Social Innovations for Social Cohesion

Home , Eendracht (Amsterdam), Wilco

SOCIAL INNOVATIONS FOR SOCIAL COHESION

Transnational patterns and SE Stockholm approaches from 20 European cities

Adalbert Evers, Benjamin Ewert SE Malmö and Taco Brandsen (eds.)

PL Plock

NL Amsterdam

UK Birmingham DE Friedrichshain-Kreuzberg DE Münster NL Nijemegen PL Warsaw UK Dover

FR Lille

CH Bern

HR Varaždin CH Geneva FR Nantes

IT Brescia HR Zagreb

IT Milan

ES Pamplona

ES Barcelona Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities / edited by Adalbert Evers, Benjamin Ewert and Taco Brandsen (eds.)

Liege: EMES European Research Network asbl

2014 — 420 pp. — 21 x 29.7 cm Design and layout: www.3lastic.com

Includes index. ISBN: 978-2-930773-00-1

This e-book is part of the research project entitled “Welfare innovations at the local level in favour of cohesion” (WILCO). WILCO examined, through cross-national comparative research, how local welfare systems affect social inequalities and how they favour social cohesion, with a special focus on the missing link between innovations at the local level and their successful transfer to and implementation in other settings. The WILCO consortium covered ten European countries and was funded by the European Commission (FP7, Socio-economic Sciences & Humanities). More information on WILCO can be found at www.wilcoproject.eu. from the7 Finally itshouldnotbeforgotten,thatthewholeresearchandworkingprojecthasbeenmadefeasiblebyfunding ed byRocíoNogales,madethispossible. publishing designedforawideaneasyaccess.ThestafffromtheEMESInternationalResearchNetwork,coordinat Furthermore itshouldbekeptinmindthatthereisquitealongwayfromresearchmaterialtopresentationand that contributedtotheWILCOproject. Likewise thise-bookrepresentsanimportantpartofoverthreeyearsresearchand personal conversationsandinformationexchangestheygavetimesharedtheirknowledge. access totheinnovativeattempts,achievementsandexperiences,presentedinthiscollection.Inmanyinterviews, We, theeditors,firstwanttothankallactivists,professionals,administratorsandpolicymakersthatgave has beenmadepossiblebycontributionsand This e-book,presentingcasestudiesoninnovativewaysofcopingatlocallevelswithchallengesto Acknowledgements Taco Brandsen Benjamin Ewert Adalbert Evers Giessen, Nijmegen,January2014 and academicsconcernedovertopoliticiansprofessionals. We hopethatthisbookisinterestingandhelpfulforawidevarietyofpeople,reachingfromactivistsontheground We, astheeditorsandorganizersofthiscollectioncaseslocalsocialinnovationsaregratefulforallthat. th FrameworkProgrammeoftheEuropeanUnion. collaboration frommanysides. networking bytheteams social cohesion, - 3 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 4 WILCO project Table of contents Table of contents

Nantes 89 Acknowledgements 3 Introduction 90 Le temps pour toit Introduction 7 - Time for Roof 93 Social Innovations for social cohesion: Joint assessment of families’ needs and changes in child care provision for single-parent families 96 77 cases from 20 European cities The Lieux Collectifs de Proximité network 99 Conclusions 102 HR | Croatia Zagreb 31 DE |Germany Introduction 32 Friedrichshain - Kreuzberg (Berlin) 109 Social mentoring project for employment of disadvantaged and marginalised groups 33 Introduction 110 Neighbourhood Management (NM) 113 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities RODA - Parents in action 37 Public rental housing programme 42 Princesses Gardens 116 Conclusions 45 Job Explorer 119 Kreuzberg Acts 121 Varazdin 47 Neighbourhood Mothers 124 Introduction 48 Family Centres 127 Public works Varaždin 49 Conclusions 129 Her Second Chance 53 Gardens of life 57 Münster 131 Non-profit housing organisation 62 Introduction 132 Conclusions 65 MAMBA 134 Optionskommune 137 FR | France Prevention Visits 140 Lille 67 Family Office 143 Osthuesheide neighbourhood Introduction 68 146 Hafenforum Ilot Stephenson neighbourhood 70 149 Support for housing self-renovation in Lille Conclusions 152 Metropolis 73 Parler Bambins – Toddler Talk 77 Potes en Ciel - Children’s Café 80 Early childhood centre 83 Conclusions 85 Nijmegen Amsterdam NL | Milan Brescia IT Buurtbeheerbedrijven Introduction Conclusions Mothers Catering Buurtmoeders Catering- Research andTalentDevelopment Neighbourhood StoresforEducation, Talentontwikkeling, BOOT- Buurtwinkels voorOnderzoek,Onderwijsen management companies Conclusions Sirocco 236 A FutureforEverybody Work corporations Introduction Conclusions Una casainpiù-Onehousemoreproject Fare eabitare-Doingandlivingproject “Via delCarmine15” Bimbo chiamabimbo-Childcallschild Employment InsertionService Servizio perl’InserimentoLavorativo,SAL- Introduction Conclusions Fondazione HousingSociale per laCittà187 Maggio 12–NuovoManifestoPedagogico Fondazione WelfareAmbrosiano Introduction | Italy

The Netherlands

project - Neighbourhood Neighbourhood

182

199 223 157 179 200 220 214 208 203 239 232 226 224 176 174 171 164 160 158 168 197 191 180 Plock Warsaw PL |Poland Pamplona Barcelona ES Conclusions Project “BecomeyourownBossinPoland” Field ofHousing Team forSolvingSocialProblemsinthe Beyond Borders The FoundationforDevelopment MaMa Foundation Introduction Conclusions Neighbourhood children’sservices Casas Amigas Social integrationhousing social clauses Social integrationenterprisesand Introduction Conclusions Foundation “GrantFundforPlock” Project “TogetherforRevitalisation” City SocialHousingSociety The RussianCommunityAssociation The PlockCouncilofSeniors Introduction Conclusions Citizens’ AgreementforanInclusiveBarcelona Joves ambfutur-YoungPeoplewithaFuture La MinaTransformationPlan Introduction | Spain

243 303 263 285 258 257 255 250 246 244 316 314 311 308 305 304 280 278 276 273 270 266 264 297 294 291 288 286 5 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 6 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Stockholm SE Geneva Bern CH |Switzerland Malmö Conclusions Yalla Trappan,Rosengård Coompanion Inkubatorn Områdesprogrammet Introduction Conclusions for youngmothers Professional integrationandeducation Integration guidelines Primano 351 Introduction Conclusions The UnitforTemporaryHousing(ULT) The ORIFproject The Unitésd’ActionCommunautaire Introduction Conclusions Miljardprogrammet (TheBillionProgramme) (lone) mothers,Fryshuset Barn tillensammamammor-Childrenofsingle The FilurProject Introduction Table of contents WILCO | Sweden

project

inHolma-Kroksbäck 341

335 349 367 317 346 344 338 336 362 358 355 350 379 375 372 369 368 330 328 325 321 318 Birmingham UK |UnitedKingdom List oftablesandfigures Index Dover Organisation ofthe3yearstraining The Officefor until kindergarten Chain ofsupportthataccompanieschildren Examples ofworkcorporationsin of months Contracts inViadelCarmine15,bynumber Composition of in Varaždin2008-2012 Number ofparticipantsinpublicWorks Dimensions ofinnovations Conclusions EKH 409 Happy FeetPre-School Family LearningattheANP Introduction Conclusions Birmingham MunicipalHousingTrust(BMHT) payments (TDHP) Targeted discretionaryhousing Lone parentsupport Rehearsal (YEER) Youth EmploymentandEnterprise A localityapproachtounemployment Introduction 414

Disability Insurance:

Immobiliare SocialeBresciana

Nijmegen

397 381 373 351 170 168 227 412 405 402 398 395 393 391 389 387 384 382 51 26 7

Introduction

Social Innovations for social cohesion: 77 cases from 20 European cities

Recurrent patterns of approaches and instruments in local social innovations – on methods and outcomes of a study in the framework of the WILCO project Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities

Keywords: social innovation; service innovation; concepts and contexts; approaches and instruments; recurrent patterns of social innovations; ways of addressing users; internal organisation and modes of working; interaction with the local welfare system.

Adalbert Evers and Benjamin Ewert 8 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities European cities 77 casesfrom 20 for socialcohesion: Social Innovations Adalbert EversandBenjaminEwert Introduction WILCO project welfare systemsatlarge. and reconfiguringlocal a perspectiveofreforming these socialinnovationsin learned andtaken from only: whatcouldbe focussing ononething in thisintroductionis the casestudiespresented All inall,thereadingof stimulate fight socialinequalityand projects andnetworksto by innovatorysocial approaches thatareused instruments and project wastodescribe this partoftheresearch The mainobjectiveof social cohesion. in ordertounfold andblossom?Whatelse doweknowaboutwaysand in, say,Birmingham?Which local conditionsandsupportdotheyrequire by definition?Whatdifferentiates a offers emergingintimesof austerity? Ordoesthelatterpreventformer Are therepost-conventional servicepatternsandpath-breakingsocial What areinnovativeapproachesandinstrumentsin welfare systems. a clearerimageoftherealimpacttheseinnovationsalready havein developed asprojectsandprocesses.Thiswasintended tohelpgetting and the Moreover thecasestudieshadtopointatlinkagesbetween innovations upon inWPVwere: social inequalityandstimulatecohesion. approaches thatareusedbyinnovatorysocialprojectsandnetworkstofight objective ofthisparttheresearchprojectwastodescribeinstrumentsand Package V,oneofthecentralworkpackagesWILCOproject.Themain This book,includingthepresentintroductorychapter,buildsonWork and Dover(UnitedKingdom). (Switzerland), and Pamplona(Spain), (Germany), MilanandBrescia(Italy),WarsawPlock(Poland),Barcelona Zagreb andVaraždin(Croatia),NantesLille(France),BerlinMünster studied wasrepresentedbyonebigandmedium-sizecity,namely: from tencountries)chose20Europeancitiesforinvestigation.Eachcountry Radboud University mentation inothersettings.CoordinatedbyProf.TacoBrandsenfromthe innovations atthelocallevelandtheirsuccessfultransfertoimple favour socialcohesion,withaspecialfocusonthemissinglinkbetween research, howlocalwelfaresystemsaffectsocialinequalitiesandthey In anutshell,WILCOaimedtoexamine,throughcross-nationalcomparative 12/2010 to1/2014,wasgivenadoubletask: hesion” (WILCO),fundedbythe7 The projectentitled“Welfareinnovationatthelocallevelinfavourofco > > > > > > > > innovative cases. to identifysuchrecurrentapproachesandinstrumentsused inthe instruments used; conducive tofindingoutrecurrentpatternsofapproachesand be studiedandtodescribetheircharacteristicsinawaythatwas to identifyanumberofcasesinnovationineachthecities diffusion andupgradingofsuchinnovations? looking atlocalcontextsand differences; of socialcohesionthatappearacrossEuropedespitenational/local finding models,featuresandtrendsinlocal local contextthatplayakeyroleinthewaystheseinnovations Amsterdam andNijmegen(Netherlands)Birmingham Nijmegen, WILCO’sresearchers(over30 Stockholm and th welfare systems:whatarekeyfactorsfor frameworkprogrammeoftheEUfrom social innovationin,say,Milan fromone Malmö (Sweden),BerneandGeneva Therefore the tasks convened Therefore thetasksconvened social innovationinsupport local welfaresystems? local - - 9 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 10 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities ies mentioned elementsofthelocalcontexts and will notbetakenuphere.Indeed, thecasestud are elementsanddimensions ofthecasestudiesthat tory parts,wehavetoremind thereaderthatthere However, beforeembarking intothesetwointroduc cohesion? oping (local)socialservicesthatworkbetterfor by (local)socialpoliciesandthoseengagedindevel offering intermsofpotentiallessonstobelearned social policyperspective.Whataretheseinnovations of readingandunderstandingtheinnovationsfroma duction represents what one might call apossible way presented inthebook.Thismajorpartofintro they showupinthedescriptionsoflocalinnovations recurrent patternsofapproachesandinstrumentsas overview ispresentedonwhatweseeasthemain In thesecondpartofthisintroduction,astructured aspects areaddressedinthisfirstpart: innovations inthetwentycitiesstudied.Fourgeneral have beendevelopedinordertofindoutandanalyse intellectual basisandthepractical in whichtheywereachieved.Wefirstclarifythe remarks concerningourresearchgoalsandtheways WILCO projectstartsinitsfirstpartwithsomegeneral research wecarriedwithinworkpackageVofthe The presentintroductiontothepresentationof reading ofinnovatorycasesitpresents. was foundinoursample,thisintroductionandthe proceeding insocialservicesisquitesimilartowhat findings onnewlogics,instrumentsandwaysof ers drewfromtheirsampleintermsofgeneralized though. ItappearsthatwhatINNOSERVresearch other EU-fundedresearchproject,INNOSERV(2012), stock-taking; asimilarefforthadbeenmadeinan one ofthefirstattemptstowardssuchasystematic lysed alongsideaconsentedscheme.Thisconstituted countries. Seventy-fiveinnovationswerebeenana for socialinnovationsin20Europeancitiesten These questionsconstitutedtheoriginofoursearch processes toadoptandadaptgoodideasinpractice? 4. 3. 2. 1. Introduction WILCO the innovations. Guidelines forwaysofpresentingandanalysing innovations; Ways ofmappingthecontextselected Methods tosortoutlocalexamplesof The understandingofsocialinnovations; innovation; project guidelines asthey social - social ------institutional settingsthatstaybasicallyunaffected. as additionalorganisationaldeviceswithinlogicsand that callsformorethanjustusingtheseinnovations figuring innovations inaperspectiveofreformingandrecon what couldbelearnedandtakenfromthesesocial in thisintroductionisfocussingononethingonly: All inall,thereadingofcasestudiespresented mentioned inashortconclusivepart. and politicsof tions andcontexts,or,morespecifically,innovations stood withaneyeontheinterplaybetweeninnova sense oflocalinnovationscanfinallyonlybeunder and shapetheirdynamicspotentials.Effects tions andvaluesdealwithsocialinnovationsinplace discourses andtherespectivelocalroutines,orienta publication, inwhichwewillanalysehowprevailing in otherpartsoftheWILCOprojectandalaterbook findings onlocalinnovations.Theywillbetakenup systematic referenceismadetothesepartsofthe parliaments, etc.Inthisintroduction,however,no other localactorsandorganisations,decisionsin cal supportmeasures,programmes,reactionsfrom development ofthesocialinnovationsstudied—lo ways eitherenabledordisabledtheemergenceand more specificallyoflocalpoliticsthathaveinvarious become amainstream practiceovertime but thisis different fromgivenwidespread practices.Theymay a contestedissue.Bydefinition, innovationsare values, actionsandoutcomes willinfactalwaysbe (see BEPA2010andMulgan 2006),socialinnovations’ innovations awidelyconsentedpositivemeaning most analysestrytoderivefromthe“social”insocial obviously claimthisandassorted“goodthings”.While relations (Moulaert2010),andtheirinitiatorswill answer tobasicneeds,andformoresatisfyingsocial to standfor“improvement”(Phills2008)andabetter attempts fordefinition,itisclaimedthattheyhave a specificsocialandpolitical to thecluethatSIsarebasicallynotpropertyof izing anddefiningsocialinnovations(SIs)onecomes If onestudiesthepresentliteratureonconceptual innovations 1.1. Theunderstandingof social Part 1:conceptsandmethods local welfaresystemsatlarge—something welfare reform.Thistopicwillbe orientation. Insome ------According tothisworkingdefinition, products andprocessesalike,as: In theWILCOprojectwedefinedsocialinnovations, and theattemptsatdefiningthemareopen-ended. different placesandcircumstances.ThefieldofSIs management) canworkandbejudgeddifferentlyin (technically) sameinnovativeinstrument(e.g. (see e.g.OsborneandBrown2011).Therefore,the institutional systemwhereintheybecomeembedded time, dependingonthewiderpoliticalconceptand a diversityofgoalsandtakedifferentmeaningsover not alreadysoattheoutset.Theycanbelinkedwith ing and dimensions (e.g.newarrangements indecision-mak economic (e.g.fundingarrangements) andpolitical for innovationin ments, tax/transfermeasures,etc.).Andoursearch in termsofnewinterventions(newfinancialarrange service offers;however,therewerealsoinnovations of organisationalstructures,processesandtypes service arrangements,makingadifferenceinterms As itturnedout,themajorityofsuchSIswerenew persons andactorsthatwereinterviewed. not onlybytheinitiatorsbutalsolocalkey dimensions ofexclusion)wereclaimedtobecentral citizens (andespeciallyofthosethreatenedbyvarious in whichideasofbetteringtheconditionslocal cultural alternativeprojects—,thekindofinnovations NPM-inspired conceptsofpublicservicereformto up, outofthebroaderstreamSIs—rangingfrom for studyingandselectingSIs.Ourselectionpicked Following thesecriteriathereisstillabroadfieldleft answered inretrospective. democratic) isaquestionofitsownthatcanonlybe they canbeseenas“better”(moreeffective/social given ( towards theroutinesandstructuresprevailingina tions are,inasignificantway,newanddisruptive > > > > > > > > appear. due interaliatothespecificcontextwhereinthey marked byahighdegreeofriskanduncertainty solutions; attracting hopesforbettercopingstrategiesand new inthecontextwheretheyappear; ideas, turnedintopracticalapproaches; welfare) systemorlocalsetting.Whethernot participation). local welfaresystemsalsoconcerned social innova case - - - programs that couldbeseenas“local”—in thesense approach, onlythoseinnovations fromwidernational meant topromote,finance and regulateaninnovative the innovationwaspartofa governmentprogram cases, togetasenseofthemicro-dynamics. Incase whole clusterandzoominon oneortwoofthesmall projects. Insuchacase,thetaskwastodescribe a largeproject,butalsotoclusterofsmall,similar Therefore, speakingaboutSIscanmeantorefer forms inthelocalsetting(e.g.newfamilycentres). experimental modelandunittobefoundinplural gle organisationalunit;ortheymayshowupasan represented byalocal foundations withsocialaims).Innovationsmaybe form ofaclear-cutmovement(e.g.toestablishlocal that backandinspirethem. values andthinkingaswellassociatedpractices always haveabackgroundoforientatingstreams innovations canalsotakeotherforms. However, asthecompiledexamplesshow,localsocial as anewtransfer,taxorresourcearrangement. field, butitcouldalsobeameasure/interventionsuch that clearlydifferedfromwhatexistedsofarinthe tion oranorganisationalsubunitwithnewservices As itturnedout,this“project”couldbeanorganisa entailed apractical“project”thathadbeenrealised. therefore, eachinnovationpickedupbyourteams had beenimplementedinpracticetosomedegree; SIs welookedatwereaboutideasorapproachesthat providing enoughmaterialforouranalysis.Thus,the but toworkwithasampleofhalfwayrealizedcases not agreedupontofilterunsuccessfulinnovations be scrutinized.Thisminimumperiodofexistencewas ed foratleastoneyear(sinceMarch2011)inorderto criterion, everyselectedinnovationshouldhaveexist overcome theveryinceptionstage.Accordingtothis of socialinnovations,weselectedonlythosethathad new thing.Sincewelookedaswellatthedynamics hubs, addressingchildrenandtheirparents,area in otherplaces,e.g.Berlin,family-mindedservice other localwelfaresystemsacrossEurope;however, well-known intheUKandanintegralpartofmany an orglobalscale.Forexample,familycentresare It doesnothavetobepath-breakingonaEurope is whetheritregardedasnewinaparticularcity. innovative initsspecificcontext.Sowhatmatters It followsfromourdefinitionthataninnovationis examples of innovations 1.2. Methodsto sortoutlocal network ratherthanasin Sometimesthistakesthe Innovations - - - - 11 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 12 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities did notnecessarily havetobetheobvious choiceof cians, professionalsandchange agentsinterviewed that thoseinnovationsheld as centralbylocalpoliti freedom inmakingadditional choices;thismeante.g. selection ofinnovations.Finally, eachteamenjoyed and groupswereatleastsomehow coveredinthe each researchteamhadtomakesurethatallfields Therefore, asageneralguideline,itwasagreedthat cross-cut fieldsandaddressseveralgroupsatonce. However, werealisedthatinpracticeinnovations parison, everyinnovationhadtocoveraspecificfield. practical andoperationalissue.Forpurposesofcom make outofthecriterionexclusion/cohesiona that wehadagreeduponearlierwhenitcameto groups ( (child care,employmentand Each teamhadtocoverallthethreepolicyfields approaches inneighbourhoodandhousingrenewal). verse furthermicro-innovations(likee.g.manynew represented byanetworkorprogramentailingdi- “complex”, wereferhereforexampletoinnovations smaller thenumberofinnovationsstudiedwas.By complex theinnovationsfeaturedinreport, complexity oftherespectivecases.Infact,more of caseschoseninacitydependedlargelyonthe and analysedbyeachteam.Theactualnumber three andatmostsixinnovationshadtobefeatured As amandatoryrequirement,ineachcityatleast authority andmoneyaresketched. the waysinwhichtheseinnovationsdealwithpower, that areaboutnewservicepatterns.Inthesecases, of exampleslocalinnovations,especiallyforthose funds. Thesedimensionswerecentralforthechoice the focusisoninnovativewaysofcreatingfinancial vations wereceived);andthereareinnovationswhere local NGOsandlobbiesfeaturedinthecasesofinno interest representation(asexemplifiedbythenew innovations thatfocusondevelopingnewformsof they bringaboutwerealsoimportant.Thereare dimensions ofinnovationsandthenewinstitutions For ourselectioncriteriathepoliticalandeconomic get agoodsenseofthedifferentdynamics. a strongergovernmentinvolvement,etc.)inorderto that weremorecitizen-drivenaswellotherswith jects withvariationsinthemix(i.e.bothinnovations bottom-up andtop-downelements,wechosepro Finally, sincesocialinnovationsgenerallyincludeboth shape theminthe that therewasaconsiderabledegreeoffreedomto Introduction WILCO single project mothers, youngstersandmigrants) local context—werepickedup. housing) andtarget - - - - migrant communities). or newconceptsthatenableservicestoreachout they meanforthemodernisationof neighbourhood revitalisationconceptsandwhat and civicengagement;thedebateonnewtypesof e.g. newwaysofdealingwithissues and orientatedtherespectivelocalinnovations(like and movementsthatwereimportantincentivesfor recommended tolookinWPVatstreamsofthinking simultaneously studiedinworkpackageIV,itwas in workpackageIIIoftheWILCOprojectandwere had alreadybeenpartoftheworkaccomplished system, togetherwiththevaluesthatguidethem, national Since thechangingstructuresandnotionsof target groups. in thethreefieldsand/orrelationwith tion thatwereanimatingtherespectiveinnovation(s) or professionaldebatesandstreamsof(re) point atbackgroundstreamsofcultural,publicand/ a fewpagesatthebeginningofeachcityreportto quently, eachWILCOteamwasrequestedtowrite with runningstreamsofideasandconcepts.Conse alone; muchmorefrequently,theyareassociated Social innovationsarerarelymicro-eventsstanding selected innovations 1.3. Mappingthecontext of respective caseshadbeenchosen. each teamwasrequestedtogivethereasonswhy take upinthestudy.Initsportrayofaninnovation, important andsociallyuseful)thanitwaspossibleto pointed atmoreprojects(whichtheysawasnew, the WILCOresearchers.Sometimes,localpartners had createdand wasoperatingwith. case intermsoftheapproaches andinstrumentsit on whatwasremarkablewith respecttotheselected field).The descriptionandanalysis thenweretofocus (against thegivenlocalandgeneral backgroundinthe outstanding “innovative”traitinthisparticularcase example wasallabout,andofwhatseenasthe comprehensive descriptionofwhattheselected Each featureofaninnovationhadtobeginwitha innovations presenting andanalysing the 1.4. Guidelinesfor ways of welfare systemandthoseof(eachcity’s)local housing stocks; participation orienta- - of innovationisorganisedalongthreebasicthemes: selected innovations.Hence,theportrayofeachcase grids”, whichallteamsshouldusewhenobservingthe social innovations,wesuggestedonlythree“analysis sic pointsofinterest.Giventheenormousdiversity portray eachinnovationwithrespecttothesameba Moreover, itwassuggestedtoanalyse,discussand ples fromotherregionsorcountries. seeing whetheraninnovationwasinspiredbyexam an eyeondiscoursesthatinspireandlegitimiseSIs, and settings. for colleaguesworkingontheissueinothercountries draw “messages”outofitthatwereinterestingalso of theindividualinnovation,andanintelligiblewayto to obtainbothaveryconcreteandsensitivepicture Taking allthisintoaccount, comprehensive reformprocess)(BEPA2010,33). way forindividualusers—innovationsaspartofa from differentrealmsandsourcesinapersonalised larger extent(e.g.allowingforbundlingcontributions that callsforchangingthe sage aboutanemergingnewserviceand which aninnovationrepresentssomekindofmes and diffusion)toquestionsconcerningthedegree lobby organisationformigrantselsewhere—upscaling in adifferentsetting(e.g.gettingtowardssimilar for orbasicallyacceptingasimilarproject/concept visaged ingeneral,rangingfromsimplygivingroom systems atlarge,severalkindsofimpactscanbeen In termsofdrawingconclusionsfor high degreeof“abstractification”. welfare mixes.Obviously,thistaskcalledforafairly rules, services,modesofgovernanceandkinds debate on but aswellatthelevelofaninternationalEuropean system withinwhichaninnovationwastakingplace, developed bythem—notonlyinthespeciallocal tions, theirapproachesandthetoolsinstruments tion ofwhatcouldbegeneralizedfromtheseinnova It wasakeytaskofouranalysistodealwiththeques > > > > > > Interaction withthe Internal organisationandmodesofworking; Conceptions andwaysofaddressingusers; local welfaresystems,theirinstitutions, Thus, itwasseenasimportanttokeep local welfaresystem. local welfaresystemtoa a centralchallengewas local welfare welfare logic ------deficiencies)? Examplesshouldincludeinteralia: users’ potentialsratherthanfocusingmostlyontheir (e.g. throughanempoweringapproach,relyingon services and(iii)differentwaystoprovideaservice different conceptionsofusers,(ii)types degree doesonefindhereinnovationintermsof(i) about theusers,groupsconcerned,etc.Towhat The focushereisonthekindofideatobefound users (a) Conceptions andways of addressing the workingcultureconcerned interalia: should organisethemselves. Selectedinnovationsin “public organisations”should looklikeandhowthey as wellelementsforaninnovativedefinitionofwhat status ofinnovativeorganisations,butitmayentail ing contracts,etc.maymirrormainlytheprecarious working units,markedbyteamwork,flexiblework found inlocalpublicadministrations.Newkindsof conditions andculturethestyleofmanagement remarkable degreeitisdivergingfromtheworking the workingculturemaye.g.beinnovativeby working culturetobefoundininnovativesettings; concern theorganisationalformchosenand This partoftheanalysiswasaboutquestionsthat working (b) Internal organisation andmodesof > > > > > > > > > > > > > > contractual relationshipsinsteadofrights. personalisation oftransfersandservices; users; account theimmediatesettingofaddressees/ “family-minded” approaches,thattakeinto of theaddressees; co-productive approachesthatbuildonresources approaches andtheirrespectiveinstruments; various capacity-buildingandempowering gratifications, sanctionsordialogues,etc.; pedagogical interventionsoperatingpartlywith one; the social/publicrealmandpersonal/private administrative worldand“reallife”,orbetween new waysofbridgingthegapbetween - 13 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 14 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities third sectorand tions andinpublicorganisationsopeninguptothe ty-based stylesofoperationin (e.g. “agencification”,entrepreneurialand brid” organisationalformsofsocialinnovationsexist As ourchoiceofexamplesdemonstrates,various“hy modes ofinterplay,wespecificallylookedat: funding andfinancing.Giventheseinteractions decision-making and work packageIVoftheWILCOproject),modes and urban between actorsandorganisationsin one pointofasystemmaythenaltertherelationships the establishmentofaroundtable).Aninnovationat when a react inoneoranotherway(thisise.g.whathappens for the istrative system;theyentailachanceandchallenge context andatthelevelofpoliticaladmin are notjustan“app”,buthaverepercussionsonthe Quite often,newinnovativeinstrumentsorservices system (c) Interaction withthe > > > > > > > > > > > > > > > > Introduction WILCO part ofinnovators’agenda. making publicitystrategiesandsocialmarketing sequences; working bytime-limited“projects”andtheir based; working contractsthatareoutcome-/project- “entrepreneurial” forms); of post-bureaucraticmanagement(“fluid”and the impactofsocialentrepreneursandmodes team-building; the organisationofworkbyteam/ content oftheservicesprovided; beyond standardsolutionswith respecttothe various groupsbyallowingfor diversity—going solutions thataimtomeetthe peculiaritiesof rules forfundingandfinancing; accepting, acknowledgingorevenpromotingnew stakeholder basis); organisations/”project units”(e.g.onamulti- innovative waysofinstitutionalising governance systemasawhole,whichhasto neighbourhood revitalisationschemeentails development, theunderlyingvalues(see project community life). participation, aswellmodesof third sectororganisa- local welfare local welfare communi- - - promised intheinitialworkpackagedescription. lowed theprocedureofdatacollectionthathadbeen planning) hadtobeundertaken.Therewith,wefol welfare departmentand/ortheforurban parts, moreinterviews(alsowithpartnersinthe complex innovation,clusteringseveraldifferentsub- with anexperienceduser)hadtobecarriedout;fora interviews (onewithakey-promoter,theotherone For averysmall-scalesingleinnovation,atleasttwo of interviewscarriedoutforeachcityreportwasnine. innovations chosen.However,theminimumnumber carried outwasobviouslylinkedtothenumberof lysing socialinnovations.Thenumberofinterviews grams (1.2),interviewswereakeysourceforana Beside theuseandreviewofdocumentspro points: innovation shouldgiveinformationonthefollowing Finally, inconclusion,theportrayofeachselected > > > > > > > > > > > > > > “behind-closed-door” arrangements. making throughelectedofficialsandcorporatist, instruments andpracticesfromtheinnovation? system? Forexample,hasthesystemtakenover processes inthepoliticalandadministrative Has therebeendiffusionintermsoflearning beginnings andmid-termsituation? in politicalandfinancialtermscomparedtothe Has therebeenmoreacceptanceandsupport Has theinnovationgrownandstabilised? (forums of upgrading ofadiversityformsdeliberation are (semi-)formalised; operating throughinter-sectorial and business; of bodiesandorganisationswithin(local)society creating adiversityofpublic-private bodies; framework definedbypublicadministrative administrating open-endedtaskswithinafixed ways ofgoverning“byprojects”ratherthanonly participation), goingbeyonddecision- networks that partnerships local - - - which they (such ase.g.“corporatist”)butitconcernedthewayin or “social-democratic”)anditsformof special typeof did notconcernthewayinwhichtheydeviatefroma the point of viewfromwhich we lookedatinnovations support orasabarriertoinnovations.Furthermore, given nationaltraditions,regimesortrendsactin diffusion ofinnovationsdependingfromthedegree break withtraditions,ratherthanlookingatlevelsof of allatinnovationsasdevelopmentsthatrepresenta orientation wasusefulsinceourtasktolookfirst emerge despitedifferentnationaltrajectories look atcommoninternationalinnovatorytrendsthat palities andcitiesin respect towelfaresystemsandtheroleofmunici al paths and histories of institution-building ject devotedsometimetodescribingdifferentnation piece ofresearch.WhileresearchintheWILCOpro had beencalledbytheEUinstitutionslaunchingthis and modesofthinking“ was alreadythereintermsofinstitutions,practices “different”, “new”and“innovative”inrelationtowhat The firstoneconcernedthemeaningofterms for jointdecisionsamongtheresearchteams. finally presentingthem,fourissuescalledquitesoon sity ofcasesinnovations,discussing,analysingand When itcametolookingattherichnumberanddiver approaches andinstruments Part 2:findingsonrecurrent be seenaswidelysharedacross“regimes”: governance intheEuropeanregion > > > > taken fromthebusinesssector. agencies andconceptsof economisation andrationalisation of concepts acrossborders,with theirpracticesof public managementandrespectivemanagerial Secondly, therehasbeentheinfluenceofnew systems anddemocraticdecisionmaking. participative elementsand institutions goingalongwithaminorroleof for large-scaleuniformregulationsin (1994), likestandardisationandthesearch postwar-welfarism asdescribedbyWagner First ofall,therearethecommonalities differ fromsharedpatternsof welfare regime(“liberal”,“conservative” governance, itsmainaimwasto welfare systems”,asthey governance thatwere civil societyin . Threeelementscan governance welfare and welfare welfare , both with welfare . This - - - - especially forthefollowingthreeinnovations: in manysitesandcitiesacrossEurope.Thisholdstrue quite developedinternationaltrend where theyappear—basically being likeallothersnewintheimmediatecontext found. SomeSIsrepresentapproachesthat—while stages concerningimpactanddiffusionofSIsthatwe The thirdpointconcernedthedifferentdegreesand patterns amongtheinnovations. by whichwehavearrangedourfindingsonrecurrent kept inmindwhenlookingattheclassificationsystem modes ofworkingandfinancing.Allthisshouldbe difference whenitcomestoconventionalformsand innovation includeaswelldevelopmentsthatmakea not beneglected.Thiswideningofareasandtypes important fieldsforsocialinnovations,whichshould priorities in ernance (formsof cerning theaccesstofinancialbenefits)andin provision. Changesinrulesandregulations(e.g.con on morethan“services”andwaysoforganisingtheir showed howeverquitesoonthat to theinternationalmeetingsofWILCOteams vations. Whatwasbroughtfromthefirstcitysurveys social innovationswithafocusonserviceinno the mainstreamliterature.Thelatterusuallylooksat our choiceofinnovationsandwhatislookedatin The secondpointrelatedtoadifferencebetween quite clearly. descriptions ofthevariousteamsinvolvedshowthis social innovationsmakeadifferencealtogether.The the majorinfluenceofthesethreefactorsthat It isagainstabackgroundshapedcross-nationallyby > > > > sustainability and linked withtheissuesofgrowth,environmental in Middle-Europe to the new waves ofmovements of theearly1970sanddemocraticrevolutions solidarities—ranging fromthesocialmovements elements ofself-organizingandnewsocial where culturalandsocialmovementsrevitalized in oneformoranother,gonethoughphases Finally, allcountriesintheEuropeanregionhave, Barcelona and from integration enterprisestobe metfromPlockto a kindofprototypeoutthe variantsofwork integration enterprises” occupational and social enterprisesthatwork in thefieldof welfare andcohesionpolitics)arelikewise democracy anddecisionmakingon social integrationas participation. Stockholm toVaraždin; . Onecouldalmostdevelop represent analready innovations touch , havingpoppedup “work gov- - - 15 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 16 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities key pointsthatwehavechosen. in thesefieldsarefamiliarwiththeaforementioned and localpolicy.Weassumethatallthosewhowork policy butaswellamongresearchersonurbanism the communityofresearcherson findings intocurrentdebatesastheycanbefoundin These five dimensions hopefully allow to integrate our social innovations: important recurrentapproachesandinstrumentsof fare systemswhereintogroupwhatweseeasthemost Instead family andchildcare-relatedservices. development, occupationaland prevail inthefieldof policy fields,groupingfindingsoninnovationsasthey ways toarrangeourfindings,e.g.alongsideseparate It isthereforethatwehavenotusedotherpossible to lookattheimpactofSIsonlocal“ mandate thathasbeengiventotheWILCOresearch: keep inmindthatitmirrorsthecentraltaskand looking attheclassificationsystemused,oneshould ments ofthesocialinnovationswelookedat.When ordering findings on recurrentapproaches and instru- The fourthandfinalpointconcernedourwayof 9. 8. 7. 6. 5. > > > > Introduction WILCO Innovations concerningtheentityof(local) Innovations inmodesofworkingandfinancing; fare systems. Innovations in Innovations inregulationsandrights; users; Innovations inservicesandtheirwaystoaddress on child- the wholefamilysysteminsteadoffocussingjust innovative coreistodirectoffersofsupport or Germany.Despitedifferences,theircommon be foundincontextsasdifferentItaly,England kinds. Theseareaswellquitecommon,andcan family supportservicesandcentres reach acrosscountriesandcities; neighbourhoods of revitalisinghousingestatesandurban participative and we optedforfivefieldsanddimensionsofwel- care services. project governance; . Here,onceagain,examples housing and community-oriented forms social integrationand welfare andsocial neighbourhood welfare systems”. ofvarious wel- services atlarge. but alsotoalargeextentinthefieldofpersonalsocial special fieldofsocialinclusionandintegrationpolicies services. Thesefeaturesplayarolenotonlyinthe more recentmanagerialcultureofpublicandprivate up alongsidepost-war and servicesorservicesystemsastheyhavebuilt the serviceinnovationsanalysedinWLCOproject Five characteristicsmarkthedifferencesbetween investments. small-scale innovationsanddonotneedbigstart-up lots ofhigh-techproducts.Serviceinnovationscanbe neurs, groupsandchangeagents,betterthane.g. scale innovationsandrespectivesocialentrepre innovations. Servicesareeasilyaccessibletosmall finally chosenascasestobedescribedwereservice terview partnersasimportantandpromising recommended tothenationalteamsbylocalin The majorityofthesocialinnovationsthatwere their ways to addressusers 2.1. Innovations and inservices that illustratebestthepoints wemake). selec-tion ofSIs—outthe fullnumberofcases— the endofworkpackage reportthetablewitha the intergenerationaltransmissionofpoverty(seeat likewise aprojectforyoung “Primano” programmefromBerne(Switzerland)is teem inawaythatmightleadbacktopaidwork.The difficulties inacquiringcompetencesandself-es- to supportwomenandmothersexperiencingspecial second chance”fromVaraždin(Croatia),whichaims telling exampleinthisre-spectise.g.theprject“Her to strengthencapabilitiesdifferentmeanings.A discourses willgiveserviceinnova-tionsthatwant from publicwelfaredebates.Differentactivation be linkedwiththeactivationrhetoricasitisknown ening ca-pabilities.Invariouswaysthiselementcan ency oftheusersbyopeningupchancesorstrength- relationship thataimsatreducingtheinitialdepend- giving orgrantingfillinggapsthanaboutakindof SIs studied.Theservicesarenotsomuchabout This hallmarkcanbefoundbasicallyinmostofthe spotting deficits Investing incapabilitiesrather than welfare traditionsandthe mothers, aimingtobreak - - that thelatter offer. administrations andtheservices andentitlements grants, butalsoexperienced inmakingcontactswith networked withandtrusted intheir Berlin (Germany),womenthat areontheonehand can mentione.g.the“Neighbourhood tions ofoursamplethattouchonthisproblem,one become anincreasingchallenge.Amongtheinnova professional servicesandpeople´slifeworldshas lack oftrust.Therefore,bridgingthegapsbetween users, hardtounderstandornottakenupduea the respectiveoffersareunknownbytheirpotential reach thegroupsthatmightneedtheirhelp,beit increasingly difficultforservicesandprofessionalsto ployment andharsherinequalities.Thismakesit poverty, hasincreasedintimesofmigration, Cultural andethnicdiversity,overlappingwith worlds professional and people’slife services Concern for bridgingthegapsbetween families willneedanduseitmuchmorethanothers. of waythatisbasicallyopenforall,eventhoughsome Münster (Germany),whichoffersitssupportinakind experience isrepresentedbythe schemes in young unemployedpeopleitaddressesthanother operates withmuchmoreelementsofchoiceforthe table), the“Filur”projectfrom Among themanyexamples(seeabovementioned important role,thewholeapproachislessdirective. and itsstages.Whilepersonalhelpadviceplayan and donotprescribeindetaila not defineinatop-downwayadmissiontoanoffer operate withlooser,moreopenapproaches,whichdo with topicsofoccupationaland tion. Bycontrast,manyoftheinnovationsthatdeal to them,thusentailingmuchdangerofstigmatisa integration proceedings,preconditionsandadmission “in” and “out” and detailed rules for stagesof foreseen approach oftargeting,whichclearlyindicateswhois workfare policiesoperateonthebasisofastrict gration programmesandschemesonecanfindin Most ofthepresentoccupationaland effects avoiding targeting withstigmatising Preference for openapproaches, Sweden orelsewhereintheEU.Alikewise Stockholm ( social integration re-integration process Family Officein community ofmi social inte- mothers” from Sweden) unem- - - - ical matters. from languagecoursestoadviceandsupportinjurid migrants fromotherEast-Europeancountries,ranging have achievedtomakeverydifferentoffersworkfor for developmentbeyondbordersinWarsaw(Poland) intermediary organizationssuchastheFoundation pecially importantforsingle-parentfamilies;likewise link accesstojobsanddaycare,somethingthatises joint assessmentoffamilies´needswhenitcomesto is givene.g.byofficesinNantes(France)thatoffer ous formsof“one-stop-entry-points”.Agoodexample personal advisers,care-andcase-managersvari role. Therearevariousschemesthatoperatewith support andchannelsofaccessplayanimportant allow toconnectotherwiseoftenseparatedformsof among the selection of innovations, service offers that fit ismostlycomplicatedanddiscouraging.Therefore, Getting togetherabundleofsupportmeasuresthat needs ofcustomerscannotbemetadequately. following theirownlogics;asaresult,thecomplex ing differentparticularbutaswellpartialsolutions, ated andspecialized,withseparateagenciesoffer have, inthecourseoftheir Public administrationsand bundles of support access, allowing for personalized often separated forms of support and offersService that connectotherwise ments. Innovativeways ofofferinganoftenprovision on long-termpro-vision,such aspensionarrange the lengthyex-antenegotiation anddecision-making for immediateandtime-limited help,differentfrom ple. Oftenthiscoincideswith acuteproblemsthatcall back toworkbutwithoutaccessaflat,forex-am be outofschoolbutnotyetinajob,orontrack this evolution,havebecomeill-adapted.Peoplecan services andtransfers,whichhadbeenbuiltbefore tion betweenlifesituationsandstages.Traditional continuous, withmorecomplicatedzonesoftransi Biographies ofworkingandlivinghavebecomeless support Creating flexible forms of adhoc and rights 2.2. Innovations inregulations welfare bureaucracies development, differenti ------17 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 18 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities known or—more accurately—“publicly acknowledged” known or—more accurately—“publiclyacknowledged” housing forakindofgroupin needthathadnotbeen gram inZagreb(Croatia),which givesbetteraccessto e.g. programssuchasthepublic rentalhousingpro- or variousotherformsoftime-limited support—are resent offersrelatedtonew risks—beitservices,cash ened. Amongthebroadvarietyofinnovationsthatrep- rights andentitlementsthathavebeenorgetshort- more stablerightsorjustashakysubstituteforsocial settlement thatmayeitherbetheforerunneroflater, pension schemes.Newdispersedoffersformakindof of publicwelfareinstitutionsinhealth,educationor status; thisconstitutesadifferencefromthecorearea not verystableintermsofinstitutionalizationandlegal innovative offersandmeasuresthatdevelophereare fer-systems ofpost-warwelfare-states.Manythe that madeupforthesocialserviceoffersandtrans- risks”, notforeseeninthe“manual”ofstandardrisks so farunknowngaps,afeaturethatsomecall“new Much ofwhathasbeenpresentedaboveisabout participation rightsandentitlements emerging risks,beyond fixed socialand Developing offers that meetnewly status and in which,life,issuesofhealth,employment,family vice takesintoaccountriskbiographiesandtheway comprising abuildingmanagerandnurses.Thisser supported byateamem-ployedthe difficulties. Whatisspecificthatresidentsmaybe in abuildingarereservedforyoungpeo-plespecial zer-land), theUnitofTemporaryHousing,whereflats rears. AthirdexampleisgivenbyaSIinGeneva(Swit the costsoftransi-tion,helpinge.g.towardsrentar welfare toworkbytime-limitedpaymentsthatease ham (UK),whichaddressespeopleontheirwayfrom discretionary housingpaymentschemefromBirming of origin.Anothersimilarexampleisthetarget-ed ous and/orcurrenttypeofworkingcontractandplace reasons (jobloss,illness...),regardlessoftheirprevi who areinconditionsoftemporaryneedforvarious (Italy), whichaimstosupportindividualsandfamilies is e.g.the“WelfareFoundationAmbrosiano”inMilano term, time-limitedadhocsupport.Atellingexample innovations areaboutestablishingsuchkindofshort- ple from“fallingout” that securesstaying“inthegame”andpreventspeo it comestoupholdalivingandworkingarrangement al “quickfix”canwellbethecriticalmissinglinkwhen Introduction WILCO housing situationoftenoverlap. project . QuiteanumberoftheWILCO municipality, ------pro-environmental (e.g.doing al, social(inthefieldof engage themselvesincivicactivities—be theycultur ple, wheretheyasdwellerspayverylittlerentsbut (Italy) hasdevelopedspecialoffersforyoungpeo (Doing andliving),a a similarway,inprogramcalled“Fareehabitare” an inter-generationalco-habitationarrangement.In Nantes, offeringcheaplodgingforstudentsthatenter for Roof),aninter-generationalhome-shareservicein with contractsisgivenby“LetempspourtoiT”(Time of adifferent,moresociallydefinedkindworking in the defined tasksofpersonalsupportforpeopleinneed something forothers goods andservicesoncetheyobligethemselvestodo society inabroaderway:peoplegetaccesstosome ment togivesomethingbackforwhatonegetsfrom of micro-socialcontractsthatdefinethecommit tracts wereobservedcameintofocus.Theseare Among oursetofinnovations,othertypescon themselves (orsometimestheirnext-of-kin). defined responsibilitiestheclientstakeexclusivelyfor ships (differentfromtraditionalrights)areabout measures, etc.Thesetypesofcontractualrelation increase one’semployabilitybytakingpartintraining society. Mostly,thisisaboutprovingthereadinessto number ofdutiesinexchangeforwhattheygetfrom to contractwiththe behaviour oftheclients.Thelatterhavetobeready tions neededforsupportareconcerningthefuture responsibilities andburdensofparenthood. into workinglifebuthavealreadytobearthemanifold before: youngfamiliesthatarejustonthewaytostart ship withthe here, theclientsenterakindofcontractualrelation field of“ tendency in to supportinadefinedsituationofneed.Anew preconditions tobefulfilledinorderhaveaccess insofar astheyusuallyrequireonlyasetofmaterial es havethestatusofrightsthatareunconditional By tradition,mostpublic with individuals andgroups Working by kindof “socialcontracts” community, etc.Anexampleforsuchpractices workfare”, differsfromthattotheextent welfare arrangements,namelyinthe welfare provider,wheretheprecondi welfare providertoperforma social housingagencyinBrescia , beitinformofvolunteerwork, integration ofmigrants)or welfare offersandservic- urban gardening). - - kind - - - - - links notonly hood ManagementProjectin Berlin-Kreuzberg,which hoods. Agoodex-ampleisgiven bythe housing estatesandrevitalizing urbanneighbour that operateinthefieldof pro-grammes forrestoring trilateral cooperationcanbe foundinmanyoftheSIs non-profit andbusinessorganizations.Thiskindof development programmethatlinksgovernmental, the universitycooperatewithactivistsina (Netherlands), whereteach-ersandstudentsfrom Research, andTalentDevelopmentin instance bytheNeighborhoodStoresforEducation, unconventional formsof with networkedwaysofaction.Agoodexample Furthermore, thecomplexgoalsofmanySIscorrelate it inbusinessorcentralized izations thatactaspartofahierarchicalsystem,be embedded intheirdirectenvironmentthanorgan have ahighlylocalcharacter,theyaremuchmore concerns orpractices.SincetheSIsthatwestudied bring togetherwhatisusuallyseparated,beitideas, innovations arecharacterizedbythefactthatthey cooperative orientation.Incontrasttothat,social tive core-tasksandamorecompetitiveratherthan concentration ofsingleorganizationsontheirrespec rial reforms.Indeed,thesekindofreformsfos-tereda service land-scapethathavebeenshapedbymanage and sharingalsoholdstrueforthosepartsofthe nearly astereotype.Thelowdegreeofcooperation special tasks,functioninglike“silos”,hasbecome systems areverymuchfocusedontheirrespective Stating thatthetraditionalserviceorganizationsand embedded andnetworked ways organization that operate inmore Fostering unitsandtypesof as beingtheircorepurpose. changing thesystemof sion. However,forsomeinnovations,influencingand kinds ofserviceshaveaswella thorities. HencemostSIsthataimatdevelopingnew social partnersandpoliticaladministrateau the environment—thepublic,variousstakeholders, tion ofdecision-makingandwaysinteractingwith The lattertermreferstoboththeinternalorganisa a combinationofnew“products”and“processes” The casesofSIsthathavebeenstudiedallrepresent 2.3. Innovations ingovernance community groups andlocalbusiness governance hasbeenfound networking isofferedfor welfare administrations. governance dimen Amsterdam Neighbour community ------department. system, rangingfromurbanplanningtotheschool but aswellvariousdepartmentsofthepub-lic contribution inthefieldofgenderandfamilyissues. service andself-helporganizationsisaninnovative protest, campaigningandthebuildingupoftheirown MaMa Foundation and RODAcombineself-organizing, agendas. Thewaysinwhichmovementssuchas tion givescaringtasksanupgradeinpublicandpolicy ways ofcombiningworkingandfamilylife;theirac challenges ofcareandthedifficultiestogetnew socialist times,showedlittleinterestinthemanifold environments andsystemsthat,beforeafter been seenasmerelyprivateissues,protestinglocal include andhighlightotherconcernsthathadbefore role asmeninamale-shaped the traditionalrestrictedfocusongettingsame saw andtheRODAinitiativeinZagrebhaveovercome and theirfamilies.BoththeMaMaFoundationinWar of womenand atives inpost-socialistcountriesconcerningtheneeds our samplecomeheree.g.frommovementsand and self-definitionsoftoday.Impressiveexamplesin and feministmovements,whenitcomestothemes new socialmovements,suchastheenvironmental tion clusters.Butonecanobserveaswellchangesin overarching “workers’movement”anditsorganiza cannot getassembledanymoreundertheroofofan in mostcases,thevariousspecialneedsofgroups management in Looking backtothehistoryofconflictarticulationand organizing concernsoftendonotworkanymore. pressures. Conventionalordersofpresentingand is moreuptodatewithchangingchallengesand and relatedformsofself-organizinginawaythat Innovation meansaswelltoaddressissues,concerns voice inthepublicdomain Giving newconcernsandgroups a vative organizations arebytheirverynature forced that workmuchonratherroutinized issues,inno By contrasttothoseagencies andserviceproviders policies around existingchallenges incohesion public debate andopinion-building Organizing moreintense forms of mothers, whospeakforthemselves welfare states,thismeanse.g.that, labour market;they welfare - initi- - - - 19 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 20 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities gration intocitylife. should dealwithmigrantsandthetasksoftheirinte led towidelyconsented experts andprofessionalstodevelopaprocessthat in aninnovativeandcourageouswaywhenitinvited childhood; andthecitycouncilofBerne,whichacted cess onanewagendafordealingwithchildrenand and administratorsinanorganizeddeliberationpro concerned citizens,experts,politicians,professionals 12 InitiativeinMilano,whichaimedtobringtogether there aretwoespeciallyimpressiveones:theMaggio on prioritiesandagendas.Amongsuchexamples publicity inordertoestablishfinallyanewconsensus of organizingdebates,deliberationprocessesand tions weselectedhavebeeneagertofindnewforms opinion buildersandpoliticians.Someoftheinnova play ofasinglegrouporinitiativewithprofessional building isdifficultwhenitlefttotheusualinter quite often,“publicity”ishardtoreach,andopinion for astrong needs andconcernsseektoactuponthemcalls unconventional wayinwhichtheydefinetheirown to createpublicityadvertiseandconvince.The such alliancesishighlyimportant. tion (Warsaw)orRODA(Zagreb), forwhichbuilding here aswellonceagainatSIs liketheMaMaFounda- constitutes agoodexample; andonecouldpoint ready mentionedFoundation AmbrosianoinMilano and Besides examplesfromthefieldofurban,housing support ofprojectsthatservethelocal bine thepotentialofpublicandprivatesectorsin the Foundation GrantFundforPlock,ajointinitiativeof A tellingexampleisaSIfromPlock(Poland),the innovative elementinpolicy-makingandgovernance. once unifiedandplural,canbeseenasanimportant tablishing suchkindofcollectiveagency,whichisat concerned withraisingorupgradinganissue.Es- and denseformsofinteraction,whichareoften partnerships, alliances,presentingamoreintense kind ofnetworkingisrepresentedbycoalitions, ous organizationsandagencies.Amoredemanding focus isonday-to-dayrelationshipsbetweenvari- Networking canhavevariousmeanings.Oftenthe partnerships Building issue-relatedcoalitionsand Introduction WILCO municipality andtwolocalfirms.Itaimstocom- neighbourhood revitalization,aSIsuchastheal- orientation totheoutside.However, project guidelines onhowthecity community. - - - - support andusinglocalpartnersasasparewheel. between aperspectiveofwinningadditionalsocietal local publicsector,makingitdifficulttodifferentiate need toacceptasafactchronicallyunderfunded multi-stakeholder perspectivecanentailaswellthe security. Likewise,aninnovativewayofworkingina it isimpossibletooffersomebasicdegreeofjob gle fromthemerereactiontoconditionsunderwhich elements likeflexibleteamworkarehardtodisentan and means,ontheotherhand.Therefore,innovative between ambitions,ontheonehand,andconditions This tendstoincreasethealreadyhugeimbalance accept andlivewithworseningmaterialconditions. challenge orpressure,thismustoftenentailawayto innovation meanstodealdifferentlywithagiven in existing just aneffectofthedeconstructionorregression vative” aboutaprojectand lenge whenitcomestodisentanglingwhatis“inno While thisisinitselfbanal,itrepresentsquiteachal shape undergiven,oftenadversecircumstances. important topointatthefactthatinnovationstake When takingupmodesofworkingandfinancingitis working andfinancing 2.4. Innovations inmodesof who workthere. TheSI“ es, arefarfrombeingchosen orshapedbythose the modesofworking,between gainsandsacrific attractive andothermorefrightening elementsin es allow.However,allthese mixes betweensome a possibilityfornewcontractoncecircumstanc short-term contracts,beingsurethattherewillbe co-operators to“plugin”justforawhileandaccept relationships, whichallowformanyofthevarious enjoy anatmosphereofcreativityandtrust-based working inprojectsandmakingtheirlivingtheremay of minimalreliabilityinworkingconditions.People time arrangementsoftheworkersandadegree balancing constantchangesintasks,positionsand “flexicurity”, i.e.amixofelementsthatareabout ments thatcouldbeassembledunderthelabelof the modesofworkinginSIsshowarrange Throughout theWILCOproject,descriptionsof below traditionalstandards of institutionalization andsecurity Flexicurity inworking contracts; levels welfare modelsandregulations.When Kreuzberg Acts” describes development andwhatis ------innovations in This canbeillustratedbymuchoftheexamples that getaddressedasco-producersareoftenblurred. those whooperateinsidetheorganisationand new toseehowmuchthedemarcationlinesbetween engagement. Andsecondly,itisatleastremarkably for networking,paidwork,volunteeringandcivic because theybalanceverydifferentarrangements innovative intworespects.First,theyare that workingfieldsaretakingshapehere reported onthevariousSIs,onegetsimpression civic engagementinaboard.Therefore,fromwhatis from “hands-on”volunteerworktoconstantinputsby paid volunteeringwithalong-termperspective,and tions, rangingfromshort-termactivismtoregularun but alsomanyformsofvoluntaryandciviccontribu ing notonlyvariousformsofcasualpaidcooperation versified thaninthepublicorbusinesssector,includ arrangement forcooperationin SIs are much more di- It hasalreadybeenmentionedthatthekindsof and approaches commitments aspartof theprojects professional teams andvoluntary Different working collectives – small coreofconstantjobholders. satellite systemofunsecuredco-operatorsaroundits good employerintraditionalterms;itbenefitsfroma the agency’sflexibilityisthatLok.a.Motionnota suits theirkeyprofessionalprinciples.Theflipsideof leeway todecidewhetheracertainprojectactually permanent staffprovidesLok.a.Motionwithsufficient stable andjobsaresociallyprotected.Havingveryfew to publicadministrations,wherethesizeofstaffis community development,presentsasharpcontrast local businessandstart-ups,interweavingthiswith a socialenterpriseorganisationthatiscounselling some oftheserecurrentdilemmas.Lok.a.Motion, duction of by thedescriptionofSI“Ilot Stephenson–Co-pro as co-producers,volunteers andparticipantsisgiven similarly illustrativecasefor thestrongroleofusers more importantthanthecontributionofpaidstaff;a work are,bothinquantitativeandqualitativeterms, cia); here,voluntarycommitmentand like “Bimbochiamabimbo”(ChildcallsChild)(Bres ization. Anotherillustrativeexampleisaninitiative in Lille”(France). housing inamajor housing and neighbourhood revital urban renewaldistrict community ------acknowl-edged licensedprofessions. al workintheestablishedclassificationsystemsof comes tomakingroomfornewtypesofprofession points attheenormousdifficultiesthatarisewhenit ple ofthe example. Thiscanbecomplementedbytheexam their familiesinselecteddistricts,isanothertelling tion pro-gramtargetingdisadvantagedchildrenand the “Primano”initiativeinBern,apre-schooleduca like elsewheremarginalandunprofessional.Likewise, process inaregionwheresuchpracticeshavebeen supervising theimplementationofaself-renovation ing bâtisseurs” (CompanionBuilders)inLille,aSIsupport example hereofisprovidedby“Lescompagnons as communityorganizersandmediators.Agood may e.g.concernarchitectsthatworksimultaneously agers. Thiskindofre-professionalizationprocesses simultaneously specialists,entrepreneursandman ees, co-citizensandvolunteers;theyaresometimes innovations havetolearndialoguewithaddress the divisionoflabourtheyimply;professionalsin tasks thatoftenescapetraditionalprofessionsand innovative projectsand The kindofprofessionaltobefoundinmanythe cesses ofsociallearningonallsides. the fringesofprojectentailaswellspecialpro citizens, volunteersandprofessionalswithinat The variousformsofcooperationbetweenconcerned cial) mediaisacoretaskofmanytheinnovations. and wellknown;advertisingoneselfinthevarious(so to maketheirmissions´profileasclearpossible basically knownandestablished,SIshavetotakecare organizations oftenpresupposethattheirbusinessis respective initiativeandpro-ject.Wheretraditional sample, theconcernforfindingcatchylabels pool, itisinterestingtosee,throughoutthewhole When goingthroughthelistofinnovationsinour formerly fragmented knowledge professionalism that combines A strong missionprofile anda housing self-renovation—managing,trainingand Neighbourhood Mothers(Berlin),which initiatives hastomanage ------21 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 22 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities for theSIsthat westudiedvariesverymuch fromone Even thoughtheimpactofstate fundingandbacking welfare systems; alesserstate focus Reaching outto all sectors of local ly moreisaddressedthanjustthelocal systems. Weunderstoodthat,bythislabel,conscious- of SIstochangesanddevelopmentsinlocal WILCO project was to look at the possible contributions One oftheaimsoffsetbyEU-authoritiesfor entity of (local)welfare systems 2.5. Innovations concerningthe local andothersources. come fromserviceactivitiesandfundingvarious are anotherexampleaboutthe“art”ofmixingownin The workcorporationsfromNijmegen(Netherlands) build bridgesbetweenschoolsandlocalemployers. and thelocal money fromthechamberofindustryandcommerce SI “Jobexplorers”inBerlin,whichmatches the restrictionsthatarefoundgivene.g.by esting examplesofthepossibilitiesopenedupand down-building areoftenhardtodisentangle.Inter social innovationandtheconsequencesof would ratherreduceoravoid.Thestrengtheningof again, innovativeelementsmixwithhardshipsone very oftenprecariousandlimitedintime.Here,once sector. Furthermore,thefundingarrangementsare organizations fromthe is adegreeof(financial)co-responsibilityother most importantcomponent,butincasesthere mix mayvaryandstatefinancingoftenbethe multiplicity ofresourcesandtheircombination;the Many ifnotmostoftheSIswedealtwithrelyona stakeholders combining resourcesfrom different Short-term funding, andtime-limited components ofa(local)welfaresystem. mutual relationsthatexistbetweenallofthesefour innovations wehavelookedatbeartestimonytothe community andfamilysphere.Thecasesofsocial bilities ofthethirdsector,marketsectorand municipality, thewelfare-relatedrolesandresponsi- means toinclude,besidesthelocal institutions. Speakingaboutawelfaresystemusually Introduction WILCO labour marketofficeforprogramsthat project civil societyorthebusiness welfare state/the welfare state/the welfare-state inter alia welfare welfare welfare -

