GLOBAL COOPERATION NEWSLETTER
September 2014
In this issue:Promoting participatory citizenship: The role of welfare services

Are pensions a luxury?

Data Revolution for Sustainable Development

Useful resources and links



Featured article. Promoting participatory citizenship: The role of welfare services

Kati Närhi, Tuomo Kokkonen and Aila-Leena Matthies
Kati Närhi, Ph.D. in Social Work, is a Professor of Social Work at the University of Jyväskylä, Finland.
Tuomo Kokkonen is a University Teacher at the University of Jyväskylä, Kokkola University Consortium
Chydenius, Finland.
Aila-Leena Matthies, Ph.D. in Social Policy and Social Work, is a Professor of Social Work at the Universityof Jyväskylä, Kokkola University Consortium Chydenius, Finland.

Introduction
Citizen and user participation and active citizenship are seen by many scholars as growing tendencies
in contemporary democratic societies (e.g. Johansson and Hvinden 2007, Evers and Guillemard2013). The promotion of citizen and user involvement in welfare services has emerged as a part ofthe mainstream policy agenda in social and health care-oriented organizations and has also becomea key part of governments’ efforts aimed at developing more participatory forms of governance(Matthies & Uggerhoj 2014).

Given its growing significance in many countries, service user

participation can be seen as a global phenomenon assuming high priority in many current government
policy initiatives. In that sense, participation includes a changing understanding of active citizenshipPage 1 of 12

in contemporary societies that is coming to the forefront of political concerns and social policies. An
especially important factor in this change is to understand how participation reconfigures citizenshiprights and duties with active citizenship involvement and how it changes patterns of equality andinequality in society. (Närhi & Kokkonen 2014.)

The aim of our research project ”The role of welfare services in participative citizenship ofmarginalized citizens” (2011 – 2014), funded by the Academy of Finland, was to identify factors
enabling or hindering participative citizenship on the part of the most non-participative citizens in thefield of welfare services (Unemployed men under the age of 30 years are typical representatives ofthis group in Finland). The key issue that we have tried to investigate was: what is the role of welfare
services in promoting active, participative citizenship on the part of marginalized citizens?

In asking this research question, we focused on three different types of data: first, undertaking
textual analysis of governmental programs and strategy papers from two ministries responsible forsocial and labor market issues in Finland (i.e. the policy level). Second, we carried out focus groupinterviews of young adult service users and “street-level practitioners”, such as social workers, youth
workers, etc., who closely interacted with young adults (the ground level of services). The third data
set was received through the next phases of the research using participatory action research (PAR)carried out with marginalized young adults, local authorities and street-level practitioners from socialand employment services. The goal was to develop better structured and more participatory services
and promote the better engagement of young unemployed adults in social services and welfare
provision in general.

This article is based on the results of our research and highlights some of the recent trends observedin Finland—one of the most socially-oriented market economies in the European Union.

Page 2 of 12

Main results
Based on our research we came to the conclusion that the key strategic papers of both of the abovementioned ministries promote different kinds of active citizenship, and embrace different places ofparticipation, taking as a general yardstick how productive an individual citizen could be considered
for society from the perspective of the national economy. It might even be argued that this kind of
discourse based on understanding participation as a productive citizen is often seen as the only way
for citizens to participate in society, and is an example of the Finnish way of top-down decisionmaking, typical of the rhetoric of the Finnish elite. We argue that this type of argumentation cannot
but advance policies leading to inequality in society and impose limits on citizens’ participation andinclusion, especially with regard to the rights and duties of marginalized citizens. We therefore believethat participation and active citizenship can be used either as a tool for creating a more democraticsociety or, where misused, as a model of neo-liberal governance.

The new participatory and active labor and social policies not only promote the rights of citizens ingeneral but could often enhance the position of marginalized citizens in precarious situations. Thismeans that the individualization of social problems and treating vulnerable citizens in a standardized
manner, providing only limited assistance linked to personal needs, should be avoided.
Unfortunately, in practice, the implementations of such policies may even strengthen the negative
experiences of marginalized segments of the population. Based on our research, we argue that, fromthe perspective of Finnish governance, active and participatory citizenship for marginalized citizens
is defined as the individual's obligation to be active in the labor market rather than to be an active
member and actively take part in decision-making in society.

