Social Policy by Other Means: Theorizing Unconventional Forms of Welfare Production

Abstract

The goal of this special issue is to highlight the importance of unconventional social policies, theorize their development in comparison with traditional welfare state accounts and outline a new research agenda. In this introduction to the special issue, the editors present the concept of social policy by other means as encompassing two kinds of unconventional social policy (from the point of view of mainstream comparative research): First, functional equivalents to formal systems of social protection and, second, non-state provision of benefits. The concept builds upon a sizeable, but fragmented literature in comparative welfare state research. While numerous examples demonstrate that social policy by other means is more pervasive in both OECD and non-OECD countries than often acknowledged, a brief survey of the top 20 articles in the field reveals that this fact is not sufficiently reflected in the academic literature. With reference to both existing studies and the contributions to this special issue, the editors go on to explore (1) the different forms of social policy by other means, (2) explanatory theories and (3) their effectiveness in terms of social outcomes. They close by outlining a research agenda.     

Retrenchment of Social Policy by Other Means: A Comparison of Agricultural and Housing Policy in Turkey

Abstract

In many low- and middle-income countries, conventional welfare state institutions provide social protection only for the formally employed. In contrast, the rural and urban poor are often protected by “social policy by other means”. Based on a comparative analysis of two major unconventional welfare programs in Turkey, agricultural state support and access to squatter housing, this article explains retrenchment of social policy by other means. Agricultural retrenchment was the result of coercive policy transfer from international organizations in a post-crisis context, while the retrenchment of squatter housing was driven by domestic political entrepreneurs responding to decreases in the availability of urban land and the number of informal squatters. In both cases, retrenchment became politically sustainable due to functional replacement with more conventional welfare programs. This analysis challenges the narrow focus of mainstream welfare state research, provides an explanation of retrenchment of social policy by other means, and enhances our understanding of Turkey’s uneven welfare state development.     

Bricks in the wall: the politics of housing in Europe

Abstract

Housing has important economic, political, and social ramifications for Western Europe and beyond. Despite its importance in shaping economic and political outcomes, however, housing remains in the peripheral vision of major comparative political economy debates. This introduction to the special issue accomplishes four objectives. First it demonstrates how housing defies current political economy typologies by failing to conform to their theoretical and empirical predictions. Second it summarises the current state of housing research within political science, which still remains in its infancy. Third it highlights how the contributions in this special issue expand our understanding of how housing causes and is shaped by political and economic outcomes in Europe. Finally, this introduction concludes by outlining how the special issue contributions demonstrate housing’s importance for the welfare state, political preferences and electoral shifts, regulatory and redistributive policies, and financialisation and household indebtedness in Europe.     

Tackling the Big Questions in Social Impact Bond Research through Comparative Approaches

Abstract

This special issue of theJournal of Comparative Policy Analysis brings together four cross-disciplinary articles representing the first concerted attempt to combine comparative approaches to extend theoretical and empirical understandings of Social Impact Bonds (SIBs). SIBs are investment-backed payment-by-results projects and have been subject to vigorous academic debate on their appropriateness and efficacy since the first SIB launched in 2010. This introduction to the special issue outlines the state of the academic literature on SIBs, identifying gaps and suggesting five big questions that do not yet have satisfactory answers: (1) What are the administrative or political problems to which SIBs respond? (2) Where and why do SIBs emerge in particular contexts? (3) What is the role of SIBs in the evidence-based policy movement? (4) Is delivering an intervention through a SIB more effective than other means and are associated costs justifiable? (5) Do SIBs catalyse wider organizational, system, or institutional changes? This introduction then summarizes the articles included in this special issue, discusses how they respond to these big questions, and suggests that further comparative research might best address remaining gaps in the literature.     

Corruption,Trust and their Public Sector Consequences: Introduction to the Special Edition

Abstract

Corruption and trust are two important determinants of the quality of public sectors. Empirical studies in different literatures suggest that corruption and trust have effects on factors such as economic growth, the quality of democratic institutions, life quality, the size and effectiveness of the public sector and much more. The purpose of this special issue – one that goes to the heart of the comparative policy ethos which is central to the journal's mission – is to draw on a number of country examples to shed light on the state of the literature on the connection between corruption and trust. The aim is to show that these two concepts are highly relevant to each other, and that their interconnections are important to understand the public sector consequences of corruption and trust. By focusing on these concepts, we hope that this special issue can pave the road for further comparative research.     

