The Changing Social Question in Brazil, India, China, and South Africa One Hundred Years of Social Protection
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GLOBAL DYNAMICS OF SOCIAL POLICY One Hundred Years of Social Protection The Changing Social Question in Brazil, India, China, and South Africa Edited by Lutz Leisering Global Dynamics of Social Policy Series Editors Lorraine Frisina Doetter University of Bremen Bremen, Germany Delia González de Reufels University of Bremen Bremen, Germany Kerstin Martens University of Bremen Bremen, Germany Marianne Sandvad Ulriksen University of Southern Denmark Odense, Denmark About the Series Te intervention of states in felds such as health, social security and work, dates back to the nineteenth century, and became more dynamic over time. Imperial Prussia, a social policy pioneer, frst showcased its progress at the Paris World Fair in 1900: the Prussian exhibit drew large crowds eager to fnd out more about state pensions. Clearly, social policy had become a matter of great interest to states and citizens alike. Other nations soon embarked on implementing discrete social policies, thus turning the twentieth century into a time of remarkable welfare state expansion. Te end of World War II marked a new departure, as an increasing number of countries outside the Western hemi- sphere began to introduce social policy measures. States not only copied established forms of welfare, but often developed measures sui-generis to meet their specifc needs. While episodes of policy retrenchment and ruptures can be observed over time, recent developments point to an expansion of social policies in low-to-upper-middle-income countries of the Global South. Social policy has thus become a global phenomenon. It is generally accepted that the state is responsible for welfare and that domestic politics and ideas have been a primary driver of its expansion. However, in an increasingly intercon- nected world, social policy is implemented at the national-level but infuenced by interna- tional developments and relations. It is shaped by trade, migration, war, and colonialism. Just as people travel, policy ideas follow. Tese factors merit scholarly attention and demand inter- disciplinary collaboration to generate new insights into the global dimension of social policy. Tis is what the Global Dynamics of Social Policy book series sets out to accomplish. In doing so, it also contributes to the mission of the Collaborative Research Center 1342 (CRC) “Global Dynamics of Social Policy” at the University of Bremen, Germany. Funded by the German Research Foundation, the CRC leaves behind the traditionally OECD-focused anal- ysis of social policy to stress the transnational interconnectedness of developments. Te book series showcases scholarship by colleagues worldwide who are interested in the global dynamics of social policy. Studies can range from in-depth case studies, comparative work and large quantitative research. Moreover, the promotion of scholarship by young researchers is of great importance to the series. Te series is published in memory of Stephan Leibfried to whom our research on state and social policy at the CRC is indebted in countless ways. Series Editors: Lorraine Frisina Doetter, Delia González de Reufels, Kerstin Martens, Marianne S. Ulriksen More information about this series at http://www.palgrave.com/gp/series/16294 Open access of this publication was made possible through funding by Bielefeld University, the Collaborative Research Centre 1342: Global Dynamics of Social Policy at the University of Bremen, funded by the Deutsche Forschungsgemeinschaft (DFG, German Research Foundation) – Projektnummer 374666841 – SFB 1342 and Specialised Information Service Political Science – POLLUX. Lutz Leisering Editor One Hundred Years of Social Protection The Changing Social Question in Brazil, India, China, and South Africa Editor Lutz Leisering Department of Sociology Bielefeld University Bielefeld, Germany ISSN 2661-8672 ISSN 2661-8680 (electronic) Global Dynamics of Social Policy ISBN 978-3-030-54958-9 ISBN 978-3-030-54959-6 (eBook) https://doi.org/10.1007/978-3-030-54959-6 © Te Editor(s) (if applicable) and Te Author(s) 2021. Tis book is an open access publication. Open Access Tis book is licensed under the terms of the Creative Commons Attribution 4.0 International License (http://creativecommons.org/licenses/by/4.0/), which permits use, sharing, adaptation, distribution and reproduction in any medium or format, as long as you give appropriate credit to the original author(s) and the source, provide a link to the Creative Commons licence and indicate if changes were made. Te images or other third party material in this book are included in the book’s Creative Commons licence, unless indicated otherwise in a credit line to the material. If material is not included in the book’s Creative Commons licence and your intended use is not permitted by statutory regulation or exceeds the permitted use, you will need to obtain permission directly from the copyright holder. Te use of general descriptive names, registered names, trademarks, service marks, etc. in this publication does not