- as wellofpower. very conflictualmatter-notonlyintermsofideasbut to saythattheseissuesof“sharing”and“mixing”area pluralism ofresourcesandresponsibilities that arebasedonaconsciouslyworked-outmixand SIs canbeapprehendedbestbyconceptsof the publicsector.Thereforeitcanbearguedthat initiatives wouldopposebecomingincorporatedinto pal supportbutonecansuspectaswellthatthese that most SIs would like to seemorestateand munici- relations withallsectors.Onceagain,onecanargue that basicallyallSIsareconcernedwithestablishing case toanother,onecanmakethegeneralstatement is allowedtowork outitsownoptionsfor occupation status of“Optionskommune man municipalitiesthatstrive fortherighttoget equality anddiversitycanbe foundinthecaseofGer linked tointerweavingandbalancing concernsfor differently. Goodexamples of thetasksandproblems that reachthesamelevelaselsewherewhendoing everywhere andadiversityoflocalizedarrangements balance betweenequalstandardstobeguaranteed means togoforarrangementsthatallowanew decision making.Moreover,supportinginnovation margins oftherespectivesystemprovisionand streaming whathasdevelopedoutsideoratthe with pilot-schemesandabasicreadinessformain with respecttobothmoretime-limitedexperiments between whatisusuallyseparated.Thisholdstrue moreover possibilitiesforunconventionalmerges degrees ofdecentralisation,diversity,differenceand vations amoreimportantrolewillhavetoallowfor way. Therefore,thosewhowanttogivesocialinno organized inahighlycentralisedandstandardized the managerialreformsin is bytraditionorrecentmanagerialreforms(see public sectorwhene.g.theschoolorhealthsystem oligopolies. Butitcanalsobethecaseinmuchof in therespectivemarketsectorscontrolledbytheir private businessorganisationssteeredcentrallyand differently isnegated;thiscanbethecasebothinbig sible, whereverarighttoact,organiseandprovide basic factthatinnovationgetsdifficult,ifnotimpos the welfaresystemasawholecanberelatedto A secondconclusionconcerningtheunderstandingof arrangements diverse andlocalizedwelfare Aiming at lessstandardized,more labour marketservices) ”, i.e.amunicipalitywhich . Needless welfare - - - - - concepts formodernising participation isupgradedthroughouttheinnovative child minding.Secondly, in theircapabilitiesandresourcesbyprofessional ities, ratherthanmerelyaimingtosubstitutealoss the roleoffamiliesincaringandtakingresponsibil services thatratherseektostrengthenandsupport This showsfirstofallthroughinnovationsabout nity componentinmixedandplural the WILCOprojectareaboutupgrading In variouswaystheSIsthathavebeenanalysedin support in mixed welfare systems (families, Upgrading the child in-house childcareaspartofthepossiblechoicesin Pamplona (Spain),whichaimtoupgradethestatusof as wellbytheSI“CasasAmigas”(FriendlyHomes)in more varietyinserviceprovisioncanbeillustrated Concerns forandconflictsaroundtheaimofallowing al integrationstrategies(asisthecaseofMünster). freely chosen“voluntary”elements. by morestate/public,professionalized andcompletely a ratherparochialelementto besubstitutedstepwise derstanding of noted thatmanySIsareinawaychallenginganun systems. Yet,ontheotherhand,itshouldcertainlybe the projectasawholeisonlocallevelsand nity componentof argued thatitisunavoidabletohighlightthe reconstruction. Obviously,onceagain,itmaybe community inorganizingtheir dam, whereahousingcorporationdecidedtosupport others aretheNeighbourhoodcompaniesin tasks andconcernsforfamilylifetothe of theNeighbourhoodCafesinLille,whichopenup of responsibilitiesforcarearegivenbytheexample of thepublicand cial innovations.Goodexamplesfortheintertwining functions of the moreimportanttoseehowinnovativeformsand hood communitiesfromsuchaclassification,itisall family relationshipsandratherinformal sector” ofvoluntaryassociationsinsociety,excluding the communitysphereissubsumedundera“third talizing urbanareas.Giventhefactthatquiteoften care services. networks, etc.) community areadimensionofmanyso welfare wherein community sphereandtheirsharing welfare systemswhenthefocusof community component community activationand housing estatesandrevi housing areasunder community isseenas welfare systems. community; neighbour welfare commu- commu- Amster------investment” perspective(EversandGuillemard2012). understanding ofwelfare,inan“activatingsocial and thepossibilitiesofcombiningbothinarenewed dedness ofeconomicandentrepreneurialaction wider tendencyofacknowledgingthesocialembed- (work integration)socialenterprisespointatthe ment. FurthermorethevariousSIsthatoperateas social investmentperspectiveofsocietaldevelop- and privateinvestmentscanbeanalysedinsucha as co-producersandco-decision-makerswithpublic that trytointerweaveactiveparticipationofpeople tion. EspeciallythoseSIs,e.g.inurbanrevitalization, family support,andoccupationalsocialintegra- by-effects ofraisingsocialexpensesoneducation, on futurepromisessuchasthepositiveeconomic ernizing publicwelfarebyanapproachthatisbased the fects. Ontheotherhand,thereisalsoadebateabout of allwithrespecttotheirmeasurableeconomicef- which measuresallsocialactionsandrelationsfirst all spheresandanincreasinglyproductivistattitude, public debateaboutthecreepingeconomisationof welfare systems.Ontheonehand,thereisalively lished concerninthedebatesonprofileoffuture social andeconomiclogicsisamuchbetterestab- Unlike theaforementionedpoint,integrationof welfare) (entrepreneurial action,developmental Integrating economicandsociallogics with the opments. Thetwoexamples ofinnovationslinked are importantstagesforsocially innovativedevel such asenvironmentalpolicies orculturalactivities, that areusuallyexcludedfrom the and likewisesocialinclusion. that countforthe enlarged community actorsinamixed functions andeffectsofmarket,thirdsector ment perspectiveandevenifoneincludesthe concerns forsocialandeconomicpoliciesinaninvest icies. Evenifoneacknowledgestheneedtointegrate its citiesmainlyfromthepointofview analyses problemsof This finalpointisaboutthelimitsofaconceptthat Integrating welfare andurbanpolitics of Life”inVaraždin andthe“Prinzessinnengärten” welfare stateasa“socialinvestmentstate”,mod- urban gardeningmovement—the “Gardens welfare conceptcannotframeallthefields development ofsocialinnovations social cohesioninasocietyand First ofall,policyfields welfare approach,this welfare system, welfare pol- welfare - - 23 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 24 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities down of there arewidespreadcallsforafurtherslimming innovations. Intimesofbankingcrisisandausterity mission putssomuchhopeinthepromotionofsocial ably themosthonestreasonwhyEuropeanCom To “domorewithless”—thisisthebriefest,andprob them today public policiesdealwith innovations to theways From thepotentials of social Part 3:Conclusive remarks: the intersectionof promising bylocalexperts,isinlargepartslocatedat tion ofsocialinnovations,deemedasimportantand social planningareas.Itisnoaccidentthatourcollec planning andabouttheintertwiningofspatial cooperation ofdepartmentssocialandeconomic The programisthusbothabouttheproblem-oriented but notleast, elderly, youngpeople,cultureandrecreationand,last “resource groups”e.g.forthecity tricts in sprogrammet, whichaimsatupliftingseveraldis and socialworkers).Agoodexampleisthe from diversefields and basedonmergingknowledgeprofessionals vention, somethingcompletelynewinlocalplanning link betweenurbantransformationandsocialinter The innovationsconsistinestablishinganessential and urban/spatialplanningcanhardlybeoverlooked. cohesion andinclusionbyinterweaving presented bytheWILCOprojectlookforbetter very factthatmanyoftheinnovationscollectedand the levelofneighbourhoods,citiesorregions.The field ofspatialplanningand politics. Furthermore,thereistheimportantpolicy in Berlin—bothpointattheroleofenvironmental cient remediesfortoday’ssocial challenges.Theycan are conceivedaspossiblythe mosteffectiveandeffi vices, astheywillbeintroduced inthiscompilation, care, etc.).Innovatorywelfarearrangementsandser - productive (expensesforsocial protection,elderly consumptive andprotectiveratherthaninvestive pecially ofthosepartsthelatterthatcanbeseenas Introduction WILCO Malmö (Sweden)throughthecooperationof welfare benefitsandservices,morees labour marketand project welfare andurban (architects, economists,educators development, beitat economic growth. development, the development social welfare Område- social ------welfare, one pensable. When itcomestothefutureofwelfare,one and policiesfor“upscaling”social innovationsisindis- the tensionsbetweengivenpolicies of“welfarereform” ence inthelastdecade.And fourthly, thinkingabout tion inpolicymakingthathas steadilywonmoreinflu- programs thattakeupaninnovationisalineoftradi- change andpreparingreformthroughtime-limited learning insocialandpolicytermsonallsides.Nudging that allowforfailingandbetter,thusenabling programs, pilotschemesandformsofevaluation imposing changeandmoreaboutpreparingitthrough welfare reformscallsforpoliciesthatarelessabout by socialinnovationsandthosechangeresultingfrom the currentgapbetweenchangesbroughtabout out somethingnewanddifferent.Thirdly,narrowing regulations andclaimsonrightsspacesfortrying innovations, andbetweenstandardizeduniform openness forthechangesbroughtaboutbywelfare found betweenaguaranteedlevelofprotectionand equality. Inordertoachieveboth,abalancehasbe and diversitycangetcombinedwithreliability vices,... associations bringingupandrunningallkindofser- cooperatives asearly“socialenterprises”,voluntary of theirown—mutualsinthefieldsocialsecurity, role ininventingandcreatingwelfarearrangements and organisationshavealwaysplayedanimportant When itcomestowelfareprovision,manymovements taken uporrejected,marginalizedmainstreamed. and thewelfarestateasahistoryofsocialinnovations First, using innovationstowardslearningaswellfromthem. ulate furtherthinkingabouthowtomovefromjust In thisvein,fourperspectivesmaynurtureandstim- tentials formutuallearning. to bethoughttogetherandanalyzedconcerningpo Instead, are notavailablesimplyatthepressofabutton stabilization andscalingup) cial innovations’life-cycles the quicktacticsofacrobats”(Celsetal.2012,11). bination of“thedeepstrategieschessmasterswith their fullpotentialrequiresnothinglessthanacom they aretheoppositeofquick-fix-solutions;using of thecasestudiesonlocalsocialinnovationsisthat However, oneofthecentralmessagesourreading emergencies andfailing sometimes asalastresortinsituationsoffinancial be seenasakindofsofarunderratedresourceand welfare it ishelpfultoperceivethehistoryofwelfare , it is crucial to rethink how innovation Secondly, itiscrucialtorethinkhowinnovation welfare politicsandsocialinnovationshave welfare policies. (processes ofemergence, are veryconditionaland . So- - - and Discipline,London:Routledge. Wagner, P.(1994): ford SocialInnovationReview,6(4),pp.36–43. Phills, J.(2008): 1335-1350. that wouldbeking?, policy andpublicservicesdeliveryintheUK:Theword Osborne, St.P./Brown,L.(2011): Innovations 1(2)pp.145-162. Mulgan, G.(2006): New York:Routledge,pp.4-16. (Eds.) Canneigbourhoodssavethecity?,Londonand Moulaert, F./Martinelli,F./Swygedouw,E./González,S. Development. Concepts,TheoriesandChallenges.In Moulaert, F.(2010): NOSERV_0.pdf files/WP3%20Report_Innovative%20practices%20IN available viahttp://www.inno-serv.eu/sites/default/ INNOSERV ProjectSelectionofInnovativePractices, INNOSERV (2012): Citizenship, NewYork:OxfordUniversityPress Evers, A./Guillemard,A.M.(2012): ton: BrookingsInstitutionPress. Strategy andTacticsforSocialInnovation,Washing Cels, S./DeJong,J./Nauta,F.(2012): eu/bepa/pdf/publications_pdf/social_innovation.pdf in TheEuropeanUnion,availableviahttp://ec.europa. Empowering people,drivingchange.SocialInnovation Bureau ofEuropeanPolicyAdvisers(BEPA)(2010): References innovations inservicesandlocalnetworks. and protectionsystemsofsupportingsmall-scale allel processesofdown-buildingbigandbasicwelfare should thinkmoreaboutthenet-balanceofpar- Rediscovering socialinnovation,Stan ASociologyofModernity:Liberty TheProcessofSocialInnovation, Innovative practicesInEurope: Social InnovationandCommunity Public Administration89(4),pp. Innovation,public SocialPolicyand AgentsofChange.

- - - 25 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 26 WILCO project Introduction

Innovative approaches and instruments in the fields of urban revitalization, childcare and work integration

Dimensions of innovation I. Service innovations

Investing in capabilities rather than spotting deficits Preference for open approaches, avoiding targeting and its stigmatizing effects Concern for bridging the gaps between professional services and people‘s life worlds

Service offers that connect otherwise often separated forms of support and access SE Stockholm

SE Malmö Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities

PL Plock

NL Amsterdam

UK Birmingham DE Friedrichshain-Kreuzberg DE Münster UK Medway PL Warsaw NL Nijemegen

FR Lille

CH Bern

FR Nantes IT Brescia

ES Pamplona

ES Barcelona 27

Dimensions of innovation II. Innovations in regulations and rights

Creating flexible forms of ad hoc support Developing offers beyond fixed social andparticipation rights and entitlements Working by kind of “social contracts” with individuals and groups

SE Stockholm

SE Malmö Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities

PL Plock

UK Birmingham DE Münster PL Warsaw NL Nijemegen

FR Lille

HR Varaždin CH Geneva FR Nantes

IT Brescia HR Zagreb

IT Milan

ES Pamplona 28 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Building issue-related Giving newconcernsandgroupsavoiceinthepublicdomain challenges incohesionpolicies Organizing moreintenseformsofpublicdebateandopinion-buildingaroundprior networked ways Fostering unitsandtypesoforganisationthatoperateinmoreembedded III. Innovations ingovernance Dimensions of innovation Introduction WILCO UK ES project Birmingham Pamplona coalitions, partnershipsand ES Barcelona NL Amsterdam networks CH DE Bern Münster IT Milan HR Zagreb PL Plock PL Warsaw 29

Dimensions of innovation IV. Innovations in working and financing

Flexicurity in working contracts; levels of institutionalization and security below traditional standards Different working collectives – professional teams and voluntary commitments as part of the projects and approaches Strong mission profile and a changing professionalism that combines formerly fragmented knowledge Short-term and time-limited funding, combining resources from different stakeholders

SE Stockholm

SE Malmö Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities

PL Plock PL Plock

NL Amsterdam

UK Birmingham UK Birmingham DE Friedrichshain-Kreuzberg DE Münster DE Münster PL Warsaw

FR Lille

CH Bern CH Bern

FR Nantes

HR Zagreb IT Brescia

IT Milan IT Milan

ES Pamplona

ES Barcelona 30 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Integrating Integrating economicandsociallogics(entrepreneurialaction,developmental networks, etc.) Upgrading the Aiming atlessstandardized,morediverseandlocalized Reaching outtoallsectorsof V. Innovations inwelfare systems Dimensions of innovation Introduction WILCO welfare andurbanpolitics UK ES project Birmingham community componentinmixed Pamplona FR Nantes UK Medway ES local welfaresystems;lesserstatefocus Barcelona NL Amsterdam FR Lille NL Nijemegen welfare systems(families,support CH welfare arrangements DE Bern Münster IT Brescia DE Friedrichshain-Kreuzberg SE Malmö welfare) HR Zagreb HR SE Stockholm Varaždin PL Plock PL Warsaw HR Croatia Zagreb

Gojko Bežovan, Jelena Matančević and Danijel Baturina (Faculty of Law, Zagreb) 32 HR Authors Zagreb Gojko Bežovan, Jelena Matančević and Danijel Baturina (Faculty of Law, Zagreb)

Introduction Local background of the social innovations

Keywords: The concept of social innovation, its meaning and understanding is a relatively new approach for all stakeholders, even for the academic community. Child care This concept comes more as a part of Europeanization of social policy, one Community development kind of top-down concept of modernisation of social policy. Social policy Empowerment is mostly centralised and in the hands of the government. In some cases, Participation in particular specific social care programmes, local authorities also have Social entrepreneurship responsibility. Mainstream programmes are implemented in rather bureau- Social investment cratic ways, following certain procedures, with lot of paper work, isolated from other stakeholders in the field and are less sensitive to alternative approaches or partnerships with other stakeholders dealing with same issues. It is evident that these places of policymaking and policy implementation controlled by the state are not places of creativity and innovation. Recent research (Bežovan 2010) on the roles and contribution of local stakeholders in the development of welfare mix states that civil society organisations are more aware than state organisations of the concept of social innovation. Projects in child and elderly care, community development projects and advocacy of the social rights of vulnerable groups are Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities mentioned as spaces of social innovation. Some innovative practices in employment and development of sustainable pension systems might be seen as real social innovations and even best practice. However, to have such best practice status they need “political recognition,” which is very often not a rationale choice. However, concurrence of the country with European Union laws requires legitimacy for social experimentation and social innovation.

