Viola Burau and Signy Irene Vabo
The purpose of this paper is to introduce the papers included in this special issue and discuss the theme – shifts in Nordic welfare governance.
Abstract
Purpose
The purpose of this paper is to introduce the papers included in this special issue and discuss the theme – shifts in Nordic welfare governance.
Design/methodology/approach
The paper discusses the major themes and sets out the structure of the special issue.
Findings
The picture emerging is mixed and there is evidence for strong decentralisation where policy instruments allow for considerable local room to manoeuvre. Organisational arrangements for governance are also highly localised, but (over time) oscillate between decentralisation and centralisation. As for the consequences for universalism, the contributions point to three contrasting scenarios. The first, relatively optimistic assessment suggests that while decentralisation challenges territorial equality, in some Nordic countries there seems to be inbuilt self‐correcting mechanisms pulling in the opposite direction. The second scenario is more critical and here it is argued that shifts in welfare governance, such as decentralisation and the introduction of elements of self and market governance, challenge universalism; universalism has become highly contingent on local circumstances and the practice of welfare delivery mixes different types of justice. The final scenario is rather pessimistic about the prospects of universalism and suggests that the shifts in welfare governance challenge universalism on all counts and lead to a wide range of new inequalities among citizens. This echoes the analysis of non‐Nordic countries in Europe where the scope for universalism remains limited.
Originality/value
The contribution of this special issue is twofold. First, using elderly care as a case study, the special issue analyses the complexity of welfare governance by looking at changes in both the vertical and the horizontal dimensions of governing. Second, focusing on Nordic countries, it assesses the substantive implications of shifts in welfare governance, notably in terms of universalism.
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Signy Irene Vabo and Viola Burau
The purpose of this paper is to discuss the concept of territorial equality as an indicator of universalism in locally provided care services for older people. The research…
Abstract
Purpose
The purpose of this paper is to discuss the concept of territorial equality as an indicator of universalism in locally provided care services for older people. The research question explored is how the local organisation of care services impacts on and either strengthens or weakens local universalism.
Design/methodology/approach
The analysis is based on case studies in six municipalities in Finland, Norway and Sweden.
Findings
The paper shows that three kinds of organisational characteristics are of relevance for local universalism: the explicitness in assignment criteria, the organisational strength of service guarantees and the degree of co‐payments. Local universalism is highly dependent on the specific organisational arrangements at the local level, but in interplay with national level regulations. Of the three investigated kinds of organisational conditions, the local impact is largest on access criteria and the organisational strength of service guarantees.
Originality/value
Although, there has been much work in mapping territorial inequalities in the Nordic as well as in a wider European context, little attention has been given to how universalism should be understood and evaluated at the local level. The study offers an empirical analysis of organisational conditions for local universalism in the Nordic welfare municipalities.
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Gro Sandkjær Hanssen and Marit Kristine Helgesen
Based on a case study of Norway, the purpose of this paper is twofold: to present recent trends in the development of the multi‐level governance of the care services for the…
Abstract
Purpose
Based on a case study of Norway, the purpose of this paper is twofold: to present recent trends in the development of the multi‐level governance of the care services for the elderly and people with mental illness towards what we call the cooperative turn; and to discuss the implications of this trend for universalism in service provision.
Design/methodology/approach
The paper is a study of documents and the recent research literature.
Findings
A shift towards the cooperative turn can be identified as a change from command‐and‐control instruments to soft regulation mechanisms. Regulations and economic means are increasingly complemented by informational means. Soft versions of the steering instruments are used to target the results and processes of local policies. Hard instruments do not disappear, and a mixture of all the abovementioned instruments governs the two policy fields. This has implications for universalism defined as territorial uniformity, accessibility and coverage as user groups are competing for scarce resources, professionals are gaining autonomy in decision making and users are involved in service provision.
Originality/value
The originality of this paper is the discussion of the development of multi‐level governance towards a cooperative turn and the implications of this for universalism in service provision.
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The purpose of this paper is to analyse the changes that have taken place in the central regulation of social care in Finland since the 1970s. The changes in vertical…
Abstract
Purpose
The purpose of this paper is to analyse the changes that have taken place in the central regulation of social care in Finland since the 1970s. The changes in vertical central‐local relations are discussed in the context of economic and welfare state development.
Design/methodology/approach
The paper is a case study, applying the concept of “the Nordic welfare municipality” to the case of Finland. With this concept, the author refers to the inherently contradictory character of the Nordic model of welfare governance: to a system that emphasises local self‐government but that, at the same time, perceives regional harmonisation as imperative.
Findings
After strong central control during the most intensive construction period of the Finnish welfare state in the 1970s and 1980s, a radical decentralisation reform was implemented in 1993. However, since the early 2000s pressure for centralisation has increased again as emerging regional inequalities in care service provisions came under criticism.
Originality/value
The paper identifies a cycle of decentralisation and recentralisation that reflects the fundamental discrepancy between the maxims of local autonomy and regional equality that are both formative elements of local governance within the Nordic welfare model.