Based on focus group interviews, embracing both unemployed young adults and social work
practitioners who shared their experiences, strict guidelines for participation in the labor market can
only increase the faceless power of bureaucratic control. It also became obvious that standardized
practices of welfare services provision are promoting passive forms of citizenship, making access toPage 3 of 12

services more restricted. The pressure of bureaucratic decisions at the management level deprive
both young unemployed and service providers of opportunities to introduce changes in the welfare
system.

The existing system of welfare services in Finland defines participation from a consumerist
perspective rather than through an understanding of participation as a democratic tool to promoteequality, participation and voice, including with regard to welfare services. Still, based on ourparticipatory action research (PAR), we argue that possibilities for change in welfare services exist,
coming fromnew alliances, finding shared interests and promoting capacity-development andembracing young adult services users, street-level practitioners and local authorities.

The PAR process in our research lasted two years, and the main actors were local unemployed young
adults, who have been the key users of social and employment services. The building of an actiongroup of young adults was not easy and took several months. When their agenda emerged, it was
clear that they wanted to present their concerns to decision-makers, describing their life situations,and eventually to achieve improvements in the welfare services, especially social and employment
services. During this phase of the research, the goal was to initiate and promote several activities
organized by young adults, for example, participatory workshops, where it was possible to organize
the discussions and come up with ideas regarding improvements in the welfare services. The
participants shot two videos about ”Life in a jungle of social security”, which were shown and debatedin discussion forums and panels arranged among the stakeholders – the unemployed , ground-level
practitioners, welfare managers and politicians, in order to create more intensive interaction andjoint awareness about the realities on the ground. Group of young adults also prepared guide leafletswith assessments of the welfare system, using social media such as Facebook to inform other youth
about their agenda. Additionally, young unemployed were interviewed in local and national media(radio, TV, newspapers) to present their views and visited the Parliament of Finland, where they
discussed their agenda with members of Parliament.
Page 4 of 12

The suggestions aimed at improving welfare services included the following aspects:Change attitudes: marginalized citizens should not be seen only as an economic burden but
as unique individuals who have human dignity;A need to simplify the social security ”jungle” and legislation;

Users of services should be better informed about their rights and duties, as well as about theavailability of services;

Closer collaboration between bureaus/agencies at the municipal level is a must;

It is desirable to have one service center online, instead of several services, which should be”a place where one can ask anything”;

The focus should be put on individual life situations and timely individualized services;

Taking service users seriously and respectfully, where services embracing ”more heart” and a”from human to human” attitude are not mere slogans;Meeting service providers “face to face” and encourage a ”walking beside me” attitude.

Conclusions
Participatory policies have their roots in ideals of equality, which, in their turn, promote participatory
democracy, strengthening also democratic governance and social inclusion. However, in practice,participatory policies, including active labor and social policies (so called “activation policies”) areoften implemented as a part of broader welfare state reforms undertaken under neoclassicalprescriptions -- through budget cuts and austerity policies. When the points of view of service users
and marginalized citizens in vulnerable situations are borne in mind, social rights become moreconditional. Participatory policies treat different groups of people differently. For the middle class,participation means security, welfare and access to culture, but for the marginalized groups of people,
such as unemployed young people, participation may be interpreted not only as a right but also as
an obligation to be active and productive citizens, taking into consideration the demands of thenational economy.

Page 5 of 12

We believe that in real life situations, welfare service provision plays a crucial role in either
strengthening or weakening active and participatory citizenship. If the aim is really to support thegenuine participation and involvement of youth, including the unemployed, and to encourage active
citizenship, the welfare system should encourage trust and recognition towards service users,
respectfully and taking seriously their perspectives, knowledge and experiences about the services
they get. Strengthening active citizenship should also involve a real division of power between theservice users and the welfare services. Only a feeling of acceptance by society provides a firm groundfor active participation to take root.

Our research demonstrates that there is a strong need for joint efforts and collaboration regarding
the above issues, including public discussion and the sharing of different kinds of knowledge about
welfare services. Establishing new alliances, collaboration and raising public awareness may
eventually bring about the desired changes in the welfare service system.

According to our research, the participation track offered by the welfare services in Finland is mostly
based on the idea of participation from above, rather than taking into consideration the perspectivesof service users. Still, in spite of the hurdles established by the bureaucratic system, practitioners
should try to use participative strategies creatively, working with their service users to find bestsolutions. In that type of ‘intelligent adaptation’, in which practitioners use the complexity of thesystem in favor of their service users, service users become knowledge producers and partners indeveloping services.