imply, even in the absence of a specifc statement, that such names are exempt from the relevant protective laws and regulations and therefore free for general use. Te publisher, the authors and the editors are safe to assume that the advice and information in this book are believed to be true and accurate at the date of publication. Neither the publisher nor the authors or the editors give a warranty, expressed or implied, with respect to the material contained herein or for any errors or omissions that may have been made. Te publisher remains neutral with regard to jurisdictional claims in published maps and institutional afliations. Tis Palgrave Macmillan imprint is published by the registered company Springer Nature Switzerland AG. Te registered company address is: Gewerbestrasse 11, 6330 Cham, Switzerland Preface and Acknowledgements Citizens of Western and Northern Europe and some Commonwealth countries tend to take the idea of the welfare state for granted, as an essential part of a good society. In global politics, declarations and cam- paigns of international organisations abound with terms like “social rights”, “inclusiveness”, and “universal social protection”, suggesting that the world is about to become a welfare state. However, the situation in the Global South and many other countries is very diferent, and it is an open question if substantial public welfare will ever become a principle of a global society. Te future of public welfare institutions in the world is likely to be shaped by non-Western countries. However, we do not know in what ways: will Western ideas and models spread or will indigenous concepts of the “social” create new institutional pathways? Will social issues be subordinated to other societal concerns and other ways of integrating societies, such as economic growth, nationalism, or religion? In short, we do not know to what degree and in what ways the “social question” will matter in the world to come. Social protection by itself is not a “sexy” subject, but a range of old and new global challenges—such as climate change, pandemics, migration, and precarious work—are demonstrating the need for livelihood protection all around the world. While we do not know the future, we can ascertain how the Global South has addressed social issues in the past. Tis is the subject of this volume, which derives v vi Preface and Acknowledgements from the Research Group “Understanding Southern Welfare”, which I convened together with Ulrike Davy, a colleague from the law depart- ment of my university, at the Center for Interdisciplinary Research (ZiF) at Bielefeld University, Northern Germany. Te volume starts with the assumption that Southern countries have their own social policy histories, external infuences from foreign powers notwithstanding, and that these histories are under-researched. We need to know more about these histories—the agents, their ideas, interests, activities, and structural constraints—to “understand” Southern welfare. Te volume delves into the national histories of social protections since their beginnings around 1920. When we applied for funding, we said that we would start in the 1940s, but during our research, we realised that we would need to go back to the 1920s. To understand Southern welfare policies and avoid Eurocentrism, we give domestic actors a voice by analysing contemporary political docu- ments. In theoretical terms, we have developed a new approach to analys- ing social protection, which focuses not just on welfare programmes or outcomes, but on the fundamental ideas and concepts that underlie social protection policies, as articulated by Southern actors. We assume that welfare programmes are only the visible surface; they are underpinned, less visibly, by a range of ideas—values, beliefs, perceptions, and images relating to social problems, welfare institutions, statehood, and society. Te Research Group, therefore, sought to investigate the ideational foun- dations of Southern social protection. Tis kind of research has not been done before. I owe the idea of an ideational approach to my teacher Franz-Xaver Kaufmann, the doyen of the German sociology of social policy, who, despite his age, attended a preparatory conference. Kaufmann is one of the few thinkers who has developed a genuinely sociological theory of the welfare state in the institutionalist Weberian tradition, which contrasts with the dominant political economy tradition rooted in Marxism. Kaufmann’s concept of the welfare state as a cultural phenomenon has inspired me. Focusing the Group’s analysis on ideas was a daring under- taking, and I am happy that the members of the Research Group not only could relate to this approach but also took it up in their research. I was not sure if the approach would work out, especially since the volume is Preface and Acknowledgements vii not about the role of ideas in selected social reforms or selected periods of time (which would be interesting enough), but about ideas in the evolu- tion of social protection over 100 years. I hope that the readers of this volume will see the yields of an ideational and pluralist approach to studying social protection.