Rik van Berkel, Willibrord de Graaf and Tomáš Sirovátka
The purpose of this introduction to the special issue is to give an overview of the key aspects of the governance of activation policies as discussed in the existing literature…
Abstract
Purpose
The purpose of this introduction to the special issue is to give an overview of the key aspects of the governance of activation policies as discussed in the existing literature. It explains the focus and contribution of this special issue and provides a brief summary of the main findings in the individual articles.
Design/methodology/approach
In this special issue the comparative analysis of the key aspects of governance of activation policies like centralization/decentralization, new public management, marketization and network governance is covered, accompanied by an assessment of the role of implementation conditions in shaping the real trends of governance reforms of activation policies. Further, the effects of governance reforms and the influence of EU governance on the dynamics of national activation policies are discussed. This comparative analysis leads to a typology of the “worlds of governance” of activation policies in Europe.
Findings
All the countries show certain comparable converging trends in the reforms of governance of activation, although a closer look helps us determine the shape of increasingly different patterns of governance in several respects. In spite of this variety, another general finding is the common discrepancy between aims and effects: the key explanation involves implementation failures. Three governance regimes may be distinguished in the EU countries: committed marketizers, modernizers and slow modernizers.
Originality/value
This paper suggests a new typology of governance regimes.
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Willibrord de Graaf and Tomáš Sirovátka
The purpose of this paper is to deal with the question of whether the expectations of improved effects due to governance reforms have been met in nine European Union (EU…
Abstract
Purpose
The purpose of this paper is to deal with the question of whether the expectations of improved effects due to governance reforms have been met in nine European Union (EU) countries and how they are associated with the specific characteristics of the governance of activation.
Design/methodology/approach
The paper distinguishes three types of effect: first, the process effects, like the treatment of unemployed people, their voice and choice when involved in activation and the individualized nature of the service provision process. Second, the paper looks at output effects (policy effort), which include the range (scope) and variety of the programs, the coverage and outreach (targeting) of programs and services to specific groups and service content and quality. Last, the paper is interested in the outcome/employment effects (gross and net) on job placement.
Findings
The authors conclude that the effects of the governance reforms are not unequivocally in favour of the reforms. This is a remarkable finding since all the countries that have been studied show similarities and to some extent converging trends in activation reforms. The reasons for this discrepancy between aims and effects are not easy to detect; nevertheless, implementation difficulties are one explanation and problems with adequate financing may be another.
Originality/value
The complex model of the effects of activation is combined with a governance perspective. This makes it possible to disentangle the effects of governance reforms to some extent. The findings may stimulate further research and orient policy making in activation.
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Paolo R. Graziano and Jiří Winkler
The purpose of this paper is to explore the question regarding how the similar implementation traditions in two countries (Czech Republic and Italy) have influenced the…
Abstract
Purpose
The purpose of this paper is to explore the question regarding how the similar implementation traditions in two countries (Czech Republic and Italy) have influenced the implementation of activation policies in the frame of similar reform trajectories (decentralization and marketization) but different modes of governance (multilevel vs hierarchical).
Design/methodology/approach
Moving from a policy implementation studies approach, the paper assumes that substantive reforms and procedural reforms are mutually interdependent: activation policies often require changes in delivery structures while the changes in these structures influence the key substantive features of the activation policies. Further, implementation capacities and implementation traditions shape the real policies implemented.
Findings
Although the two countries compared are different in terms of the mode of governance emerging from the governance reforms, in both cases the gaps in coordination and implementation capacities have led to several implementation failures in the field of activation policies. In poorly developed active labour market policy (ALMP) regimes, activation governance reforms (such as decentralization and marketization) may not be effective due to enduring implementation gaps.
Originality/value
The paper is innovative since it develops a full‐fledged comparative approach by focusing on two countries with similar implementation traditions which contrast with different modes of governance. Furthermore, the findings put implementation traditions and capacities at the heart of policymaking.
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The purpose of this paper is to analyse Czech’s activation reforms enacted since 2006 which culminated in 2010-2012 as radical workfare-like reforms. It also aims to explain which…
Abstract
Purpose
The purpose of this paper is to analyse Czech’s activation reforms enacted since 2006 which culminated in 2010-2012 as radical workfare-like reforms. It also aims to explain which factors have influenced their development.