Finally encouraging participation is itself an emancipatory and empowering policy line, but it has tobe promoted in a way that strengthens social rights instead of creating new obligations for
marginalized groups of people. Growing levels of poverty and exclusion make it clear that the rightto participate is an issue and a value in itself, especially for those who are in the most immediate
danger of becoming marginalized. That is important in the context of political and civil rights, as well
Page 6 of 12

as economic, social and cultural rights; all human rights are interconnected and have human dignity
at their core. The tasks of participatory policies should be connected to preserve the social agency of
all citizens: every agency in society is precious in its own right.

References
Evers, A. & Guillemard, A-M. 2013. Introduction: Marshall’s concept of citizenship and contemporary
welfare reconfiguration, in Social Policy and Citizenship. The Changing Landscape, edited by A. Evers
and A-M. Guillemard. Oxford: Oxford University Press, 3-34.

Johansson, H. and Hvinden, B. 2007. From active states to active Citizenship? The impact of economic
openness and transnational governance, in Citizenship in Nordic Welfare States. Dynamics of Choice,
Duties and Participation in a Changing Europe, edited by B. Hvinden and H. Johansson. London:
Routledge, 18–31.

Matthies, A-L. & Uggerhoej, L. (eds.) 2014. Participation, marginalization and welfare services –concepts, politics and practices across European countries. Surrey: Ashgate.

Närhi, K. & Kokkonen, T. 2014. Transformation of participation politics and social citizenship in Finnish
welfare governance, in Participation, marginalization and welfare services – concepts, politics andpractices across European countries, edited by A-L Matthies, & L Uggerhoej. Surrey: Ashgate, 95112.

The opinions expressed in the article are those of the authors and do not necessarily reflect
views of ICSW Management Committee

Page 7 of 12Are pensions a luxury?

Older persons worldwide constitute one of the most vulnerable groups in society, facing numerous
risks stemming from old age, including such economic challenges as reduced income streams or evena complete loss of income. Retirement income support in the form of pension is seen in many
countries as a traditional way to reduce old-age vulnerabilities and to support the well-being of
retirees. However, according to a new policy study released by the ILO 1 and based on data thatcovers public expenditure on social security in 178 countries, nearly half (48 per cent) of all people
over pensionable age do not receive a pension. Moreover, for many older persons who do receive apension, pension levels are inadequate and do not allow them to obtain income security. As result,the majority of the world’s older women and men simply cannot retire, regardless of their age, andhave to continue working as long as they can, not to mention that their pay is often poor andprecarious conditions are widespread.

According to the authors of the policy paper, the existing gap should be filled to a large extent by an
expansion of non-contributory pensions (“social pensions”). In that light, recent efforts undertaken
at the national level have been aimed at expanding the coverage of contributory pension schemes,
coupled with establishing non-contributory social pensions to guarantee at least basic income security
in old age for all. More than 45 countries have reached 90 per cent pension coverage and more than
20 developing countries have achieved or nearly achieved universal pension coverage.

Providing a global overview of the organization of pension systems, their coverage and benefits, thereport notes that public expenditures on pensions range from 0-2 per cent of GDP in low-income
countries, to 11 per cent of GDP in the higher-income countries of Western Europe. The world averageamount spent on pensions for older persons is 3.3 per cent.

1 Social protection for older persons: Key policy trends and statistics, ILO, Geneva, 2014

Page 8 of 12

Pensioners in most developing countries receive very low benefits, but the adequacy of pensions in
the context of adequate income replacement is an issue that goes beyond the developing world. Quite
often, countries undergoing fiscal consolidation chose pension systems as an easy target for finding
extra funds and cost savings, choosing such means as raising the retirement age, reducing benefits,
stopping indexation or increasing contribution rates. The authors of the report underscore that suchadjustments are undermining the adequacy of pension systems, dealing a blow to their ability toprevent old-age poverty. The reduction of social protection benefits, seen today in many high-income
countries, has led to reduced access to quality public services. Together with persistent
unemployment, lower wages and higher taxes, those steps “have contributed to increases in poverty
or social exclusion, now affecting 123 million people in the European Union, or 24 per cent of the
population” ( p.xiii)

According to the report, a number of countries—such as Argentina, Bolivia, Chile, Hungary,
Kazakhstan and Poland—are reversing the earlier privatizations of pension systems undertaken in the
1980’s and 1990s. The main reasons are the high cost of such systems and their inability to expand
pension coverage. These processes of the “unprivatization” or renationalization of pensions aim to
reduce the fiscal costs of the earlier funded systems and to improve pension coverage and old-age
income security.