Differences That Matter: Overcoming Methodological Nationalism in Comparative Social Policy Research

Abstract

Welfare states are often discussed as if they were territorially homogeneous state-wide institutions measurable by state-wide expenditure averages and explained by country-level variables. It is rare in comparative policy studies to investigate the role of territorial politics in the outcomes of even federal countries. This article argues, using social policy examples in the UK and US, that the impact of intergovernmental finance and division of labour profoundly shapes social investment and redistribution – producing almost as much expenditure variance within the US as within the OECD. The findings show the importance of incorporating territorial politics and intergovernmental arrangements into comparative welfare state and policy analysis.     

Informal Service Access in Pro-Cyclical Welfare States: A Comparison of Electricity Theft in Slums and Regular Residential Areas of Montevideo

Abstract

It is often thought that political incumbents in developing countries abandon the poor during economic crises because of narrow and pro-cyclical welfare policies. In contrast to that view, this article argues that informal transfers for those excluded from the welfare state represent an example of “social policy by other means”. During dire economic conditions, democratic incumbents, who need the support or acquiescence of dislocated groups, expand irregular access to the electricity service counter-cyclically. Comparative time series data from slums and residential areas of Montevideo show that electricity losses respond to the political provision of both informal social insurance and informal redistribution.     

Comparative Implementation Research: Directions and Dualities

Abstract

The study of policy implementation developed steadily and considerably in the 1970s and 1980s through two generations of research. Since then progress towards a more rigorous scientific “third generation research paradigm”, assumed to be crucial for further theoretical development, has been much slower and more uneven. Comparative studies figure prominently in this respect. On one hand they are strongly encouraged but on the other they are difficult to conduct according to best practice advice in the textbooks. Comparative implementation research is the theme of this special issue. In this Introduction the articles included are presented, focusing on how they deal with some of the issues posed by the norms of a rigorous “third generation” approach. Reasons for the state of affairs in implementation research are discussed. Some inherent dualities and tensions in contemporary comparative implementation research are identified as particular challenges.     

Downbound spiral? Economic grievances,perceived social protection and political distrust

Abstract

Momentous events in Western democracies have brought renewed attention to how various aspects of government-controlled policy outputs and outcomes affect citizens’ trust in politics. Unlike most previous research, this study uses individual-level panel data to test the link between government performance evaluations and political trust. Moreover, it gauges performance in more policy areas than previous research, including key aspects of government-controlled social services as well as a wide range of economic risks. The study finds that evaluations of government performance affect political trust but that the evidence is stronger for evaluations of social protection than for economic risks. Crucially, the analysis suggests that the relationship between performance evaluations and distrust is reciprocal. The relationship may be described as a ‘downbound spiral’ where dissatisfied groups develop distrust, which in turn makes for a more pessimistic interpretation of economic risks and welfare state performance.     

Parties’ policy adjustments in response to changes in issue saliency

Abstract

A number of studies have investigated when parties change their policy positions. However, this growing body of research has had limited interaction with the literature on issue competition. To bring these two perspectives together, this article investigates how and when parties adjust their respective policy positions on immigration, the environment and the welfare state. In the article it is argued that especially large parties in electoral terms adjust their policy positions on specific issues in response to changes in the party system saliency of these issues. When the other parties increase their focus on a given issue, large parties adjust their position in the direction preferred by a majority of the voters. In the article this argument is investigated empirically, based on CMP data from 18 West European countries from 1980 to 2014. The findings largely support the argument and show a strong potential for further integration of the two dominant perspectives on party competition.     

The Use of Hypothetical Household Data for Policy Learning: Comparative Tax‒Benefit Indicators Using EUROMOD HHoT

Abstract

Tax?benefit microsimulation models are typically used to quantify the effect of specific policy changes on the income distribution based on representative microdata. Such analysis evaluates policies by considering how different tax?benefit elements interact given personal, household and labour market characteristics. Using hypothetical household data instead helps address broader questions of policy design and systemic (cross-national) differences. This article introduces the Hypothetical Household Tool (HHoT) in combination with the microsimulation model EUROMOD to analyse European tax?benefit policies from a comparative perspective. It presents a series of applications from social welfare analysis illustrating how hypothetical data can benefit comparative academic and policy research.     