Design/methodology/approach
The paper is the case study of activation reforms in one country interpreted within the theoretical framework of the “activation models” and discussion of the factors influencing activation reforms. The design and implementation of the reforms of activation policies are in focus. Institutional analysis is combined with secondary statistical data and survey data.
Findings
The author distinguish three phases of the activation reforms: the initial phase of activation (work first), the radical phase (workfare) and the failure of radical workfare as the final phase. The key argument is that the main factors leading to the radical workfare version of activation were the political factors combined with institutional factors, particularly, the specific model of policy making (the so-called “compost model”). Ironically, this model which has enabled fast and radical workfare-like reforms was also the main reason why the reforms failed.
Originality/value
The paper is innovative since it explains the specific features of the activation reforms in the Czech Republic, distinguishing workfare from other models of activation, and identifying the factors which have played a role in shaping these features. The in-depth case study of one country provides the evidence on the role of the specific factors and helps the author to understand the motives, the design and the implementation of activation reforms in their mutual relationships. The specific role of the institutional legacy in the new circumstances is emphasized.
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The purpose of this article is to examine the relationship between the emerging European activation policies and the evolution of domestic activation policies and its governance…
Abstract
Purpose
The purpose of this article is to examine the relationship between the emerging European activation policies and the evolution of domestic activation policies and its governance. Drawing on the emerging Europeanization debate and comparative literature on activation, the crucial research question will be the following: is there a European Union (EU)‐induced convergence in domestic activation policies in the EU?
Design/methodology/approach
Following Bonoli's work, the article unpacks activation in two dimensions (human capital investment and employment market orientation) and looks at the trajectories of seven Organisation for Economic Co‐operation and Development (OECD) countries using OECD active labour market policy (ALMP) expenditure data.
Findings
The article argues that there is only limited EU‐induced convergence towards the employment assistance component of the EU hybrid model and similarly limited convergence can be seen with respect to the governance of activation policies. Although fully‐fledged explanations of such limited convergence go beyond the scope of this article, the paper puts forward two tentative explanations which should be tested with further research: first, the lack of convergence may lie primarily in the overall “softness” of the European Employment Strategy (which means, among other things, limited resources), but the lack of convergence may also lie in the lack of administrative capacities enabling member state governments to fully implement innovative activation policies.
Originality/value
The paper is innovative since it empirically tests the role of European policies and ideas in shaping domestic reforms of activation policies. Contrary to other findings, the article shows that there is a limited degree of convergence and that the role is particularly negligible with respect to implementation capacities of reformed activation strategies.
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The purpose of this article is to assess the emergence of New Public Management in the governance of activation policies in nine European countries. In the light of considerable…
Abstract
Purpose
The purpose of this article is to assess the emergence of New Public Management in the governance of activation policies in nine European countries. In the light of considerable diversity in the implementation of New Public Management in the different countries, the article tries to identify common patterns.
Design/methodology/approach
For the identification of patterns, fuzzy set theory is applied. Fuzzy sets are used to define ideal types and to measure the degree of membership in the different ideal types for every country.
Findings
It is possible to show that despite the substantial diversity of New Public Management approaches in the governance of activation policies, common patterns exist. The article identifies four ideal types of New Public Management within the nine countries involved in the analysis. At the same time it is shown that most countries do not represent pure models but unify different tendencies within one dominant type.
Originality/value
The identification of common patterns in the emergence of New Public Management in the governance of activation can provide a useful framework for discussion and further research on the implications of different forms of governance on the content and delivery of activation services in Europe.
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Tomáš Sirovátka, Pavel Horák and Markéta Horáková
The paper deals with the question to what extent implementation conditions influence the profile of activation policies in the Czech Republic. In this way, it helps to clarify…
Abstract
Purpose
The paper deals with the question to what extent implementation conditions influence the profile of activation policies in the Czech Republic. In this way, it helps to clarify more general questions: how are broader objectives of these policies specified at the bottom level of implementation and why activation policies differ among countries, although guided by similar general objectives and principles.
Design/methodology/approach
The findings are based on implementation case studies carried out at several local labour offices during the pilot stage and later during the routine stage of implementation of Individual Action Plans (IAPs).