Welfare innovations in the three policy fields

The three social innovations presented in this report were chosen based on background interviews with local stakeholders, experts, civil society representatives, practitioners and our own investigations of available resources (newspapers, websites and policy documents). The portraits of the three innovations, introduced by a comprehensive description, are organised alongside three basic themes: 1) types of services and ways of addressing users; 2) internal organisation and modes of working and 3) embeddedness of the project in the local welfare system. The innovations are presented alongside policy fields. The innovations chosen were a social mentoring project for employment of disadvantaged and marginalised groups, CSO RODA – Social Innovation: From Civic Engagement to Social Entrepreneur- ship, and the public rental-housing programme 33 HR Categories VaraždinZagreb Employment

1/77 Social mentoring project for employment of disadvantaged and marginalised groups Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities

1.1 Short description

Within the IV component frame of accession assistance (IPA) “Development of human resources”, the Ministry of Health and Social Care (currently the field is within the Ministry of Social Politics and Youth) implemented the project “Establishing support in social integration and employment of disadvantaged and marginalised groups.” The estimated duration of the project was 22 months, and it commenced in late 2010. The overall objective is to promote social inclusion of long-term unemployed beneficiaries of social assistance through the provision of support for their inclusion in the labour market. The purpose of this project is to develop an approach based on the needs of the users to access the labour market. The project consists of two interrelated components, in accordance with which it wishes: 1) to empower cross-sectorial and inter-agency cooperation in the field of employment and social inclusion; and 2) to improve the quality of services in centres for social care aimed at the inclusion of long-term unemployed to help support the market. The project was connected to JIM (Joint Memorandum on Social Inclusion) and its measures relate to social services and referrals by customising and integrating social services, giving customers choices and improving the quality of professional services in the welfare system. There is observable impact of Europeanization and EU convergence. These changes are intended to modernise the system to be more in line with criteria and standards of the Europe- an Union, and to improve the quality of social services. In addition, previously prepared and tested reform concepts and intellectual potential are seen in other countries, which then are transmitted to Croatia via the influence of foreign stakeholders. Here we find that not only is the project funded by the IPA, but also the core project team is from international consulting and other agencies. Doubts remain as to whether these experts know the Croatian social policy system, values and characteristics of action, and whether they lack contextual elements regarding planning and execution of the programme. We can distinguish between the economic and political aspects of this invention taking into consideration that there is a lack of programmes that help and support social integration and employment of disadvantaged and 34 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities for self- and willingnesstoparticipate infurtheropportunities gain increasedself-confidence andincreasedstrength ployment, trainingorfurther education,whileothers potential. Insomecases,participants progresstoem the labourmarketbyfocusingon theirstrengthsand are themostmarginalisedanddistantfrom social assistance.Thegoalistomotivatepeoplewho or otheractivitiestolong-termunemployedusersof ers thatmightpreventaccesstothe potential structural,personalandworld-viewbarri social mentoring,centresforcarewilladdress skills. Throughtheguidanceofanindividualplanand on feedback,activelistening,etc.,goalsetting)assoft empowerment, empathy,andcommunicationbased relationship, qualityofthecontinuity, of thekeyelementsmentoring(duration individual programmestotheirclientsbyusingsome on theassumptionthatsocialworkerswillprovide is innovativeinourcontext.Themodelbased ment inthe ised groups.Itisdirectedtoenhancetheirinvolve assistance orsociallydisadvantagedandmarginal with long-termunemployedbeneficiariesofsocial it providesanindividualisedapproachtoworking component ofthesocialinclusionprocessbecause al level.Socialmentoringisanextremelyimportant define thefinalmodelthatisapplicableatnation to effectivelyconnecttheoryandpracticeinorder mentoring, appliedtheirknowledgeandexpertise for socialinclusion,inthetestingofmodel and toolsnecessaryforitsimplementation.Mentors related toskillsforsettingupthebasicprinciples Training forsocialservicementoringwasconducted beneficiaries andtheirretentioninthe service insocialworkaimedatlong-termunemployed The goaloftheprojectistoimprovequality addressing users 1.2. Conceptions andways of countries. care systeminlinewithcriteriaandstandardsEU goals oftheproject,whicharetomodernisesocial market. Thepoliticaldimensionoftheactionisin cific socialrisksandisdifficultpositioninthe long-term unemployed,whichisagroupwithspe be stepforwardindealingwithmarginalisedand possible inclusioninthe marginalised groups.Theeconomicaspectistheir Zagreb HR development. Expected resultsarenotonly in labour market.Thatkindofapproach labour market.Thiswill labour market labour market. Employment Categories labour ------focusing on the long-term unemployed. The handbook focusing onthe long-termunemployed.The handbook and successfulimplementation ofsocialmentoring, and informationonthedevelopment,management as atoolforqualifiedworkers providinginstructions oped the“Handbookofself-evaluation”, whichserved worked ontheimplementation oftheprojectdevel- workers encountered.Viathisactivity,expertsthat was todevisesolutionsforthedifficultiesprofessional social mentoringandtheintentionofdiscussion to discusstheexperiencesinrelationmodelof principle of“learningfromcolleagues”(peerlearning) ing. Duringthisphase,twomeetingswereheldonthe that theygainedthrougheducationonsocialmentor- professional work,wereusingskillsandknowledge workers hadchosenseveralpeoplewho,viatheir gone trainingonsocialmentoring.Eachoftheskilled phase modelincludedprofessionalswhohadunder- ed intheinitialphaseofsocialmentoring.Thetesting Testing ofthemodelsocialmentoringwasconduct- was signedbythestakeholdersmentionedabove. have contributedtothedevelopmentofprotocolsthat for socialcareandtheCroatianemploymentservice (now theMinistryofSocialPoliticsandYouth),centres of SocialWelfareMinistryHealthandCare tance.” Inaddition,representativesoftheDirectorate long-term unemployedbeneficiariesofsocialassis- of the“CodeConduct”inprovisionservicesto activities, contributedtothepreparationofdraft the consultation,aswellresultsofimplemented representatives ofcities,counties,etc.).Theresults Croatian EmploymentService,NGOs,socialpartners, of variousinstitutions(centresforsocialcare,the ing groupsinvolvedapproximately20representatives based ontheconsultationprocess.Eachofwork- opment ofmodelssocialmentoringwereformed ment. Eightworkinggroupsnecessaryforthedevel- cooperation inthefieldofsocialinclusionandemploy- order tostrengtheninter-sectorandinter-institutional social inclusionandemploymentwasconductedin Analysis ofthepracticesservicesinfield mode of working 1.3. Internal organization and potential inclusioninthe importance andinsomecasesmaybeasteptowards and increasedsocialbasicskillsareofequal results improvequalityoflife,andfurthereducation of socialexclusionexperiencedbysomeusers,such labour marketactivity.Takingintoaccountthelevel labour market. the programme andothersimilaractivities withinthe of socialmentoringshouldopen theoptiontoextend Awareness ofstakeholderstogether withtheresults sustainability oftheprojectand futurework. partners intheproject.Thisseems importantforthe become rootedinthegeneralpublicbutalsoamongall the expectedresultthatgoalsofthisprojectwould This kindofactionisaimedtohaveawiderimpactwith advocated askeytothepreventionofsocialexclusion. the righttoworkasoneofcitizens’basicrightswas to accessthelabourmarket.Throughacampaign, of sociallyvulnerableandmarginalisedgroupsrelated order forthemtobecomefamiliarwiththeproblems to allprojectstakeholdersandpotentialpartnersin to transmitamessagethegeneralpublic,butalso socially vulnerablegroups.Thecampaignwasdesigned in spreadingawarenessandprovidingsupportfor ners, localcommunities,tobecomeactivelyengaged il societyorganizations,publicinstitutions,socialpart- ginalised groups,suchassocial involved intheintegrationofdisadvantagedandmar- of relevantstakeholders,onlocalandnationallevels, purpose ofthecampaignwastoactivateawiderange to vulnerableandmarginalisedgroups.Moreover,the the issueandtocreateaclimateprovidesupport aimed toraiseawarenessandinformthepublicabout vulnerable groupswasdeveloped.Thecampaign paigns toraisepublicawarenessoftheneeds Within theproject,actionplanformediacam- welfare system 1.4. Interaction withthe from colleagues. customers, learningthroughsupervisionand motivation towork,goodfeelingsindealingwith cially incompliancewithqualitystandards,increased satisfaction withenhancedservicesforusers,espe- because oftheadoptionnewknowledgeandskills; fessionals areincreasedcapabilitiesandself-esteem of potential,andbuildingself-esteem.Benefitsforpro- tions andresults,improvedknowledge,development approach, arealisticassessmentofneeds,possibleac- stated satisfactionwiththeinformalandindividual The socialbenefitsofmentoringfortheusersare basis forfurtherexpansionofthemodel. solutions for contextual problems and providing a firm ing approachbyenhancingthewithnew will helpfuturesustainabilityofthesocialmentor- welfare institutions,civ- local alised groups and theirintegrationintothe beneficiaries orsociallydisadvantaged andmargin individualised approachtothe long-termunemployed of theprocesssocialinclusion becauseitprovides cial mentoringisanextremely importantcomponent aim ofactivatingandmotivatingthemtochange.So partnership betweenprofessionalsanduserswiththe tive modelofworkin approach infuture.Socialmentoringisaninnova ing isespeciallypromisingtowideningtheproject’s groups. Capacitiesandknowledgeofsocialmentor services forlong-termunemployedandmarginalised cities asexampleofcrosscutting principle of providing project hasthepotentialtobetransferableother resources ofstate,municipalandprivatebodies.The ance, whichputstheemphasisonusingavailable community andtostimulatenewformof new kindsof This projectcontributestoandisbasedoncreating multiplication ofadministrationandinfrastructure. resources totheprovisionofservicesratherthan perience thateachpartnerbrings,anddirectingmore encouraging innovationandnewideas,usingtheex improving thequality,effectivenessandefficiency, and tasks:providingqualityservicestomoreusers, networking. Itpromotedthefollowingbasicgoals The projectcreatedanewkindof would strengthenthesocialandeconomiccohesion. mentoring model.Inthelongterm,socialinclusion port fortheirinclusioninthe marginalised groupsthroughtheprovisionofsup eficiaries ofsupport,orsociallydisadvantagedand foster socialinclusionoflong-termunemployedben perts whowouldhaveknowledge,skillsandtoolsto In conclusion,thegoalwastoeducateagroupofex adoption ofitsprinciplesaction. mentoring throughsocialpoliciesandfacilitatethe ing willaffectthefurtherexpansionofaccesstosocial sion andthecreationofamanualforsocialmentor social experts,prospectivementorsforinclu employment.” Providingtrainingforalargergroupof of cooperationinthefieldsocialinclusionand project organisedeightseminarsentitled“Promotion ing tosupportsocialinclusionandemployment,the local levelandpromotethesocialmodelofmentor strengthen cooperationbetweenstakeholdersatthe and solutions”wereorganised.Inaddition,inorderto “Social inclusionofvulnerablegroups-challenges local socialpolicy.Thus,fourpublicforumsentitled partnerships, networksinthe social welfareandinvolvesa labour marketbysocial collaboration and govern- local labour ------35 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 36 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities high expectationsregardingemployment. resources tosupportusersinsomeactivities,and differences betweencounties,thelackoffinancial dened socialworkers,lackof of timeanddifficultworkingconditionsoverbur scaling upoftheproject.Themaindifficultyislack lines). Inaddition,therearesomekeydifficultiesfor documents (laws,regulations,protocolsand system level:creatingacommongroundthroughkey and engaginginaprocessofsocialplanning.Atthe services, coordinationthroughlocal Regarding localcommunities:buildinga work ofmentors)forfutureexpansionthemodel. the toolsandskillsofsocialmentoring,creatinga reorganization ofwork(trainingsocialworkerson programme. Regardingthecentresforsocialcare: There aresomekeychallengesforfutureofthe acquired tools. with adaptationneededtointroduceandusenewly professionals ininstitutionsinvolvedtheproject and qualityofservicesbasedontheirneeds,help the developmentofstrategiestoincreasenumber on theproject.Thetaskofprojectwastosupport tutions asresultofactivitiesandknowledgegained adoption ofnewtoolsandpracticesinCroatianinsti Ultimately, thegoalofprojectwastoensurefull one ofthepriorities of servicequalityandcustomersatisfaction,whichis market. Mentoringisamodelforsocialimprovement Zagreb HR welfare reform. network providers-the partnerships, network of Employment Categories guide net- - - - HR Categories 37 Zagreb Related to all policy fields

2/77 RODA - Parents in action

2.1 Short description

The association RODA - Parents in Action, with its innovative programme of activities was formed in the social Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities space that was previously considered private and perceived as the responsibility of parents in traditional societies and their extended families. The need for such an initiative came with the increase in the number of young families with children, with better education, in a big city (Zagreb), who do not have the support of parents and close relatives and still face the challenge of reconciling professional and family commitments. Initially, the efforts of the association were centred on the protection of vested social rights, but with a lot of volunteer work and enthusiasm, the initiative resulted in multidimensional social change and social innovation. As for family policy in Croatia, it is being manifested mostly through material benefits, such as children’s allowances, tax reliefs and maternity leaves, rather than through provision of services for children. To some extent, this is related to the structure of a traditional family: women used to work less, while relatives and members of extended families used to be on hand. The lack of child care services is particularly evident in large cities, where nurseries and kindergartens often cannot accommodate the children of working parents (Zrinščak 2008). The number of children covered by preschool care has been increasing in the past 20 years and it now amounts to 35 per cent. According to the National Family Policy Strategy (2003), an increase in the number of child care institutions and increase in the number of children covered with organised preschool care and education was one of the priority areas for family policy development. This strategy also proposed measures related to education and training of parents, incentives for implementation of programmes of civil organizations, educational programmes that include education on family, partnership, parenthood, etc. It was pointed out that family policy should therefore contribute to creating a friendly social environment, which would help families solve a variety of problems, first and foremost the ones related to children’s development. The problem of accommodation of children in preschool institutions only occasionally becomes a part of local public debates, as this is a service falls under the scope of local authorities. Rarely have there been cases of protests or highlighting problems in ways that would capture wide public attention. The practice of parents associations and their organised efforts, as beneficiaries to improve the provision of child care services were almost non-existent. The issue of placing children in nurseries and kindergartens in Zagreb would usually appear on the agenda in early autumn only, when some children would be left without a place in kindergarten. Due to the pressure of extensive numbers of unenrolled children, private kindergartens and different forms of informal playrooms were established. 38 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Zagreb HR Related toallpolicyfields Categories housing situation is a limiting factor in the expansion of housing situationisalimiting factorintheexpansionof of familiesfivewholivein apartmentsof26m2.The barely surviving,seekingtheir help:theystatethecases RODA isfamiliarwithproblems ofthemanyparents to thosesimilaryourself.” “When youdonothaveafamilytohelpyou,turn on emotionsandfirstexperienceofparenthood. fection. Thisisakindofattachmentparentingbased that childrenneedtheirparentsandgreateraf paradigm ofparentinginCroatia,promotingtheidea what ofa“unionparents”.Theyhavecreatednew The associationhasgraduallydevelopedintosome and children on breastfeeding,educationandsupporttoparents tions, aswellpromotion,educationandcounselling production, pregnancyandimprovingbirthingcondi and maternityleave,therighttomedicallyassistedre debate ontherighttoadequatematernityallowance RODA hasbecomeanimportantstakeholderinthe that childrenreceiveinchildcareinstitutions. tions, buttheparentscanaffectqualityofservices children. Thechildrendonotbelongtotheinstitu Parents aretheoneswhomakedecisionsabouttheir their publicstatements. networked, whichmakesthemstronganddecisivein for therightsoftheirchildren.Theyarejoinedand empower themandmakebetteradvocates assistance toparents,equipthemwithknowledge, and responsibleparentingthroughdirectsupport for changesinchildcare.RODAencouragesactive recognizable influenceonpublicopinionandlobbied ent cooperationwiththemedia,theyhavemadea children, womenandfamilies.Throughtheirconsist RODA hasimpactedchangesinpublicpoliciesfor By promotingandadvocatingtherightsofchildren, addressing users 2.2. Conceptions andways of leave becamelongerandmoreflexible. maternity allowancewasnotincreasedand to advocatetherightsofparentspersistentlyuntil ed overtheInternet.Theassociationhadcontinued front ofthegovernmentoffice.Thewomenconnect reduction ofmaternityallowanceandprotestedin women withchildren,whoraisedtheirvoicesagainst ed inmid-2001,asaspontaneousreactionofparents, The associationRODA-ParentsinActionwasfound safety intraffic. ------connected products. Since2004,RODAhas been ship projectofsewingandselling clothdiapersand initiatives hasresultedina social Deep involvementofRODA inactiveparenting rely mostlyonvoluntaryengagement ofmembers. ing targetedatchildren.However, activitiesofRODA industries andthecompaniesusingunethicalmarket Breast-milk Substitutes,tobaccoandpharmaceutical that violatetheInternationalCodeofMarketing they decidednottoacceptdonationsfromcompanies allowed tousestoragespacefreeofcharge.Initially, ious kindsofnon-monetaryassistanceandtheyare for Christmascardsandgifts.RODAalsoreceivesvar 100,000 kunatoRODAinsteadofgivingthemoney small-scale donations,whileacompanydonated civil society.Citizenshavebeenparticipatingwith through stateandcityprogrammes,whichsupport The activitiesoftheassociationaremainlyfinanced mode of working 2.3. Internal organisation and event requiresthehelpof40volunteers. by anaverageof800parents.Organisingsucha3-day So far,30saleshavebeenheld,andeachwasvisited ond-hand children’sclothing,shoesandequipment. Four timesayear,RODAorganisessalesofsec tens andonthecityroads. they organisedquicktrafficcontrolsnearkindergar cooperation withthepoliceestablished,insofaras number ofbrochureshavebeenprintedandgood priately. Intheframeworkofthisprogramme,alarge seats, whicharecorrectlyinstalledandusedappro are drivenincarseats,aswelltheportionof tive wastheincreaseinnumberofchildrenwho use ofcarseatsforchildren.Theresulttheinitia parents’ cars,RODAlaunchedaninitiativeforproper Considering thevulnerabilityofchildrenintheir mothers. a strongleverforthe tributed relevantmaterials.Theseactivitiesbecome breastfeeding, aconferenceandprinted,dis phone line.Theyhavealsoorganisedaschoolof advice onbreastfeedingthroughtheir For 8years,RODAhasbeenprovidingsupportand families tocoverdelayedrentpayments. certain constraints.Theassociationhashelpedsome Temporary, 1-yearemploymentcontractsalsopresent families andthedecisiontohavetwoormorechildren. social integrationof entrepreneur- young ------the newchallenges. tions ofasustainablesocial networkreadytotakeon that theothersbelievethem. Thesearesolidfounda- to them-haveafeelingthat theyhelpothersand Advising otherpeopleisacompletely newexperience only aboutgiving,butalsoreceiving toagreatextent. way, theyalsodeveloptheirowncharacter:itisnot and passiontovolunteerhelpothers,inthat of volunteering.Newmembersalwayshavethetime membership inanorganizationandfirstexperience renewal. Thisusuallyreferstothefirstexperienceof community spiritoftheassociationanditsconstant appear, andtheycontributetostrengtheningthe the platformwherenewmemberswithideas forum, whichhasover40,000monthlyvisits.Thisis RODA isknowntothewiderpublicvia reproduction. advocated forarestrictivelawonmedicallyassisted went totheCroatianMinisterofHealthwhohad the visionofassociation.In2011,thisanti-award have beenprominentintheirnegativeapproachto They alsogiveoutakindofanti-awardtothosewho the missionoftheirorganisationwithinsociety. vant stakeholderswhohavecontributedtofulfilling ance, everyyearRODAgivesoutawardstotherele- In ordertostrengthenitsmissionandpublicaccept- social change. embedded insocietyandisthevoiceofadvocacyfor Croatian citiesandtowns.Now,itisastrong have organisedvariousactivitiesinmorethan50 RODA has12branchesthroughoutCroatiaandthey tion ofclothdiapers. lished alimitedliabilitycompanyforfurtherproduc- the organization.Theassociationhasrecentlyestab- are reinvestedinthebusinessandcoreactivitiesof expands andcreatesnewjobs.Theprofitsgenerated ble, itbringsprofittotheassociation,developsand working there.Socialentrepreneurshipissustaina- al HighSchoolinVaraždinandthereare56women production facilitiesareestablishedwithinVocation- ploy personsareinvolvedintheproduction.The safe forchildren,whiledisabledanddifficult-to-em- product madefromnaturalmaterials,healthyand associations. Whatismanufacturedahigh-quality set anexampleofsocial With theirproductionofclothdiapers,RODAhas tion, andin2006,theylaunchedthewholeventure. more environmentallyfriendlyandcheapersolu- promoting theuseofclothdiapersasahealthier, entrepreneurship among network 39 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 40 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities especially theonespracticing volunteerwork.Inthat values aresharedbyallmembers oftheassociation, Adequate levelsoftrustandpromotednorms their accommodationanddiet. improves thequalityofprogrammesforchildren, recognizable stakeholderinthefamilypolicy,which public speechandstatements,RODAhasbecomea cally alwayshasacertainresonance.Throughsuch in onewayortheother.Whatisannouncedpubli about it–thosewhoprovideserviceswillhearthem If theyseekchanges,havetospeakpublically them; theydonotprotest,wereraisedtoobey. remain silentaboutthingsthatbotherordisturb RODA operatesinasocietywheretoomanypeople group amongpoliticiansasthe“opposition”. issue intermsofgovernanceandperceptionthis included, ifitmeets theirinterest. happy tocomeunder theumbrellaofpoliticalparties,this association care, somestakeholdershaveseenthat 1 However, incaseofdiscussiononincrease ofpricesforchildrenday- interest intheirwork approached theassociationorexpresseddirect Interestingly enough,noneofthepoliticianshas women isfeltintheassociation. need intheirlives.Thestrengthandsubstanceofthe or similarvalues.Thisisasupportthatmanypeople ship inthe to predict.Wearetalkingaboutasenseofmember the future.Itissimplydynamicsthataredifficult this issomethingthatwillbeinterestingtofollowin RODA keepschangingasthechildrengrowupand the associationareintertwined.Asanassociation, term results.Thesetwoprocessesandprioritiesin activities arehardertoseeandtheyprovidelong- tangible andrecognizableresults.However,advocacy visible throughtheprovisionofservices:thereare The dynamicsof with thistopic. dren’s allowance,sotheassociationisnotconcerned well-off, middleclass,andnoneofthemreceiveschil The factisthatthesearethepersonswhoquite of others. are acceptedandrespectedtheyenjoysupport builds trustandtheatmosphereinwhichmembers jects belongtotheassociation,whilevolunteerwork members ofanyassociationsbefore.Ideasandpro- members -95percentofthemhaveneverbeen is managedlikeahousehold,withbetter-educated The mainorganisingprincipleisthattheassociation Zagreb HR network inwhichwomensharethesame social innovationhereremains 1 . Itmightbeseenasacritical civil societyorganizationsare Related toallpolicyfields Categories - - - welfare system 2.4. Interaction withthe in thiscase,itcanbeclearlystatedthat is neitherreadinessnorneedforvolunteerwork.So ment suchaprogrammeinthesecountries,asthere other cities.However,ithasbeenimpossibletoimple tions inSouthEastEurope,Sarajevo,Belgradeand RODA haspassedtheirknowledgetotheorganisa social cohesioningeneralpublic. a frameworkforsocialinnovationthatstrengthens and thespaceoffewgovernmentservices.Itwas visible inanareathatusedtobetheofprivacy association andbeyond.Inthiscase,socialchangeis has beenmade,asabasisfor way, thecontributionto 2 In that time, it was strong opposition to the Mayor in the city assembly an incometestbasishasnotbeenaccepted proposal ofincreasingthecostforsuchserviceson tested (income,property,etc.).Withsuchimpact,the the Committeeconcludedthatitshouldbemeans parents ontheincometestbasis,theyinsisted,and es in Zagreb. Instead of paying the cost of services for and Sportwiththetopicofpricesforchildcareservic- ise aspecialsessionoftheCommitteeforEducation tions, theyhavepressedcityadministrationtoorgan- policy inZagreb.Inpartnershipwithotherorganisa- practice ofmakingandimplementationchildcare of socialservicesforchildren,hadanimpactonthe RODA, aswell-knownstakeholdersandadvocates their interests. work ofcitizensmakingefforttoprotectandpromote vation emergedfromcivilengagementandvolunteer general publicgotthesense oftheimportance the mediawerecoveringall debates andevents,the public and,specifically,tousers ofsocialservices.As local welfaresystemmorevibrant andresponsiveto structure ofthe parents havebecomeavisiblepartofthe After RODA’sactions, service improvement. gradually theyarewitnessingaprocessofquality they areverymuchrespectedasastakeholderand tional programmes.Inrepresentingusersofservices, kindergartens, qualityoffoodforchildrenandeduca- of childcareservicesintermsspaceper Also, RODAputontheagendaquestionofquality local welfaresystemanditmadethe civil societyorganisationsof social capitalmultiplication social innovationinthe local social inno governance 2 . civil - - - 41

society organisations and, in this case, of self-organised mothers. This case, for the first time, opened debate on public issues where citizens have vested interests and show strengths of civil organisation to address public issues and to influence policy process. With this experience, a new culture of communication of the city with civil society organisations might be seen. Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 42 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities not organisedin veys, vulnerablesocialgroups(youngfamilies,singlehouseholds, internalmigrants,elderly,divorcedpeople)are that officialsfrompublicadministrationfailtounderstandandtrusttheimportanceofsocialinnovation.Civilsoci of housingneedsandtheneedforaffordablerental written inregulationsorpolicyprogrammes,beforesomeonestartswithnewinitiative. skills. Publicpoliciesinfactarenotplacesforrealinnovation,becauseofcognitivebarriers-everythingshouldbe leave officesofpublicadministrationandsetup circumstances, thereis“policywithathousandnewstarts”,andcreativeprofessionalsareveryoftenforcedto to officetheychangeprofessionalstaff,andpolicyprogrammeswithoutdebatesoranalysis.In such wondered whythere wasnosuchpressurefromcivilorganisations toinvestmoneyinaffordable rental 6 As acuriosity,onemajorrecentlystated that having morechildren. four-member familyofyounggenerations liveinaflatof26m2.Affordabilityiscrucialproblemforyoungfamilies anditisaseriousobstacleforthem 5 In thesurveyofaWILCOprojectmember of 4 Bežovan, G.(2010)Achievementsand challengesof ernisation and 3 The problemsoflimitationsstateadministrationarerecognised,forCroatia andothertransitionalcountries,asseriousobstaclesforfurthermod Although the Housing policy,asaspacefor relevant policyarea.Inaddition,theconceptofgoodpracticeisnotrecognisedaspartpossible agenda. not easyforcivilsocietyorganisationstoproducevisibleinnovationthat mayreceivethestatusofgoodpracticein and ideas.However,publicofficialsareoftensuspiciousoftherangeusefulnesssuchinnovations.Thus,itis ety organisationsaremoreawareoftheimportancesocialinnovationandtheyhaveproducedsuchprojects A recentsurvey governments orthenewmajorsdonotrespectingachievementsofprevious ical evidenceoranalysesrelatedtothetopic(Bežovan2008).Overlast20years,practiceisthatnew made viaatop-downapproach,oftenwithpoliticalconnotations(politicalwill)andlackofrespectforempir Public policiesandreformsinthepublicsector,ondifferentlevelofstateadministration,arepredominantly 3.1 Shortdescription Public rental 3 Zagreb HR development /77 housing crisisisevidentinlargerurbanareasandempirically documentedasresultsofdifferentsur 4 , carriedoutamongrelevantstakeholdersforlocalsocial civil societyorganisations social innovation,isdecentralised,fragmentedandleftto localpoliticians’will. civil societyorganisations,RODAdocumented howtheirmembersliveinterrible civil societyorganisationspressurised himintoinvestingmoneyinashelterforabandoneddogs,buthe welfare mix Neighbourhood revitalization/Housing Categories 5 . Besidesthat,there arenoadvocacyorganisationsaddressing priority housing programme civil societyorganisationstoconfirmtheircreativityandinnovative development, (inCroatian)Zagreb:CERANEO. housing 6 . Recently,acivicorganisationaddressingfamilyvio welfare programmes implementation, stated welfare programmesimplementation,stated housing, asarealpriority. 3 . Whentheycome housing conditions,a - - - - - 43

lence influenced by-law regulation. Victims of family 3.2 Conceptions and ways of violence are on the priority list for social housing. However, lack of affordable rentinghousing is ceter- addressing users um censeo of very rear public debates. The majority of This innovation is entitled to young households, age 7 these debates are in different internet forums . up to 35 years, with more kids who are sub-tenants Publicly debated Strategy of Housing Policy in the City on the private rental market (that market is mostly not of Zagreb (2006) with well-documented issues of the regulated at all) or living together with larger family lack of affordable rental housing for the people from but in unfavourable housing conditions. In different younger generations, with the required level of political ways users suffered because of housing conditions. will, supported by professionals outside the city admin- In cases of sub-tenant status, they are in a position to istration and capacity of administration in the city were rent small and often poor-quality flats for very high driving forces of this innovation. This social innovation prices. For a flat of 30-40 m2 they pay rent of about 240 originates from pressing social needs and its potential is euros, whereas via the innovation 240 euros could pay in the idea that innovation is implemented and driven by for an 80 m2 flat. As they do not have contracts, they housing needs and recognised by different stakeholders. cannot register their permanent residence. Permanent

Recent housing needs assessment for the city of residence is a pre-requisite for obtaining a place in kindergarten. Households with such unstable tenures Zagreb (Bežovan 2012) again stresses the vulnerability are at risk of moving and, so, if they cannot find other of young families and single people. These popula- affordable flats in the neighbourhood, they are forced tions are not eligible to receive housing loans and they to change schools. These households are at risk of not are exposed to uncontrolled housing rental, which is being in a position to plan their life. In different aspects marked where they cannot afford decent housing. mentioned experiences in meeting housing needs made Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Processes of drafting and putting the innovation these families a prototype of socially excluded peoples. on the agenda were examples of transparent pol- Young families living with their parents or with other icymaking processes. A draft of the public rental members of families, often three generations of a fam- programme has been presented to the public via a ily living together and sharing a small flat, are at risks press conference with additional explanation in radio of conflict in such large households. All family mem- programmes to contact of possible users. Public bers suffer from the lack of space and need for privacy. debate lasted for 15 days and interested citizens were in position to give the comments, to ask questions Within this innovation, users selected via a public call or to give proposals for improvement of the draft of for application, get a contract for 5 years with the pos- the programme. All inputs have been analysed and sibility to extend it. They pay less for the rent than on publicly commented on by the policymakers and it the private rental market and they have very decent, gave additional legitimacy to this innovative housing large enough flats in newly built neighbourhoods. In programme. Comments made by the citizens have these cases, their quality of life is visibly improved been built into the final version of the programme, and they are in a position to plan their lives. In meet- which was framed in a proposal to the City Assembly. ing the needs of such users, it is visible how housing, as the fundamental determinant of people’s welfare, Process of decision making of the programme in City plays a crucial role in strengthening social integration Assembly was followed by lively debate. Representa- and social cohesion. Here, decent housing can ensure tives of different parties agreed about the importance participation of people in community life. of the programme, to finally address housing issues, and to meet the needs of young households. Remarks This type of service is new and bridges the gap be- of oppositional party were more formal and directed tween residual social rental housing and the unreg- to some legal issues related to the ownership of flats, ulated housing market with the solution to avoid which will be distributed in this programme. unaffordable flats. This service empowers young families and gives them more opportunities to take 7 An example of this debate addressing pressing housing needs says about housing deprivation “I live with my folks in 40 square metres and active citizenship and to create careers. my younger teenage brother and I have had it! On top of it all, a cousin from Dalmatia came to stay with us for a month to attend a college This innovation produces different types of tangible preparation course… we all almost ended up killing each other…” http:// services, visibly serving earlier politically unrecognised www.kupiprodaj.net/forum/showthread.php?t=838 44 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities and, infact,guaranteesregularpaymentofrent families wherethemotherandfatherareemployed income inZagreb.Thiscriteriongivesadvantageto hold mustbeatleast30percentoftheaverage household member.Thelevelofincomeperhouse give evidencethattheyhavereasonableincomeper for thisrentalprogrammeisthathouseholdsmust One importantcriterionforapplicantstobeeligible tion ofthisinnovationto cities. Empiricalevidenceonsocialreturn:contribu crucial forreapplicationoftheprogrammetoother ic” blursandlearningfromthisinnovationshouldbe groups. Theboundarybetween“social”and“econom Here socialinnovationinvolvesvulnerable of tenantsinthispublic rental outcomes ofthisinnovation,asurvey willbecarriedoutonthesample 10 Inside theWILCOproject,forpurpose offurtherunderstanding programme eligibleforpublicrental scaling-up as part of the learning process, making the situations, thisissuemightbecritical for to coverincreasing crisis mightbeaproblem,astheyare noteligiblefor government officialsseethatsomefamiliesthreatenedwithrecent 9 Now thereare558familiesastenantsinhisprogrammeand problem forowners. communal fee).Besidesthat,internalmaintenanceinsocialflatsisa rent andothercostsrelatedto 8 Tenants in welfare system measure, areakindofinnovationinthelocalsocial condition. Suchdownpayments,asapedagogical they willpayrentregularlyandkeeptheflatingood and theymakeadownpaymenttoguaranteethat tioned criteriacanapply.Tenantsmakeacontract and allfamilieswhoareeligibleaccordingtomen- public rentalhousingprogrammeisverytransparent housing stock.Theprocessofgettingtenantsinthe and localcitycompaniesresponsibleformanaging the responsibilitiesinofficesoflocalgovernment Internal organisationoftheinnovationispart mode of working 3.3. Internal organisation and and toseewaysimproveit. There areseveralreasonstoevaluatethisinnovation sustainable andeconomicallyefficient. Also, empiricalevidencesaysthatthisinnovationis new cultureofresponsibletenants tractual relationshipswiththepotentialtodevelopa needs, where,insteadofsocialrights,therearecon cohesion shouldbethetopicoffutureresearch Zagreb HR social housing costs.Incasesofworsening economic housing programmeveryoftenarenotwillingtopay 8 . housing programme. housing (electricity,gas,heating,water, social integrationand housing tenants. sustainability innovationor . housing allowance, housing allowance Neighbourhood revitalization/Housing Categories social 10 local 9 . . - - - - in this with poorpeopleasavulnerablepopulation.Here, local welfaresystemwhereofficialsusedtodealonly Public rentalprogrammebroughtanewspiritof welfare system 3.4 Interaction withthe not ontheagenda. social marketingofthisinnovation,unfortunately,are in the such circumstances,markedwithpoliticalconflicts this programmelessvisibletointerestedpublic.In responsible formanagingthehousing cations forthisprogrammeandlocalcitycompanies ernment officesresponsibleformakingcallofappli Lack ofcoordinationbetweenactivities tion inothercities. time being,stoppedre-implementation ofthisinnova many fiscalcapacitiesofCroatian citiesand,forthe administration). Theeconomiccrisishasinfluenced vices (schools,healthandsocialservices,police,local professionals whoshouldbeemployedinpublicser a programme,theyseepossibilitiestoattractyoung investment incompetentlabourforce,andwithsuch of othercitiesperceivepublicrentalhousingas come themodelforothercities.Mayorsandofficials Besides that,thisinnovationshowsitscapacitytobe agenda oflocalsocialpolicy. cooperation ofdifferentlocalstakeholdersonthe Also, thisinnovationputtheissuesofplanningand and experimentation. system andprovidesmorespacefor be amilestoneinprocessofreforming modern andresponsive.Definitely,thisprojectmight the localwelfaresystemandhasmadethemmore innovation, thisprogrammehasgivenanewfaceto social needsofvulnerablepopulations.Asavisible the newroleof path-breaking inthefragmentedhousing The publicrentalhousing gramme orparticipationinits ers, donothaveanyformofinfluenceonthepro build settlementswithsocialrentersandhomeown near future. investment programmewithveryviablereturnsinthe governance ofthecity,publicitystrategiesor social innovation,thereisthesenseofa For thetimebeing,tenantssharingnewly local governmentaddressingvisible programme isacaseof development. social innovation local stock makes local welfare sector and local gov- social an ------ety andcivic is particularlytrueintheircooperation with of newsolutionsandsupporting newgoodideas.This policy, demonstratesopenness forthe City administration,particularly intheareaofsocial ity ofthelocalauthority. the resultofpoliticalwillandprofessionalcapac- generations, infactisinnovationthathascomeas crisis markedwithaffordabilityissuesforyounger as acontributiontowelfarepluralisminthehousing Innovation regardingthepublicrentalprogramme, a senseofpotential generations ofsocialservicesproducedhereprovide vation isabottom-up social enterprise.Itshouldbestressedthattheinno in termsofcreatingastrong initiative providesevidenceofdevelopmentalcapacity come co-governorinthechildcaresystem to understandandaddresssocialproblemsbe RODA’s innovationsshowthecapacityof ble andtracesoftheprojectarenotvisible. the communityoflocalstakeholderswasquestiona dedness ofthisinnovation,withtop-downlegacy,in and remainingmostlyinprofessionalcircles.Embed institutional infrastructure,fullyfundedbyEUmoney comes asatransferofinnovationplacedinexisting come. Innovationin are verydifferentinnature,andinitiationout The presentedsocialinnovationsinthecityofZagreb politicians canacceptonpublicagenda. city administrationbringmorepositivechangethan respective localstakeholderswithprofessionalsfrom rationale choice.Itmightbeimportanttostressthat need “politicalrecognition,”whichisveryoftennota tice. However,tohavesuchbestpracticestatusthey seen asarealsocialinnovationandevenbestprac- development ofsustainablepensionsystemsmightbe Zagreb. Someinnovativepracticesinemploymentand ing oftheconcept.Itisacompletelynewconceptin creative, theydonotexpressasufficientunderstand- greb. Althoughsomeofthemarequiteinnovativeand ment arepoorlyrecognisedamongstakeholdersinZa- innovation asadriverofchangeandfurtherdevelop- holders, evenfortheacademiccommunity.Social derstanding isarelativelynewapproachforallstake- The conceptofsocialinnovation,itsmeaningandun- Conclusions initiatives wheretheyhavebuilt certain labour marketsocialmentoring welfare mixsystem. development. Besidesthat,new network andsetting-up development civil society . Thecivic civil soci------stakeholders in public administrationand innovations, relyingonthecapacityandsupportof stability andopportunitiesforsustainablesocial in theseareaswouldcertainlyhelptoincreasethe for applyingEUfundssuchprojects.Actions unrecognised. Inaddition,thereisanopportunity the involvementofprivatesector,whichisasyet in management ormarketingskillsofpeopleinvolved to generateinterest.Thatmaydemandincreased action and/orraisepublicattentionandawareness to thecitygovernmentusefulnessofthiskind of socialinnovation,itwouldbenecessarilytoshow ily financial,fromtheEU.Forfurther developed, fosteredbysupport,whichwillbeprimar new frameworkofthinkingand mentation andsocialinnovations.Weexpectsome pean Unionprovides Nevertheless, accessionofthecountytoEuro systems andthe cial importanceforthemodernizationof in localauthoritiesandpublicsectorsmightbeofcru Investment inknowledgeandskillsofthoseemployed rather long-lastingprocess. capital fromthe ble onlyonthe looks tobelessproductivewithoutcomesonlytangi zens inlargecitiesarenotsovisibleandcivicenergy to beamoredemandinganddifficultprocess.Citi stakeholders andfacilitationofsocialchangeappears cities (Varaždin).Inthatsense,mobilisationoflocal and engagedcitizensarelessvisiblethatinsmaller In largercities(Zagreb),civic level arestarvedof social careandemploymentprogrammesonthelocal Parallelism ofgovernmentalandlocalauthorityin mental programmesofsocialcareandemployment. system, thechallengeiscoordinationwithgovern partnerships. Forthetimebeing,in social innovationprojects.Thereisalsospacefor neighbourhood level.“Bringing” local welfaresystems. neighbourhood tothecitylevelisa development ofsocialinnovations. social innovation. legitimacy forsocialexperi social capitalamongallof initiatives forpublicgood initiatives tobe sustainability local welfare local welfare social ------45 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 46 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities (2003) Državni zavodzazaštituobitelji,materinstvaimladeži fakultet. Puljiz etal.SocijlnapolitikaHrvatske.Zagreb:Pravni Zrinščak, S.(2008) Zagrebu. Zagreb:CERANEO. Bežovan, G.(2012) CERANEO. of Bežovan, G.(2010)Achievementsandchallenges – 2011.Revijazasocijalnupolitiku,15:257-268. Programu VladeRepublikeHrvatskezamandat2008 Bežovan, G.(2008)Analizamjerasocijalnepolitikeu Bibliography ske. Zagreb. welfare mixdevelopment(inCroatian)Zagreb: Zagreb HR NacionalnaobiteljskapolitikaRepublikeHrvat Obiteljskapolitka,(279-336),inV. Procjenastambenihpotrebaugradu Neighbourhood revitalization/Housing Categories - HR Croatia Varazdin

