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RECONCILING WORK AND WELFARE IN EUROPE Panel session 3: Liberalisation, dualization or integration? Activation and Labour Market Reforms in Europe – Challenges to Social Citizenship Sigrid Betzelt, Silke Bothfeld 1 What is meant by activation? Activation strategies include reforms in at least 3 policy fields: 1. Unemployment protection systems: new conditionality, lower benefits (shorter durations) 2. Labour law: flexibilisation, deregulation 3. Active labour market policies: targeting measures, work test or tailor-made support? What is social citizenship (or better: a social citizenship regime)? • A bundle of normative ideas about the citizens’ (social) rights & obligations and the State’s responsibility • Normative and institutional constructions of membership (in individual, social and political terms) • (Institutional) modes which govern the substance of State’s social security provision and membership Why focusing on social citizenship? Our hypotheses A. Ongoing change is more fundamental than pure institutional analyses suggest B. We assume that basic notions of the “European” Social Citizenship regime change: • the degree of the citizens’ individual autonomy which is (or shall be) protected by labour law & social rights • the relative position of citizens, i.e. social status order (membership) • governance modes and power relations on the micro & macro level The Social Citizenship Regime: Substance & Governance AUTONOMY Individual dimension Social dimension Political dimension The individual’s disposition Identity/ Affiliation (‘sense of belonging’) Mutuality/ Reflexivity Commitment and Participation Objective of public intervention Protection from humiliation/ oppression/ poverty Protection from nonrespect, unfair treatment Protection from marginalization (justice) (equality) (social cohesion) Policy criteria Shaping the QUALITY of benefits and services Regulating ACCESS and social STATUS Encouraging PARTICIPATION and COMMITMENT Mechanisms and tools (selected examples) Providing ‘generous’/poor social security benefits and services promoting high/low quality of labour market integration Opening/constraining Enforcement, hierarchical access to universal benefits attribution and services contracts Differentiating groups guarantee of transparency according to criteria which comprehensibility are difficult to meet co-determination Analytical framework (& examples) Policy Fields/ CRITERIA Labour market regulation Active labour market policies Unemployment protection system QUALITY Growth of atypical work (-) ALMP measures as work tests (-) Cuts in benefits (-) Minimum standards (+) Tailor-made programmes (+) Provision of adequate benefits (+) Atypical work as a trap (-) Enforced participation (-) Constrained access (-) … as a stepping stone (+) Universalised access to almp measures (+) Universalisation of benefit scheme (+) Direct & indirect deregulation (-) Client segmentation (-) Uncontrollable discretion (-) „Negotiated“ flexibility (+) One-stop-agencies (+) Reliability and transparency of conditions (+) ACCESS / STATUS PARTICIPATION & COMMITMENT An explorative approach What is the impact of activation strategies in terms of quality, access/ status and participation and commitment? Case studies identify and analyse instruments and policies which represent typical features of the respective countries’ activation strategy. They illustrate institutional change (output) as well as impact on the citizens’ life situation (outcome). e.g. UK lone parents, DK immigrants, D: all employees and unemployed, NL: social assistance recipients etc. Results negative Labour market regulation Active labour market policies Unemployment protection system D, ES, F, IT D, DK D, DK, ES, IT D, ES, IT D, DK, UK D, DK, UK D? D?, DK?, UK? F D, ES, F D, DK, F, NL, N D, NL N? N? positive QUALITY ACCESS / STATUS PARTICIPATION ES, F, UK Observations for Germany negative Labour market regulation Active labour market policies Unemployment protection system Rise of atypical and precarious employment Cuts of ALMP Increased use of work tests Cuts in benefits Low wage employment and mini-jobs as a trap Enforced participation Status segmentation (UB I & II) Stricter family subsidiarity Targeting (young, elderly) Universal UB II benefit Client segmentation Lack of transparency and reliability positive QUALITY ACCESS / STATUS PARTICIPATION Redefinition of acceptable jobs Liberalisation, dualisation or integration? How to interpret changes in labour market and social policies over the last decades? • no liberalisation, but deregulation of LM, combined with stronger role of the state in controlling & standardising individual behaviour • dualisation on the one hand, but simultaneously erosion of core employment status – changes do not only affect periphery! • integration: employment as major integration mechanism, but without granted level of social rights (segmentation) rising tensions in several dimensions of employment societies: Erosion of social status order Outcome: Rising Tensions 1. Equality – Diversity: Universal Adult Worker Norm affects individual self-determination & respect migrants in DK, lone mothers in UK, women generally 2. Core – Periphery: Erosion of employment status blurring boundaries (D, F) or re-enforced ‘old’ dividing lines (IT, ES) 3. Standardisation – Individualisation: new instruments & governance of social citizenship decentralisation, contractualisation affect citizen’s participation, choice & voice