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Lorenzo Barrault-Stella - Creating Target Publics for Welfare Policies: A Comparative and Multi-level Approach

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Lorenzo Barrault-Stella Creating Target Publics for Welfare Policies: A Comparative and Multi-level Approach

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This volume analyzes welfare policies by looking at the making of their target publics. It examines how these populations are identified and constructed by policy making. The contributors apply the classic theoretical question about who gets what, when, and how, but also suggest the revisiting of policy-feedback analysis.

Coverage includes empirical case studies in different geographical areas. It looks at Europe, the United States and also considers Mayotte, set in a post-colonial context. The chapters also examine different aspects of welfare, including the bureaucratic treatment of marginalized populations as well as the middle class.

The authors draw on diverse conceptual approaches and investigative methodologies. They conduct participant observation in public or nonprofit organizations, explore administrative records, and interview actors at various stages of policymaking. This qualitative material is then combined with relevant quantitative data.

Readers are guided through a multilevel approach of welfare policies, from their definition to their implementation. They gain insight into the targeting of publics, from the higher reaches of government to the most underprivileged groups of the social world.

Overall, the book compares different national contexts and social policy fields. This approach unearths regularities, enabling the authors to reassess major contemporary transformations of the welfare State.

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Springer International Publishing AG, part of Springer Nature 2018
Lorenzo Barrault-Stella and Pierre-Edouard Weill (eds.) Creating Target Publics for Welfare Policies Logic, Argumentation & Reasoning Interdisciplinary Perspectives from the Humanities and Social Sciences
1. The Making of Target Publics for Welfare Policies. From Targeting Practices to Resistances of Governed People
Lorenzo Barrault-Stella 1
(1)
CRESPPA-CSU (UMR 7217), Centre National de Recherche Scientifique, Paris, France
(2)
Lab-LEX (EA 7480), Universit de Bretagne Occidentale, Brest, France
Lorenzo Barrault-Stella (Corresponding author)
Email:
Pierre-Edouard Weill
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Abstract
This opening chapter provides a general sociological framework for the contributions collected about the targeting practices in the institutional framework of the welfare State and the making of the right publics for social policies. The paper builds on the diversity of existing international research, before sketching out complementary lines of investigation in which this collective work is grounded. More specifically, we suggest the use of a comparative and multilevel approach, anchored in empirical research and mindful of the effective practices of targeting, as well as of the way in which the diverse groups within the potential publics react. Connecting in-depth case studies thus allows the observation of transformations occurring in modes of government at the international level. Finally, the text suggests a few ways in which the welfare States targeting practices can be reformulated, without obscuring the social relations and the various forms of inequalities (of class, race, gender) to which targeting participates.
Keywords
Welfare state Target publics Multilevel analysis Comparison Individualization Inequalities
In most Western countries, the way political power is exercised has been profoundly transformed in the last centuries, meaning that the modes of domination have been rationalized (Weber
Changes affecting administrations and modes of government were accompanied by a significant transformation of the way those who are governed by social policies are represented. This was the case especially in fields covered by the welfare State. For a long time, the study of public policies focused on their recipients,) to study the genesis of social groups. Their hypothesis assumes that the State and publics institutions do not simply tend to pre-existing groups, but rather actively participate in the definition of public policies audiences and, more generally, in the making of social groups. This perspective highlights the fact that the way a specific policy is designed and justified results not from a linear deduction of the target groups pre-existing and natural interests, but of the way these are framed and produced by the State and the other institutions involved in public action.
About this topic, Schneider and Ingrams research is central. Following a constructivist approach, they argue that the answer to the classical question who gets what, when and how? does not lie within the target groups natural properties, but in the way the group is socially constructed . According to Schneider and Ingram (: 335), the social construction of target publics refers to the recognition of the shared characteristics that distinguish a target population as socially meaningful, and the attribution of specific, valence-oriented values, symbols, and images to the characteristics. In this sense, they refer, for example, to groups as deserving or undeserving, terms that correspond to audiences deemed (or not) legitimate as recipients of welfare benefits. For these authors, it is at the same time the way in which public action is conceived and the political philosophy underlying it, as well as the choice for a specific policy design that select the target group. However stimulating, this approach calls for additional perspectives for whom wishes to study the production of the publics of welfare policies.
1.1 From Universalism to Individualization?
Restoring the welfare States historicity in different national contexts amounts to taking note of major trends (Pierson [1922]): their use as analytic tools does not prevent taking into account national trajectories or sectorial specificities.
A first kind of welfare State transformation can be characterized as a universalistic trend,) a classic case of retrospective illusion leading to a nostalgic enchantment. Several chapters in this book seem to confirm this.
A trend reversal appears in the early 1980s. A significant number of comparative studies highlight a general move toward individualization in various countries and policy domains (e.g. poverty alleviation, housing, disability, vulnerable youth, dependence among the elderly, etc.). They describe a shift from an impersonal bureaucracy and automatic processing to a more pragmatic approach of individual situations and behaviors (Wincott ) asks, at the very least, for the interrogation of this individualization concept. Does the individualization of welfare lead to a complete fragmentation of the audiences of public action? In particular, it is necessary to examine whether important regularities in the public treatment of poverty are maintained? This may be done by relating individual people to categories (even implicit ones) that the welfare State targets in practice.
1.1.1 Targeting Versus Universalism: The Dialectic of Welfare Reform
Over the last decades, welfare States in the West have entered a phase of accelerated reform. Structural differences persist between systems in the various worlds of the welfare State that Esping-Andersen ().
On both sides of the Atlantic, the legitimacy of targeting has historically been challenged in the name of the middle classes interests. Indeed, these are often described as paying a high price for a social State that does little for them (Barbehn and Haus ), especially the poorest.
A strong assumption here is that social policies increasing focus on the most disadvantaged populations or territories partakes in a managerial turn.).
However, social protection systems retain many appearances of universality, which are sometimes strengthening. This is the case in very different contexts, especially when the coverage of various social risks is justified politically be reference to human rights. But in practice, many social programmes are increasingly selective, as evidenced by the distribution of income support or jurisdictional mechanisms such as the enforceable right to housing in France or Scotland, where public authorities filter social demand. (Weill ). One would be tempted to assert that, paradoxically, the universal principle is never referred to as often as when it masks the growing conditionality in the allocation of social rights and welfare benefits.
This international trend the strengthening of boundaries between insiders and outsiders of social protection systems (Ferrera ). Firstly, targeting social groups or territories requires that specific risks (e. g. sickness, disability, unemployment, etc.) be considered. Secondly, in order to define targets, it draws on criteria ( e.g . gender, resource level, age, ethnicity, etc.) relative to the individual or territorial levels. Many recent works, such as those in the following chapters, converge and show that the increased targeting of social groups according to various categories ( e.g. single-parent families, vulnerable households, dependent persons, etc.) is integral to the transformations undergone by social policies. Finally, attention must be paid to the technical modalities that allow the implementation of selectivity. Public regulations generally define the criteria opening access to social rights, as well as the nature or amount of welfare benefits. Meanwhile, numerous studies highlight the fact that individualized procedures are developed and linked to the individuals situation or behavior. However, the ambiguous relationship between these processes of individualization and targeting can in itself be questioned.
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