Findings
The paper shows that in the pilot stage of IAPs, the employability approach of enforced activation originated from the top‐down and was adopted at the local level; however, in a fragmented way due to unfavourable implementation conditions (above all poor staffing and a lack of activation programmes). It follows from these very conditions that, in the routine stage, the programme has been dying away, despite being supported by legislation and programme documents. On the other hand, processes of institutional learning have been initiated owing to IAPs and, with the availability of new policy opportunities at the local level (brought about with projects funded from the ESF), policy coalitions and activation policies emerge from the bottom‐up, giving rise to another model: capability approach of inclusion through participation.
Practical implications
The findings are signalling to policy makers the necessity to control the implementation conditions at the national, as well as local level and to take the bottom‐up processes of policy re‐formulation into consideration.
Originality/value
The analysis of the contradictions between the levels of policy‐making and of the volatility of implemented policies emerging from specific implementation conditions represents the original contribution of the study.
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Rik van Berkel, Fritz Sager and Franziska Ehrler
The purpose of this article is to analyse the diversity of markets for the provision of activation services.
Abstract
Purpose
The purpose of this article is to analyse the diversity of markets for the provision of activation services.
Design/methodology/approach
The article is based on the outcomes of a project involving nine European countries. The project investigated changing forms of governance of income protection schemes and activation services for unemployed people. Diversity is investigated by focusing on five dimensions of diversity derived from the quasi‐market concept as developed by Le Grand: the purchasers, the providers, the customers, the purchaser‐provider split and the purchaser‐customer split.
Findings
The paper finds considerable diversity in the design of markets for the provision of activation. Diversity is visible in all dimensions involved in the analysis. One interesting finding is that a full split between purchasers and providers hardly exists, although some countries have introduced a stricter split than others. Another finding concerns the voice and choice of service consumers, which seems hardly affected by the introduction of market mechanisms in the provision of activation. Finally, marketisation does not seem to be an irreversible project, as de‐marketisation processes were identified as well.
Originality/value
Most current research into activation markets and their effects pays little attention to the issue of diversity in the design and functioning of markets. This article argues in favour of more systematic research of market diversity and of the variety of effects of various market models. Rather than comparing marketised with public service provision, a stronger focus on various market models may strengthen our insight into how service provision models affect the effectiveness of activation services.
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Peppi Saikku and Vappu Karjalainen
The purpose of this article is to describe the implementation and results of Finnish activation policy from the viewpoint of integrated services and in the framework of network…
Abstract
Purpose
The purpose of this article is to describe the implementation and results of Finnish activation policy from the viewpoint of integrated services and in the framework of network governance. Special emphasis is given to examining the role of health care as an emergent partner in activation.
Design/methodology/approach
The functioning of integrated activation policy is addressed from the perspective of network governance. Network governance refers to an ideal type of governance based on strong strategic partnership and joint action. In Finland the one‐stop model of LAFOS represents a culmination of integrated activation policy. Implementation and results of LAFOS highlight the governance demands of joined‐up service delivery. Health care proposes yet another viewpoint to the development. The analysis is based on the results of two national evaluations.
Findings
Network governance has been a good starting point in Finnish activation policy for creating a client‐centered approach and for the co‐ordination of separate resources and services. However, problems with legitimacy and accountability seem hard to overcome in the network context. Elements of different types of governance are mixed in activation policy while network governance remains in transition. In Finland, health care has been an essential party to activation, and its role is getting stronger. The challenge is to incorporate health and work ability into a wider concept of employability and capability in society.
Originality/value
The article presents an analysis of the unique model of joint services in activation, LAFOS, and its governance. It also contributes to the discussion of the role of health care in activation and integrated activation policy.
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Rik van Berkel and Vando Borghi
This editorial aims to introduce the first of a set of two special issues on New modes of governance in activation policies.
Abstract
Purpose
This editorial aims to introduce the first of a set of two special issues on New modes of governance in activation policies.
Design/methodology/approach
The article explores the concept of governance, distinguishing a broad and more narrow use of the concept. Then, it argues that issues of governance should be an integral part of studies of welfare state transformations. Not in the last instance, because governance reforms do have an impact on the content of social policies and social services such as activation. The article continues by discussing three models of the provision of social services.
Findings
The article states that the development of the modes of governance in activation in various countries reveals that a mix of service provision models is being used.
Originality/value
The article introduces the articles of the special issue.