Social Policy by Other Means from a Comparative Historical Perspective Continuity and Change in Nineteenth-Century Belgium (1800 ‒1920)

ABSTRACT

While social policies in the past are “by other means” if compared to traditional welfare states, historians have successfully established that they were much more conventional in their own time. Moreover, welfare states are historically grown constructs often still containing many pre-existing elements of precisely such social policies by other means, for example non-state provision. Belgium is an excellent example. Historically both nineteenth-century poor relief and early twentieth-century social insurance were mixed private/public forms of provision and funding. Today the Belgian welfare state still retains fundamental aspects of non-state provision not usually associated with “conventional” welfare states in the core OECD.     

Going Nordic—Can the Nordic model tackle grand challenges and be a beacon to follow?

Nordic countries are known for having extensive welfare services, a highly compressed wage structure owing to strong social partners, as well as effective regulation and governance in public administration. Various typologies capture aspects of the institutional features of families of nations across various policy areas, showing that there is a specific Nordic variant of political economy. While there is an extensive literature focusing on socio-economic outcomes in the Nordic countries, there is less scholarly focus on the linkages between the regulatory processes, and their policy output, in response to various challenges. This volume examines how exogenous challenges (market liberalization promoted by EU integration and the gig economy, as well as the COVID-19 pandemic) and endogenous challenges in the welfare state (regulation of child-care quality and retirement ages) are tackled in a selection of Nordic countries. After a bibliometric analysis on the state of the literature, features of the Nordic model are presented. Then, the contributions of the articles to the special issue are summarized, after which lessons for other models of political economy are pinpointed. We find that although there is high variation within the Nordics in the studies of the special issue, there is a trend whereby, over time, a broader range of actors involved in the policy and regulatory process. Although not perfect, challenges are solved incrementally and often at an early stage. In other words, the Nordic regulatory model is highly adaptable to different challenges. Thus, the Nordic model does present crucial lessons for other types of political economy.     

Umbau des Sozialstaates? Österreich und Deutschland im Vergleich

In comparative analysis of welfare states, there is a consensus that mature welfare state systems have been confronted, for some considerable time, with substantial pressure towards re-structuring and that, as a result, they actually have undertaken several and varied modifications. This articles aims at exploring and analysing these developments in Austria and Germany from a comparative point of view. The analysis concentrates on two vital fields of social policy: old-age insurance and unemployment insurance. Especially in respect of the development of social policy and regarding important characteristics of the two welfare state systems, both countries traditionally show a large degree of resemblance to each other. Many similarities remained to exist during the phase of growing pressures on the welfare state, whereas at the same time it is evident that differences between the two countries increased. The respective actual developments will be interpreted in the light of corresponding theories of comparative welfare state research and classified as gradual and structural changes.     

Negotiating universalism in India and Latin America: Fiscal decentralization,subnational politics and social outcomes

ABSTRACT

This is the introductory paper for a special issue which focuses on an exploration of how vertical inter-governmental political and fiscal bargains and horizontal variation in political, social and economic conditions across regions contribute to or undermine the provision of inclusive and sustainable social policies at the subnational level in Latin America and India. The papers incorporate both federal, as well as decentralized unitary states, pointing to common political tensions across unitary and federal settings despite the typically greater institutionalization of regional autonomy in federal countries. Jointly, the papers examine the territorial dimension of universalism and explore, in greater and empirical detail, the causal links between fiscal transfers, social policies and outcomes, highlighting the political dynamics that shape fiscal decentralization reforms and the welfare state. This introductory essay reviews existing scholarship, and highlights the contribution of the special issue to understanding these issues beyond OECD contexts.     

Political Science Perspectives on Human Rights

This special issue of Human Rights Review is devoted to an exploration of the current human rights research agendas within the political science discipline. Research on human rights is truly an interdisciplinary quest in which various epistemologies can contribute to each other and form a larger dialogue concerning rights and wrongs. This special issue is devoted to an expansive understanding of the state of research on human rights in the political science discipline. One common theme throughout these contributions is the need for a more nuanced conceptualization of human rights, tools to promote these rights and as social scientists, methodologies employed to study these rights. A second theme is the policy relevance that can be derived from our empirical analysis. This volume demonstrates that the integration of theoretically and normatively rich concepts, empirical social science, and policy relevance do not have to be mutually exclusive when studying human rights.     