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The paper seeks to explore how universal welfare arrangements based on needs testing may change and assume different institutional forms. Drawing attention to Norwegian home care…
Abstract
Purpose
The paper seeks to explore how universal welfare arrangements based on needs testing may change and assume different institutional forms. Drawing attention to Norwegian home care, the paper explores how established interpretations of needs and associated notions of equity among needs have been challenged by shifting modes of governance.
Design/methodology/approach
The study draws on policy documents, interviews and observation from three different case studies undertaken at different points in time representing different eras of governance. From this perspective, the study examines the role of professionals taking part in needs assessment.
Findings
The studies indicate that routines for needs assessment in home care are contingent on shifting logics of governance. A shift in policy of needs testing may be described as a shift from a personal situated approach encouraging “creative justice” towards a detached and impartial approach better equipped to ensure “proportional justice”. The latter approach has become more dominant as heightened attention has been paid to citizens' rights. It is, however, questionable to what extent it will improve the preconditions for treating citizens with equal concern and respect.
Research limitations/implications
The case study approach underlying the study is incapable of providing generalised conclusions about the development in all Norwegian municipalities.
Originality/value
Universalism is often talked about as a stable feature of the Nordic welfare system. Drawing attention to the underlying and elusive notions of needs, the study makes explicit some unstable aspects of universalism.
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The paper compares the introduction of universal long‐term care schemes and the regulations of migrant care work within the framework of multi‐level governance in Austria and…
Abstract
Purpose
The paper compares the introduction of universal long‐term care schemes and the regulations of migrant care work within the framework of multi‐level governance in Austria and Germany. The aim of the paper is twofold. First, it reveals the characteristics of country‐specific universal policy schemes and second, it explains their designs – the new type of universalism and its completion by regulations of migrant care work within the family framework – by the policy‐making process.
Design/methodology/approach
Conceptually, the paper combines approaches within long‐term care research to define dimensions of universalism, as well as on multi‐level governance and new‐institutionalism to examine the policy‐making process. Empirically, Austria and Germany are selected as two cases.
Findings
The findings reveal the significant dimensions of the new type of universalist policy design and of policies towards migrant care work. The country differences are explained by the policy‐making process within countries and with cross‐border effects. In particular, the impact of the disability movement in Austria and the coalition between the political parties in Germany resulted in a country‐specific definition of universalism. The integrated approach towards migrant care work in Austria is contrasted with the fragmented approach in Germany. In both countries, the regulations of migrant care work question the idea of universalism.
Originality/value
The impact of societal actors and their ideas on the creation of a new type of universalism and the interrelated regulation of migrant care work has only rarely been examined. The analysis contributes to an understanding of the policy‐making process and its interrelationship with selected policy designs.
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Liisa Häikiö and Anneli Anttonen
Local welfare governance is approached from the vantage point of informal carers caring for older people. A bottom‐up perspective is used to construct a critical view on welfare…
Abstract
Purpose
Local welfare governance is approached from the vantage point of informal carers caring for older people. A bottom‐up perspective is used to construct a critical view on welfare provision and governance practices at the local level. The paper aims to discuss the issues.
Design/methodology/approach
The data consist of 23 in‐depth interviews with informal carers. Universal access to services and equal treatment of citizens is discussed.
Findings
The analysis illustrates how informal carers share care responsibilities with the municipality and gain access to services both as service providers and service users. Informal care comprises a complex mixture of public and private responsibilities that poses a challenge to universalism. There are new inequalities emerging among informal carers, while access to public resources is easier for resource‐rich carers positioned as service providers. Resource‐poor carers identify themselves often as service users in relation to municipality.
Originality/value
The use of original data provides important knowledge on informal carers' dual position in the local welfare governance and contributes to both theoretical and empirical understanding on shifts within Nordic welfare governance. Informal carers' dual position reflects the essence of mixed governance and represents future social policies.
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Ingo Bode, Laurent Gardin and Marthe Nyssens
This paper seeks to explore various types of quasi‐market governance in domiciliary elderly care with an interest in both the institutional variety of these governance…
Abstract
Purpose
This paper seeks to explore various types of quasi‐market governance in domiciliary elderly care with an interest in both the institutional variety of these governance arrangements and their assumable consequences, against the twofold background of the EU care policy agenda and the Nordic experience.
Design/methodology/approach
Based on evidence from four Western European countries, the paper examines how recent reforms have changed the provision of domiciliary care, including the shape of vertical and horizontal governance arrangements. Moreover, summarizing results of previous research and drawing on theoretical reflections rooted both in economics and sociology, the paper discusses the wider impact of these reforms.
Findings
The analysis points to country‐specific limitations of the quasi‐market approach regarding issues such as the work‐life balance of carers and the access to adequate services.
Originality/value
By combining different scientific approaches and exploring several institutional contexts, the paper offers new insights both in problems of quasi‐market governance and their cultural colouring.