements of activation 67 3.3.5 Summarising the components of an employment-centred welfare State 69 3.4 Between European diffusion of good' governance and national activation regimes 70 3.5 Employment-centred welfare as new filter for minimum income schemes in Bismarckian-type continental welfare systems 72 3.5.1 Changes in labour market regulation in continental European welfare states 73 3.5.2 Reforms of the Bismarckian benefit system in continental European welfare states 76 3.5.3 Work incentives and requirements in continental European welfare states 78 3.5.4 Social services in continental European welfare states 80 3.5.5 Activation as a new approach to regulate minimum income schemes 82 3.6 Conclusion: activation as a new institutional filter of minimum income receipt 85 4. Re-organising minimum income schemes: the local dimension of Bismarckian activation regimes 89 4.1 The local level's role in institutionalising employment-centred welfare 91 4.1.1 The traditional role of local authorities in continental European welfare systems 91 4.1.2 Activation as a matter of the local delivery of services and policies 92 4.1.3 The co-production of services: a matter of institutionalising local organisational fields 95 4.1.3.1 Co-producing policies and services of diiferent fields...97 4.1.3.2 Co-producing services and policies from different policy levels 99 4.1.3.3 Co-producing services between public, private and third sector providers 100 4.1.3.4 Three local challenges of activating minimum income recipients 101 4.1.4 First hypothesis: local organisational fields as requirement to implement the Bismarckian activation regime 101 VII
4.2 unteren: locai governance patterns of employment-centred welfare 103 4.2.1 Concepts of individual behaviour underlying the co-production of activation 104 4.2.2 The Organisation of co-produced policies and services for minimum income recipients 107 4.2.2.1 Local institutional conditions for co-produced policies and services 108 4.2.2.2 Local modes of interaction for the delivery of co-produced policies and services 111 4.2.2.3 Local control techniques for the delivery of co-produced policies and services 114 4.2.3 Second hypothesis: activation approaches increase variance in local Service delivery 117 4.3 Conclusion: two hypotheses on a local dimension of activation 120 5. A methodology for comparative empirical studies on the reorganisation of minimum income schemes 123 5.1 Exploring the local levels role: elements of a case study approach... 124 5.1.1 The strengths of a case study approach: explaining and exploring 125 5.1.2 Defining the case, unit, levels and timeframe of analysis 126 5.2 Proposing a design for the local study of Bismarckian activation regimes 127 5.2.1 Application of various data collection techniques 129 5.2.2 Selection of local cases in two criticat Bismarckian countries in continental Europe 129 5.2.3 The theoretical framework: a guide for the exploratory analysis of local mechanisms 131 5.3 Methods and techniques applied for the local case study series 132 5.3.1 Semi-structured expert Interviews 132 5.3.2 Qualitative content analysis and case study reports 134 5.4 Conclusion: combining local study and welfare State analyses 136 6. The traditional role of minimum income schemes in France and Germany 139 VIII
6.1 A circumscribed field: unemployment policy in France and Germany 139 6.1.1 Corporatist institutions in social and labour market policy in France and Germany 139 6.1.2 Services and programmes for normal' unemployed in France and Germany 140 6.1.3 Conclusion: status-oriented unemployment policy fields in France and Germany 141 6.2 A field apart: minimum income schemes in France and Germany 142 6.2.1 The traditional role of the general minimum income scheme in France 142 6.2.2 The traditional role of the general minimum income scheme in Germany. 144 6.3 Conclusion: a Bismarckian legacy of fragmented Providers, services and policies 146 7. The institutionalisation of employment-centred welfare in Germany 149 7.1 Labour market- and social policy reforms in Germany 149 7.1.1 A reformed entitlement structure of the benefit system 149 7.1.2 A new Organisation of services and work incentives 151 7.1.3 Increased flexibilisation of the German labour market 152 7.1.4 The selective focus of a Bismarckian activation regime in Germany. 153 7.1.5 Conclusion: activation as new filter against minimum income receipt in Germany 153 7.2 The re-organisation of service delivery for minimum income recipients in Germany 154 7.2.1 An integrated framework for different benefits and services 155 7.2.2 The distribution of financing responsibilities for the Jobcenter 156 7.2.3 The Organisation of services reacting to work-related and social exclusionary risks 156 7.2.4 Instruments for Controlling local activities 157 7.2.5 Staff of the Jobcenter 158 7.2.6 Decision-making bodies of the Jobcenter 159 7.2.7 Conclusion: an integrated framework for the local activation of benefit recipients 160 7.3 The local Implementation of activation reforms in Germany 161 IX