Promotion Tournament,Labor Market Tightening and Pension Generosity: A Comparative Public Policy Analysis of Pension System for Urban Workers in China (1997–2013)

Abstract

This article conducts a comparative public policy analysis of China’s generous urban worker basic pension system. It is commonly believed that Chinese local governments, which are motived by office-seeking incentives under decentralization, may foster economic growth at the expense of citizens’ social rights and thus “promotion tournament competition” comes into being. This article challenges this view by arguing that such competition can increase the generosity of social programs such as public pensions, especially in the condition of labor scarcity. This argument is supported by time-series cross-section analysis of 31 Chinese provincial units (1997–2013) using a novel indicator of the intensity of inter-locality competition. When the labor market tightens, workers can leave a locality to seek better compensation. Motivated by the promotion tournament competition to develop the local economy, which requires the issue of labor shortage to be addressed, local governments then provide generous local pension schemes to retain workers. Operating in a macroeconomic climate of labor scarcity, promotion tournament competition becomes an unlikely catalyst for welfare expansion in China.     

The Puzzling Lack of a Social Dilemma

Among theories dealing with welfare state policy development, theories of social dilemmas and of key actor-group influence over government policy formation are increasingly holding sway. These theories emphasise that few would risk being unilateral contributors to the systems without any compensating elements. Thus, selective, means-testing systems or stingy universal systems in which some citizens 'contribute' while others 'receive' may risk being regarded as unfair in the eyes of the contributors in spite of the redistributive intentions. The degree of welfare state programme 'fairness' and reciprocity would, then, explain the degree of support for the welfare state. However, by using data from the United Kingdom and Sweden, this article will, first, claim that the social dilemma research turns a blind eye to the fact that public opinion in general as well as key groups appears to be able to yield its support even when welfare states contain distinctly selective elements and low-compensation universal programmes. Second, the article will elaborate on the confusion surrounding welfare state taxonomies as one plausible reason for why social dilemma theories may risk missing the target. Finally, the article will elaborate on the future of the welfare state as we know it. The main points are that given the fact that the welfare states in the two countries really already are conglomerates of different types of welfare programmes and, given a weak relationship between key groups and policy formation, the most likely future for the welfare state is that policies will continue to follow mixed paths.     

Bremst der Föderalismus den Leviathan? Bundesstaat und Sozialstaat im internationalen Vergleich, 1880–2005

This paper examines the impact of federal state structures on welfare state development in the six classic OECD federations since the 1880s. Starting from the widely acknowledged assumption in comparative public policy research that depicts federalism as an impediment to the expansion of the Leviathan, we demonstrate that federalism has facilitated as well as impeded social policy development. Development is contingent on several time-dependent factors, including the degree of democratization, the type of federalism, the stage of welfare state development and early distribution of social policy responsibility. Federalism also has had an impact on patterns of benefit provision, and we identify a variety of bypass strategies by which the six federations were able to overcome their built-in constitutional rigidities. These institutional changes had a lasting structural impact on the emerging patterns of social security. Overall, federalism has contributed to a status quo bias in social policy, not only because it delayed the early consolidation of national social programs but also, more recently, because it has protected the welfare state against retrenchment.     

Housing and the Welfare State in Norway

This article discusses housing and the welfare state in Norway in 1980 and 2005 by applying Esping‐Andersen's theories of welfare state regimes to this sector. How should Norwegian housing policy be understood in light of Esping‐Andersen's conceptual framework, and what is the impact of post‐industrial change? In 1980, Norwegian housing policy was mainly characterised by social‐democratic traits such as market regulation, substantial public expenditure and universal subsidies for both renters and a large owner‐occupied housing sector. The effects of post‐industrial changes, including deregulation of the credit and housing markets, marked a major turn in housing policy and the housing market in Norway. By 2005, Norwegian housing policy was mainly characterised by traits that are typical of a liberal welfare regime: market economics, low public expenditure and subsidies for small, targeted groups, while other segments of the Norwegian welfare state remain characterised by social‐democratic traits. Esping‐Andersen's claim that the effect of post‐industrial transformation was different in different welfare regimes is thus not supported by the case of the Norwegian housing sector.