Gojko Bežovan, Jelena Matančević and Danijel Baturina (Faculty of Law, Zagreb) 48 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Welfare innovations inthethreepolicyfields Social investment Social capital Partnerships Participation Network Empowerment Keywords: Local background of thesocialinnovations Introduction Varaždin HR innovative practices. tion intheEUfundingschemes,supportsworkofCSOsandpromotes activities andprojects,itstrengthensinter-sectorcooperation, important stakeholderintheabove-mentionedCSIresearch.Throughits regional developmentoftheVaraždinregion.Itwasalsorecognisedasan Development agency“North”seemstohaveanimportantroleinsocialand ipation intheEUpre-accessionprogrammesfor Varaždin county,togetherwithIstriawasatthattimeleading which isalsoacharacteristicofits an “entrepreneurial Civicus CivilSocietyIndex(CSI)research2008-2010inCroatiaidentified and consequently,socialchange. good practice.Inthisrespect,CSOsareimportantcarriersofnew (such as national cooperationofCSOs.Thisassumesmorebroadcivicmovements society. Importantincentiveshavealsocomefromabroad,throughinter The economiccrisisseemstohavetriggeredtheinnovativepotentialof ic cooperationwith over thelastcoupleofyearsposeathreatto ent projects.However,politicalturbulenceandchangestopowerstructures tives formcivilsociety.Theyalsoinitiate The localgovernmenthasalsobecomemoreresponsiveandopento actions. However,somethinkthatitisstillinitsearlystageofdevelopment. isations. Thoseareasareexamplesofsystematicwork,insteadadhoc organisations oftheretired,environmentalandhealthorgan- civil societyimpactareorganisationsforchildren,professionalorganisations, number, andhavegainedagrowingpolicyrole.Someofrecognisableareas the lastdecade,civilsocietyorganisationshavegrownrespectablyintheir 2000. Before,civilsocietywasarathermarginalphenomenon.However,over The roleandrecognitionofcivilsocietyinVaraždinhasstrengthenedsince project inthe internal organisationandmodes ofworkingand3)embeddednessthe three basicthemes:1)types ofservicesandwaysaddressingusers;2) tions, introducedbyacomprehensivedescription,areorganised alongside (newspapers, websites,policydocuments).Theportraits ofthefourinnova sentatives, practitionersandourowninvestigationsofavailable resources background interviewswithlocalstakeholders,experts, The foursocialinnovationspresentedinthisreportwere chosenbasedon Second Chance, GardensoflifeandNon-profit side policyfields.Theinnovations chosenwerePublicworksVaraždin,Her (Faculty ofLaw,Zagreb) Gojko Bežovan,JelenaMatančevićandDanijelBaturina Authors urban gardening)aswellparticularcooperationandtransferof local welfaresystem.Theinnovations arepresentedalong civil societyanditsrolein orientation”, recognisableinVaraždinandtheregion, civil societyorganisations.Accordingly, partnerships withCSOsondiffer governance. housing organisation. civil society. development ofsystemat civil societyrepre- participa- initiatives partic- initia- civil - - - - - 49 HR Categories Varaždin Employment

4/77 Public works Varaždin

4.1 Short description

In the frame of “National Plan for Employment for 2009 and 2010”, Regional Office Varaždin in cooperation with Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities units of local government and NGOs started a public works programme. The scheme continued to operate in 2011-2013. District Employment Office Varaždin in 2009 planned to include 41 people in the public works program, but given the great interest for public works in Varaždin County, 109 people were employed. It was planned that in 2010 the public works programme would include 66 people, but given the great interest of local self-government and high-quality programme of public works in the Varaždin County employed 165 persons1. In the framework of the Public Works Employment Office, people who listed in the records as unemployed for 6 or 12 months were co-financed to 75 per cent of the gross minimum wage and people who were unemployed for more than 36 months minimum were funded 100 per cent of the minimum gross wages and received travel expenses to a maximum of 40 euros per month. People mainly worked on reconstructing and maintaining the municipal infrastructure, green areas and the welfare of the elderly. Social innovation in public work involves a new approach for the long-term unemployed where they are stimulated and their sense of purpose is raised by participating in the programme. Although, as a measure of activation, public works are established in Croatia and therefore cannot be considered innovative in Varaždin, they have achieved significant success in implementation and have a mode of operating that can be considered innovative. They were able to overcome the negative attitudes of users for participation in this type of activation. They continuously increased the number of users who reported satisfaction in participation in the project. Also beside the classical modalities of public works in community work and public utility works, there was another part of the public works called “individual projects.” It enabled cooperation with civil society organisations, which aim to provide support for the development and action of projects that will affect the local social system. In addition, innovation is at the organisation level in the new constellation of stakeholders that helped facilitate the programme. Thus, besides the public companies project has the support of local politics. It is adequately represented by the media. Increased interest of the private sector was noticed and cooperation with civil society organisations was set to a new level by making them active stakeholders in the project. This innovation has an element of a top-down approach. It is part of the National Active Employment Policy measures, which has the goal of motivating long-term unemployed people. In the public works programmes, employ-

1 These are data for Varaždin County. It is relevant to show the scope of the programme as it is a unique operating principle and CES Varaždin is conducting the programme not only in Varaždin but all counties because it is their operating area. Distinct data for the city of Varaždin are shown later in the text. 50 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities people withdisabilities asgoodworkers. the programmeandworkers; theyespeciallynoted particularly noted.Employers wereverysatisfiedwith women whohavebeentrained attheRedCrosswas the elderly,wherework of long-termunemployed nance ofgreenareas,especiallyinthecaretaking achieved positiveresultsindealingwiththemainte satisfied withtheprogrammeandallofthemhave cities andmunicipalities.Almostallemployeeswere ployed inpublicworksisimmeasurablewealthfor process agreethattheinclusionoflong-termunem of employees,alcohol,etc.)peopleinvolvedinthe minor problemsinthework(duetoreducedability may nothavebeenperformed.Althoughtherewere these peopleperformthosetasksthatotherwise sider thisformofemploymentveryusefulbecause and gainednewfriends unemployment, theywereusefultothe because theybegantoworkagainafterlong-term of expertsfromtheCES,satisfactionwasobserved For peopleinvolvedintheprogramme,opinion addressing users 4.2. Conceptions andways of mented andenhancedatthelocallevel. has shownthatanationalprogrammecanbeimple icant success,asrecognitionoftheproject’ssuccess their stakeholders.Atthislevel,Varaždinhadsignif Varaždin, workingtogetherwithlocalpoliticsand active cooperationwiththelocalsocialsystemof In addition,theprojectprovedtobesuccessfulin market, particularlyinlocalcommunities. programmes toactivatethosegroupsinthe in localcommunities.Thereisaconsiderablelackof of inactiveandbarelyemployablepeople,especially innovation istheattempttoovercomeproblem improve itsframework.Theeconomicdimensionof new elementstotheprogramme,andexpand ing theproject,butalsoinwaytheyintroduce evident byintheiroff-chartcapacitiesimplement employment serviceinVaraždin,whichisnotonly Here ishighlightedthespecialroleoflocal they mayhavelostduetolong-termunemployment. tivation, workhabitsandtoacquirecompetenciesthat inclusion andtoaffecttheirlevelofemployability,mo- encouraged. Thesharedgoalistopromotetheirsocial other groupsthataredisadvantagedinthemarketis ment andactivationoflong-termunemployed Varaždin HR . Municipalitiesandcitiescon community Employment Categories labour ------and attitudesinthe Varaždin, theyrecogniseditashelpfulandopinions considered somewhatshamefulorunworthywork.In about Varaždin. Usersofpublicworkstendtohavereserves reason fortheirfailure,hasbeenovercomeincaseof ated withpublicworksprogrammes,whichcanbea project haveincreased,andthestigmaoftenassoci We findthatdesiretoparticipateinthiskindof useful. Thisisanextremelypositiveaspect cialisation, andtheyrealisethatareinsomeway noticed indealingwiththem,thereisacertainre-so is particularlyimportantforpublicworks,whatwe degree ofsocialisationhavehappened.Asstated:“It preformed work,butalsothrough Not onlydotheyrecognisevaluesoftheeffects Public workshaveaffectedusersinapositiveway. People haverealisedthatpublicworksareuseful. participate. Wehaveexperiencedtheboomofinterest. them inpublicworks....Noweverybodywouldliketo people andliterally dragged themby the sleevetoengage nicipalities, mayorsofmunicipalitieshavehadtoengage like that.EvenoutsideofVaraždininsomesmallermu- say whentheysawthemcleaningthetownorsomething they wereworriedwhatpeoplewouldthinkand ment. Theywerethinkinginthestyleofasmalltown, Certain prejudiceexistedagainstthistypeofengage As fortheimpactonusers,theywereinitiallysceptical. As oneofCESrepresentativessaid, pation inthattypeof 2 CES representative programme for4 with CESRegionalOfficeVaraždin, isconductingthis for employment.Thecityof Varaždin, in of work,increasestheiremployability andmotivation improves thefinancialsituationofpeoplewhoareout is unprofitableanduncompetitiveinthelocalmarket, employment participation.Workonthatprogramme works isoneofthemeasuresthataimstoincrease partners andrepresentativesof measures foractivationincoordinationwithsocial the bearersof ment, thestateand In thecreationofanationalplantoboostemploy mode of working 4.3. Internal organisation and participation intheworkbecauseitmaybe labour marketpolicies,developed th yearinarow.Programmepar - local communitytowards public administration,whoare activation havechanged. civil society.Public activation, acertain collaboration 2 ” partici- - - - - *1 EUR=around7,5HRK Table 1.Number of participants inpublicWorks inVaraždin 2008-2012 YEAR 2008 2009 2010 2011 2012 All All % Persons 0 0 9 5 19 33 100% Man 0 0 9 3 13 25 75,76 % Women 0 0 0 2 6 8 24,24 % Funds inHRK* 0 0 176.466,92 79.981,41 281.080,61 537528,94 51

We find that desire to participate in this kind of Table 1. Number of participants in public Works in Varaždin 2008-2012 project have increased, and the stigma often associated with public works programmes, which can be a YEAR Persons Man Women Funds in HRK* reason for their failure, has been overcome in case of 2008 0 0 0 0 Varaždin. Users of public works tend to have reserves 2009 0 0 0 0 about participation in the work because it may be considered somewhat shameful or unworthy work. In 2010 9 9 0 176.466,92 Varaždin, they recognised it as helpful and opinions 2011 5 3 2 79.981,41 and attitudes in the local community towards partici- 2012 19 13 6 281.080,61 pation in that type of activation have changed. All 33 25 8 537528,94 As one of CES representatives said, All % 100% 75,76 % 24,24 % As for the impact on users, they were initially sceptical. Certain prejudice existed against this type of engage- *1 EUR = around 7,5 HRK ment. They were thinking in the style of a small town, they were worried what people would think and would say when they saw them cleaning the town or something like that. Even outside of Varaždin in some smaller mu- ticipants have been working for various employees shifts in the collaboration of CES Varaždin with civil nicipalities, mayors of municipalities have had to engage groups, Varkom, the Muscular Dystrophy Association, society organisations in developing and implementing people and literally dragged them by the sleeve to engage the disabled and children’s cerebral palsy and other various projects. them in public works.... Now everybody would like to physical disabilities associations, in a home for victims participate. We have experienced the boom of interest. of domestic violence, “St Nicholas” Varaždin and 4.4. Interaction with the local People have realised that public works are useful. others. The programme is usually applied to the less welfare system Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Public works have affected users in a positive way. employable and long-term unemployed and people Not only do they recognise values of the effects of the seeking to enter the labour market because they have It is shown that in the implementation of public preformed work, but also through activation, a certain lost certain knowledge and skills due to their long- works, CES Varaždin established good coordination degree of socialisation have happened. As stated: “It term unemployment. Public works and programmes with all relevant stakeholders in the local social sys- is particularly important for public works, what we like this are an ideal opportunity for these people to tem from local politics, public administration and civil noticed in dealing with them, there is a certain re-so- return to the labour market, for them to gain money, society organisations to end users. cialisation, and they realise that they are in some way but also to return the confidence to people that they As one of the users said5: 2 are useful to society. useful. This is an extremely positive aspect ” Responses to the programme were excellent, cooper- There are three distinct segments of public works. ation with all stakeholders is at the highest level. Not 4.3. Internal organisation and The first segment is a socially useful work. It is orient- only with the CES, but even with the police and family mode of working ed towards the employment of persons in humanitar- centres. Here you can see an example of proactive work ian-type services in local units. First, we have the envi- in the community. Public Works ... in this form are very In the creation of a national plan to boost employ- ronmental groups and various associations that help flexible, provide a certain freedom in action. We have ment, the state and public administration, who are people in one or another form. Another type is the good communication with CES. I think that in this case, 3 the bearers of labour market policies, developed municipal public works . There is not much interest in the basics are well placed so something like this can take measures for activation in coordination with social that kind of works. In fact, there is the problem that place and continue. partners and representatives of civil society. Public employers must keep the person engaged in public works is one of the measures that aims to increase works for twice the duration of the project after their That good cooperation is shown in implementing employment participation. Work on that programme engagement through public works is finished4. The public works and various project within it, but the CES is unprofitable and uncompetitive in the local market, third type of public works is the so-called “Individual representative is shows some doubts about the inten- improves the financial situation of people who are out projects”. They are also mostly realised in socially tions of some of the stakeholders “City is interested of work, increases their employability and motivation useful areas. They are intended for civil society organ- in these projects, but they were interested in politics for employment. The city of Varaždin, in collaboration isations and institutions. They are significant positive also and, therefore, in certain situations they get in- with CES Regional Office Varaždin, is conducting this volved and support this only to be photographed for programme for 4th year in a row. Programme par- 3 Often in jobs like cleaning the city or public areas. a PR and many do not have real interest” 4 For example, after 6 months working in public works they must engage them in another 6 months on personal expenses and that is not 5 He is one of the users in “Individual projects section of the public 2 CES representative economically acceptable for the vast majority. works”. 52 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities doing somethingusefulandmeaningful. the backshouldalsobegiventothembecausetheyare think thatinthesesituations,andgeneral,thewind they haveshownthatcanbeofgreatbenefit.SoI Public Worksprovideduswiththewindatourbacks,and As oneoftheuserssaid, local welfaresystem. their innovativeorganisationandimmersioninthe producing positiveinfluencesonsysteminholewith they arereshapingthemodesofoperatingand have animpactontheirre-socialisation.Inaddition, purpose ofpublicworksin encouraging their of lifethelong-termunemployedinthisareaand succeed intheirprogrammeimprovingthequality programme withthehopethattheywillcontinueto The participantsarepreparinganewpublicworks municipalities, NGOs,publicandprivatecompanies. thanks tothegoodcooperationofall-CES,city, Varaždin achievedandareachievingpositiveresults The conclusionisthatthePublicWorksinCityof 6 CES representative. impact, especiallyintheareaof importance ofthistypeengagement.Weseethe our bossoftengoestocontrolandtriesconveythe works andgotoseehowtheyaredoing.Moreover, community. WeatCESoftenvisitandcontrolpublic We canseetheimpactofpublicworksin influence thatithasontheusers. the scopeofprojecteveryyearandpositive and supportbyallstakeholdersalsowidening on the However, atthesametime,thereisapositiveimpact a reality have moreandinterest.Onecansaythatthisis and moreorganisationswithwhomwework can realisecertainthings.Everyyearwehavemore to themthat,inthepublicworksprogramme,they tions. Theycertainlydousefulthings.Itmeansalot Varaždin HR local welfaresystemregardingcooperation 6 . activation. Theyarefulfillingthe activation oftheusersand civil societyorganisa Employment Categories local - 53 HR Categories Varaždin Employment

5/77 Her Second Chance

5.1 Short description

The Croatian Employment Office has developed a grant scheme “Women in the Labour Market” within the Oper- Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities ational Programme “Human Resources Development”, financed by IV. Component of Accession Assistance (IPA). Projects funded through this grant scheme are designed to include in the labour market those women who are faced with special difficulties in employment, such as long-term unemployed women, unemployed women aged 40-65 years, unemployed single mothers, unemployed Roma women, unemployed women belonging to ethnic minorities and working women that are inactive. Project activities include participation in programmes of personal development and education tailored to individual needs, strengthening the motivation for participation in educational programmes and employment programmes, and providing psycho-social support. Development Agency North has applied the project “Her Second Chance” in partnership with the City of Varaždin, Varaždin Open University and the regional office of the CES Varaždin. The value of the approved project to Devel- opment Agency North is 118,058.56 euros. The very composition of the project stakeholders emerged as a new network of hybrid cooperation between stakeholders from different sectors. Here we have a city government that provides support for the project and demonstrates the political will for this type of project to take place in the city. The main organiser was the development agency North, which has considerable capacity for developing projects in the Varaždin area. They specialise in innovative projects, which they operate in the meso-environment of the Varaždin County. Stakeholders were also from the spheres of education and training. Open public college provided education services. In addition to supporting organisations that participated in the preparation and realisation of the project, CES District Office was also involved as a representative of a centralised national organisation, which is responsible for active employment policies. Already from the structure of the stakeholders we can see, given the size of the city, that a new type of project network has developed that includes local stakeholders and national institutions, development agencies and educational institutions. The project aims to improve the socioeconomic conditions of disadvantaged women in the Varaždin County through their empowerment, training and development of business skills. Through the establishment of associations of women, they will seek to encourage them to actively seek work. The Association provides assistance in finding a jobs, raises awareness among members about the opportunities offered in thelabour market and will provide a focal point for information exchange between women job seekers and potential employers. Social innovation in this case is a new form of organisation that was founded from the programme, especially regarding their 54 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities edge andcompetencies tocompetefornew jobs.In occupations. Womenreceived additionalknowl conducted inwhichwomen were educatedforseveral For thepurposeofcapacity building, trainingwas addressing users 5.2. Conceptions andways of the realisationofproject. local authoritieswhohaveprovedwillingtohelpin of EUbutalsoinrecognizingtheneedsandsupport as amediatingfactor,whichisdirectedbyIPAfunds of theactionisrealizingprojectthroughCES ticularly inlocalcommunities.Thepoliticaldimension activate andassistwomeninthe nities. Thereisconsiderablelackofprogrammesto of femaleunemployment,especiallyinlocalcommu of innovationistheattempttoovercomeproblem cal aspectsofthisinvention.Theeconomicdimension We candistinguishbetweentheeconomicandpoliti ment area. development offurtheractivitiesinwomen’semploy themselves, andcanraiseeffectiveincentivesforthe association thatisguidedandcontrolledbytheusers after thetrainingandcapacitybuilding,turnedintoan is bottom-upbecausethesecondpartofproject, opened upcertainsectorstoinnovate.Butinnovation that isspecificallyallocatedinsomeareasandthus is somewhatraisedbythe scheme andmediationofCESshowsthatinnovation tom-up approaches.TheIPAhaslaunchedagrant This innovationhaselementsoftop-downandbot and capacities. new projects,increaseofpersonalandgroupabilities for activationandinteractioninthe ment situationbutalsoprovidesnewopportunities sociation providesthemsupportinadifficultemploy ships withpeoplewhoareinsimilarpositions.Theas in the and acquirenewskillsmakingthemmorecompetitive group inthe up tonowontheground.Womenasadisadvantaged vices thatareclearlydifferentfromwhichexisted type oforganisationiscreated,withnewformsser will enhancetheirchancesforemployment.Anew groups inthe way ofself-organisationonethedisfavoured of marginalisedwomen.Thisisseenasaninnovative knowledge andcapacityindealingwiththeproblems Varaždin HR labour market,butarealsoprovidedrelation labour marketdidnotonlygettraining labour marketwiththeconceptthatit guidelines ofEUfunding labour market,par- development of Employment Categories ------chances for capacitybuildingandraisingthe ment, innovationandusefulnessoftheprogramme training, quotesthatillustrateelementsof ship.” Herearesomethoughtsaboutthefirstusers computer skills”and“FundamentalsofEntrepreneur were includedintheeducationsessionson“Basic most participants;133beneficiariesoftheproject of programmebeneficiaries.Initialtrainingincluded project toeffectivelyandadequatelymeettheneeds tion wasobtainedthatenabledmodificationofthe of theprogramme.Bydoingthis,valuableinforma motivation ofwomentoparticipateinvariousaspects addition, researchwasundertakentoevaluatethe competitive inthe acquired newprofessionsthat madethemmore and desserts.Overtime,63 beneficiaries successfully matic plants,accountants,and cooksofsimpledishes gramme forbusiness–growerofmedicinalandaro Also 48membershavepassedthetrainingpro given anewtitle,whichisenteredinworkbooklet. become certifiednurses(15beneficiaries),andwere training. Theyattendedthetrainingprogrammeto ties. Beneficiariesoftheprojectreceivedadditional ing womentoactivelyworkwithintheircommuni attention isfocusedonempoweringandencourag the training/workshopongendersensitivity.Special The project’sparticipantswerealsoinvolvedwith port theachievementofwomeninsimilarsituations. and unity,whichshowsthattheprojectaimstosup employment. Thereisalsoanelementoffriendship and starttobelieveintheirabilitieschancesfor with alackofconfidencemaybecomemoreconfident project andtrainingforwomeninVaraždin.Women participants’ thoughtsaboutthevisibleimpactof These quotationsweresingledoutasindicatorsofthe employment. possible fromthis-opportunitiesthatwillleadustothe From educationtothenextproject,Iexpectasmuch later comeinhandyemploymentandlifegeneral. Lots ofgoodtopicsandactivitieswerecoveredthatwill participation intheproject” what weweredoing.NowIammorethansatisfiedwith will I’llfinishthis?”,butafterwebecamefamiliarwith ing inmyhead,“Icannotdothis,whatamIdoinghere, of computer”.Itwasalmost,well,terrible.Ikeptrepeat The firstdaywestartedwithaworkshop“Fundamentals 7 Quotes werefound onworkshopsreportswebpage ofassociation 7 . labour market.Besideseducation, labour market empower------55

users were addressed in new way by providing to tion with national and international organisations and them association that arise from this project and their institutions whose primary goal is employment and interest for self-organisation in local community to self-employment of women. Social innovation in this develop women capacities and enhance their chances case is a new form of organisation that was founded on labour market. from the programme, especially their knowledge and capacity in dealing with problems of marginalised 5.3. Internal organisation and women. Self-organisation of one of disfavoured group mode of working in the labour market is an innovative concept that will enhance their chances for employment and ensure Innovative capacity is shown in the transformation of continuing of the work on that goal. the project in which the association is still involved in They employed two people in office, to establish a education in order to increase its capacity and took central point in a small town where the women can proactive action in their environment. For this pur- go, get information, have support and will continue pose, they have participated in courses on “Marketing to implement projects. Unfortunately, after the first and management of non-profit organisations” as well period, they did not manage to get funds to continue as the 5-day workshops that helped stakeholders to with the employment. As one of the members said understand the importance of the associations. This So it was planned that our salaries were funded for 3 showed orientation on further development and months. Unfortunately, no more than that. In this period, progress, taking the necessary steps to establish asso- we should provide some form of self-financing or contin- ciations to be adequately prepared and competitive ue without employed persons only on a voluntary basis. in their work. Their awareness of future challenges It was of course a short period of time and it seems to and opportunities for action in the EU funds and

me that it was not really thought what objectively could Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities synergic performance networking are included in the be done in the 3 months period. workshop on “Networking and the development of regional partnerships.” After they have completed the They did not manage to get funds for salaries due to theoretical and practical parts of training on the pro- the difficult economic situation during the economies ject Civil Society Organisation “Her Second Chance” crisis, but also due to their relative inexperience in (H2C) was established on 10 June 2011. The estab- developing new projects. They now operate on vol- lishment of the civil society organisation is foreseen untary basis but they continue with the relative scope as one of the required activities within the project. of the activities. As their member said: “My opinion Initially, H2C had 124 members8. A couple of months is that it is not necessary that someone is employed later the Office of H2C began with the work. It was at the association, but we must have enthusiasm anticipated that the office would apply for tenders to and desire. For a while that stagnated. Now some attract funding, perform office administrative tasks, new members have joined and a new president who and carry out a partnership with civil society organ- has the desire and knowledge”. They lost some of isations, local and regional self-government bodies, the members over time and now they have 26 active businesses and other organisations. The aim of the members. Many more women are in some way asso- association is to support the rights of unemployed ciated with the organisation. Some of the women stop women through the implementation of their own and being members when they become employed, some other programmes/projects, in order to raise their of them just lose interest. Nevertheless, the associa- competitiveness in seeking and obtaining employ- tion is in communication and open to larger numbers ment. Activities are addressed in order to achieve the of non-members9. following objectives: exchange information and experiences, creation and implementation of joint programmes and public initiatives related to the topic of employment and self-employment of women, promotion of employment and self-employment of women through formal and informal education, and coopera- 9 As president of H2C stated: “As they eventually got employed they exited the Association but we are still contact with them. They come back to us when they feel the need and when they are not pleased with 8 Peek membership numbers were seen soon after that when the asso- the current work and with our support they want to change or improve ciation counted 140 members. their working environment“ 56 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 10 H2C member “Association holdsustogetherinsomeway” for allwomen.Assaidbytheirprominentmember improving conditionsofemploymentopportunities or indirectlybyactingonthemicroenvironmentand projects, whichwouldbringjobopportunitiesdirectly tunities foremploymentandthe where theycanturnforsupport,toincreaseoppor other partnersinallareas.Womenhaveanewplace space fordialogue,cooperationand petitive inthe and strengtheningthecapacityofwomentobecom gramme willnotneglectfurtherworkonencouraging emerged asaguaranteethattheendofpro objectives forthetargetgroupofwomen.Ithas established guaranteesthe completion oftheproject,organisationthatwas Sustainability onthe similar events. and mostimportanteventinVaraždinother on of satisfiedbeneficiariesinvolvedinprojectbutalso environment. Theyoperatedthroughwordofmouth They wereparticularlyactivelypresentedinthelocal the specificperspectiveofwomenin pant whoadvocateswomen’s derived fromtheprojecthasbecomeanewpartici for newprojects.Inaddition,anassociationthatwas further cooperation,facilitationofworkandsupport est ofthepublicandmadecontactsthatusefulfor efforts, includingestablishinggoals,raisedtheinter thematically relevant.Theyachievedvisibilityfortheir in variousconferencesandroundtablesthatwere of women,memberstheassociationparticipated with keystakeholdersinvolvedintheemployment To ensurefuturevisibilityandeffective welfare system 5.4. Interaction withthe alised women for newwaysofdealingwith theproblemsofmargin programme, especiallytheir knowledgeandcapacity form oforganisationthatwas foundedfromthe In conclusion active politicsofemployment. holders inthepartof ernment andbecomeoneoftheimportantstake They showedthecapacitytoconnectwith Varaždin HR participation Špancirfest,whichisthemostvisited , socialinnovationinthiscaseisanew . Themainresultisself-organisation of labour market.Alsoitopensupnew local welfaresystem:Afterthe welfare systemdealingwith sustainability ofproject empowerment andto activation ofnew networking with local networking community. Employment Categories local gov- 10 . ------achieving theirgoals. organised womenandtheircontinueseffortstowards term sustainabilitydependsoncapacitiesofthe users infieldofwomen’s changed modesofoperationandwaysaddressing to othercitiesasexampleoflocalinitiativethathas consideration, ithasthepotentialtobetransferable innovative capacityatthelocallevel.Takingthatinto certainly adecentralisedattempttocreatenewand distinguishable. Nevertheless,wecansaythatthisis on theemploymentsystemasawholeisnotclearly the impactofnewformsorganisationthistype the assemblywithdemocraticprinciples.Fornow, order toletusersdecideonthefuturework Management styleitiscompletelydecentralisedin dominant aspectoftheworkandactivitiesculture. and association,proactivecommunitiesbecomethe centralised programmes,throughself-organisation it reliesonnewworkculture.Unlikemostprevious approach carriesthepotentialforinnovationbecause ment opportunitiesforwomeninVaraždin.Suchan their skillsandalsotocreatepossibilitiesforemploy not onlytoeducatebutempowerwomen,increase ers themselves,theprojectactivitiesweregenerated dressing usersbecauseitwasdevelopedfromtheus chances foremployment.Thisisanewwayofad with aninnovativeconceptthatwillenhancetheir one ofthedisfavouredgroupsin unemployment. Itslong- labour market - - - 57 HR Categories Varaždin EmploymentRelated to all policy fields

6/77 Gardens of life

6.1 Short description

“Gardens of life” is a project that started in 2011, and which was initiated by the CSO network “Green network,” and Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities delivered in cooperation with Development agency “North”, City of Varaždin and the City Market Varaždin. The project was targeted at the socially vulnerable population in Varaždin, users of social assistance of the City of Varaždin, tenants in social housing and unemployed, with the goal of improving their quality of life and income conditions. Although the project was primarily targeted at the users of the City’s welfare measures, it was not restricted to them only, and other socially disadvantaged citizens could apply too. The idea was that users of welfare measures grow their own vegetables on public land (of the City of Varaždin). The expected benefits were twofold: this way they produce their own food and thus save on their budget (with the possibility to sell surplus on the marketplace), and at the same time, they increase their self-esteem and are empowered to influence their own life circumstances. In addition, the project aims to raise awareness among citizens on environmental protection and sustainable development, including food production for one’s own needs in an organic manner. The City of Varaždin gave its land, on the outskirts of the city, to their disposal. It spreads over 9,000 m2, which was then divided into 40-50 smaller parts, with the prospect of widening the space. At the moment, there are approximately 60 users of the Gardens. The Gardens are located in the city district Hraščica, a rather segregated city area due to the social housing stocks that are near the gardens. The City of Varaždin made a list of users of the land, based on the call for interest. The users have a right to use the land as long as they continuously work on it. The City Market assures that users can sell their surplus on the marketplace. The “Green network” organised free workshops for all interested participants in the project on how to grow vegetables in an organic and biodynamic manner. “Gardens of life” is seen as innovative practice of dealing with social exclusion, emerged from the local initiative, but is also innovative in terms of new modes of cooperation between the local government, public company and civil society organisation. The initiators of the project recognise it as innovative in a sense that the City put the land to their disposal free of charge, which was formerly rented on the market and was not oriented towards civil society and community. Sec- ondly, in this way the community is oriented towards changes, learning and activity. On an individual level, it aims to empower socially vulnerable citizens in order to become independent and pursue self-employment. 58 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities for among 308nominated)for an internationalaward selected forthesecondround (asoneof35projects, in Croatia,andtheywererecently nominatedand from highest donationinthecategoryforinnovations success sinceitwaslaunched.Itawardedthe them withthepublicland.Theprojecthashadgreat tion withthelocalgovernment,whichalsoprovided association (Gredica)andthenengagedincoopera- tive, comingfromthecitizenswhofirstorganised to the“Gardensoflife”,thiswasabottom-upinitia- ries, typesofusersandvaluebaselines.Incontrast as noted,theseprojectshavehaddifferenttrajecto- projects intermsofgeneralideaandpartlygoals, Even thoughtherearesimilaritiesbetweenthetwo their socio-economicconditions. ed atthegeneralpopulationinVaraždin,regardlessof “Gardens oflife”,theproject“Magicgardens”istarget- their ownfoodinanorganicmanner.Incontrasttothe shared commonvaluesandtheideaofproduction this initiativecamefromthecitizensthemselves,who spired bytheglobalurbangardeningmovement,butin As wellasthe“Gardensoflife”project,itwasalsoin- promotion ofsustainablelivinginVaraždin. gardens”, initiatedby“Gredica”–anassociationforthe similar projectemergedayearlater,called“Magic Apart fromthe“Gardensoflife”project,another Varaždin HR social innovation “SocialMarie – Preis für Sociale In - Zagrebačka banka,oneofthebiggestbanks Employment Categories from Vienna. novation”, awardedbytheUnruheprivatefoundation be sustained. gardening andthus,thebenefits oftheprojectwould the projectisformallyover, users willcontinuewith tainability. Itwasforeseenthat withtime,andafter the projecthadafirmbasis fromitsinceptionfor gardening andself-advocating.Withthelandassured, in ordertobecomeengaged,responsible,skilled organised trainingandforemost,toempoweredusers the incentive,assuredresources(landandfacilities), The ideaoftheprojectwasthatpartnersprovided was newdailyoccupationforthem. could beevensaidthey“foundthemselves”init,this ed. Theprojecthasindisputablyactivatedtheusers,it shown bythepotentialuserswashigherthanexpect there wasgoodresponsetotheproject.Theinterest would notbewillingtoparticipateinsuchproject, suspicion showedbythecityofficialsthatusers receive assistancefromtheCity.Contrarytoinitial fare measures,wheretheywouldnotonlyexpectto project wasactivatingapproachtotheusersof the initiatorofproject,ideapursuedby As statedbytherepresentativeofGreen addressing users 6.2.Concepts of andways of network, wel- sus- - 59

Therefore, it was on the users to take over the project is recognised as a good example of self-help. coordination of the project follow-ups and continue This innovation has made the users feel economically work independently. The coordinators were not to safer, strengthened, they can produce food for them- supervise the users in the later phases. However, they selves. They themselves report great benefits from offered them further support in terms of legal advice, the project, foremost in terms of improving financial training, etc. They advised the users to form associa- situation. As one user states, his gardens is his life. He tions or cooperatives, so they could self-employ and is long-term unemployed, and due to his age (over 60) further improve their socio-economic position, but he can be considered difficult to employ. His wife is also strengthen their advocacy position. In addition, retired, and their total income is low. Another user is the City market offered them a bench on the market, retired, and she still has a bank loan to pay off. Food aprons with their logo, which would make them rec- they grow in their gardens brings savings to their ognisable. However, this was found to be difficult to budgets, but they are moreover interested in selling implement. The users were not interested in forming surpluses on the market in order to further improve associations and thus, reach greater scope and value their budgets. of the project. Food growth was simply a sufficient Although the project was primarily aimed at users of goal for them. Furthermore, there was a lack of cohe- local welfare measures, there was a great interest, if sion among the users; they were not used to cooper- not greater, showed by other citizens who are eco- ation. Some users showed a certain level of distrust nomically deprived, also eligible to the land. As some toward others. As some representatives of users users state, those who are on welfare are frequently state, not all of users deserve to get the land, as some not interested in such a project, as they get assistance of them were not seriously interested in gardening. and are not willing to participate. Instead, according to them, those places should be given to those who would really be engaged in gar- Generally, the project was conceived in a way that it Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities dening. Some users cooperate, help and socialise with results in empowerment of users and their activation. others on individual level; they have built benches It moreover counts on changing the attitude of users, and common facilities for having time together, but in a sense that they need to offer something in order there is a general lack of strategic cooperation and to expect to receive – “give something to the com- action towards common goals. However, it seems that munity, and you will get something back from it”. As some were inspired by the “Magic gardens” project such, it was a top-down initiative, from experts and and their results, and they are becoming more aware with the support coming from the politics, but it can of the importance of associating. be said that the approach of the project coordinators to the users was not based on power relations and The users do not have a representative or leader instructions. They provided continuous support to the of the group. As the representative of the project users, rather than supervision and control. It was on initiators state, they should continue to work with the the users to carry the project further on. However, users so that they become a “good community”. If this concept failed in a way, as it was shown that they they were a more cohesive community and oriented lacked human and moreover social capital to sustain toward each other, that would have produced added and further develop the initiative. To a certain extent, values. As one of the users stated, “poverty is not a they still seek the leadership from the “top”, which lack of material resources, but poverty in people’s limits the scope and potential of the project. souls”. They are often still envy each other. Users respond very positively to the activities organised for them, such as training, and in these examples results are visible. However, reaching tangible results assumes continuous work with the users; they expect strong leadership. Notwithstanding, results in terms of activation of users are noticeable. The users express content and are proud of their achievements. As the results of their work (food production) are seen as short term, the users were motivated. The 60 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities engaged; theydonatedwoodtobuildtoolstorage. horse clubnearbyprovidedmanure.Forestersalso farmer voluntarilyploughedthelandforthem,anda which theorganiserscoordinated.Forexample,one relied onvoluntaryworkandhelpfromtheothers, Besides theformalpartnersinproject,itheavily successful. to buildagreenhouse,buttheproposalwasnot applied foradditionalfundsonatender“Idemo”, The CityMarketandDevelopmentAgencyNorthalso Support comingfromthemediawasalsogreat. users gettheinformationaboutcallforinterest. media whenitwaslaunched,sothatmorepotential (former) mayor,whopromotedtheprojectin the ideaandengagedinproject,including When initiatingtheproject,allpartnersembraced which increasedtheirskillsandknowledge. sions fortheusersongardeningandpermaculture, coordinators hadorganisednumeroustrainingses they couldselltheirsurplus.Duringtheproject, ganizing thatusersgetabenchonthemarketwhere pumps). Citymarketwasfurtherresponsibleforor land andtoassurethewateringsystem(twowater owners oftheland,hadfirsttasktoparcelout project. TheCityofVaraždinandthemarket,as held numerousmeetingsduringcoordinationofthe management oftheprojectashorizontal.Theyhave Market. Theinitiatorsdescribethecooperationand Varaždin, DevelopmentalAgency“North”andtheCity partnership withotherlocalstakeholders–theCityof tor oftheideaforproject,whichwasdeliveredin The networkofCSOs“Green ployment andloweringpurchasingpower. ther triggeredbythecircumstancesofrising the other hand, has unused land resources. It was fur- have nopossibilityofgrowingfood,andthecity,on projects andcommunities.Citizensinurbanareas The projectwasinspiredbyforeign modes of working 6.3.Internal organisation and Varaždin HR network” wastheinitia urban gardening Employment Categories unem- - - - private businessforeconomic prices. spaces forlowerrent,which wereearlierrentedto economic crisis,thelocalgovernmentofferCSOs free atic work,insteadofadhoc actions. Also,duetothe organisations. Thoseareasare examplesofsystem- of retired,environmentalorganisationsandhealth children, professionalorganisations,organisations areas ofcivilsocietyimpactareorganisationsfor its earlystageof bly inthisperiod.However,somefindthatitisstill number ofregisteredCSOshasincreasedmostnota and hasbecomeimportantpolicystakeholder.The Varaždin andtheregionhasdevelopedsignificantly Generally, fromthe2000onwards, space foracknowledgementofparticularlifestyles. environmental policyareintermeshing,alsoopening where spheresof activation, self-help,mutualhelpandcohesion, have toagreaterextentpromotedthepracticeof a generalcultureof Both projectshavealsohadanimpactonchanging puts itsresourcesinfunctionofpublicgood. is seenasanewtrend,wherethe second exampleoftheproject“Magicgardens”.This model, seen as good practice, was also followed in the (users) aregivenfreeresourcesattheirdisposal.This care ofandmaintainunusedland,wherecitizens local governmentisremoveditsobligationtotake erty andresources.Itisseenas“win-win”model:the of anewpracticemanagementthecity’sprop The projectfurthergaveincentivetostrengthening in Varaždin. a wayintroducednewmovementofurbangardening nised andsupportedbythelocalgovernment,in examples ofinnovativeinitiatives,whichwererecog- in thewelfaresystemasawhole.Theyarebothgood comparable incertainaspectstermsofinnovation which followedthe“Gardensoflife”,andis tem. Thisisevidentintheprojectof“Magicgardens”, up-scaling andinstitutionalisationinthewelfaresys- from ernance andcooperation,wheretheinitiativecame is assessedasagoodexampleofhorizontalgov- mental impactonthewidergovernancesystem.It It isnoticeablethatthisprojecthasmadeanincre- welfare system 6.4. Interaction withthe civil societynetwork,withaviablepotentialfor development. Someofrecognisable welfare policy,urbanplanning, welfare systeminVaraždin;they local government civil societyin local - - 61