X 7.3.1 Local governance of welfare interventions in local authority G-A 161 7.3.1.1 Local institutional conditions for the take-up of services and policies 161 7.3.1.2 Local modes of interaction for the delivery of services 162 7.3.1.3 Local control techniques 167 7.3.1.4 Towards a bureaucratic activation logic in region G-A 169 7.3.2 Local governance of welfare interventions in local authority G-B 171 7.3.2.1 Local institutional conditions for the take-up of services and policies 171 7.3.2.2 Local modes of interaction for the delivery of services 172 7.3.2.3 Local techniques of control 178 7.3.2.4 Towards a bureaucratic activation logic in region G-B 181 7.3.3 Local governance of welfare interventions in local authority G-C 182 7.3.3.1 Local institutional conditions for the take-up of services and policies 183 7.3.3.2 Local modes of interaction for the delivery of services 185 7.3.3.3 Local techniques of control 192 7.3.3.4 Towards a participatory logic of activation in region G-C 194 7.3.4 Local governance of welfare interventions in local authority G-D 195 7.3.4.1 Local institutional conditions for the take-up of services and policies 195 7.3.4.2 Local modes of interaction for the delivery of services 197 7.3.4.3 Local techniques of control 203 7.3.4.4 Towards a market-oriented logic of activation in region G-D 204 7.4 Conclusion: varying local activation approaches in Germany 206
8. The institutionalisation of employment-centred welfare in France 217 8.1 Labour market- and social policy reforms in France 217 8.1.1 Changes in the French benefit system 217 8.1.2 A reformed regulation of services, incentives and work requirements 219 8.1.3 An increased flexibilisation of the French labour market 221 8.1.4 The selective focus of a Bismarckian activation regime in France 222 8.1.5 Conclusion: activation as new filter against minimum income receipt in France 223 8.2 The re-organisation of Service delivery for minimum income recipients in France 224 8.2.1 A local framework for the delivery of diverse benefits and services 226 8.2.1.1 Financing responsibilities 226 8.2.1.2 The Organisation of services reacting to work-related and social exclusionary factors 227 8.2.1.3 Social welfare services for minimum income recipients 228 8.2.1.4 Active labour market policy services for minimum income recipients 228 8.2.1.5 The department as social welfare provider in need of external competences 230 8.2.2 Coordination and activation through local case management 231 8.2.2.1 Coordination and control of access to the different services and programmes 231 8.2.2.2 Orientation through case management 232 8.2.2.3 The crucial role of case management in the French system 232 8.2.3 Local coordination bodies 233 8.2.4 The Organisation of benefit payment 233 8.2.5 Conclusion: a fragmented framework for the local activation of benefit recipients 234 8.3 The local Implementation of activation approaches in France 235 XI
8.3.1 Local governance of welfare interventions in local authority F-A 235 8.3.1.1 Local institutional conditions for the take-up of services and policies 236 8.3.1.2 Local modes of interaction for the delivery of services 238 8.3.1.3 Local techniques of control 242 8.3.1.4 Programmatic renewal but organisational continuity: social treatment in local authority F-A... 242 8.3.2 Local governance of welfare interventions in local authority F-B 244 8.3.2.1 Local institutional conditions for the take-up of services and policies 245 8.3.2.2 Local modes of interaction for the delivery of services 245 8.3.2.3 Local techniques of control 248 8.3.2.4 Continuity of a social treatment approach in local authority F-B 249 8.3.3 Local governance of welfare interventions in local authority F-C 250 8.3.3.1 Local institutional conditions for the take-up of services and policies 251 8.3.3.2 Local modes of interaction for the delivery of services 252 8.3.3.3 Local techniques of control 260 8.3.3.4 Towards a participatory activation logic in local authority F-C 262 8.3.4 Local governance of the minimum income scheme in local authority F-D 263 8.3.4.1 Local institutional conditions for the take-up of services and policies 263 8.3.4.2 Local modes of interaction for the delivery of services 265 8.3.4.3 Local techniques of control 270 8.3.4.4 Towards a bureaucratic activation logic in local authority F-D 271 Conclusion: varying local welfare interventions in France 272
9. Conclusion: local coordination of fragmented Bismarckian welfare states 285 Literature 307 XIII