Calling for the expansion of social protection in pursuit of dignity, inclusive development and social
justice, the report links those objectives to access on the part of older women and men to social
services, including health care and long-term care. Social protection is also seen as a key element
for promoting human development and political stability at the national level.
For

more

details,

pleasegoto:

http://www.ilo.org/wcmsp5/groups/public/---dgreports/---dcomm/documents/publication/wcms_310211.pdf

Page 9 of 12

Data Revolution for Sustainable Development

The Independent Advisory Expert Group on the “Data Revolution for Sustainable Development”
convened its first meeting on 26 September 2014 at UN Headquarters. Established in August 2014,
the Group will advise the Secretary-General of the UN on measures required to close data gaps andstrengthen national statistical capacities. The Group is also expected to study new opportunities
linked to innovation, technical progress and the surge of new public and private data providers to
support and complement conventional statistical systems and strengthen accountability at the global,
regional and national levels.

Outlining the scope of future activities, the Expert Group meeting participants underscored the powerof open data in achieving a meaningful and positive change, as well as the importance of harnessing
the potential of new technologies for transparency and accountability and for driving sustainable
development efforts. When data relevant in the MDG context are presented only at the regional level
and are missing at the local level, it is very difficult to undertake more focused efforts aimed atpoverty eradication. To achieve progress on the sustainable development goals (SDGs), there is an
obvious need to distribute data on the community level as well. Moreover, to make data a real agent
for change, it is essential not only to collect and analyze data scientifically but also to package data
in an appropriate way that is accessible to scholars and society at large.

The Advisory Group will provide input into the Secretary-General's synthesis report on the SDGs,
contributing specifically to the chapter on the accountability framework. The preparation of the above
report was requested by Member States ahead of the intergovernmental negotiations leading to theadoption of the post-2015 development agenda.
For more information please go to:
http://www.un.org/apps/news/story.asp?NewsID=48594#.VC6rNvldUlQ

Page 10 of 12

Useful resources and links.

A recently released publication, “The Role of Social Security in Respecting and Protecting the Dignityof Lone Mothers in South Africa: Final Report”, prepared by a team comprising Gemma Wright,
Michael Noble, Phakama Ntshongwana, David Neves and Helen Barnes (Oxford: Centre for the
Analysis of South African Social Policy, University of Oxford, 2014), has been designed to highlightthe role that social security currently plays in relation to people’s sense of dignity. Specifically, theauthors intended to explore whether social assistance, as a financial transfer to low income people,
serves to help to protect and respect dignity of single mothers, or conversely whether there are ways
in which the country’s social security arrangements serve to undermine people’s dignity.

Forfurther

details,

pleasegoto:

http://www.plaas.org.za/sites/default/files/publications-pdf/LM%20Policy_Brief_3.pdf

Employment and Skills Strategies in the United States (2014).

The report, written by Randal W. Eberts and published by OECD as part of Reviews on Local Job
Creation Series,

focuses on the range of institutions and bodies involved in workforce and skills

development in two states—California and Michigan. In-depth fieldwork covers two local Workforce
Investment Boards in each state. The report presents a number of recommendations and actions topromote job creation at the federal, state and local levels.

For more details: http://www.oecd-ilibrary.org/employment/employment-and-skills-strategies-inthe-united-states_9789264209398-en

Page 11 of 12

The content of this Global Newsletter may be freely reproduced or cited provided the source isacknowledged. Views do not necessarily represent policies of ICSW.
Newsletter Editor: Sergei Zelenev, Executive Director
Address: ICSW, 5700 Arlington Ave., Bronx, New York, 10471 (US Office)Phone: +1 347-526- 4893,
E-mail: szelenev@icsw.org, icsw@icsw.org
Website www.icsw.org;
If you wish to cease receiving this newsletter, please click 'here' providing your name and email
address

Page 12 of 12