The local government has also become more re- tion for a common goal, their entrepreneurial skills, sponsive and open to initiatives form civil society. and is characterised by a high level of social capital They also initiate partnerships to CSOs on projects. among them. As the representative of Green network However, political turbulence and changes in power illustrated, “one can even feel the difference in the structures over last couple of years pose a threat to atmosphere between the two gardens; whereas in the development of systematic cooperation with civil the ‘Gardens of life’ users are more inclined to mutual society and its role in governance. criticism, in the “Magic gardens” one can feel the spirit Varaždin was shown to be receptive to the urban of community”. gardening movement. This is an example of good cooperation between initiators of such projects and the local government. Generally, civil society and citizens’ engagement seems to have strengthened over last decade in Varaždin. Civil society organisations in certain fields have become stakeholders in policymaking. On the other hand, unstable political structures results in unfavourable environment for building systematic relations to civil society. The “Gardens of life” project is seen innovative in several aspects. First, it introduced new or unconventional type of activity – gardening – into the welfare system, thus breaking traditional borders between different policies and systems. Secondly, it has pro- Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities moted and put into practice to a greater extent the principles of activation, self-help and promoted the value of “community” in peoples’ well-being. Third- ly, the project has contributed to strengthening the practice of horizontal governance, openness in policymaking and mobilisation of voluntary contribution. Not least, both described projects have contributed to changing the culture of management of public good, and to a certain extent, the mindsets of citizens about public good and public spaces as something they are entitled to. The two projects well illustrate the differences in their scopes and achievements, as one was a top-down, and the other a bottom-up initiative. It can be said that social capital plays a crucial role and is a key explanatory factor for the projects’ outcomes and success. “Gardens of life”, being a top-down initiative coming from experts to users (socially excluded citizens), developed successfully; however, it reached limitations for its further development and sustainability. Such a top-down initiative, albeit resulting in notable improvements of well-being and in activation and empowerment of users, seems to have lacked crucial prerequisites for its further development: cohesion and trust among users and their entrepreneurial orientation. On the other hand, the “Magic gardens” project was the result of citizen mobilisa- 62 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities responsive, activeandopenfortheimplementationofnew The departmentofcityadministrationinVaraždin,which dealswithurbanisationand part oftheprofessionalknowledgeon professionals inthecountrylearnedaboutimportance ofnon-profitorganisationsandthatconcepthasbeen of institutionalarrangementinthefield pectations thatthemarketwillresolveall From thattime,thecityhasbeenrecognisedasactivestakeholderin implement thispolicymeasureof investment in housing stocktosettingtenants.Fromthat meet housingneedshasdisappeared.Inthattime,theywereresponsibilityoflocaladministrationtosellpublic profoundly. Housingpolicyasaclearresponsibilityofdifferentlevelsstateadministrationhelpingpeopleto Institutional arrangementfor 7.1. Shortdescription:context Non-profit 7 The government, facedwithoperationalissues onthelocallevel,changed thelegislationforimplementation efficiency, effectiveness and requestsforimplementationofsubsidiarityprinciple(Bežovan 2008;Tepuš2005). From theverybeginning, centralisedPOSprogrammehasbeenexposedtoserious criticismintermsof gramme isopenforsocialrental programmes,butinitiativeshouldcomefromlocal authorities. programme helpingpeople from youngergenerationstobuytheirfirstflatunder favourable conditions.Thepro partners intheimplementationofPOS mented housingprogrammesforvictimsofthewar.Also,from verybeginning,theybecameoneofthebest western countrieshasbeenseenasadirectionofmodernisation of During the1990s,technicalassistanceofferedin dismantling processinthefieldof ernment stoppedtaxincentivesfor partnership withthecitywasofcrucialimportanceforsuccessthis existed inVaraždinthebeginningof1990swithremithelpingpeopletobuytheirfirsthomes.Astable tions andbeingopentolearnfromforeignexperience.TheHousing Varaždin HR /77 social housing.CityofVaraždinwasonethefirstincountrywithprofessionalcapacityto housing policyatthelocallevel,afterpoliticalturmoilin1990,hasbeenchanged social housingconstruction. housing. housing cooperativesasnon-profitorganisationsanditwasthelastpartof housing organisation housing policy. housing problemswerebigobstaclestoacceptoffered modernisation Neighbourhood revitalization/Housing Categories housing. However,alsoimportantforthisinnovationwas thatseveral housing programme,whichstartedasatop-downandcentralised privatisation ofpublic development ofnon-profit initiatives. Inthe1990s,theydevelopedandimple housing stock,partoffundshouldbeusedfor housing policy.Lackofpoliticalwillandex cooperative, asanon-profitorganisation, housing policylookingforinnovativesolu housing housing organisationsfrom cooperative. In1993,thegov housing issues,wasvery - - - - - 63

of the POS housing programme and recommended Groups of vulnerable families from social renting the concept of setting up of local non-profit housing programmes received decent housing through com- organisations at the city level. As a result of profes- peting procedures on the waiting list. As it was started sional legacy from previous times, one of the first before in the assessment of social housing needs, such organisations in the country was been created more and more families are forced to look for this in the city of Varaždin 2004 under the name “Gradski solution because of the economic crisis. This part of stanovi”11 (City flats). Here, in fact, circumstances the programme inside the non-profit organisation is a of crisis of top-down programme implementation real challenge in different ways. Thesehousing units provided the opportunity for innovation and mobi- are owned by the city and the non-profit organisation lisation of local resources and for putting housing is responsible for management and maintenance. on the local agenda. A non-profit organisation is in Also, there is a problem regarding segregation of position to assess housing needs of different popula- these social housing blocks. The non-profit organi- tions and to make a plan for housing investment. sation here is in charge to control tenants as users The recent financial crisis also influenced the imple- than to help their integration in the community. The mentation of this programme, and there were more low level of rent in social renting housing is under the housing units waiting for the first buyers but the control of the government, and is critical for the sus- obstacles for them were financial capacity to get loans tainability of this tenure; thus, for the larger impact of from the banks. In such situations local government, this innovation. being aware of crisis of local housing market, with The new group of users, and this is the core part of about 200 newly built housing units unsold, provid- the social innovation in this organisation, are tenants ed legislation and created the programme of public in the public rental programme. This programme is housing renting. Therefore, unsold housing units entitled to young households, with more children and Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities from the POS programme are available for renting. who are sub-tenants on the non-regulated private In this case, crisis on the housing market opened the rental market or living together with wider family but space and provide legitimacy for social innovation. in unfavourable housing conditions. These families, From other side, the supply of private rental flats, because of unviable housing situations, are in fact mostly “black” market, are in hands of local politicians prototype socially excluded peoples. They cannot af- and well-off families. These owners were very strong ford housing loans to buy decent housing and are not opposition to the programme of public rental housing eligible for social rental housing. In this innovation, construction. users selected via public calls for application, receive a contract for 3 years with the possibility to extend it. Related to the context, the crucial fact for emergence They pay less for the rent than on the private rental and development of this innovation is the level of market and they have very decent, sufficiently large local social capital, visible level of trust of the profes- enough flats in newly built neighbourhoods. The sional capacity of people in non-profit organisations, intention of this programme is to sell flats to tenants which contributed to the creation of fertile soil for and in cases where they decide to buy these units, 80 social change. per cent of the rent paid in the first year, 60 per cent in the second and 40 per cent in the third year will be 7.2. Conceptions and ways of calculated against the price of the flat. addressing users In the concept of development of this non-profit Three types of user are evident here and they have organisation, tenants in the pubic rental programme benefits from non-profit organisation. The largest are much more respected and they are stakeholders numbers are homeowners, the majority of them are with a vested interest to contribute social capital for first buyers from young generation, and their benefits future development of this organisation. It should be are evident in favourable condition: control level of a benefit of this innovation and firm basis for future housing prices, decent housing with good location development. and affordable housing loans. An interviewed user of this programme has a family of three members and before they were sub-tenants with in an old, badly maintained flat on the eighth 11 http://www.gradski-stanovi.hr/ 64 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities tion and gramme, isclearanditcontributes to on socialreturn,separatelyinthepublicrentalpro diverse andpluralisticpopulation.Empiricalevidence welfare systemisreorientedtowardstheneedsofa and thepracticeofnon-profitorganisation Here socialinnovationinvolvesdifferentgroups internal maintenance thesocialflatsisaproblemforowners. housing (electricity,gas,heating,water, communalfee).Besidesthat, tion, veryoftenarenotwillingtopayrent andotherscostsrelatedto 12 Tenants in welfare system cal measure,isatypeofinnovationinthelocal good condition.Suchadownpayment,aspedagogi guaranty topayrentsregularlyandkeeptheflatin and makeadownpaymentoftwomonthlyrentsas Tenants inpublicrentalprogrammesagreeacontract according tothementionedcriteriacanapply. is verytransparentandallfamilieswhoareeligible the statusofusersinonethreeprogrammes all respectivestakeholders.Theprocessofobtaining knowledgeable andskilfulpersonwellconnectedwith appropriately, theleaderoforganisationand is aresponseofthenon-profitorganisationormore The internalorganisationoftheinnovation,infact, mode of working 7.3. Internal organisation and buy flats. programmes areverysatisfiedandalsolookingto of thistenant,otherneighboursfrompublicrenting buy aflatinthenearfuture.Accordingtoopinion This onefamilyhasalreadydevelopedastrategyto per month. for hobbiesinpartoftheyardanditcosts243euros costs. Theflatis78m2,theyhaveagarageandspace almost 50percentandtheycancontroltheirheating important isthattheyreducedtheir friends andgueststoenjoytheirlives.Whatis ly, theyareinpositiontoplantheirfuture,invite much better,asafamilytheyarehappierandfinal tenant inpublicrental forced themtowalkeighthfloor.Now,beinga month. Problemsrepairingtheelevatorfrequently control thecostsofheating.Rentwas200eurosper heating provision,theywerenotinapositionto cent ofthefamily’sincome,andbecausedistrict floor. Housingcostswereveryhigh,morethan30per Varaždin HR social cohesion. social 12 housing programme,inthisnon-profit organisa . housing, theirqualityoflifeis housing costsby social integra- Neighbourhood revitalization/Housing Categories social - - - - there islesscapacitytospread outthisinnovation. influenced thefiscalcapacitiesofCroatiancitiesand capacity. Fromotherside,theeconomiccrisishas become themodelforothercitieswithdiffusion In addition,thisinnovationshowsthecapacityto mental housingprogrammes. groups and between the housingmarketwithmissionofmediation organisation hereappearsasakeystakeholderin influences otherdepartments.Non-profit new styleofmanagementonthelocalagenda,which ing infragmented This non-profitorganisationisacaseofpathbreak strategic plansof investment programmeswithveryviablereturnand In this topic, offeringsomenewsolutions. housing oftheelderlyandopenedadebateonthat at thecitylevel,theyrecognisedincreasingneedsfor sition oftheboardnon-profitorganisations.Also, Innovation raisedtheissueofroleandcompo position inthe other welfareorganisations,theyhaveastronger and, astheyserveamorediversepopulationthan country. Innovationisembeddedinthelocalsystem style of and entrepreneurspiritweredefinitelyaverynew and bottom-up This innovationaroseinsynergywithtop-downoffer welfare system 7.4. Interaction withthe cial marketingandnationalpromotionthisinnovation. of themayorandrecentlocalelectionspreventedso- The unstablepoliticalsituationinthecity,resignation also professionalshowarenotinpolitics. should beimportanttoinvolveusersintheboardand so competentandinventiononthislevelisneeded.It local politicians,mainlymembersofcitycouncil,isnot nition. Theboardoftheorganisationiscomposed the locallevelandorganisationsreceivepublicrecog- Activities ofnon-profitorganisationsareveryvisibleon social innovation,thereisevidenceof governance for housing needsofcertainvulnerablesocial housing supplymadethroughgovern local welfaresystem. initiatives andwiththeclearvision development. housing policyanditisputtinga local welfaresystemsinthe local housing social - - - 65

find awareness ofsocial innovation as a concept. In Conclusions their discussions, such issues do not receive adequate Selected examples of social innovation and insights attention. Therefore, it seems that the stability of fu- discovered via the research, show that in the city of ture support for social innovation, primarily financial, Varaždin the area of social policy public administra- will largely depend on the city administration. We do tion has developed the capacity to understand the not see signs that city government will soon embrace relevant issues. Their active work provides a frame- and recognise social innovations. However, some fi- work for cooperation and encourages development of nancial support exists and solid funding decisions are new programmes. In our case, it turned out that the mostly delegated by public administration. They have public administration and other stakeholders, such significantly greater competence in this area. There- as the Croatian Employment Service and develop- fore, the fact that social innovations are not recognis- ment agencies, provided considerable support for able in the discourse of city council and politicians, it social innovation in Varaždin. Of course, they work may not necessarily be bad. Social innovations would within their budget and situational constraints. Civil not obtain additional support, but at least existing society organisations and other stakeholders of social support is channelled by delegating responsibilities innovation also recognise the public administration to public administration that make efficient use of it. as a cooperative stakeholder and they are developing For further sustainability of social innovation it would partnerships. They know that, in them, they can find be necessarily to prove the usefulness of this kind reliable partners for their initiatives. of action to the city government and/or raise public attention and awareness to generate interest. That Examples of social innovations in Varaždin showed may demand increased management or marketing that a certain amount of social capital is evident in skills of people involved in social innovation projects. the local community. Citizens, mostly younger and Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities There is also space for the involvement of the private better educated, are willing to join and act for their sector that is for now unrecognised. In addition, there own interests, respecting the interests of others, is an opportunity for applying for EU funds for such particularly of vulnerable social groups, and being projects. Action in these areas would certainly help aware of public good. There have been a number of to increase the stability and opportunities for sus- new initiatives, not only in our observed fields but tainable social innovation, relying on capacities and also beyond13. There is a critical mass of stakeholders support of public administration and developed level that are recognisable and have the capacity to act. of social capital among all of stakeholders in local Those in the local community can create a structure welfare system. of action that will develop new projects. The potential for the future action is that they recognise each other and have created certain social networks that can stimulate action by using common resources, trust, Bibliography norms and values that they share. Certainly, it helps Bežovan, G. (2008) Stanovanje i stambena politika, that Varaždin is a smaller community and most of u Puljiz, V. (Ed.) Socijalna politika Hrvatske: Pravni them know each other. Thus, they have established fakultet sveučilišta u Zagrebu. pp.337-389. contacts on almost a daily basis and they are turn to Tepuš, M.M. (2005) Modeli stambenog financiranja. each other in many situations. This facilitates the flow Zagreb: Albratros media. of information between them and facilitates the coordination of action. Projects that they develop certainly contribute to strengthening social cohesion of local communities. On the other side, the attitude of the city government towards social innovation is somewhat detached. In the space of discourse of the city council, we did not

13 A good example is the Association Gredica that became the winner of the third prize at the SozialMarie contest for social innovation for their Magic Gardens project.

FR France Lille

Laurent Fraisse (CRIDA, Paris) 68 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Urban renewal (SSE) Social and Participation Community Child care Keywords: Local background of thesocialinnovations Introduction Lille FR solidarity-based economy development participation withacallforprojectson“participativehabitat” the in eachofthemainpriorities.Accordingtomunicipal administration, Housing Planincludesaninnovativecomponentnamed “experiments” plain localpolitical ening livingconditionsofyoungpeopleconcernlocalpolicymakersandex authority ofLille employment and in thelocalimplementationofnationalemploymentschemes.Although services withlocalenterprisesandinstitutionsortakeaproactiverole limited. Theycanfacilitatecoordinationbetweenlocalemploymentpublic guish between nationalandlocalgovernments.However,wecanclearlydistin is thepredominantsituationwithmoreorlesssharedresponsibilities Taking intoconsiderationthethreeWILCOpolicyfields,multi- governments intheWILCO policyfields: An unequaldistributionof responsibilitiesbetween national andlocal 1 “Build more”,“Renovateold particular topicata publicconference.Theirrecommendations arethencirculatedwidely. 3 A consensusconferenceismadeup ofapanelcitizenswhoquestionexpertwitnesseson 2 Gathering ofinhabitantsinorderto thinkupandworktogethertobuildtheirfuture eco-districts”. able housingimprovementoftheenergyefficiency of housing forstudents, diversity (thesocialmix)withactionsadapting dwellingsfordisabledanddependantelderlypeople, political arenaforsocialinnovationpromotionanddebateremainsper - tion andmutualaidwithingroupsof8-10owners;etc. However, thelocal for privatedwellingsbasedontechnicalassistance self-help renova- sus conference field isagoodexample.Beyondgeneralobjectives issues butarenotabsentfromthepoliticalagenda.Thehousingpolicy cators. Qualitativeandinnovativeactionsarepositionedassecondary recommendations focusaboveallonquantitativeobjectivesandindi- es andoptimisingexistingplaces,politicaldiscourseadministrative new dwellingsperyearinLilleMetropolis,creatingchildcareplac- unemployment rate,“buildingmore”withtheconstructionplanfor5,000 Taking intoaccountmunicipalinitiativesforreducingthegrowingyouth actions: Predominance of quantitative issues over qualitative andinnovative and child-carefields. we havedecidedtoselectandanalyseinnovativepracticesinthe ment andprovisionoffacilities.Theseunbalancedsituationsexplainwhy local child-carepolicywouldnotexistwithoutmunicipalregulation,invest responsibility andoneofLilleMetropolis’ambitiouspolicyfields.Similarly, CRIDA (Paris) Laurent Fraisse Authors initiatives thatcouldbeassessedasinnovativeare:afocus oncitizen labour marketpolicywherelocalauthorities’roomforactionisquite 3 onhousinglaunchedin2011;arenovationprogramme intergenerational cohabitationandemergency andinclusionshelters”,“Sustain municipality, theincreasing professional integrationdonotfalldirectlyunderthe initiatives inthisfield.Conversely, social housingareasandrun-downprivatestock”,“Promote housing stockaswellexperimenting with unemployment rateandwors 1 , LilleMetropolisLocal housing isanexplicit governance 2 ; aconsen- housing. housing - - - - - 69

manently weakened by attention paid primarily to a The end of the of civil society monopoly over social limited number of quantitative priorities, especially innovation discourse and actions? in times of economic crisis when budget cuts have entered into the public debate. Another interesting aspect is that social innovation is no longer the monopoly of organised civil society Social innovations in the age of public spending discourse and practice. Whereas in the 1990s not-for- restrictions: profit organisations were considered key agents in innovative practices, they are now in competition with The child-care field illustrates existing tensions be- local authorities. In a similar way to participatory de- tween local providers, local authorities and represent- mocracy, social innovation is progressively integrated atives of family policy in the ways innovative practices into a new framework of local public action. Several are promoted. In Lille, a multi-governance issue has initiatives presented in the report, such as Parler Bam- emerged with the decrease of funding coming from bins and support for housing self-renovation, have the Family Allowance Office (CAF) during the negotia- been launched by Lille Municipality or Lille Metropolis. tion of the next “contrat enfance-jeunesse” (early child care contract). Supporting qualitative actions such as Local policies dedicated to social and solidarity- early childhood centres or emergency home child- based economy (SSE) - a window of opportunity for care services for low-income parents with atypical social innovation: working hours is no longer a national priority in contrast to classical quantitative objectives of increas- The main innovation policy frameworks remain relating and optimising the number of places. Although ed to economic development, research and techno- considered as useful, initiatives supported a few years logical investment, information technology, support ago as innovative are now subject to reduced funding. to entrepreneurship, etc. Stimulation of innovation Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Financial support from the municipality can be partial is, for instance, included in Lille Metropolis’ economic and temporary in a context marked by budget restric- development agenda with specific programmes such Pôles de compétitivité tions. Budget constraints lead to a selection process as (competitiveness clusters), relating to innovations. Parler Bambins, one of the industries and sectors of excellence, etc. experiments analysed in the next chapter, is strongly However, social innovation is not absent from local supported by the municipality whereas the future of political discourse. It is, in particular, a key concept former initiatives is much more uncertain despite the used in the description of the social and solidari- recognition of the usefulness by elected representa- ty-based plan developed by Lille Metropolis. Social tives and technicians. innovation is presented as an intrinsic characteristic The public spending restriction period is going to re- of socio-economic initiatives and enterprises with configure the funding method ofsocial innovation. As participative governance and social goals (coopera- qualitative actions are marginalised within the early tives, self-help initiatives, not-for-profit organisations child-care contract negotiated with Lille municipality, and social enterprises, etc.) It is also associated with the local family office has launched a temporary call Lille Metropolis’ economic development initiatives for innovative actions in child-care services. However, and programmes. the number of selected projects is quite limited (only At a time when rhetoric and budgets of innovation one in Lille), with the funding presented as one-shot are monopolised by competiveness and reindus- support within a co-funding perspective. A few years trialisation development objectives and strategies, ago, the local family office had its own funding budget new fields of public action such as SSE local policies for providing long-term support for bottom-up constitute a window of opportunity for testing differ- initiatives negotiated on a face-to-face basis and in ent innovative strategies and services in response to cooperation with the local authorities. meeting local needs. 70 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities inhabitants ofthissmallworking-class The storyoftheIlotStephenson Bouchain andhiscolleagueswhichhasbeentestedout between 2009and2012. le grandensemble project contributingtotestingoutalternativewaysofconceiving gramme ofurbanrenewaltargetingdepriveddistricts.TheIlotStephensoninitiativecouldbeconsideredasapilot The backgroundtothisinnovationistheperiodofurbanpoliciescharacterisedin2000sbyavastnationalpro process concerningoneofthemostambitious bourhood. Thisemblematicinitiativehasinspiredandbeenintegratedintothebroaderparticipative company, SEMVilleRenouvelée,withanobligationtoproperly integratesustainable thorities decidedtotransferthemanagementofwhole Union After severalyears,theysucceededinstoppingthedemolition projectin2004.In2007,theLilleMetropolisau testing againsttheprojectwithsomesupportfromvarious electedoppositionmembers. into anorganisationnamed learnt thattheirhouseswouldbepurchasedbythe of architecturalinterventionthatencouragesinhabitants’ an inhabitants’organisation.Accessto30homesatreducedcosthasbeenachievedthanksinnovativemode their popular Ilot Stephensonattheperipheryofthisarea,aprotestonpartinhabitantsagainstdemolition eco-neighbourhood, abusinesshubandnew Metropolis). Inapost-industrialsitespreadingacross80hectares,largeprojecthasbeenplannedcombiningan Union isthenameofonebiggest 8.1. Shortdescription Ilot Stephenson 8 with theinhabitantsof and SEMVilleRenouveléedecided tocallonarchitectPatrickBouchainandhisteam torethinktheurbanproject launched inanatmosphere of mutualmistrustbetweeninhabitantsandurbanplanners. ThemayorofTourcoing tory approaches.After3years duringwhichnothinghappened,theIlotStephenson projectwasthefirstoperation Lille FR /77 housing ledtoaninnovative (Working togethertobuildthewholeurbanarea)isconceptlaunchedbyarchitectPatrick neighbourhood. Rase pasmonquartier(Don’tdemolishmy neighbourhood startedwithaconflictatthebeginning of the2000swhen neighbourhood locatedattheperipheryofUnion urban renewalprojectsintheRoubaix-Tourcoing-Wattrelotdistrict(Lille Neighbourhood revitalization/Housing Categories housing housing, including30percentof urban renewalprojectsinnorthernFrance. co-production actionbetweenarchitects,localauthoritiesand municipality andthendemolished.Theyorganisedthemselves neighbourhood participation intheself-rehabilitationoftheir urban renewaloperations. urban renewal neighbourhood) andinitiatedactionspro social housing.Inadistrictcalled development tothesemi-public development andparticipa Construisons ensemble, urban renewalproject governance neigh - - - - - 71

8.2. Types of services and ways of can be underlined. The mix between former and new residents has not happened to the extent expect- addressing users ed because of the difference between generations. After a contentious phase, new ways of addressing in- Newcomers are often young families with small habitants of the Stephenson neighbourhood emerged, children whereas former residents are mainly elderly comprising several innovative aspects. Conceptually, people. In addition, the positive participation in the the building site was no longer considered as a no renewal project seems not to have generated, for the man’s land and a temporary phase in the life of the moment, new inhabitants’ organisations and projects neighbourhood but as a living episode for the inhab- after the end of the building phase. itants. The architects immersed themselves in the The Ilot Stephenson project has also inspired and neighbourhood by locating part of their office in an strengthened the participatory approach adopted old electronics workshop. This daily presence changed by semi-public company SEM Ville Renouvelée in im- relationships with inhabitants and other stakeholders. plementing the eco-neighbourhood. Factors include They knew whom to contact for any daily issues on the co-production of a sustainable development the building site. Conversely, the immersion changed framework. Its formulation has not only involved the the architects’ perceptions of the initial architectural different local authorities andhousing developers, scheme by bringing it up against the habits and needs but also groups of local non-profit organisations of everyday life. Moreover, the electronics workshop named “Union will not happen without us”. This group was also transformed into a public space where a large of local organisations demanded, from the begin- model of the urban project was reconstructed for the ning of the Union urban renewal plan, integration of inhabitants. Several meetings with residents, elected employment, social and ecological aspects alongside representatives, technicians from local authorities and the initial business and construction dimensions. The Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities representatives of local organisations were organised framework for the eco-neighbourhood adopted in for presenting and discussing adaptation of the initial 2007 is a progressive process, revised every 4 years plan. Finally, regular workshops and conferences were in order to adjust to new needs expressed by local organised in the electronics workshop bringing togeth- actors, local institutions’ strategies and national legis- er the current and future inhabitants and exploring top- lation. Moreover, a charter of participation was drawn ics such as making compost or recovering wastewater. up with the different Union stakeholders. The active Educational activities were also planned with children. involvement of the group of local organisations led to The new approach to the urban renewal project led to the creation of a specific fund for residentparticipa - concrete and substantive results: tion by the local authorities in order to support local initiatives connected to the renewal urban project. >> the shift from a contentious atmosphere between inhabitants and local authorities to a collaborative 8.3. Internal organisation and period; mode of working >> the rehabilitation of 30 historical houses and the improvement of 24 inhabited houses; As already underlined, the Ilot Stephenson project is a new architectural and urban planning experiment the public exhibition and discussion of the >> conceptualised by Patrick Bouchain and his architects’ large-scale model led to a change in the initial firm, Construire. They are part of the architectural architectural proposal; movement that believes that building cities should >> the construction of the first model of renewed not only be a matter for specialists (architects, urban housing that the residents agreed on was visited planners, property developers, social landlords, etc.) by present and future inhabitants. The idea was and that inhabitants should not be passive subjects to meet and involve future residents in the district who are generally excluded from most social housing, before they moved in. construction and urban renewal projects. “Building is living” means that the building phase is no longer Despite undeniable achievements, several factors considered a parenthesis in inhabitants’ lives, but an limiting inhabitants’ participation and commitment important opportunity for public expression and civic 72 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities ad-hoc committees. the different and discusstheurbanproject withresidentswithin Urban plannershavelearnt to systematicallypresent ants, localorganisationsand and donotknowhowtoworkwithgroupsofinhabit by architectsandurbanplannerswhoarenotusedto as aninnovationinaprofessionalmilieudominated transferred toSEMVilleRenouvelée.Itispresented when managementofthe velopment andinhabitants’ new statuteoftechnicianinchargesustainable working methodshasbeenthe2007creationofa At theurbanplanners’level,mainchangein remains anopenquestion. with thespecificationsoftraditionalpublictendering velée. Howsuchatailor-madeprojectcouldfitin between thearchitects’firmandSEMVilleRenou partenariat”) whichprovidedthecontractualframe this wasapartnershipagreement(“conventionde to publicprocurementforurbanplanningprojects, ban operation.Whereaslocalauthoritiesusuallyturn for thisexperimentisalsounusualkindofur It isworthnotingthatthecontractmechanismused has demonstrated,openingabuildingsiteinvolves: participation. Concretely,astheStephensonproject > > > > > > > > > > Lille FR Arts Schoolwhocreatedatemporaryartperfor the contributionofstudentsfromTourcoingBeaux mance withinthehousesunderrenovation. ship withlocalartistsandculturalfacilities; the programmingofculturaleventsinpartner and future and whereactivitiesareorganisedwiththelocal discuss theprojectsandfollowachievements, architects, wherethedifferentstakeholderscan building venuewhereinhabitantscantalkwith the creationofaspecialmeetingplaceat to completionofthebuilding; not-for-profit organisations,etc.)frominitialdesign sentatives, sociallandlords,urbanplanners,local inhabitants andotherstakeholders(electedrepre- the permanentparticipationofpresentandfuture phase; chitect inthe the temporaryestablishmentofatleastonear neighbourhood councilsaswell ason community; neighbourhood duringthebuilding urban renewalprojectwas participation, introduced neighbourhood councils. Neighbourhood revitalization/Housing Categories - - - de- - - - and metthearchitects andurbanplanning team. England andBrazilhavebeen tovisitthebuildingsite other cities and even international visitors from Brazil; architectural schools,delegations oftechniciansfrom local community.Manyprofessors andstudentsof ities. Feedbackontheproject goesfarbeyondthe emblematic successpromotedbythelocalauthor beginning ofthe2000s,10yearsonithasbecomean Ilot Stephensonwasalocalpoliticalproblematthe sure intermsofexpectationscreated.Whereasthe of showcaseprojectwithalltherisksoverexpo journalists. Stephensonhasgraduallybecomeakind The inhabitants’organisationwasoftensolicitedby website andnumerousarticlesintheregionalpress. local publicityandmediacoveragewithaspecial The IlotStephensonprojecthasbeensubjectto project, wonaprizeforyoungurbanplannersin2012. the Stephenson’neighbourhoodthroughoutentire addition, MarieBlanckaert,thearchitectwhoworkedin social conceptualise andillustrateanewurbanapproachto They areplanningtopublishabookin2013thatwill voted bythelocalauthorities’remainsquiterare. a largeandemblematicurbanrenewalprojectalready the architects,evenpartiallyquestioningplanfor planning andurbanrenewalprojects.Accordingto of ahumanandparticipatorydimensioninurban ers intheproject.Ithasdefinitelyledtointegration Renouvelée andLilleMetropolisotherstakehold- the Tourcoingmayor,urbanplannersfromSEMVille The IlotStephensonstoryhasprofoundlyinfluenced in the 8.4. Embeddednessof theproject housing construction and urban rehabilitation. In housing constructionandurbanrehabilitation.In local welfare system - - 73 FR Categories Lille Neighbourhood revitalization / Housing

9/77 Support for housing self- renovation in Lille Metropolis Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 9.1. Short description

Within the scope of its second Local Housing Plan (PLMH2, 2008-2012)4 , Lille Metropolis chose to provide support for self-renovation at the beginning of 2011. This experiment is one of the actions contributing to the fight against poor quality and substandard housing (“lutte contre le mal logement”) but also against fuel poverty, especially for low-income residents of run-down private housing stock. After a call for projects, the proposal from the non-profit organisation Les compagnons bâtisseurs (Companion Builders), was selected for managing, training and supervising the implementation of a self-renovation process in a region where such practices remain marginal and unpro- fessional. After a first phase of information and exploration in 2011, three volunteer local housing organisations (GRAAL, APU Wazemmes and PACT MN) were recruited for implementing the project in three different areas in Lille Metropolis. This innovation is interesting because it concerns the transfer and reproduction of self-renovation practices, seen as socially innovative by local authorities. In other words, this is not an institutionalised process of local bottom-up practices based on the skills and demands of local actors. According to promoters of self-renovation, this is the first time in France that a large metropolis like Lille has included an action of this kind in its housing policy. This sign of public recognition and support of self-renovation implies a method based on the identification andtransfer of skills and knowledge to local practitioners adapted to the local housing context. Support for self-renovation covers a set of practices that aim at improving the living conditions of low-income households by renovating their homes with their active participation (Rémy, Foulter, 2007). It combines dual objectives and functions. In addition to the material maintenance and renovation facilitated by technical support, self-renovation is also expected to have positive impacts on social inclusion and empowerment of families. This relatively old practice has been the object of renewed interest in recent years in the face of increasing issues of substandard and run-down housing as well as the rise in energy bills for modest households living with fuel poverty.

4 PLMH2, 2008-2012 74 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities member ofthe householdwiththesupport ofatech renovation worksarecarried outbyatleastone The principleofsupportfor self-renovation isthat Specifically, the types of services provided to users are: Specifically, thetypesofservicesprovidedtousersare: breakups, socialisolation,etc.). difficulties ( riencing differentpersonal,professionalandsocial to insufficientincome,thebeneficiarieswereexpe on theirrun-downhomesbythemselves.Inaddition targeted couldnotaffordtocarryoutimprovements lis. However,whetherownersortenants,theusers agency for explained bythefinancialincentiveprovided from thefirstphaseofexperiment,whichcanbe bers ofownersincomparisontotenantsbenefiting Nord region.Anotherspecificityisthehighnum the majorstockofoldworking-classhousesin number ofsubstandarddwellingsthatformpart diagnosis phaseandcanbeexplainedbythehigh stock. Thisinstitutionaldemandwasconfirmedinthe dwellings ratherthanresidentsof targeted ownersandtenantsinrun-downprivate Lille Metropolisisthatmostself-helprenovationhas In comparisonwithothercities,afeaturespecificto addressing users andways9.2. Typesof services of > > > > > > > > > > > > Lille FR and potential directiontowardsother socialservices savings, etc.; as plumbing,insulation,tenants’rights,energy were alsoprovidedtofamiliesontopicssuch some collectiveandtechnicaltrainingsessions renovation tasks; members offamilyinvolvedinconcrete educational andtechnicalsupporttothe often afactorineasingconflicts; and paidfor.Thepresenceofathirdpartyis repair andmaintenanceworkstobeperformed mediation betweentenantsandownersonthe Improvement (ANAH); support fromtheNationalAgencyforHousing of theapplicationdiversefundingincluding administrative supportfortheestablishment improvements andhouseholdlivingconditions; a technicalandsocialdiagnosison housing benefits. housing improvementandLilleMetropo unemployment oraninsecurejob,family social housing housing Neighbourhood revitalization/Housing Categories - - - - housing improvements thanthoseinitially project takes timeandoftenleadsto morecomprehensive to overcomebecausethispractice isstillunfamiliar, housing self-renovationmethod isthefirstobstacle Convincing familiestocommit themselvestothe tion becauseworkshavebeencarriedoutbytenants. cial landlordsasaguaranteeagainstrapiddeteriora self-renovation isalsoseenbyownersaswellso of volunteers.Comparedtoexternalmaintenance, specific projectbutalsosometimeswithmeetings sation ofpersonalorfamily be anopportunityforsocialisation,withthemobili work skills.Moreover,therenovationperiodcanalso taking careoftheirhomeanddevelopbasichandi capabilities. Someusersrediscoverthepleasureof self-esteem andprogressiveawarenessofone’sown one’s ownapartmenthasastrongimpactonpersonal the socialimpactsforhousehold.Self-renovating the promotersofsupportforself-renovationinsiston the visible atory expenses,suchasenergyexpenditure.Beyond ments alsohaveapositiveimpactbyreducingoblig plugs orlightbulbs,ventilation,etc.Alltheseimprove minor plumbing,insulation,replacementofswitches, improvement of The mainandvisibleoutcomeisthemaintenance Council oftheNordDepartment. advertisements byLilleMetropolisortheGeneral as welldirectcallsfromhouseholdsthathaveseen organisations. Wordofmouthisalsostartingtowork duced bysocialworkers, vation projectsplanned.Theusersaremainlyintro the demandisgrowingwith,forinstance,20reno director oftheGRAAL,onethreeorganisations, taining fundingagreement.However,accordingtothe 5-6 months)forcompilingthetechnicalfileandob have beenlaunchedduetothetimerequired(about housing improvementinstitutions.Only11buildings it housingorganisationsandsocialworkersatlocal organisations fortheexperiment,mainlybynon-prof 49 peoplehavebeenreferredtothethreevolunteer A yearandahalfafterthelaunchofthisexperiment ability inordertogivevaluethiscontribution. considered asfreebutissubjecttofinancialaccount over aperiodoftime.Theusers’involvementisnot periment isbasedonmajorinvolvementoftheusers volunteer beneficiariesoftheprogramme).Thisex (other familymembers,friends,neighboursorother nical adviserandinsomecasesbyaself-help housing improvementandfinancialgains, housing suchasglazing,painting, neighbourhood and networks focusedona housing network ------75

ed by the household. Convincing arguments for the or social workers who want to get away from adminis- benefits of self-renovation are cost reduction for the trative and work routines. However, the requirements families, the quality of work done at official standards for such work could be a future obstacle for answer- as well as the energy and financial savings. Although ing the growing demand for self-renovation. users have priority of access to financial support from housing programmes, a minimum of self-funding is 9.4. Embeddedness of the project required, which could exclude the very poorest or in the local welfare system indebted households. One of the Les compagnons bâtisseurs’ tasks has been 9.3. Internal organisation and to inform and convince a large number of stakehold- mode of working ers in the housing sector of the usefulness of support for the self-renovation method. Beyond overcoming The self-renovation team is generally composed of potential indifference or sceptical viewpoints, the three people: objective is to build a network of institutional partners able to direct potential beneficiaries towards this kind an administrative and project coordinator who >> of solution. This means that social workers, non-profit contacts, negotiates and draws up the contract housing organisations and local authorities need to with owners and tenants as well as prepares assess if support for self-renovation meets the needs applications to housing institutions for funding; of the families they are used to advising. The process >> a technical advisor who technically diagnoses has culminated in the creation of a local committee the restoration works, advises and supports the for guiding and assisting potential users. household in the renovation of their home and Another key component in the reproduction of negotiates materials or minor interventions by Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities self-renovation methods in other urban contexts con- external tradespeople; sists of preventing potential conflicts and regulating >> a volunteer involved as a civic participant and relations with building tradespeople as well as small- in professional training processes. Her/his role and medium-sized construction companies. The fear focuses much more on the relationship with of unfair competition, especially in a time of building families. and housing crisis, is a frequent objection expressed by trade organisations. To prevent it, the head of The first part of the experiment included several Les compagnons bâtisseurs generally points out that training sessions with the local operational teams self-renovation is not a market because the families because there were no organisations qualified to involved are usually low-income households. support self-help renovation in Lille Metropolis. Here we can identify a clear process of transfer and adap- As already noted, this initiative is a top-down experi- tation of skills and expertise coming from outside the ment originating in an institutional demand from Lille experiment’s area. Training consisted in particular of Metropolis rather than inhabitants or local not-for- a two-month immersion session for future technical profit housing organisations. To a certain extent, and social advisers with experienced technicians from institutional recognition comes before the emergence Les compagnons bâtisseurs working in other cities of professional organisations, skilled workers and (Marseille, Rennes). active promoters. A first issue in the transfer is the integration of support for self-renovation within the The profile of the technical advisor is particularly objectives and frameworks of local authorities and specific and quite rare because it combines technical housing institutions other than Lille Metropolis. The skills from different building trades with educational General Council of the Nord region and the family and social interventions similar to social workers. allowance office have already become funding part- These dual skills make it more difficult to recruit ners. The ability to finance support for self-renovation technical advisers, taking into account that the wages on a larger scale remains an open question. In the provided remain attractive in relation to the responsi- event of growing demand, the extension of the ex- bilities required. This explains why technical advisers periment to social landlords is another challenge. The present atypical career paths, with engineers who second main issue is the emergence of local leaders have the choice of moving into the social profession 76 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities support forself-renovationprojects. familiar withthe municipal councillorfor deputy inchargeofthefuture the nationalpoliticalagendagiventhatpresent experiment isevenmorelikelytopositivelyinfluence ment programmes)inotherurbancontexts.TheLille support, inclusionpathways, tended tobesupportedwithinsocialpolicies(family tion inits Metropolis explicitlyincludedsupportforself-renova absence ofnationalself-renovationprogrammes.Lille portant stepforwardinacontextcharacterisedbythe experience inLilleMetropoliscouldrepresentanim In conclusion,wewouldliketounderlinethatthe compagnons bâtisseurs to promoteanddisseminatesuchpracticesonce as wellactiveandcompetentorganisationsable Lille FR housing policy,whereassuchpracticeshave housing organisationsinvolvedin ’ workends. housing inLilleandisvery community develop- housing lawisaformer Neighbourhood revitalization/Housing Categories Les - - 77 FR Categories Lille Child and family care

10/77 Parler Bambins – Toddler Talk

10.1. Short description

Parler Bambins is a prevention programme for early language development for children aged 3-36 months at- Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities tending child-care facilities. Developed by Dr Michel Zorman and his research team (Zorman M. et al., 2011) in an educational and cognitive sciences centre, it was first experimented during the period 2005-2008 in several day nurseries located in deprived neighbourhoods in the city of Grenoble. The first results, based on individual language psychometric tests, demonstrated significant progress in the language of the children who benefited from the programme. Convinced by this method, the elected councillor for child-care policy for Lille decided to launch an experiment in two child-care facilities in September 2011. After 1 year, the programme has been disseminated to eight other municipal day-care facilities starting in 2012. Like in Grenoble, the broad objective of the programme is the reduction of social inequalities. Recent studies on the factors influencing educational inequalities underline that differences in language skills are strongly related to social and cultural differences, starting at an early age with an impact on future educational performances. Provid- ing all children equally with early opportunities for the development of language is presented as a way of preventing future school failures. This is why the implementation of the Parler Bambins programme targets child-care facilities first and foremost, including children from disadvantaged and foreign-born families. The innovative aspects are mainly educational and based on new kinds of language interactions between professionals, children and their parents. The objectives are to create a favourable environment for communication with children by multiplying opportunities for conversations. The programme is based on three actions:

>> Daily interactions with children. This involves taking advantage of every oportunity in the day for communicating individually with each child using an adaptive and personal approach.

>> Communication with the parents based on discussions of the programme, the child’s language acquisition and her/his development. This parent-based action aims at building the parents’ trust and support and disseminating the practices at home.

>> A language workshop targeting children who speak a little with the aim of stimulating expression and the pleasure of communication with the support of books, pictures or toys. 78 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities themselves and daretoaskgotheworkshop. ry, afterthefirstfewsessions, thechildrenexpress of thechildrenrefusestoparticipate. Onthecontra shyest childrenisbasedonfun andpleasure.None second stage.Theworkshop withasmallgroupofthe gressively tochildrenpronouncing afewwordsin want. Thesemorefrequentinteractionsleadpro gestural languageusedbychildrentoshowwhatthey alone. Communicationoftenstartswiththebodyand the attentionofintrovertedchildrenwhotendtoplay of speakingtothechildrenmakeiteasiercapture changes inthechildren’sbehaviour.Thesenewways one oftheadvantagesliesinrapidandpositive According toprofessionalswhousedthismethod, stimulate communication. allowing timefortheshyesttoanswerinorder their ownname,formulatingopenquestionsand children buttoaddresseachofthempersonallyby means tostoptalkinginaneutralorgeneralway change theirprofessionalpractices,whichspecifically Bambins programmehelpschild-careworkersto the othersintheirlanguage much. Theseisolatedchildrentendtofallbehind on quietchildrenwhodonotexpressthemselves dren, thedisadvantageliesinnotfocusingattention advantage ofhelpingtomanagelargegroupschil If theseunconsciousmodesofexpressionhavethe formulating questionsandanswersatthesametime. questions thatrequireasimpleyesornoanswerand individually, speakingintheimperativemood,asking als tendtotalkcollectivelychildrenratherthan munication practicesinday-carefacilities.Profession address childrenimpliesstartingwiththeusualcom Exploring infarmoredetailthewaysprofessionals of addressingusers andways10.2. Typesof services Lille FR development. The Child andfamilycare Categories Parler - - - - - about theirfearslearningtospeakandread. parents developarelationshipoftrustandcantalk come positiveandaneducationaltoolathome.Some from apicture,therelationshipwithbookscanbe on readingstoriesandmorepickingoutwords Because communicationwiththechildisbasedless atic relationshipswithreadinglessofamajorissue. or non-nativespeakingparentsandmakeproblem Sometimes theprogrammehelpstorelieveilliterate and rarelyreluctanttotakepartintheprogramme. sleeping andsoon.Parentsaregenerallymotivated that isasimportantissuessuchhealth,food, becomes asubjectofdiscussionwiththeprofessional guage they registertheirchildatthecrèche.Secondly,lan method. Firstly,theyareinformedaboutitassoon parents isakeycomponentinthesuccessof parents. Cooperationbetweenprofessionalsand Parler Bambinsalsoinfluenceswaysofaddressing resentatives playing asupervisoryrole. directors havebeenqualified andarenowlocalrep and practiceswithchildren. The twofirstday-nursery entation oftheprogramme by oneoftheresearchers session of1-2dayscombining theconceptualpres ment inlanguagetechniquesconsistsofatraining complementary tootherskills.Theirpersonalinvest motivated bytheprogramme,whichispresentedas effects onprofessionalpractices.Theyaregenerally fears wereeased,programmeshadgloballypositive professionals expressedsomereluctance.Oncethese children. Atthebeginningofprogramme,certain the child-careworkersspeakandcommunicatewith As alreadynoted, mode of working 10.3. Internal organisation and development intheday-carecentreasathome Parler Bambinschangestheways Parler Bambins ------79

generally creates a positive team dynamic centring on >> a political interest through networks of elected this collaborative project. local representatives that encourage new cities An unexpected effect for the two directors first involved (Lille and Rennes) to apply to join the experiment. in the experiment has been the particular interest A film has been projected to local authorities and shown in this initiative, with growing media coverage institutions (General Council, the family allowance leading to numerous requests. They find themselves in office) in charge of child-care and education Parler Bambins the position of meeting the Minister for the Family or issues. Recently, reached a being interviewed by journalists, which is gratifying. broader audience with the visit to Lille of the Minister for the Family, Dominique Bertinotti8 10.4. Embeddedness of the project in the context of the national child-care and parenthood consultation process; in the local welfare system >> growing media coverage with articles in the local The experiment of the Parler Bambins springs more press (Bastin, 2011)9 initially but also a television from the consequences of the meeting between the report on a national channel. strong convictions of two elected municipal councillors, respectively in charge of child care and the erad- Another indicator of the dissemination process is Parler Bambins ication of illiteracy, and the motivation of a number of that the two directors representing to early childhood workers. Following on from Grenoble, professional organisations cannot meet the growing Lille and Rennes are part of the second wave of cities demand for presentations coming from other diverse testing out the Parler Bambins framework. Originating child-care services or educational organisations and in a strong political will to take action, Parler Bambins federations. They lack the time and resources to has been integrated in the municipal agenda through disseminate the programme beyond the municipal Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities one of the actions of what is known as the global day-care facilities, which remain the municipality’s educational project. It is interesting to note that the current priority. support is partially financed by the child-care budget Finally, it is interesting to note that some profession- despite a context of limited spending for qualitative als, child-care educators and speech therapists have and innovative child-care initiatives. Moreover, the taken a critical stance towards the new programme. programme is not funded by the family allowance Their concern is the risk of stigmatisation and cate- office, which did not select it from among the pro- gorisation for some children diagnosed too young as posals received for the call for innovative projects in having language development deficiencies. Thus, the 2012. This partial but progressive integration of Parler national federation of early childhood educators10 ex- Bambins within local child-care policies can also be pressed doubts as to the opportunity of applying Par- illustrated by the fact that only municipal services are ler Bambins as a national programme, as it is seen to part of the experiment, which does not concern non- be similar to early detection practices targeting specif- for-profit private providers. ic children and families. These concerns can partially Different channels of dissemination can be identified: be interpreted as the result of a major polemic about a controversial programme on the detection of at-risk >> scientific communication of the results through behaviour at an early age proposed by the previous academic articles but also professional reviews5 for government. presenting the programme and the first results;

>> popularisation of research findings through conferences6, training sessions for professionals, an official website7 and a short film produced by 8 Dominique Bertinotti’s visit to Lille, Friday 7 December 2012, www. social-sante.gouv.fr/actualite-presse,42/invitations-presse,2339/deplace- Lille municipality; ment-de-dominique,15436.html.

9 Bastien (2011) Les crèches expérimentent le « parler bambins », Nord 5 For instance, an article in Les métiers de la petite enfance (Pouget, 2013) Eclair, November. Crapet E. (2011) “A la rentrée, la ville expérimentera le ‘parler bambin’ dans deux crèches” [When school starts again, the city will 6 For instance, the conference Langages et réussite éducative: des actions be testing out Parler Bambins in two day nurseries], La Voix du Nord, innovantes [Educational language and success: innovative actions], May. Guignot C. (2012) “L’égalité des chances passe par le langage” [Equal March 2009. opportunities depend on language], La Gazette Santé sociale, March.

7 www.parler-bambin.fr 10 www.fneje.fr/spip.php?page=news 80 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities have recently moved totheFives distinguish differentmotivations andprofilesamongtheparents.Afirstgroupis composedofyoungparentswho subject todebatebecausethe socialmixoffamiliesisonethestatedobjectives the now stabilised.About30volunteers haveparticipatedintheproject.Thecomposition ofusersisimportantand average). Afterastrongprogression overthefirst4years,numberofmembers hasslightlydecreasedand The children’scaféhadamembershipof356in2012and registered4,366visitsperyear(27peopleadayon andways11.2. Typesof services of addressingusers centres tendtobeclosed. as innovativeintermsofopeninghoursconsideringthat mostchild-carefacilitiesandmunicipalrecreational suppose aco-presenceofthechildwithparent.The caféisopenovertheweekend,whichalsoperceived The mainobjectiveisnottofacilitateworkandcareconciliation ofworkingparents,astheactivitiesprovided age accessandavailabilityofplacesaccordingtocriteria definedbylocalchild-careinstitutionsandfunders. The rights, learning network wascreatedin2011withacommoncharterbasedonsharedvaluessuchasaffirmationofchildren’s several largecitiesinFrance(Lyon,Nantes,etc.)butalsootherEuropeancountries.Anationalthen Paris in1999. Fives. Thisnon-for-profitinitiativewasinspiredbythepioneeringandsimilarexperienceofCaféZoïde,setupin The PotesenCielcaféwassetupby10foundingmembersin2006aworking-class snacks areserved. exchanges, bookloansandfestive recreational actionsareorganised,suchasparent-childworkshops(music,visualarts,etc.),creativeandcultural between familiesandgenerationsbydevelopingfreecreativeparticipatorylearningactivities.Educational meeting placethatpromoteschildren’swell-being,goodparent-childrelationships,socialisationandmutualaid living inthe The childrencafé, 11.1. Shortdescription Potes enCiel-Children’sCafé 11 Lille FR Potes enCielcaféisnotatraditionalchild-careserviceinthesense that professionalsdonothavetoman- neighbourhood andnearbyorwishingtomeetotherfamiliesshareexperiences.Thecaféisa Potes enCielisthereforealsopartofthedisseminationprocesschildren’scaféconceptwithin citizenship, mutualaidandcooperation,thefightagainstdiscriminationrejectionofviolence. Potes enCiel,isawelcomingandopenplaceforchildrenaged0-16yearsaswelltheirparents /77 neighbourhood. Thecaféisviewedasaplace forsocialisation,afriendly wayto neighbourhood events.Onthecaféside,non-alcoholicrefreshmentsand Child andfamilycare Categories neighbourhood ofLillenamed Potes enCielcafé.Wecan 81

meet other parents and establish good neighbourly 1 euro per child, is cheap compared to private and relations. For some parents, going to the café fits with for-profit leisure activities for young children, access educational preferences or work and care balance to the café is now free for very low-income families. choices. It is in line with parents’ choice to spend time with their young children in a creative and us- 11.3. Internal organisation and er-friendly atmosphere. mode of working For parents, the café also corresponds to an educational approach perceived by some parents as Whereas the types of activities and forms of parental more adapted to children’s rhythm and development participation are clearly innovative, the working meth- than a traditional pre-school framework. Parents ods are also interesting, though sometimes problem- and children reproduce the creative activities they atic. In addition to their participation in creative and share in the café at home. In this sense, visual arts leisure activities, parents are involved as volunteers in and children’s singing workshops are also a learning the working organisation with tasks such as opening process for both parents and children. The education- the café in the morning, welcoming new parents and al motivation can also be identified through the high children, serving at the bar, developing the website number of users coming from other Lille Metropolis and so on. Volunteers and staff work together on districts. More than 50 per cent of users come from reception functions and welcoming parents to the outside the neighbourhood on Wednesday or during café, which is presented as fundamental. Volunteers the weekend. The café is seen as a unique place in are not always parents and users but also people the region in terms of sharing creative activities and from the neighbourhood who support the project. parent-children participation. An interesting point Professionals, parents and representatives of insti- is also the way the café can support divorced and tutions regard this strong involvement of volunteers Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities separated parents, in particular fathers who have cus- and users as innovative in comparison with traditional tody of children at the weekend. For them, the café child-care facilities, where professionals tend to keep helps to build a qualitative relationship between the parents at a distance. In addition, the participation of children and their fathers, which improves their care parents fosters flexibility and adjustments to activities and educational capabilities. Finally, child-minders are according to user demands. For instance, the staff another group of users who come during the week. organise picnic lunches as a convivial moment with For them, the café is a collective place that provides parents for informal discussion of educational issues. a socialisation space with other children and leisure However, the close relationship between workers activities that they cannot provide at home. and users can sometimes be problematic and has The social mix of users was one of the initial objec- still not been formally stabilised. Because parents tives behind setting up the café in a working-class are involved in running key activities proposed by the neighbourhood. However, the diversity of users’ social staff, some professionals are sometimes subject to origins has not yet met the board’s initial expecta- harsh criticism by parents in the way they facilitate tions. The cultural barriers to knowledge of the café, workshops. Because of the friendly and participative such as parental participation, could partially explain atmosphere, the respective responsibilities between this situation. In order to avoid the risk of social professionals and users are sometimes unclear. homogenisation, volunteers and professionals have Moreover, the staff have to manage specific demands decided over recent years to adopt a proactive ap- from child-minders asking for personal advice or proach by building partnerships with a young single problematic situations with certain parents (from the mothers centre and non-for-profit organisations such Rom community, for instance). The special attention ATD Fourth-World. Parents and professionals organ- given to individual cases can cause tensions with the ise activities out of the café and meet parents in other collective dynamic. places in the neighbourhood. The choice has been With the almost complete renewal of the staff, the made to welcome families in difficulties with the assis- Potes en Ciel café is in the process of clarifying its tance of social workers as a first step during the time working methods in line with the classical path taken needed for parents to gain confidence and autonomy by voluntary organisations. The first workers team, before trying to come on their own. Although the cost, and in particular the manager, were among the 82 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities this initiative. resources managementisactuallytheweakestpartof tially offsetbytheinvolvementofvolunteers,human complicated tocreateastableprofessionalteam.Par- temporary workers,traineesandstudents,makingit years. Thecaféisstaffedbyasignificantnumberof There hasbeenamajorturnoverofstaffoverrecent staff withoutwhichthecafécouldnolongeroperate. coordinator wasrecruitedtomanagetheprofessional utes ofboardmembers,usersandworkers.Thenew and formalisationoftherespectiverolesstat This developmenthasledtoaprocessofclarification workers doesnotfacilitatelong-terminvestment. subsidised jobs,etc.)thatappliestosomeyoung addition, theinsecurejobstatus(fixedtermcontracts, working atthecaféisajobfirstandforemost.In in theprojectislesspronounced.Formanyofthem, sonal involvementofthenewgenerationworkers tensions betweenstaff,boardandusers.Theper imperatives arosealongwiththefirstmanagement lematic inthe phase oftheproject.Itseemstohavebecomeprob and promoter)wascreativeduringtheemergence founders oftheproject.Thisdualrole(professional Lille FR development phasewhenfundraising Child andfamilycare Categories - - - lines forfinancialsupport. local institutionstofindthe correspondingbudget therefore takestimetoconvince municipalitiesand in viewoftheco-presence parentsandchildren.It a traditionalchild-carefacilitynorleisureactivity, In addition,asalreadyunderlined,thecaféisneither explains thedifficultiesoffindingaroleforcafé. process ofaworking-class newcomers andcontributingtothe perceived asabohoconcept,targetingmiddleclass opment. Theywerereluctanttoinvestinaninitiative civil servantsinchargeofurban official (Communistparty)fromtheFivesdistrictand the projectmetwithscepticismfromelected municipal representative(Greenparty)fortheSSE, a littlecontroversial.Initiallysupportedbytheelected and administrativespherehasbeenprogressive community skills.Also,recognitionbythepolitical tive anddoesnotliewithinthetraditionalscopeof the beginning. has notbeenimmediateandmetsomeresistanceat projects, integrationwithinthe governance isinteresting.Aswithmanyinnovative The roleplayedbythe in thelocal 11.4. Embeddednessof theproject Potes enCielisnotamunicipalinitia welfare system Potes enCielcaféin neighbourhood. Thispartly local welfaresystem community devel- gentrification local - 83 FR Categories Lille Child and family care

12/77 Early childhood centre

12.1. Short description

Lille has supported the implementation of early childhood centres, especially in popular neighbourhoods. These Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities early childhood centres are multi-stakeholder, multi-service facilities, which create networks and pathways between professionals, child-care services, and institutions. It is a local way for governing the diversification of facilities at the neighbourhood level, and preventing the social polarisation of services. Such services work thanks to local child-care coordinators, a new profession. Moreover, these kinds of centres provide a lively space for parents and children with temporary and permanent information, special events, and activities embedded in the neighbourhood. This case study focuses on the Childhood centre Halte-garderie doux calins (Tender loving part-time child-care centre) in the Faubourg de Béthune district. Our choice is justified by the fact that this service is located in one of the most popular and precarious districts in Lille, the pioneering and original nature of certain experimentations, and also the difficulties encountered in the attempt to consolidate and generalise these experiments. The Faubourg de Béthune Childhood centre was founded at the end of the 1990s. In the same place, it groups together a part-time child-care centre (“Halte-garderie”), maternal and infant health and care protection centre (Pro- tection Maternelle et Infantile), a child-minder centre (Relais assistants maternelles), a recreation centre, and a games library. The Doux calins (Tender loving) part-time child-care centre is an association created at the beginning of the 1990s following the observations made by local government representatives and various professionals of the educational difficulties faced by manysingle mothers, and the lack of any activity centre for young children in this district. Each year, it provides 20 hours of child care services per week for the children of 145-50 families (including 35 single-parent families in 2009), which still seems to be inadequate as there were 86 families on the waiting list in 2011. The request to create a multi-child care facility (combining part-time and full-time child-care facilities) has been on hold for several years due to a lack of funding. The Béthune district is a disadvantaged residential district in the south-western part of Lille, a city with a population of 232,432 inhabitants. It is an urban tax-free zone, where 77 per cent of the housing units are social housing. The unemployment rate in this district exceeds 30 per cent, and there is a high proportion of immigrants. Together with Moulins, this is one of the districts in which there is the highest number of single-parent families with nearly 40 per cent of children living with a single parent (Compas, ABS 2006: 18, 23). Thirty-seven per cent of the children live in a poor household (900 euros per month in 2006, ABS 2006: 26). Nearly 30 per cent of the children in the part-time and full-time child-care centres are from single-parent families. 84 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities problems inimmigrant familiesinwhichFrench parents lackauthority,butthere arealsolanguage challenges. Childrenlackpoints ofreference,and fessionals agreethatthereare definiteeducational and thefull-timechild-care centres. Child-carepro- Parenting supportisapriority inboththepart-time services, andassociationsinthedistrict. them towardappropriate time child-carecentresalsoplayaroleinorienting professionals aboutdiversepersonalissues,thepart- time. Sinceparentsregularlyconfideinthechild-care to completetraining,lookforajob,orworkpart- single government subsidisedjob).Childcareoftenpermits situation (unemployed,completingtraining,orwitha Many oftheparentsareinaprecariousprofessional issues) thatmakethemlessavailable. (a combinationoffamily,workandadministrative mothers areoftenoverwhelmedwithtimeconstraints Child-care professionalshaveobservedthat to devotecollectiveactivitiesthanafewyearsago. ly speaking,parentsseemtohavelesstimeavailable ten livewithlimitedfinancialresources.Moregeneral an associationisnotalwayseasyforparentswhoof dren, participatinginmanagingthewholebudgetof involvement (1-2years),linkedtotheageoftheirchil participation. Besidesthefactthatitisashort-term were moreandobstaclespreventingparent several ofthepeopleinterviewedstressedthatthere was asteptowardfindingnewjob.Nonetheless, al capacities.Forseveralofthem,thisresponsibility they gainself-esteemandconfidenceintheirperson who getinvolved.When This participationisgenerallybeneficialtotheparents Different typesof district initsmanagementandleadingactivities. time child-carecentrewastoinvolveparentsinthe As ofitscreation,theproject of addressingusers andways12.2. Typesof services > > > > > > Lille FR concerns. meeting withfamiliesandlisteningtotheir such asoutings,andparties; participation inpreparingandleadingactivities officers oftheassociation; participation ontheBoardofDirectorsandas mothers, whoareinthenationalprioritygroup, participation canbeidentified: mothers organiseactivities, employment services,social Doux calinspart- Child andfamilycare Categories single - - - - successful, itwillbefurtherdevelopedinthefuture. ous professionals.Ifthisinitialbookletprovestobe trict aswellawaytomonitorcontactswiththevari- early childhoodservicesandassociationsinthedis professionals, whichincludesinformationonallthe an experimentalwelcomebookletforfamiliesand The BéthuneECCalongwithitspartnershascreated activities organisedatthesocialcentre. are morepresentandparticipateinliteracy cant involvementoffathersimmigrantoriginswho activities havealsohelpedbringaboutmoresignifi- centre orgameslibraryveryoften.Theseparenting touching certainparentswhodonotgotothesocial combined reflectiononthedifficultiesinvolved in social institutions.Thistypeofinitiativeisparta about participatinginformalmeetingsorganised tate contactwithparentswhoaresometimesreticent ings withtheparentswhoaresoinclined.Theyfacili- pre-schools inthemorning.Theseareinformalmeet- association, theECCorganisescoffeebreaksat workshops withtheparents.AlongArpège (ECC) professionalstaketurnsco-organisingregular is notalwayswellspoken.Earlychildhoodcentre the servicesparticipatedina quarterlymeetingwitha many years.Likewise,allofthe professionalsinallof pist hasbeenworkingwiththe childrenattheECCfor to bemutualised.Forexample, anoccupationalthera in thesameplacealsoenables professionalservices Grouping togetherseveralservicesandorganisations draw upacharterforearlychildhoodcentresinLille. local GeneralCouncilandFamilyAllowanceOfficeto The BéthuneECCwasthemodelusedbyCityHall, as thetalefestival,andtoresolveinformalproblems. right professionals,toorganisecommoneventssuch them visittheappropriateservicesandmeetwith of servicesmakesiteasiertoguidefamilies,help tionist. Thepresenceinthesameplaceofavariety where thereisacoordinatorinadditiontorecep noting thattheBéthuneECCisonlyoneinLille and helpsputtogethercommonprojects.Itisworth who buildssynergybetweenmemberorganisations ganisations, andacoordinatoractivitiesleader, orients parentstowarddifferentservicesandor its dailyoperations:areceptionist,whoinformsand The ECCisluckytohavetwopeopletakingcareof mode of working 12.3. Internal organisation and - - - - 85

child psychiatrist, who is a professor at the University them, it is not always able to extend them to other of Lyon, to exchange their experiences about the spe- districts. More generally speaking, the managerial cific difficulties encountered by the professionals with pressure coming from those who finance the projects, the families. In addition, the ECC enables cross-disci- for whom the percentage of places filled is the princi- plinary professional training to be organised, which pal indicator used to assess the organisation, makes is open to employees from all its member organisa- the professionals vulnerable and undermines these tions. One such example is a music appreciation class. organisations, which have less time to devote to com- Having observed that many parents were enrolling mon projects and partnerships in the district. When their children in pre-school at an earlier and earlier age management is optimised in terms of the number (before they turned 3), the Director of the part-time of places filled, this leaves less room for qualitative child-care centre (Halte-garderie Doux Calins) ran a innovation. Another factor is the distance or barriers survey on the expectations of professionals and par- between professionals and users, limiting the involve- ents. A need for parenting support for the transition ment of users. Despite several local experimentations between the child-care centre and the national pre- for supporting parental participation and develop par- school led to the setting up in 2003 of preparatory half- enthood activities and spaces, professionals remain too often perceived as part of the “institutional world” days for children with their parents at the pre-school. Through dialogue with professionals, a progressive or considered as “social workers” which are some- calendar for integrating these children was established, times seen as a complex even “hostile world” especial- which takes into account the behaviour and the matu- ly by recent immigrant parents. rity of the children who are less than 3 years.

12.4. Embeddedness of the project Conclusions Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities in the local welfare system Sustainability The Director of the Doux calins part-time child-care centre has a twofold mission: she manages the child- Among the innovations presented in this report, care service, and also oversees social development in some are recent (support for self-renovation, Parler the district. This set up is original because it enables Bambins) and others are fragile (Potes en Ciel). In other her to spend time working on various partnerships words, the description and analysis of past initiatives with local institutions, such as the school and city hall, shows that they are not all success stories. But the and associations as well as inhabitants. It also enables ability to overcome certain difficulties also influences her to monitor and assess the needs of families the conditions for their sustainability. through information-exchange sessions and surveys. Several activities are carried out with other institu- From being in step with local priorities to being able tions and organisations in the district. The person in to resist changes in the local political agenda charge of the ECC, and the part-time child-care centre This is more or less a question of chance and opportun- Director, are members of an early childhood commis- ism. Social innovations can be in step with dominant is- sion in the district. They are also involved as speakers sues on national and local political agendas. From time at meetings and conferences organised by the city of to time priorities change, highlighting new practices and Lille, such as the “Early Childhood General Assembly” leaving previous innovations in the shade. held in 2011. For instance, parental participation was considered as The first interviews bear witness to the fact that there innovative by child-care institutions a few years ago, are obstacles making it impossible to more widely but this is less the case at present. Conversely, local develop several experiments. Several factors have solutions such as Parler Bambins to fight against social been identified. The main factor has to do with the and educational inequalities at the early preschool lack of resources and means to consolidate the inno- age are in keeping with the spirit of the times. In the vative activities. For instance, several of them are not housing and urban field, participation by inhabitants or are no longer funded by the CAF (Family Allowance was a key component of urban social policies in the Office). While themunicipality continues supporting 1980s and 90s before it was progressively forgotten in 86 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities rules andpractices; astheyarereluctantto investin strategies areoftentheresult oflocalauthorities’ limited intimeanddepreciation-based. innovation remainsfragile.It isoftenproject-based, This isakeypointbecausefunding supportfor mobilising fundsandresources Diversification andconsolidation strategies for self-renovation experiments. Les compagnonsbâtisseursforstrengtheninghousing departments. Thisis,forinstance,thestrategyusedby between differentpoliticalfieldsandadministrative local standing commitmentisdecisiveforbuildingbroader ensure thatitisnotmerelyatemporaryboost.Long- political and/oradministrativesupportovertimeand challenge ofsustainabilityistostrengthentheinitial elected officialsopenedwindowsofopportunities.The for thechildren’scaféPotesenCiel,localalliesamong or administrativeresistance,aswasinitiallythecase support aninitiativeisthesubjectofpoliticaldisputes renewal urbanproject.Evenwhentheopportunityto and thesemi-publiccompanyinchargeofUnion architects werecalledinbythemayorofTourcoing council been promotedinternallybyprofessionalsintheLille in chargeofchildcare.Supportforself-renovationhas periment stronglysupportedbytheelectedcouncillor eral interest.InLille,ParlerBambinsisclearlyanex- public funding,alongwithotherlocalservicesofgen- innovations emerge,dependingastheydomainlyon crucial factorintheprocessbywhichlocalsocialpolicy Initial supportfromthelocalpoliticalsphereisoftena coalition From initialpoliticalsupport to institutional hood Stephenson experimentinco-producinganeighbour- neighbourhood] thatwasthestartingpointforIlot association Rasepasmonquartier[Don’tdemolishmy contentious context,forexample,astriggeredbythe ipation byinhabitantscouldre-emergeviaalocally self-renovation by theactionlaunchedLillecitycounciltopromote cal agendasconcerninginnovativeissues,asillustrated authorities retainanabilitytomaintaintheirownpoliti- former were basedonthedemolitionandreconstructionof favour ofurbanrenewalpoliciesinthe2000s,which Lille FR coalitions of stakeholders and creating bridges coalitions ofstakeholdersandcreatingbridges urban renewal project. urban renewalproject. social housing department. Patrick Bouchain and his housing department.PatrickBouchainandhis housing areas. In this regard, some local housing areas.Inthisregard,somelocal initiatives. Processessuchaspartic- Co-funding Child andfamilycare Categories and trainingprogrammes. as specificdealswithexisting referencequalifications invent complexortailoredfunding packagesaswell professions alsorequiressocial entrepreneursto routines. Theprocessofconsolidating theseatypical sufficiently motivatedtowantescapeprofessional tracting workerswitharelativelyrareprofilewhoare facing socialinnovators.Itrequiresfindingandat Making thiskindofjobsustainableisthechallenge and socialinclusionforfamilieswithyoungchildren. centre. etc.)seekingtoimprovelivingconditions associations andlocalinstitutions(schools,social in thedistrictrelationtovarious management function,asocial tor ofthepart-timechildcareservicehas,besidesher childhood centresinFaubourgdeBethune,thedirec sionals inthe relationships withinhabitants,notonlyprofes sion inthebuildingsiteledtodirectmanagementof trades andsocialworksector.Thearchitect’simmer- requires amixofskillscomingfromtheconstruction sor inthesupportteamfor different existingtrades.Forinstance,beinganadvi profiles askingforaskillsmixatthecrossroadsof the emergenceofnewprofessionalpracticesorjob An interestingaspectstudiedinseveral atypical jobprofiles andskillsmix Recognition andconsolidation of new trades, of legitimationsupportfrompartnersandfunders. ability oftheserviceandanimportantexternalfactor are bothkeyinternalhumanresourceforthe newal ofvolunteers,user contributions areaccountedfor.Inthiscontext,re support for are co-producersoftheactivitiesprovidedorin of theprojects,asinchildren’scaféwhereparents initiatives analysed.Insomeofthem,itisattheheart es. Wecanidentifyuser be acomponentinhybridisedbalanceofresourc participation orvolunteercontributionscouldalso vices. Finally,non-monetarycontributionsfromuser foundations, usercontributionsorthesaleofser implies mobilisingprivateresourcesfrom charge ofskillsindifferentfields.Mixedfundingalso ities andpublicinstitutionsatdifferentlevelsin strategies canmeangettingfundsfromlocalauthor is oftennecessary.Inthiscontext,diversification a projectalone,buildinglocalcoalitionoffunders housing self-renovationwherehousehold urban renewaloperation.Intheearly participation inmostofthe participation andsocialmix housing self-renovation development mission neighbourhood initiatives is sustain------87

Dissemination nected to effective results. However, excessively rapid overexposure also risks compromising the longevity of social innovation. From singular initiative to innovative concept

Dissemination means a way of translating a process Formalising mechanisms for transferring and for transforming specific practices emerging within adapting know-how and skills to different contexts a specific context into a more or less mainstream Dissemination processes need formalised mecha- concept or story able to influence collective rep- nisms for transferring and adapting concepts, know- resentations of what is or is not innovative, and to how and skills to various promoters and stakeholders. become relevant to people and institutions from This point can be illustrated in different ways via the outside. Dissemination cannot be disconnected from Lille case studies: specific training sessions for local discursive innovations, which are often crystalised professional teams in the experimental Parler Bam- as an expression of a concept that can be circulated bins project and support for housing self-renovation, through different socio-cultural contexts. Severallocal reference to and membership of a national charter Parler Bambins, Café Potes initiatives studied in Lille ( for children cafés for Potes en Ciel, publication of a en Ciel and support for housing self-renovation) are book on alternative and participative approaches examples of the dissemination of innovations concep- to social housing construction and urban renewal tualised elsewhere and adapted in response to local neighbourhoods by the team of architects and urban Parler Bambins, issues. Specifically, notions such as planners from the Construire company. The dissem- Potes en Ciel and support for housing self-renovation ination challenge is based on the ability of pioneers cover similar groups of initiatives, which have already and social innovators to transmit not only an inspi- been tested in different cities. These are not products rational vision and concept, but also operational Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities that can be technically reproduced, nor are they turn- principles. It also requires project management skills key solutions; rather they are approaches, methods of local stakeholders. and organisations that could be characterised or formalised as principles of action and recommenda- Bottom-link supports mean that local innovation are tions for implementation. The Ilot Stephenson case is integrated and legitimised by networks, processes interesting because conceptualisation is an ongoing and resources from other scales. In two cases stud- Parler Bambins process, expressed by the slogan Faire ensemble, le ied, and the Ilot Stephenson urban grand ensemble [Working together to build the whole renewal project, the intervention of a scientific team urban area], which has not yet stabilised. or well-known architect from outside accelerated local innovation processes and overcame some resist- Communications channels and media coverage ance at the local level. A more traditional method of networking is the inclusion of local initiatives within a This is a more ambiguous form of dissemination. regional, national or European network able to offer Parler Bambins Examples such as Ilot Stephenson or symbolic, technical and financial opportunities. The demonstrate how an initiative, launched recently creation of a national network of 10 children’s cafés is and yet having achieved much, can become the go-to one example. Becoming members of Les compagnons concept despite the first positive outcomes yet to bâtisseurs (Companion Builders) network is also an be confirmed. Even if a deeper analysis is needed option considered by some local non-profit organ- of the role of communications as a key factor in the isations in charge of implementing self-renovation reputation of innovative practices, we can note that housing projects in Lille. using different channels of communication facilitates broader coverage. A mix between major institutional communications (making a film, special website), local press articles, publications in academic and trade press, participation in diverse conferences or public events all constitute a favourable terrain for reaching the national media. How well social innovation performs does not always seem to be directly con- 88 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities www.parler-bambin.fr The ParlerBambinsprogramme: stephenson.html www.lunion.org/logement/la-rehabilitation-de-lilot- website: Article ontheIlotStephensonprojectUnion www.legrandensemble.com Construire ensemble/LeGrandensemble: www.lillemetropole.fr/index.php?p=1510&art_id= Local HousingPlan,LilleMetropolis.Availableat: Web sites Interviews Bibliography > > > > > > > > > > > > > > > > > > > > > > > > > > Lille FR Potes en ciel, parentandboardmember. ciel, en Potes Potes en ciel, director ofPotesenciel. ciel, en Potes at theLille electedcouncillor forchildcare Bambins, Parler centre inLilleSuddistrict. directoroftheearlychildhood Bambins, Parler nursery intheMoulinsdistrict. directorofthe Trevisseday Bambins, Parler of theStephenson organisation Rasepasmonquartier formerpresidentofthe Stepheson, Ilot development manageratSEMVilleRenouvelée. socialexpertiseandsustainable Stepheson, Ilot the IlotStephensonproject. architectandurban plannerof Stepheson, Ilot Ilot Stepheson,architect from for-profit Directorself-renovation, Housing of GRAAL, not- for the self-renovation, projectHousing manager in Lille ECC Bethune, coordinatoroftheECCcenter. Bethune, ECC centre. ECC Bethune, Les compagnonsbâtisseurs housing association. municipality. director ofpart-timechild-care neighbourhood. Construire. . andresident 1126113, May-June. gramme forearlylanguage du langage”[ParlerBambins:apreventionpro gramme depréventiondudéveloppementprécoce Zorman M.etal.(2011),“ParlerBambins,unpro old ancien” [Stephenson,theunexpectedrenaissanceofan “Stephenson, larenaissanceinattendued’unquartier improvement], RechercheSociale vention atthecrossroadsofsocialactionand [Supported self-renovation:aphilosophyforinter de l’actionsocialeetl’améliorationl’habitat” accompagnée, unephilosophied’interventionàlacroisée Rémy J,&FoultierC.(2007)“L’auto-réhabilitation Métiers delapetiteenfance, vention programmefor ment dulangage” Bambins’, unprogrammedepréventiondudéveloppe Pouget G.(2013)“Miseenplaceetdiffusionde’Parler La GazetteSantésociale,March. langage” [Equalopportunitiesdependonlanguage], Guignot C.(2012)“L’égalitédeschancespasseparle two daynurseries],LaVoixduNord,May. again, thecitywillbetestingoutParlerBambinsin ‘parler bambin’dansdeuxcrèches” Crapet E.(2011)“Alarentrée,villeexpérimenterale document. Union ParticipationCharter,SEMVilleRenouvelée area], ActesSud. ensemble” Bouchain etal.(2010)“Construireensemble/LeGrand gramme]. Bambins leParler Bastin E.(2011)“Lescrèchesexpérimentent tic territorialdeLille/Helemmes/Lhomme Compas, ABS,AnalysesdesBesoins Sociaux, References neighbourhood], ” [Daynurseriestrialthe [Workingtogethertobuildthewholeurban [Implementing Cahier del’Unionn°2,juillet2012. early language 195,March. development], A.N.A.E., , 183,July-September. Parler Bambins,apre- Parler Bambinspro- [Whenschoolstarts , 2006. development], Diagnos- housing -

- - - FR France Nantes

Anouk Coqblin and Laurent Fraisse (CRIDA, Paris) 90 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Social inclusion Precarious workingconditions Participation Grassroots Family-minded Co-funding Child care Keywords: Local background of thesocialinnovations Introduction Nantes FR initiatives was launchedinordertoimprove themechanismsofsocialallowanc- In 2007-2009,anew“social experimentation” intheemploymentfield nation ofnewemployment policy patternstochildcarepolicies. which werecompletelyseparate untilthen.Indeed,wenoticethedissemi- care andemploymentpolicies andtherespectiveadministrativeservices, come families,etc.)andledtothebuildingofnewbridges betweenchild integrated localchildcaregovernance,newservicesdedicatedtolow-in - mented since2004(largeincreaseofnewplacesincollective care,amore public structuresandassociations).Importantreforms havebeenimple- to arelativeconsensusamongthem(politicalmajority and opposition, in thefieldofchildcare,reconciliationbetweenfamily andworkissubject Although thereisamultiplicityofstakeholders,providers andinstitutions combat poverty. on reconcilingfamilylifeandprofessionalcommitments asameansto iousness, increaseofpart-timejobsandatypicalhours).Thepriorityisput increase ofwomen’sworkanddegradationworkingconditions(precar- as welllocal,addressnewchallengesofsocialcohesion,suchthe intermediary-income households.Similarly,childcarepolicies,national ment ofenergyefficiency;enhancingaffordablehousingforlow-and tion ofsocial Housing Programme(2010-2016),focusesonrehabilitationandconstruc- is toaddressthemostvulnerablesocialgroups.Forinstance,Local One ofthemainNantesCityandMetropolis’welfarepolicyorientations cohesion strategy: A tendency to focus onthemostvulnerablegroups withina and constantdriveforefficiencyinpublicspending. ments, mainlyconcernallocationoffundsinacontextfundingscarcity ing thatcontroversies,existingbetweennationalandNanteslocalgovern a majorroleinpromoting Metropolis, whichhavebeenleadingproactive velop theirownpolicies.ThisisthecaseforCityofNantesand and expertiseatthelevelofcitiesmetropolises, state withdrawalfrom continuation ofthedecentralisationprocess;economiccrisisimplying taken moreresponsibilitiesthroughouttheyearsfordifferentreasons: determined bynationalpolicies.Nevertheless,citiesandmetropoliseshave the agendaandfunding.Indeed,childcare institutional relationsandpotentialtensionsonissuessuchaspriorities sibilities betweennationalandlocalgovernments.Itintroducescomplex ernance isthepredominantsituationwithmoreorlesssharedrespon As farashousingandchildcarepoliciesareconcerned,multi-level Emergence of localproactive welfare policies: CRIDA (Paris) Anouk CoqblinandLaurentFraisse Authors housing; rehabilitationofoldunsanitaryhousing,improve- welfare policies; development of development oftechnicalresources social innovation.Itisworthnot welfare policiesandplaying housing issuesarepartly enabling themtode social gov- - - - - 91

es (Activity Solidarity Income), aiming to combat Plurality of discourses on social innovation: poverty of employees and facilitating poor families’ return to work. The innovation initiated by the City of The main frameworks for innovation policy remain Nantes (presented below) uses the same terminolo- related to economic development, research and gy of “social experimentation” and similar patterns, technology investment, information technology, encouraging low-income mothers to return to work support for entrepreneurship, etc. Technological thanks to the improvement of child care facilities. and economic innovations are promoted in the Pays To a certain extent, the priority is to improve access de la Loire regional territory through the “Atlan- of vulnerable groups, less by creating specific and pole technopole” (high-tech industrial research and dedicated services and programmes than by facilitat- development facilities), fostering the emergence and ing their access to traditional social services through development of innovative companies and facilitat- adaptation and better coordination of existing ing networks of actors. However, social innovation is providers and professionals or through local exper- not absent from local political discourse. Whereas in iments with new intermediations between different the 1990s NGOs were considered as key agents in in- policy fields. novative practices, they no longer have the monopoly over discourse on this issue. Local authorities also Local policies dedicated to the social and solidarity- tend to present the action or policies they experi- based economy (SSE): a window of opportunity for ment and implement as innovative social strategies. social innovation: In the Nantes municipal child care project, presented below, public institutions present themselves as At the same time, multi-level governance creates win- social innovators, while not-for-profit organisations dows of opportunity for social innovation in terms of are not associated with the project or considered as recognition and funding. For instance, the emergence partners of child care policies. Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities of metropolises in the 2000s led to the implementation of new local policies. This is the case of Nantes In addition, it is worth underlining how social innova- Metropolis, created in 2001, that has initiated SSE tion is progressively integrated into a new framework policies since 2002. Until the election of François Hol- of local public action. In 2012, Nantes Metropolis and lande in 2012, there was no national SSE policy. Local City initiated a joint project on innovation in public SSE policies gave opportunities and space for social action, presented in the official discourse as the main innovation and initiatives in a cross-cutting perspec- source of change in policies. Working groups (admin- tive. As an example, Nantes Metropolis SSE policies istrative services and policymakers) aim at drafting promote the development of cross-cutting approach- a first set of good practices and defining favourable es between sectorial policies, reinforcing partnerships conditions for innovation; creating a more operational between public and non-governmental organisations. framework for supporting innovation in the territory; and deciding strategic orientations for public policy. Nantes Metropolis has created a specific SSE Call for Proposals, in order to finance new and socially inno- However, we observe at the same time the emer- vative projects in various fields such as homecare gence of new discourses and positions on social services, home-sharing, child care, social entrepre- innovation in the third sector. One is the emergence neurship, intercultural exchanges, international soli- of a social entrepreneur discourse that, in line with a darity, organic agriculture, waste recycling, territorial European approach, is more and more often associat- and neighbourhood revitalisation, etc. The specificity ed with social innovation. Within the initiatives select- of such a Call for Proposals is to support projects that ed, we can find both new social entrepreneur profiles address different sectorial policies at the same time (Time for Roof) that promote a move towards social (housing, education, employment, culture, child care, entrepreneurship in comparison with traditional so- etc.). This framework of action is new in comparison cial services, but also new projects supported by civil with traditional public action frameworks of local society organisations and social and solidarity-based institutions and civil servants that classify policies economic programmes that present themselves as according to their areas of competence and not to the “social entrepreneurs” because it tends to appear to reality of newly emerged action. local policymakers as a “modern” and “innovative” approach in order to tackle social issues. 92 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities public institutionsandwell-establishedNGOs. created basedontheideaandsupportoflocal and anetwork,madeupoftheseveninitiatives,was atives openedneighbourhood combines twoapproaches:sevengrassroots Fund andtheGeneralCouncil.Thethirdinitiative tions: theCityofNantes,localFamilyAllowance supported jointlybythreelocalchildcareinstitu- for Roof.Thesecondisatop-downdriveninitiative, developed bythenot-for-profitorganisationTime Metropolis. Oneofthemisagrassrootsinitiative have recentlyemergedintheterritoryofNantes This reportpresentsthreesocialinnovationsthat areas andmothersfrommiddle-classes,etc. elderly people,mothersfromsocialdisadvantaged activities, mixingdifferentgroups,suchasyoungand social tiesbetweeninhabitantsdevelopingconvivial services totargetgroups)butalsoaimingatcreating not onlyinafunctionalperspective(rendering studies intendtobuildnewspacesforexchanges, ing tonotethattwoinitiativespresentedinthecase and specialisationofsocialworktasks,itisinterest- creasing budgetconstraints,andthestandardisation In acontextofrationalisationsocialpolicies,in- facilitate socialcohesion: Family-minded andfriendly projects asaway to and “socialinnovation”. oped differentnotionsof“social third sector“milieu”andpolicymakershavedevel- not stabilised,whichexplainswhynetworksinthe social speak ofsocialinnovationwithoutpromotingthe Grassroots Nantes FR entrepreneurship perspective.Thisnotionis initiatives, ontheotherhand,could community centres entrepreneurship” CRIDA (Paris) Anouk CoqblinandLaurentFraisse Authors initi- 93 FR Categories Nantes Neighbourhood revitalization / Housing

13/77 Le temps pour toit - Time for Roof

13.1. Short description

The project Time for Roof emerged in 2005 in the specific context of the years 2003-2005: the heat wave of the Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities summer 2003 caused an enormous number of deaths of elderly people and highlighted the issue of isolation for elderly people living alone. Most French experiences of intergenerational cohabitation have been initiated in this context since 2004. In addition, the project aimed at addressing the lack of cheap lodging for students and young people undergoing professional integration.

The association Time for Roof defines its objectives as follows:

>> to propose a local and affordable accommodation solution to students and young workers; >> to find local and inexpensive solutions to enable older people to remain in their own homes; >> more generally, to offer a solution to people for whom everyday life becomes less easy to manage because of ageing, loneliness, family situation;

>> to promote solidarity between older and younger generations by the exchange of concrete services (housing for help) and mutual support between the householder and the home-sharer.

This initiative supported 82 “duos” of householders and home-sharers in 2011. In total, since the beginning of the project, 350 duos have been accompanied by the organisation. Time for Roof offers users different types of contracts, depending on the needs of the elderly people and the personal commitment of the young people. The economic model is based on a mix of monetary contributions and solidarity-based mutual help. The financial contribution is inversely proportional to the quantity of services rendered or regular presence given: for householders, the more presence they need, the more they pay; for home-sharers, the more they commit themselves to the relationship and give time, the less they pay. 94 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities advantages of suchasolution,especiallyfrom the for cheapaccommodationand veryrapidlyseethe hospitalisation ofacloserelative, etc.).Theylook en, facedifficultsocialorfamily situations(divorce, home-sharers is31.Someof them,generallywom temporary periodinNantes. Theaverageageofthe vocational trainingthatrequiresthemlivefora in aphaseofprofessionaltransitionorattending Nowadays, home-sharersaremainlyworkersbeing majority ofstudentswascontactingtheassociation. the home-sharers.Atbeginningofproject,a er’s profilehasledtoamodificationintheof As aconsequence,theevolutionofhousehold such situations. 60 percentofthenewcontractswerededicatedto sponds to a real demand from elderly people: in 2010, complex andexpensivesolutions.Thistrendcorre homes longerandpostponesrecoursetoothermore elderly people.Ithelpspeopletostaylivingintheir be consideredasapreventiveapproachincarefor people areleftaloneandmayfacedifficulties.Itcan and duringthenight:generallyitismomentwhen additional helpintheformofpresenceevening sonal careattendantsor in thewaythatitdoesnotreplaceservicesofper complementary to“professional”home autonomy. ThesolutionproposedbyTimeforRoofis home careservicesforelderlypeoplelosingtheir erational cohabitationasawaytoaddresslimitsof Roof cofoundersistoputtheemphasison Furthermore, thedirectiontakenbyTimefor Roof project. reinforcing socialtiesareatthecentreofTimefor the elderlyperson.Bycontrast,exchangingtimeand standardised tasksandhavelesstimetosharewith ventions. Professionalcaregivershavetofulfilmore of rationalisationhomecareprofessionalinter ple, itcanbeseenasaninnovativeaspectinacontext In thecontextofhome constitutes afundamentaldimensionoftheproject. exchange oftimeandpresencebetweentheusers viding supportandmediationbetweentheusers.The people losingautonomytostayattheirhomes,pro reinforcing socialand services toitsusers:exchangeof The associationTimeforRoofproposesinnovative addressing users 13.2. Conception andways of Nantes FR solidarity ties,enablingelderly care servicesforelderlypeo- family caregiversbutgives housing forsupport, care services Neighbourhood revitalization/Housing Categories intergen------in thecaseoftotemcontracts. the successand global supportprovidedtousersplaysamajorrolein the elderlyandanalysedifficultiestheymayface.The home-sharers tobetterunderstandthesituationof those signingatotemcontract:professionalshelp role ofsupporttothehome-sharers,especiallyfor or every2months.Trainingsessionsplayamajor the home-sharer,generallyeverymonthandahalf organises regularmeetingswiththehouseholderand The organisationstaysincontactwiththeusersand rapidly, requiringadecisiontobetakenurgently. people; thehealthofhostpersonmaydeteriorate the situationmaybecomeexplosivebetweentwo by watchingoverthesituationofusers.Indeed, plays aroleinconflictpreventionandmanagement the users;providingcapacity-building.TimeforRoof obligations oftheusers;preventingconflictsbetween personalised contact;presentationoftherightsand the selectionprocessofusers;establishment on whichdependsthesuccessof by theusers,consistsofdifferentkeycomponents, and supportofTimeforRoof.Themediation,paid presence ismadepossiblethankstothemediation The exchangeof more difficultsituations. and competent,readytogolivewithelderlypeoplein same time,thesepeoplecanbedefinedasmature they wererentingaclassicalaccommodation”.Atthe financial pointofview:they“pay10timeslessthanif events, communication,support forusers). of activities(organisation conferences andpublic recruited for their skills and involved in different types tion alsodevelopsvoluntary work:15volunteersare In addition,itisworthmentioning thattheassocia projects (publicinstitutionsandprivatefoundations). third comesfromexternalfundingthroughcallsfor Regional CouncilandNantesMetropolis,one- corresponds tothefundingofpaidstafffrom third comesfromtheusers’contribution,one-third Concerning theTimeforRoofbudgetin2012,one- sources offunding(public,private,non-monetary). ty-based economyandpromoteshybridisationof considers itselfaspartofthesocialand In ordertodevelopits modes of working 13.3. Internal organisation and sustainability oftheduos,especially housing forservicesandaregular sustainability, theassociation home sharing: solidari- - 95

The internal organisation of the association raises the working meetings aiming to create strategic priorities question of the quality of work. For the time being, in the field of care for elderly people. However, Time the working team is composed of six full-time paid for Roof is seen by public institutions as the organiser staff members. The salaries are co-funded by the Re- of an experimental project that is still under construc- gional Council and Nantes Metropolis for a period of 8 tion and not yet as a regular partner in the elabora- years. Each year, the amount financed by the Regional tion of policies. This situation raises the question of Council is reduced and not compensated by Nantes the diffusion at a larger scale of such an initiative if Metropolis, which means that the association has to intergenerational cohabitation has to be recognised develop its own resources in order to keep the paid officially. For the time being, there is no juridical staff at the end of public funding. In addition, salaries framework, the host and housed people do not have are relatively low. an official status recognised by the State, and neither Working on time-limited projects and contracts that does the signed contract. are project-based is not considered as an innovation For the time being, two French networks of non-gov- by the staff. On the one hand, it shows the capacity of ernmental organisations exist in the field ofinter - the organisation to adapt its work to new constraints generational cohabitation (Cohabitation Solidaire and to develop new and innovative projects (for in- Intergénérationnelle and Logement Intergénérationnel stance, the new project on social housing landlords). Solidaire). The lack of public recognition of intergen- On the other hand, this organisational form is not erational cohabitation and visibility of the associative supported by regular funders and well-established stakeholders involved in this field may be explained welfare policies, which would guarantee continuity of by their financialprecariousness and the competi- funding and prevent a too high dependency on short- tion existing between them. As a consequence, we time projects. observe the weakness of intergenerational home Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities sharing organisations’ coalitions. They lack a com- 13.4. Interaction with the local mon strategic vision and wish to collectively develop welfare system advocacy actions towards governmental institutions. Competition between organisations constitutes a real The association’s cofounders intend to create an obstacle to social innovation sustainability. impact on the local welfare system. Their main Last but not least, Time for Roof has succeeded in focus concerns intergenerational cohabitation as an disseminating the project in other locations and for alternative solution for keeping elderly people living other target groups. In 2007, it reproduced the pro- in their homes. The Time for Roof association raises ject in the City of Angers. According to the founders, public awareness through the publication of news- the local context was easier in Angers: contrary to letters, the organisation of public conferences on Nantes, where they are in competition with another intergenerational cohabitation, participation in public association, Time for Roof received the full support events organised by vocational training institutes, of the City of Angers to develop its project. Today, the pension funds, complementary medical assurance project is well developed in Angers and one full-time funds, etc. The organisation has developed links paid staff member works there. In 2012, the associ- within the health and home care local sector: profes- ation obtained funds from social housing landlords, sionals, doctors, home care services, not-for-profit Nantes Metropolis and the Regional Council to de- organisations, Municipal Social Action Centres and velop a new project in the disadvantaged residential sociologists working on the theme of care for elder- districts. Until now, intergenerational home sharing ly people. The doctors and professional caregivers was not developed for rental lodging, especially social they are associated with see the positive effects of housing, and the most socially excluded people were intergenerational cohabitation on the health of their not addressed by Time for Roof. In the framework patients. of this project, the association comes across new Since its creation in 2005, the Time for Roof associ- profiles of users and new social needs. In addition, ation is regularly invited by national and local public the association should also soon begin a new project institutions (ministry of Social Cohesion, General in rural areas. Council, Nantes municipality, etc.) to participate in 96 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities grassroots innovation. This innovationcanbecharacterised asaninstitutionalexperimentin lack ofsuitablechild such astheRSAhaslimitedeffectivenessunlessmain barrierstoemploymentfor to findtangiblesolutionsforfacilitatingthereturnemployment ofsingleparents.Indeed,afinancialincentive and professionalinclusion.Asaconsequence,theGeneral CouncilinchargeoftheimplementationRSAhas gramme. AsrecipientsoftheRSA,singleparentsare nowobligedtocommitthemselvesaprocessof 2009 oftheSingleParentAllowance( of theActiveSolidarityIncome(RSA)areregisteredthere. Themainchangefor The NorthNantesdistrictwaschosenbecauseofthedensity of local childcareinstitutions(theCityofNantes,the Family AllowanceFundandtheGeneralCouncil). stacle tolabourmarketinclusion.Itistheresultofanoriginaljointassessmentandastrongpartnershipbetween initiative intendstoaddresstheissueoflow-incomesingleparentsforwhomaccesschild such asparentsreturningtoworkorcompleting social cohesionandreconciliationbetweenworkfamilylife.Emphasisisputonthemostvulnerablegroups, only toincreasethenumberofplacesincollectivechildcarefacilitiesbutalsoachievesocialobjectives,such as For thepast20years,CityofNanteshasbeenadoptingpoliciesinfieldchild 14.1. Shortdescriptionof theinnovation families care provisionforsingle-parent needs andchangesinchild Joint assessmentoffamilies’ 14 Nantes FR care services,aretakenintoaccount. /77 Allocation ParentIsolé Child andfamilycare Categories vocational trainingandexperiencingdifficultsocialsituations.This ) thattargetedsingleparentsaspartoftheRSApro social housing.Some200single-parentrecipients local welfaregovernanceratherthana single mothers wasthemergerin single care services,inordernot mothers, suchasthe care servicesisanob- social - 97

14.2. Conception and ways of This Fund is presented as an innovation in that it is a tangible realisation of the cross-cutting approach addressing users encouraged by the three institutions in this initiative. The main innovative dimension is characterised by Six months after the beginning of the initiative, we the improvement of access to child care services observed the first signs of a lower demand of single for low-income single parents as a way to remove parents than expected. Around 20 families benefited barriers to their professional inclusion. The initiative from the initiative from January to July 2012. Among consists of a new municipal service dedicated to this them, five families accepted child-minder services, target group and aiming to develop adequate solu- two of them received places in day-care centres in the tions to their specific needs. framework of the new mechanism reserved for pro- In order to reduce the fragmentation of the local child fessional inclusion, and the rest of the families were care system, the City of Nantes set up four Childhood given places in day-care centres through emergency Coordination Centres in the City area in October 2011, places or usual occasional care. In addition, the Guar- in charge of informing and supporting families in their antee Fund has not been used yet. Possible explana- search for early childhood services and of coordinat- tions are that the selection criteria for beneficiaries ing child care services with other public institutions. were too restrictive and the absence of participation Three Childhood Coordination Centres are located of beneficiaries, associations and child-minders in the in “sensitive urban areas”. The coordinators of the project’s elaboration. Childhood Coordination Centres play a major role in supporting single mothers undergoing social and 14.3. Internal organisation and professional inclusion: proposing different child care modes of working solutions adapted to their needs and contacting the Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities relevant structures with them, acting as an intermedi- In addition to the newly created child care servic- ary between the child care services and the employ- es aiming to remove obstacles to the professional ment offices. This coordination between child care inclusion of single-parent families, the innovative and employment services is a major innovation, since dimension of this institutional initiative consists of the before the professionals were not informed of other constitution of cross-cutting modes of working and institutions’ missions and did not contact each other. new professional practices. In addition, the emergency places service, already A main dimension of the innovation is to promote existing in Nantes, has been adapted to the needs of a better long-term coordination between child care low-income single parents looking for a job: the dura- services and local employment offices, in order to tion period of the emergency care has been extend- facilitate the reconciliation of care and work for single ed; new emergency places have been created; a new mothers. Although the political support of these three procedure is in place, giving direct access to places institutions was essential for the emergence of the in child care collective centres without going through innovation, its success depends on the quality of co- the municipal admission commission. This exemption operation practices between professionals from child of the common rules is characteristic of the initiative, care and employment sectors. A preparatory phase whose aim is to facilitate immediate solutions to constituted a very important period of construction emergency situations. of the initiative in as far as it enabled child care and employment professionals to begin working together Among the different new services of the initiative, it is “to find a common language”, to create interpersonal also planned to encourage individual care. The idea relationships between professionals and to enable is to mobilise and support a group of child-minders, them to integrate the innovation’s objectives and the who agree to work with single parent families in respective functions they would have to fulfil. After difficulty. In order to overcome the issue of afforda- six months of experimenting, professionals attest to bility the City of Nantes, the local CAF and the General the positive impact of the inter-sectorial cooperation: Council created a common Guarantee Fund (30,000 they contact each other to solve situations affecting euros1 ) in case families fail to pay the child-minders. single parent families and succeed in finding solutions together. Nevertheless, there is a need to enlarge 1 Each institution gave 10,000 euros. 98 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities as anintrusionintheirpractices. initiative’s newframeworkofactionmaybeperceived ers, childcareprofessionalsandsocialworkers,the the childandmother.Forallgroups,child-mind while untilnowthefocuswasputonwellbeingof to workasanewpriorityintheirsupport als andsocialworkersareaskedtoconsiderreturn pacts onprofessionalpractices.Childcareprofession families’ andprofessionals’representations,hasim the “welfaretowork”principleandaimingatchanging framework ofaction,muchmoreorientedtowards them. Ontheotherhand,introductionofanew dergoing professionalinclusionarenotattractivefor of theparents,andlow-incomesinglefamiliesun child-minders areinapositiontochoosetheprofile local context,wherethereisashortageofplaces, of theinitiative,resultswereverylimited.In Nevertheless, inNantes,6monthsafterthebeginning child-minders andtogivethemasecureframework. 2 The CityofGrigny. care andemploymentpolicies. Inordertoenablethe to asustainable question ofwhethertheinnovation couldcontribute recognised aslegitimate.Nevertheless, itraisesthe sively spreadinginthelocalchildcaresystemand in theprofessionalinclusionofparentsisprogres The ideathatchild resistance atthebeginningamongprofessionals. this targetgroup,arenowused,thoughitprovoked collective centres,newselectioncriteria,focusingon and practices.Concerningmunicipalchildcare parents hasledtomodificationsinrepresentations duction ofanewprioritygiventolow-incomesingle employment andprofessionalinclusion.Theintro care professionalsandpolicymakersontheissueof This innovationhasraisedawarenessamongchild welfare system 14.4. Interaction withthe city example ofasuccessfulprojectcarriedoutinanother gle parentfamilies,hadbeendevelopedfollowingthe a groupofchild-minders,whoagreetoworkwithsin sional groups. On the one hand, the idea of mobilising This initiativeprovokedresistanceamongtwoprofes seekers). (Municipal EmploymentServices,StateAgencyforjob this cooperationtoother Nantes FR 2 . Theaimistoprovidemutualsupportamong cross-cutting approachbetween child care servicesshouldplayarole public employment services local Child andfamilycare Categories mothers, ------districts andamongotherprofessionals not beenoughtoreproducetheinitiativeother good practicesthroughprocedural of themechanismsdeveloped.“Thetransmission professionals, whoparticipatedintheconstruction the existing Indeed, thesuccessofinitiativereliesmostlyon brings intoquestionthepossibilityofreproducingit. mainstream localchildcareandemploymentpolicies, nation oftheinitiative,thatistosay,aninclusionin Nevertheless, theapproachchosenfordissemi of Nantes. planned for2years,andapplyittothewholeterritory institutions expressthedesiretopursueinitiative, duplication oftheinitiativeisrelevantornot.Allthree year afteritslaunch.Theaimistodecidewhethera out anevaluationontheresultsofinnovation1 tutional partnersintheinitiativeareplanningtocarry tween theCAFandmunicipalities.Thethreeinsti Contract thatframesthefinancialrelationshipbe be tomentiontheinitiativeinChildhood-Youth in itsgeneralframeworkofaction.Apossibilitywould of promotingprogressiveinclusiontheinnovation child carepolicies.ThelocalCAFhasasimilarstrategy municipality istointegratethisinnovationintolocal a majorissue.Therefore,theapproachchosenby cial sustainabilityofthiskindinitiativeconstitutes public spendingefficiency.Inthiscontext,thefinan rationalisation ofresourcesandaconstantdrivefor drawal bytheNationalFamilyAllowanceFund(CNAF), Local childcarepoliciesarefacingafinancialwith tives, butitmaybedifficulttoapplypolicies. from differentinstitutions,toworkoncommonobjec responsibilities. Itpermittedprofessionals,coming tives, activities,expectedresults,divisionoftasksand made toworkusingaproject-basedlogicwithobjec to cooperateonconcreteobjectives,thechoicewas City ofNantes,thelocalCAFandGeneralCouncil North Nantesdistrict. 3 Interview withacoordinatorofchildhood coordinationcentre, representations. making importantchangesintheirpracticesand age alargernumberoflocalprofessionalstowards needed tosupportthedisseminationandencour commitment bythethreepublicinstitutionsmaybe network ofchildcareandemployment guidelines will 3 ”. Strong ------99 FR Categories Nantes Child and family care

15/77 The Lieux Collectifs de Proximité network Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 15.1. Short description of the innovation

The network of “Lieux Collectifs de Proximité” (“neighbourhood community places” referred to hereafter as LCP) was created in April 2010 by seven local initiatives4 as a means to enable their development and sustainability, to professionalise their modes of working and secure long-term funding. In the framework of a collective project aiming at defining their common features and recognising the specificity of their work, a name and a definition were elaborated by the seven initiatives: An LCP is a place that is open to all, with a strong identity, located in different neighbourhoods in Nantes Metropolis. It produces services aiming to strengthen social diversity, social ties and citizenship, improving living surroundings, reinforcing community dynamic. Therefore, it promotes inhabitants’ direct participation and cooperation with other local stakeholders, including public institutions. The LCP is an innovative stakeholder in its territory at the level of governance and delivered services. Its services are complementary to public institutions and it plays the role of a bridge between inhabitants and these institutions.

This definition enables very differentinitiatives to gather around common objectives. Their diversity concerns their location (city centre, middle-class neighbourhood, socially disadvantaged district, Nantes City suburbs) as well as the profile of their target groups (women, families, youth, children) and the content of the actions. We can underline the following activities as the main characteristics of the seven local initiatives:

>> social inclusion and professional integration for disadvantaged youth and women, enhancing their professional know-how (sewing, dry-cleaning, child care, intercultural cooking, etc.);

>> social and cultural development of children; >> reinforcing parenthood, strengthening ties between parents and children; >> creating exchanges of know-how (computer, cooking, art, etc.) and mutual support between neighbourhood inhabitants;

4 The network consists of the following seven local initiatives: A l’abordâge, a café for children, created in 2004, L’Equipage, a bookshop created in 2009, L’îlot Familles (2010), Rencontres Amitiés et Partage Interculturels (“Intercultural Meetings and Friendship” referred to hereafter as RAPI), (2009), Regart’s (2005), Style Alpaga (1995), Tak Après (1999). 100 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities ciations, in2010 Recognised asmajorlocalnon-governmentalasso has beendevelopingproactiveSSEpoliciesforyears. the emergence of the LCP a closepublic-privatepartnershiphavecontributedto ity-based Economy(SSE)policiesandtheexistenceof local contextofNantesMetropolisSocialandSolidar its conceptionand ernmental organisationshaveplayedamajorrolein initiatives, public institutions and well-known non-gov Although theLCP idea offundingthe and workedwithNantesMetropolistoformulatethe participated inthefirstmeetingsbetweenLCPleaders 6 Specialisedinchildhood andyouthprojects. etc.). holders (associations,cooperatives,foundations, socialentrepreneurs, 5 Created in2006andregroupingalarge numberoflocalSSEstake rights, eitherbecausetheyare notawareofthem,or number ofpeoplewhodonot haverecoursetotheir National andlocalstudieshaveshowntheincreasing tions: “povertywithoutsocialties,itishell”. key elementforhelpingwomenindifficultsocialsitua- arrival inthecity,etc.Constructionofsocialtiesis divorces, long-termunemployment,disability,recent inhabitants experiencingtemporarydifficultsituations: become apointofreferenceforparentsandisolated instance, thecafésL’EquipageandAl’Abordagehave exclusion andlonelinessofpeoplelivingcloseby.For and meetingsamongpeopleasawaytocombatsocial create innovative dimensionoftheLCPliesintheircapacityto at easeandnotonlyassocialservicesproviders.The ed asfriendlyplaceswherewomenandfamiliesfeel etc.). ThisisanimportantdimensionoftheLCP,creat- its objectives(socialinclusion,professionalintegration, on convivialityasagoalinitselfandwaytoachieve One ofthemainLCPinitiatives’specificitiesistofocus addressing users 15.2. Conception andways of > > Nantes FR the know-howand production offoodcateringservices,basedon to supportcollectiveprojects:forinstance,the developing aneconomicactivityasameans immigrant women. at reinforcingthesenseof enables financingofculturalactivitiesaimed family-minded and friendly spaces of exchanges family-minded andfriendlyspacesofexchanges Ecossolies network wascreatedby development. Indeed,thespecific development ofa participation ofthewomen, 5 network. Nantes Metropolis and citizenship among Animation Rurale44 network. Child andfamilycare Categories grassroots - - 6

- - tive hasdeveloped French familieswithforeignorigins.EachLCPinitia districts withahighconcentrationofmigrantsand problem ismoreacuteinthe meet lackconfidenceinpublicinstitutionsandthis Indeed, theLCPleadersfeelthatinhabitantsthey issue constitutesamajorchallengeforLCP loss ofself-esteem,stigmatisationeffects,etc.).This with thecomplexityofadministrativeprocedures, ing accesstotheirrights(discouragementwhenfaced because theyhavegivenuponthepossibilityofgain The LCP find adequatesolutions,inrelationtolocalpartners. self-confidence, disclosesocialdifficultiesandthen phere, whichenablesuserstore-createsocialtiesand newcomers inafamily-mindedandconvivialatmos of theLCP istrations isconcerned,thekeyinnovativedimension as farmediationbetweenusersandpublicadmin rival ofthefirstchildathome,divorce).Nevertheless, their capabilitiestoovercomedifficultsituations(ar (domestic violence,immigrationlaw)anddevelop provide inhabitantswithinformationontheirrights orientate orsupportuserstocontacttherightbody, fessionals (jurists,psychologists,etc.),sothatitcan tions (FamilyAllowanceOffice),associationsandpro initiatives integrate the On theotherhand, theLCPinitiativesintegrate the to whom accesstochildcareservicesisthemainobstacle programmes addressinglow-income singleparentsfor one hand,nationalandlocalinstitutions aredeveloping and professionalinclusionmaybedistinguished.Onthe context. Indeed,twomainapproachestowardssocial be consideredasinnovativeinthenationalandlocal of socialsupporttowomenandfamilies,whichmay the integration ofwomenconsideredasdisqualifiedinto Several LCPinitiativesspecificallyaddressprofessional organised withthesupportofprofessionals. a specificprofessionalfield)thankstoworkshops lighting theirskills(eitherparental,eitherconcerning empowering approachesfortheirmembers,high music, travelling,sewing,etc.).Theyalsopromote es, organisationofthematicworkshops(well-being, the association:productionoffoodcateringservic members anduserswillingtocommitthemselves based ontheknow-how,skillsandpreferencesof addressees. TheactivitiesdevelopedbyeachLCPare tive approachesthatbuildontheresourcesof labour market inclusion (see innovation II above). labour marketinclusion(see innovation IIabove). labour market. They promote a global approach labour market.Theypromoteaglobalapproach initiatives allaimtodevelopco-produc initiatives liesintheircapacitytowelcome networks withlocalsocialinstitu socially disadvantaged initiatives. ------101

professional dimension into more open support for volunteers on the LCP project and coordinate them women where gaining self-confidence, highlighting their around common objectives and activities. own skills, developing their social networks, resolving In order to develop its sustainability, the LCP initi- concrete problems, such as mobility and access to trans- atives are developing diversification strategies and port, health, social rights, knowledge of the French lan- sources of funding. All seven LCPs have succeeded in guage and culture, are as important as child care, when mixing public, private and non-monetary resources. considering the return to work of women in difficult Public funding7 constitutes the main resource of the social situations and disqualified on the labour market. LCP (from 58-92 per cent of their budget). Four LCP have private resources (an average of 30 per cent of 15.3. Internal organisation and the budget) thanks to the services they sell to users. modes of working Important commitment of volunteers is highlighted in three LCP. After a first period ofdevelopment, the LCP initiatives are in the process of clarifying their working meth- In this context of fragile internal organisation, the LCP ods in line with the classical path generally taken by network is used as a tool for securing professional voluntary organisations. Today’s LCP leaders were positions and developing longstanding sustainability. among the founders and their personal commitment Since its creation in 2010, the LCP network has been was a determinant factor in the project’s success. At functioning as a loose and flexible structure, dedi- the same time, the volunteers are playing an impor- cated to strengthening the organisational capacities tant role in the working organisation with tasks such of the seven initiatives. We can underline the organ- as reception of users, organisation of workshops, isation of training sessions and exchanges of experi- administrative work, etc. ences between LCP leaders. Nevertheless, the main

achievement of the LCP network is the decision of the Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Securing professional positions, professionalising City of Nantes and Nantes Metropolis in May 2013 to the modes of working and strengthening the users’ secure and fund the directors/coordinators’ positions participation are the main current challenges. First for the seven LCP on a long-term basis. The intense of all, over the years most of the LCP initiatives have capacity-building process initiated in 2011 by the obtained public funding for one or several profes- network has led to the official recognition of the LCP sional positions (an average of 2.7 full-time equivalent as innovative stakeholders and to additional funding, per LCP). Nevertheless, public funding is limited in in particular for the most urgent needs: salaries and its duration (2 or 3 years according to the contracts). premises. Furthermore, the City of Nantes and Nantes It is important to note the precarious professional Metropolis have agreed to fund a “mutual support situation of the LCP professionals: absence of long- platform” with the recruitment of two professionals term perspectives for themselves and the structure, (support to the directors in the performance of their low level of salaries in comparison with the respon- multiple functions, fundraising, bookkeeping, etc.). sibilities and skills they have, quantitative deficien- cy of paid staff members in comparison with the 15.4. Interaction with the local overload of work. It has contributed to difficulties inside the structures: professional burn-out, difficulty welfare system in continuously giving time and attention to users The LCP network plays a classical network role, which when administrative work becomes more and more is to make its members more visible and legitimate time-consuming. Secondly, it raises the question of them. The network creates much more important the respective roles of volunteers and professionals opportunities for dialogue and negotiation with public in the LCP organisation. Until now, the separation institutions than those each LCP could have on its own. between volunteers and paid staff members’ skills It enables the LCP leaders to make their voices heard and responsibilities has not been very strictly defined and advocate about common problems they face, in the LCP organisation. The LCP are assessing the such as lack of premises and the precariousness of limits of such an organisation and expressing a need professional staff. They also recognise that belonging for more professional skills. The priority is today to recruit professionals whose function is to support vol- 7 Funding comes from the State, the General Council, the City of unteers’ participation, whose skills enable to mobilise Nantes, Nantes Metropolis and the Family Allowance Fund. 102 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities It raisestheissueofLCP a collectivepositiontowardspublicinstitutions. Ecossolies initiatives. However,theLCPleaders,supportedby tempted toobtainbilateraldecisionsordivideLCP for associationsonamultilateralprincipleandat The CityofNantesisnotusedtonegotiatingfunding decision-making processandpotentiallossofpower. introduced, forpublicinstitutions,insecurityinthe collective dimensionoftheLCP public institutionsandthe helped toenhanceitsautonomyand capacity tomaintaincollectivenegotiations,whichhas In addition,thestrengthof professional integration,etc.). and children,citizen ting approachesinthesameplace(parenthood recognises LCP’saddedvalueindeveloping cies thatmaybeconcernedbyeachLCP’sactivities.It the networkandindependentlyofsectorialpoli receives long-termfundingbecausetheybelongto LCP network,whichmeansthateachoftheseven Metropolis agreedtofinancethe nomic crisis.Indeed,theCityofNantesand local contextofpublicfunds’reductionandtheeco network asawhole,especiallyinthenationaland to haveobtained The maininnovationoftheLCP everyday life). in contrasttothefield-basedrealitiestheyface of conductanddecision-makingprocesses’slowness, (better understandingofthepoliticalworld’scodes misunderstandings withpoliticalrepresentatives tablished NGOspermittedthemtoreducepossible initiatives’ collective dimensionandautonomy, are to beatthecoreofprojects andguaranteethe fessional members,whose ship, itraisestheissuetowhat extentLCPnon-pro in itscapacitytosecureapublic-associative partner collaborative governancecanbeviewedas innovative tion Rurale44 along withseveralLCPleaders, of NantesandMetropolisintendtoparticipate coordinated bya tutions. Thenewmutualsharingplatformshouldbe independence oftheLCP tion, absentfromthenegotiationprocess,and the roleofLCP to the Nantes FR network andbeingincontactwithwell-es and representatives.Althoughthismodelof Animation Rurale44,keptondefending governance body,inwhichtheCity cross-cutting fundingfortheLCP initiatives’ BoardsofAdministra participation, socialmediation, network frompublicinsti initiatives themselves.The participation issupposed network’s network liesinits Ecossolies network’s advocacy network isitscapacity sustainability ofthe legitimacy with governance, and Child andfamilycare Categories cross-cut- Anima------er localandnational main challengeof from grassrootsnon-governmental organisations,a social innovation.For innovations thatemerged litions areawaytoenhance publicrecognitionofthe Integration intonon-governmental jeopardise thesuccessofinnovation. social workers,etc.).Ifoneofthemismissing,itcan of administrativeservicesandprofessionals,suchas civil servants;highandintermediarylevels(directors erating allstakeholders:electedrepresentativesand by theLCP departments. Thisis,forinstance,thestrategyused between differentpoliticalfieldsandadministrative local coalitionsofstakeholdersandcreatingbridges standing commitmentisdecisiveforbuildingbroader ensure thatitisnotmerelyatemporaryboost.Long political and/oradministrativesupportovertimeand challenge of elected officials,open on publicfunding.Localallies,especiallyamong cial policyinnovationsemerge,astheydependmainly often acrucialfactorintheprocessbywhichlocalso litions. Initialsupportfromthelocalpoliticalsphereis One importantaspectistheintegrationinbroad line severalkeyelementsof coming difficulties.Therefore,wecanalreadyunder a certainlevelofstabilisationandarealreadyover and stilldeveloping.Nevertheless,theyhavereached The innovationsstudiedinNantesarequiterecent Sustainability Conclusions in the considered (ornot)aslegitimateandkeystakeholders Building broadinstitutional and securingits impeding theassociationfrombeingfullylegitimate coalitions ofstakeholders.Thisisonethefactors did notsucceedovertimeinbuildingbroaderlocal to openthedoorspublicfunding,TimeforRoof representatives atthebeginning,whichcontributed ly, althoughitreceivedsupportfromelecteddistrict a conditionof the CityofNantes,GeneralCouncilandCAFis initiatives. Similarly,thestrongpartnershipbetween governance ofthiskindregulationbody. network forstrengtheningtheseven sustainability istostrengthentheinitial sustainability oftheinitiative.Converse sustainability. sustainability istointegrate broad networks asa way tolegitimate windows ofopportunity.The coalitions requiresfed sustainability. networks and local coa- coa------103

their actions and benefit from resources already In its first phase ofdevelopment, social innovation developed by other structures. This is the case of the does not have a stable organisational structure and LCP network, which has contributed to increasing the generally requires polyvalence and the capacity to power of negotiation of each particular social initia- mix different skills (social, administrative, financial, tive and lobbied public institutions on common issues political, technical, etc.), to adapt and react rapidly to and challenges. The main factor is the support of two new situations. In this context, professionals often local well-recognised non-governmental organisations face precarious working conditions, overload of (Ecossolies and Animation Rurale 44), which use their work, low salaries, non-recognition of their skills and own resources, such as direct contacts with political burn-out. Therefore, a key factor of sustainability is elected officials and civil servants, to promote the the capacity of the social innovation to stabilise its grassroots initiatives. On the contrary, we could say working conditions and find longstanding solutions to that the absence of fruitful cooperation between Time the professionals’ precariousness. for Roof and other national or regional umbrellas Social innovations often emerge thanks to the strong involved in intergenerational cohabitation hinders personal commitment of the founders, giving time on public recognition of the social innovation. a voluntary basis and being available for developing Are public-private partnerships a risk for social in- the project and contacts. Thus, it raises the question novation’s independence? Broad coalitions of public of sustainability beyond the investment of a few indi- institutions and non-governmental associations may viduals. The capacity for developing and maintaining lead to the constitution of close partnerships, ena- a collective dimension, implying the participation of bling them to secure public funding for social inno- users and volunteers in the co-production of services vations. It is the case in the LCP project, in which a and in the governance body, is also a main challenge new governance body comprises public institutions, of sustainability. Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities two local NGOs and the LCP leaders (professionals). However, it could jeopardise social innovations’ Diversification and consolidation strategies for independence in relation to public institutions, in as mobilising funds and resources far as representatives of grassroots initiatives are in a This is a key point because funding support for inno- minority and LCP initiatives’ Boards of Administration vation remains fragile. It is often project-based, limit- are not invited to be members. ed in time and depreciation-based. The role of specific funding mechanisms is important for the emergence Co-construction of new working cultures, quality of of social innovation. The existence of public calls for work and associative governance proposals dedicated to the emergence of new pro- New innovative practices challenge their surroundings jects is an important factor of development for social and the social innovation’s protagonists themselves. innovations. It is interesting to note that public funds Although the change promoters may be convinced do not often come from sectorial social policies (hous- of the relevancy of the new working culture brought ing, elderly people, child care, etc.) but from cross-cut- by the innovation, the stakeholders involved in its ting policies, such as Social and Solidarity-based co-production and implementation (professional staff, Economy policies or the Social European Fund. For volunteers, users, etc.) may be sceptical or reluctant to instance, the Social and Solidarity-based Economy Call integrate new professional cultures and practices. The for Proposals, created in 2006 by Nantes Metropolis, participation of stakeholders in the co-construction plays a major role in support for grassroots initiatives: of the project and the existence of a capacity-building between 2006 and 2010, 129 grants were allocated to process are crucial for the sustainability of the social 73 organisations for a total amount of 673,000 euros. innovation. For instance, in the project initiated by Nevertheless, in as far as this first support is limit- the City of Nantes, a preparatory phase organised for ed in its duration, the main challenge is long-term child care and employment services enabled profes- funding for social innovations. Co-funding strategies sionals to overcome their fears and resistance. In the are often the result of local authorities’ rules and LCP project, external consultants provided LCP leaders practices; as they are reluctant to invest in a project with training and capacity building. It enabled them to alone, building a local coalition of funders is often co-construct a common identity, culture and practices necessary. In this context, diversification strategies with the grassroots initiatives. 104 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities sustainability ofsuchnewfunding mechanisms. CAF). Futureevaluationwould enableanalysisofthe (City ofNantes,NantesMetropolis, GeneralCouncil, obtaining the initiativeledbyCityofNantessucceededin Nevertheless, weobservethattheLCPprojectand term culturalchanges,lossofpowerandbudgets,etc. the welfaresystemanditsmodificationrequireslong- sectorial divisionofpolicyfieldsisdeeplyrootedin ever, itfacesmanyobstaclesandresistance,asthe suitable toaddresscomplexsocialproblems.How and demonstratesthat and social child care,employment,youth,careforelderlypeople vation oftenconcernsseveralpolicyfields( funding betweendifferentpolicyfields.Socialinno There isaneedforthe innovations stillunderconstruction. housing, childcare,etc.)butnotadaptedtosocial sectorial administrativedepartments(employment, the supportgiventomoreconsolidatedprojectsby first grantsgiventothenewinnovativeprojectsand budget linesandwenoteavacuumbetweenthe SSE CallforProposals,therearenootherspecific once socialinnovationsarenolongerfundedbythe of thesupportgivenbypublicinstitutions.InNantes, raises thequestionofcontinuityandquality Furthermore, thesustainabilityofsocialinnovations being forcedtoinnovateallthetime. stantly facesrisksofdestabilisationitsstructureby not given the means tosustain its innovation and con- consequence, itfacesthefollowingcontradiction:is to keeponproposingnewinnovatingprojects.Asa to getfinancialsupport,TimeforRoofisrequired situations forsocialinnovations.Forinstance,inorder or privatefoundations.Thismayleadtoparadoxical to theselectioncriteriadefinedbypublicinstitutions als, etc.).Italsorequiresadaptingprojectproposals on runningafternewopportunities(callsforpropos limitation sinceitrequiressocialinnovationstokeep In addition,time-limitedfundingconstitutesareal and oftentothedetrimentoftimespentwithusers. without theassurancethatresultwillbepositive innovations andtakesanenormousamountoftime, raising oftenbecomesapermanentactivityforsocial of skillsindifferentfields.Asaconsequence,fund public institutionsatdifferentlevelsandincharge can meangettingfundsfromlocalauthoritiesand Nantes FR cross-cutting andinter-institutional funding solidarity-based economypolicies) development of cross-cutting approachesare cross-cutting housing, - - - - ence intherelationwithpartnersandfunders. external factoroflegitimationaswellindepend for the and socialmixarebothkeyinternalhumanresources this context,renewalofvolunteers,user ants areco-producersoftheactivitiesprovided.In LCP initiatives,whereparents,womenandinhabit some cases,itisattheheartofprojects,asin component inahybridisedbalanceofresources.In ticipation orvolunteercontributionscouldalsobea Finally, non-monetarycontributionsfromuser tion (supporttotheusers,mediation,etc.). cent oftheintermediaryroleplayedbyassocia sustainability. Users’contributionsfinance60-70per financial has developedanoriginaleconomicmodelinwhich generational homesharingprojects,TimeforRoof the saleofservices.Incomparisonwithotherinter es fromprivatefoundations,usercontributionsor Mixed fundingalsoimpliesmobilisingprivateresourc most child-minders wereunemployedand lookingfor sions ofasimilarprojectinthe cityofGrigny,where the CityofNanteshadtaken forgrantedtheconclu explained byalackofanalysis oftheNantescontext: child-minders’ resistanceto cooperate. Thiscanbe ceived inNantes.Conversely,theCityofNantesfaced erational homessharingbasedonthemodelcon of Angersthatenabledittorapidlydevelopintergen Roof encounteredstrongpoliticalsupportinthecity is akeyelementofdiffusion.Forinstance,Timefor ers, etc.)whostructurethelocal“professionalmilieu” various stakeholders(publicbodies,professionals,us factors, theunderstanding,positionandsupportfrom adaptation inresponsetolocalissues.Amongvarious to verydiverse specificities. Thesameinnovativeconceptmaylead practices cannotbedisconnectedfrom er, inordertobesuccessful,disseminationofgood conceptualised andimplementedelsewhere.Howev context, maybebasedonotherexperimentations New projects,identifiedasinnovativeinaparticular societies, theirlocalwelfaresystemsand the institutionalarchitectureaswellmind-setsin patterns, valuesand“messages”,therebyinfluencing their operations,butalsocentralinstruments, ing” therespectiveorganisedprojects,notonly Diffusion isdefinedasthepossibilityof“mainstream Dissemination sustainability oftheserviceandanimportant participation oftheusersisakeyelement initiatives ontheground,andimplies local context participation governance. par------105

job. By contrast, child-minders in Nantes face a strong tions into local mainstream policies. In a context of demand from parents and are able to choose those funding scarcity, this is the strategy chosen by the City who propose secure funding. of Nantes in order to disseminate the initiative in all Dissemination processes need formalised mecha- Nantes districts. Nevertheless, it raises the question nisms for transferring and adapting concepts, know- as to what extent it may have a “mainstreaming” ef- how and skills to various promoters and stakeholders. fect and influence modifications in thewelfare system This point can be illustrated in different ways by the or, on the contrary, lead to the social innovation being Nantes case studies: training sessions for LCP leaders, emptied of its contents by stronger routine profes- creation of a collective LCP charter; working sessions sional practices. for child care and employment services’ professionals, elaboration of common working tools (information documents, procedures). Communication plays a main role in dissemination. Innovative projects tend to diversify as much as possible their communication tools: websites, local press articles, publication in academic press, participation in diverse conferences and public events, etc. Besides, the support given by public institutions is another key factor of diffusion. For instance, the LCP has benefited from broad coverage byEcossolies and Nantes Metropolis, which funded the production of a docu- mentary film presenting thenetwork. It is presented Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities systematically during official conferences, in the press and in website articles, and has become a kind of emblematic local successful project. Dissemination of an innovative concept generally faces resistance at local and national levels. In order to defend social, economic and/or cultural changes they promote, innovations may rely on the expertise of researchers and specialists. For instance, the Time for Roof cofounders regularly organise public events to which they invite experts (sociologists, economists, doctors, etc.), in order to make intergenerational cohabitation recognised as a sustainable alternative in the care of dependent elderly people. Expertise can be external, as for Time for Roof, or developed as an internal tool. For instance, the City of Nantes has a Policies Evaluation Service (Mission Eval- uation Publiques), playing a role of expertise body. It gives resources and capacities, in terms of policies’ analysis and reforms’ implementation that many French cities do not have. It played an important role in the emergence of the experimentation and in its diffusion (conducting evaluations, spreading results via publications and public conferences). Dissemination strategies aiming to influence the institutional architecture of local welfare systems and governance may consist of integrating social innova- 106 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Interviews withkeystakeholders: child careprovisionforsingle-parentfamilies Joint assessmentoffamilies’needsandchangesin France: Information onintergenerational networks: Information onintergenerationalhome-sharing Documents oftheTimeforRoofassociation: Interviews withkeystakeholders: Time forRoofassociation: References andInterviews Bibliography > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > Nantes FR Coordination Centre,North district ofNantes. Interview withtheCoordinator oftheChildhood Child CareService,CityofNantes. Interview withtheHeadof NorthTerritory, Service, CityofNantes. Interview withtheDirectorofChildCare two generations,2004-2005. Institute ofPoliticalSciences,ReportOneRoof, two generations,2006. National GerontologicalFoundation,OneRoof, www.artoit2generations.free.fr www.reseau-cosi.com www.homeshare.org letempspourtoit.fr and methodsofworkonthewebsite:www. Presentation oftheassociation’sobjectives Minutes of the 2011 and 2012 Public Conferences. Time forRoofActivities’2011report. Time forRoofActivities’2010report. Direction, NantesMetropolis. Coordinator, EmploymentandSocialInnovation Interview withtheEmploymentProgramme Metropolis. and SocialInnovationDirection,Nantes Solidarity EconomyProgrammes,Employment Interview withtheResponsibleforSocialand Interview withtheTimeforRoofcofounders. home sharingin Interviews withkeystakeholders: The “LieuxCollectifsdeProximité” Documents: > > > > > > > > > > > > > > > > > > > > > > > > > > discussion withthepaidstaff members. Visit oftheRegart’spremises andinformal and AnimationRurale44. leaders andthetworepresentatives ofEcossolies Participation inameetingwithallthesevenLCP City ofNantes,February2012. to accesswork:anoperationalplanofaction”, Internal NoteoftheChildCareService:“Barriers single-parent families?”,13thMay2012. what aretheappropriatechild the Seminar“Sustainableprofessionalinclusion: Council, Evaluationofpublicpolicies:“Minutes City ofNantes,DepartmentalCAF,General Affaires Sociales,n°4,pp.30-55. la couverturedesbesoins”,RevueFrançaise Enfance: uneapprocheterritorialepourévaluer Daniel Audrey(2011)“AccueildelaPetite May 2011. the accessofparentstowork?,CityNantes, Evaluation Notebook,Childcare:howtofacilitate Economy. stakeholders oftheSocialandSolidarity of Ecossolies,mainlocal Interview with the Child care projects’Coordinator Care Association(ANAF). Interview withtheDirectorofNantesFamily Council ofLoire-Atlantique. Mission fortheNorthsectorofNantes,General Interview withtheHeadof Mission, GeneralCouncilofLoire-Atlantique. Interview withtheHeadofLocalDevelopment Atlantique. Inclusion Service,GeneralCouncilofLoire- Interview withtheVice-Directorof Fund ofLoire-AtlantiqueDepartment. Financial AllowancesService,FamilyAllowance Interview withtheDirectorofSocialWorkand Nantes. municipal multiplecarecentre,Northdistrictof Interview withtheDirectorofSantos-Dumont network regrouping network Social Inclusion care servicesfor Social 107

>> Visit of the RAPI premises and interview with References RAPI members: the director (paid staff), a coordinator (paid staff), a member of the Board of Evers, A./ Ewert, B.(2012): “Social Innovations for Administration (volunteer), a member using the Social Cohesion. On concepts and first findings of a services. cross-study study”, Paper presented at 10th Annual ESPAnet conference, Edinburgh, September 6-8, 2012. >> Interview with the leaders of the café A l’Abordage and the café L’Equipage.

>> Interview with the Responsible for Social and Solidarity Economy Programmes, Employment and Social Innovation Direction, Nantes Metropolis.

Documents of the LCP network:

>> Diagnostics on the social and economic situation of each of the seven LCP, realised by the external consultant agency Actyvea, November 2011.

>> Minutes of the meetings of the LCP network in 2011 and 2012 (elaboration of the LCP definition and charter).

>> Activities report of RAPI, 2011.

>> Web sites of the café A l’Abordage and the café Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities L’Equipage.

>> Web sites of Ecossolies. Documents of Nantes Metropolis:

>> Website of the Nantes municipality. >> Website of the Nantes Metropolis: presentation of social and solidarity-based economy policies.

>> Internal document of Nantes Metropolis: position paper on the support to the LCP network.

>> Web site of Nantes Metropolis >> Evaluation of the Social and Solidarity-based Economy Call for Proposals”, working document of Nantes Metropolis, 2011.

>> Minutes of the Metropolitan conference on Social Urban Cohesion Policy, 15th April 2011.

DE Germany Friedrichshain - Kreuzberg (Berlin)

Benjamin Ewert and Adalbert Evers (Justus-Liebig University Giessen) 110 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Welfare mixes Welfare Urban gardening Third sectororganisations Social investment Social housingpolicies Social cohesion Political administrativesystem Participation Local context Labour marketintegration Gentrification Family-minded Family Centres European SocialFund Entrepreneurship Empowerment Community Child care Keywords: Local background of thesocialinnovations Introduction Kreuzberg (Berlin) Friedrichshain - DE governance development of (social)integrationwithlocal trendssuchastourismandgastronomy. trepreneurial skillsamongmigrants andjobseekersbycombiningtheissue primarily onanupturnofthe localeconomy,e.g.thosethatstimulateen headquarters inFriedrichshain’s oldfactorysites.Otherstrategiesfocus a newcreativeindustry,such as of thedistrict,hopesemanatefromcompanies,symbolising thespiritof stakeholders andinhabitants.Whenitcomestotheeconomic tempt tospreadanattitudeof“togetherness”andcooperation amonglocal solidarity. Inordertopreservethose“socialhabitats”,policymakers at German synonymforwell-functioningneighbourhoods based onreciprocal coherence, manylocalpunditsconjuretheintegrativestrength ofthe Today’s answersofthesechallengesaremanifold.With regard tourban entrepreneurial spiritamongitsresidents. on thequestionhowtore-industrialisedistrictand tospreadan ities, urbansocietytogether?Second,aneconomicdiscoursethatcentres simple question:whatholdsadiverse,bothintermsoforiginsandcapabil a fairshareofopportunitiesforeverybodyinthedistrict,whichleadsto today’s localpolicies.First,adiscourseon ful historiesemanated(atleast)twodiscoursesthatstillhaveanimpacton From thesecolour- tive subculturedistantfromthe“normal”labourmarket. guest workersandahomelandofcreativebohemianspursuinganalterna tionally aproletariancharacter,becametheassignedhomeofWestBerlin’s and huge(classicalold-style) Berlin’s workersdistrictwithindustrypremisesalongsidetheSpreeRiver neighbourhoods andurbanplanningapproaches.FriedrichshainwasEast by theEast-Westdividethatbroughtalongdifferentgroupsofresidents, Merged intoonedistrictin2001, that overlap,intermingleandcollidewitheachotheratthesametime. historical legacies,streamsofthinking,socialmovementsandcommunities Indeed, describes itselfasyoung,multicultural,creativeand“alwaysonthemove”. hain-Kreuzberg inBerlin,onegetsarathermixedimageoflocalitythat applying thisperspectiveonsocialinnovationstothedistrictofFriedrichs- collaborative workingandnetworkinginsteadofuncoordinatedaction.By ing aclosedshopdrivenbyelitesorwhethercertainpoliciesarerealised tion, e.g.whetheritspoliticalsystemisopenandparticipatoryinsteadofbe- approaches ofaddressinguserssayalotaboutthespecificnatureloca- tackle socialproblemsandneeds.Hence,newroutine-breakingservicesor blocked offfromchangeandinformaboutlocalopportunitystructuresto occurring ataparticulartimeandplace.Theypointtolocalareasissues tions, perceivedasindicatorsandmessengers,respondtosocialproblems where theyaredevelopedandputintopractice.Moreover,socialinnova- resources, e.g.humancapitalandpublicsupport,availableatthelocality Social innovationsdonotcome“outoftheblue”butcapitaliseondifferent (Justus-Liebig UniversityGiessen) Benjamin EwertandAdalbertEvers Authors t Friedrichshain-Kreuzberg representsauniquemixtureofdifferent housing stocks.Kreuzberg,havingalsotradi Universal MusicandMTV Friedrichshain-Kreuzberg ischaracterised solidarity, socialcoherenceand that basedtheir development Kiez, a - - - - - 111

A key reference point for social innovations in Frie- tions of “active citizens” and third sector organisations drichshain-Kreuzberg is the concept of spatial policy concern foremost the issues of labour market integra- interventions dividing the urban space in manageable tion and child care but lack innovations dealing with units and areas of coordinated action. Four of our six the most urgent problem of the district: the scarcity social innovations introduced below conceptualised of social housing. This imbalance goes back to the fact their services by taking the particularities of certain that in Germany housing policies are determined by urban and social spaces – housing blocks, quarters the federal government, whereas the Berlin Senate and neighbourhoods – into account. However, for an (state level/Land) and the districts (local level) have analysis of this approach two different dimensions merely some leeway to decide how to allocate and have to be separated: first, the professional dimen- manage existing housing stocks. Structural develop- sion at the level of social workers and administrators ments, such as substantial investments in new (social) after which spatial policy interventions, involving all housing stocks, are beyond the power of Berlin’s local stakeholders, are a panacea against urban decay government (Senate and district). In this respect, that is more promising than uniform programmes the housing market differs much from other policy administrated single-handedly by the authorities. fields that leave space for decentralised solutions. As Second, “spatial policies” are combined with debates a consequence, potential innovators, e.g. initiatives of public self-assurance. By addressing local identi- of residents or neighbourhood groups, are thus far ties and strengthening people’s local patriotism (e.g. limiting their activism to creative forms of protest and through campaigns such as “We in Kreuzberg”) a public presence. To put it in a nutshell: rising rents sense of belonging to the district should be enforced. and the gradual replacement of the poor (immigrants, However, in order to avoid a simplistic picture that single parents, the unemployed) are hot public issues portrays Friedrichshain-Kreuzberg euphemistically in Friedrichshain-Kreuzberg that have triggered an Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities as a dynamic breeding ground for social innovations ongoing debate on urban development and social it is worth noting that there is growing social division cohesion but have not yet led to innovations in social among its residents. On the one hand, there is an housing policies. ongoing influx of well-educated better-offs, such as The six innovations introduced below were chosen cosmopolitans, young professionals, silver agers and according to the following criteria: first, we applied a double-income households. This clientele, having little broad and neutral definition of “innovation”, indicating or no interest in local politics and social problems, merely new ways to deal with social problems while choose the district for life and living due to its central abstaining from predefined (normative) goals. Sec- location in Berlin and its cultural richness. On the ond, we distinguish between different drivers, such as other hand, there are native residents and rather ordi- managerialism, participatory governance and/or forms nary people – immigrants, bohemians, single parents of progressive professionalism, e.g. schools opening and GDR-socialised seniors – with low income who up to the community or social workers bridging their are becoming ever more marginalised in Friedrichs- services with local support networks. We are convinced hain-Kreuzberg. This diverse clientele of vulnerable that innovations in the realm of local social policy people, being hard to reach by traditional social policy consist necessarily of both a certain project and an programs, is increasingly addressed “in a different underlying background approach. The respective scale way” by innovative projects and service arrangements of innovations and their future developments depend as we will show in this report. Of course, this differs on another factor: the implementing power of the according to policy fields and groups. However, certain stakeholder(s) who put(s) them into practice and the target groups, e.g. single mothers or youngsters with- relationship to the dominating policy coalition. This out a school degree, have cumulated problems and tension is (very often) reflected in practical and symbol- therefore need comprehensive support packages. ic levels of innovations. On the one hand, innovations By and large, we found many routine-breaking service are about looking at concrete offers and services; on arrangements and projects in Friedrichshain-Kreuz- the other hand, they are also about being engaged in berg. We thereby confirm the self-image of many local the dissemination of messages about the wider mean- activists describing their scene as Berlin’s “spearhead ing and visions of their practices and offers. of an active civil society”. However, actual contribu- 112 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities the stimulationof focus on,forinstancebybridging one policyfieldandaddressmorethangroupwe grated actionsplans.Theythusbelongtomorethan practice, however,mostofourexamplespursueinte finish withtwocasesoffamily-focussedpolicies.In projects inthefieldof innovations inurbanrevitalisation,continuewithtwo ed inthecontextofpolicyfields.Westartwithtwo ers oftheinnovation.Theinnovationsarepresent and onewithexperiencedusersand/orlocalobserv interviews: onewiththerespectivesocialinnovator system. Foreachcasestudy,wedrawonatleasttwo 3) embeddednessoftheprojectin users; 2)internalorganisationandmodesofworking; themes: 1)typesofservicesandwaysaddressing sive description,areorganisedaroundthreebasic of thesixinnovations,introducedbyacomprehen cannot introduceforreasonsofspace.Theportraits for similarinnovativeprojectsinthedistrictthatwe exemplary andincomplete.Eachexamplestands vocational trainingto urban revitalisationprogrammesandnewformsof documents). Thechoiceofinnovations,rangingfrom of availableresources(newspapers,websites,policy with localstakeholdersandourowninvestigations report werechosenbasedonbackgroundinterviews The sixsocialinnovationstobepresentedinthis social innovations Local background of the Kreuzberg (Berlin) Friedrichshain - DE entrepreneurialism. family-minded policies,remains labour marketintegrationand urban renewalwith local welfare (Justus-Liebig UniversityGiessen) Benjamin EwertandAdalbertEvers Authors - - - - 113 DE Categories Friedrichshain - Neighbourhood revitalization / Housing Kreuzberg (Berlin)

16/77 Neighbourhood Management (NM) Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 16.1. Short description

The innovative core of NM is combining spatial and urban planning with sectorial policy interventions in a defined territory (see above). Hence, the background approach of NM is mainly about networking among stakeholders and the pooling of local resources within districts with special development needs. The project is financed by a federal-regional programme called “Socially Integrative City”. We have studied NM via a real example in Kreuzberg Zentrum, an area that is home to some 8,000 inhabitants. The majority of people have an immigration background. In this area, NM treats persisting local problems in a new way – such as high numbers of youngsters without a school degree, immigrant quotas in kindergarten and schools of up to 90 percent, and a milieu that lacks overall access to decent education and jobs. The NM team, consisting of a full-time manager and two employees, facilitate contacts and exchange between local authorities, service providers (TSOs), cultural associations, and residents in order to support informal cooperation and non-bureaucratic help. For instance, the NM invites headmasters from local schools and kindergartens on a regular basis, in order to encourage discussion on comprehensive educational concepts for the district. However, it is worth noting that NM does not follow blueprints or best practice models that are prescribed top-down but sets its own agenda in each neighbourhood.

16.2. Conceptions and ways of addressing users

As a low-threshold, neighbourhood located and participative project NM teams invite everybody – inhabitants, communities, professionals and the local economy – within a locality to contribute to urban revitalisation and social cohesion. By providing the infrastructure (rooms, resources, etc.) and organisational guidance, NM teams address inhabitants of social hotspots such as Kreuzberg Zentrum as “owners of their neighbourhood” and encourage them to participate in local projects. Many different levels of involvement exist though. For instance, “being involved” may merely mean taking part in a photo competition searching for powerful pictures of living together in the Kiez. More commitment is asked of youngsters considering being graffiti artists or residents devising a campaign to keep the neighbourhood clean and safe. Beyond such creative-practical hands-on-offers, locals are addressed as people who associate and develop their own small-scale offers. To realise promising ideas such as a workshop on intercultural learning or the planting of flowerbeds in concreted backyards, theNM has an ad-hoc 114 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities means, e.g.tofacilitateexchange betweenthebiggest mutual exchange.Inthisrespect, good regular contactandlearnfrom eachotherthrough up aninfrastructurewhereall stakeholdersarein However, therealchallenge for for reflectionwith(bordering)NMsinKreuzberg. Networking activitiesalsoincludeexchangeandtime the NMKreuzbergZentrum. already there”,saysLailaAtrache-Younes,managerof more offersbutknowledgeonservicesthatare only fewareprovidedbythe existing serviceoffersinthe café-like officereceivebundledinformationabout families andwomen–whovisitthe stakeholders. Localpeople–kids,youngsters,adults, ing, care,etc.);andtobuildup social andbureaucraticproblems(employment, homework supervisiontoconsultancyforvarious easy-to-access-services rangingfromafter-school to supportresidentswithdaily-lifeproblemsthrough well-known, low-thresholdmeetingpointintheKiez; balance betweenthreemaintasksofthe core ofthemanagementworkistofindright larger areas,operatewithuptofiveemployees.The workers. OtherNMsinKreuzberg,responsiblefor ees: afull-timemanagerandtwohalf-timeoffice The NMKreuzbergZentrumhasonlythreeemploy how dependenttheyareonvolunteercontributions. If onelooksatNMsstaffinglevelsitbecomesclearer modes of working 16.3. Internal organisation and for urbanplanning. the community”,statesWernerOehlert,alocalexpert life. Onlyafewareabletocontributesomething hood needconsultancyandsupporttomastertheir in conceptualworkshops.“Peoplethe people competentenoughtoparticipateinboardsor hain-Kreuzberg’s NMsstruggletofindsufficient neighbourhoods. Inpractice,however, co-producers forthecommonpublicgoodintheir NM approachaddressespeopleasvolunteersand with andhowbudgetsaredistributed.Allinall,the hood boardstheyhaveasayontheissuestobedealt hood. Aselectedmembersofso-called part oftheactualmanagement Furthermore, localinhabitantsarecalledtobecome fund atitsdisposal(upto1,000eurosperproject). Kreuzberg (Berlin) Friedrichshain - DE neighbourhood, ofwhich NM. “Wedon’tneed networks amonglocal NM staffistokeep NM atitsfriendly, neighbour Friedrichs- networking neighbour neighbour NM: tobea Neighbourhood revitalization/Housing Categories hous- - - - - in particular,a strongerinterlockingbetween NMs contracting entity”,saysWerner Oehlert,missing, or evencriticalcommentsare notrequestedbythe social policyhasfailed.Political recommendations “NMs aredeterminedtohelp-out wheretraditional a politicalplayerinthedebate on ing permanentlyattheKottbusserTor,hasbecome agenda. Instead,agroupofprotestingtenants,camp lacked theclouttobringburningissue Fund ( telling example:NMs,financedbythe the problemofincreasingrentsinKreuzbergisa allowed totakeuphotpolicyissues.Inthisrespect, politics, lacklarge-scaleresultsandarepracticallynot approach isthatNMs,beingnotfullyrecognisedby citizens ateye-to-eyelevel.Thecruxofthisinnovative support, workincross-sectorial and urbanplanning.Theyprovidenon-bureaucratic insulated counterpointstothepillarisationof operate alongsidesectorsandpolicyfields,NMsare and institutions” workingparalleltotraditionalauthorities that donotworkinpractice.Instead,theyare“add-on local governancesystem,abletochangestructures ment. Nevertheless,NMsarenot“realplayers”inthe such assegregatedschoolsorlong-term cumulate detailedknowledgeaboutsocialproblems situation: asjunctionsofthematic local welfaresystemsislimited.NMsareinanodd bourhoods, theimpactofNMson Despite havinga“goodgriponreality”intheneigh welfare system 16.4. Interaction withthe tion ofschoolplaces”,reportsMsAtrache-Younes. that needsforemoststructuralreformsinthealloca urgent thingstodothanreasoningaboutaproblem portion. “Headmastersofthoseschoolshavemore dropouts withoutaschoolcertificateisoutofpro of thepupilsareimmigrantsandwherequota so-called “left-over-schools”whereupto100percent classes. Sofar,solutionsdonotexisthowtoavoid such aschildcare,schoolingandthecompositionof more difficult, particularly other cases,though,effectivesteeringof office roomsinordertosupporttheinitiative.In In thisrealcase,the organising coachingforpupilswithlearningdeficits. local housingcompanyandaparentsinitiativeor welfare providers.Whilethelattermostlystill ESF), thefederalstateandLandBerlin, housing companyprovidedfree collaboration around issues networks, andinvolve social housing. networks theyac European Social governance of unemploy local networks is welfare ------115

and sectorial policies: “Cooperation among schools is good but without support from the competent authority it is nothing.” In summary, the innovative character of NMs is weakened by their low impact on the local political system that forces NMs to leave out issues that move people. Vice versa, the actual work of NMs becomes neither evaluated nor benchmarked while public claims concerning the approach are not communicated effectively. Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 116 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities new jobprofilesincooperationwithemployersthefields ofgardeningandfarming. icy perspective,theprojectcontributesto(local)measuresof greener placetoliveinandascitizenswhoclaimasaytheusageoftheirurbanenvironment.Fromsocialpol an extendedgroup ofaround70urbangardeners emerged.“Theseare thepeoplewhotakeresponsibility forthe help ofthose“feeding”strategies andthewishofmanyvisitors’tocontribute gardeninonewayoranother, continuously involvesvisitors insmall-sizedmanualactivitiessuchaswateringplants orsowingseeds.Withthe project inneedofvolunteers. Therefore,the“hardcore”ofprojectteam,consisting ofnineemployedworkers, with eachothereasily.Characterised byahustleandbustleofactivities,however,they areaclassichands-on chatting withgardeners. sustainability shouldbeattractedwhileengaginginmore pleasantactivitiessuchasvisitingthegardencaféor urban gardeners,theprojectpursuesarathersoftapproach. Residents’interestinquestionsofecologyand ue-loaded termsas“ of peoplethrough According toRobertShaw,managerofthe 17.2. Conceptions andways of addressingusers and labour intheurbanlocality,alsosucceedbuildingbridgestomajorglobaldiscoursessuchasclimatechange and deliberationisofkeyimportance.Therefore, ing ofgreenhousesandthecreatingflowerbeds.Accordingtothisapproach,raisingpublicconcern,attention 2009, the strates thatcooperationandcommonlearningamongaheterogeneousurbancitizenryispossible.SinceJuly level. Bycreatingahugeurbangardenareaonformerwastelandinthecentreofdistrict,projectdemon youngsters orcaringforcertainpeopleinneed), ecologically andsustainably.Withouthavingconcreteshort-termgoals(suchaslowering urban gardeningmovement,thehighlyattractiveprojectpursuesanalternativeapproachhowtousespace sets onabroaderscalethanmostofthepragmaticsolutionsinrealm The so-called 17.1. Shortdescription Princesses Gardens 17 Kreuzberg (Berlin) Friedrichshain - DE sustainability. Hence,participantsbecomestrengthenedinpracticaltermsbymakingtheir Princesses Gardenscommunityaccomplished,forexamplethefarmingofagriculturecrops,build Princesses GardensinKreuzbergofferacomplexprojectthatattemptstochangepeople’smind empowerment. Lookingat empowerment” or“education”areslightlymisleading.Instead ofbuildingamovement /77 Princesses Gardensareagreen recreationaloasiswhere“visitors”shouldcomeincontact Related toallpolicyfields Categories Princesses Gardens,theprojectaimstoprovideinformal education Princesses Gardens’relationshiptousersinpractice,though, val Princesses Gardens’activistsmakeadifferenceonthesymbolic Princesses Gardens,despiteitssuperficialemphasisonmanual vocational training:theactivistsattempttodevelop welfare. Asapartoftheinternational unemployment among neighbourhood a - - - - 117

garden”, says Mr Shaw, describing his own task as 17.3. Internal organisation and “bringing different people together”. For Mr Shaw and Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities his team it is the art of matching volunteers that guar- modes of working antees success. Therefore, they combine volunteer’s The idea of the Princesses Gardens goes back to different strengths and assets in order to facilitate a Robert Shaw and Marco Clausen, today’s managers situation of mutual learning. In practice, work groups of the project. As self-declared “non-experts” in the that consist of unequal team mates such as an older field of gardening, the founding fathers of the pro- Russian woman with a lot of gardening experience, an ject cultivated an approach of cooperation, uncon- ecologically interested unemployed hippie and a de- ventional action and continuous learning. Shaw and signer are not an exception but the rule. “Ideally, the Clausen did a lot of lobbying in the district for their old Russian woman learns German, the hippie a more idea, which they had presented in a detailed busi- structured way of working and the designer some ness plan. They finally got the opportunity to lease basics about gardening, while they all create, more an unused 6,000 m2 area in the middle of Kreuz- or less as a side effect, a vertical plant-bed”, states berg. Until today, three key convictions have been Mr Shaw. Such an approach of “common learning driving Princesses Gardens: first, the garden should without a teacher” requires intrinsic motivation and be a “vehicle for social processes” (ibid.); second, pleasure from volunteers, something that Princesses activists should develop an experiment-friendly Gardens evoke by providing a relaxing and stimulat- do-it-yourself-mentality; third, the garden should be ing environment. Additionally, the project offers a a non-profit project. According to these guiding prin- range of practical learning events for kindergartens, ciples, modes of internal organisation and working schools and universities to teach practical knowledge have been developed. Backed by Nomadisch Grün, of seeding and growing plants. Thereby, international a non-profit limited liability company, Princesses discourses on ecological food and healthy lifestyles Gardens have emerged through a number of consec- become easily combined with various do-it-yourself utive projects involving up to 2,500 volunteers per activities such as harvesting different kinds of pota- year since June 2009. toes and using them for cooking meals. In retrospect, it is the project’s finely tuned balance between hands-on activities, educational and cultural events in cooperation with local partners that turned 118 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities cooperation and jointventureswith common ecologicallearning cometogether.Hence, Berlin-feeling, agooddegree ofnon-conformismand the imageofa“hiplocation” whereacosmopolitan berg. Theprojectmanagers succeeded incultivating become “everybody’sdarling”in After 3yearsofexistence, welfare system 17.4. Interaction withthe good examplefora up theirpremises.Allinall:thewholeendeavourisa in coursesabout schools, companiesandpublicinstitutionsinterested Gardens’ employeeshavebeenofferingtheirskillsto or thesellingofvegetables.Sincerecently, may gotobusinessactivitiessuchasthegardencafé education andnatureprotection,while49percent to invest51percentofitsresourcesintopublic a non-profit-organisation,NomadischGrünisobliged of activitiesisalsoowedtoitsorganisationalform:as empowerment”. PrincessesGardens’mixedstructure through workshopssuchas“Urbanfarmingandlocal of urbangardeningtothelocalpublicandbeyond the projectteamsuccessfullyspreadconcept den (uptomorethan400bedsandapotatofield), addition tothestep-by-stepexpansionofgar Princesses GardensintoaBerlin-wideinnovation.In Kreuzberg (Berlin) Friedrichshain - DE urban gardeningoractionstogreen- social enterpriseinpractice. Princesses Gardenshave Friedrichshain-Kreuz Princesses Gar - local Related toallpolicyfields Categories Princesses - - in termsofcity marketingbutneglectedin practice.” projects likeoursthatareexploited bythecitycouncil ing money.Ionlyaskforalong-term perspectivefor are low,however:“Iamrealistic enoughfornotclaim commitment tosupport Mr Shaw’sexpectationsconcerninglocalauthorities’ was neglectedbythemantraofbudgetconsolidation. politics: theyputanissueonthepoliticalagendathat cesses Gardenshaveastrongimplicitimpactonlocal and howitshouldbeusedbest.Inthisvein, demand apublicdebateonwhoownsspace ter” forinnovativeurban Gardens, arguethattheprojecthasa“pilotcharac stemming fromthewider for themaintenanceofgarden.Activists,mostly campaign called“Letitgrow!”gatherssignatures Berlin’s enormouspublicdebts.Currently,alocal most profitable–acommonpracticeinthefaceof due tothefund’sinterestselllucrativearea to 5years.Anextensionofthecontractisuncertain, the localpropertyfund(Liegenschaftsfond)islimited terms ofrealmaterialsupport.Sofar,theleasewith er, social-culturalacknowledgmentdidnotpayoffin liveability andsocialcoherenceofthedistrict.Howev visited thelocation,praisingitscontributionto local electionsinNovember2011majorpoliticians attention fromlocalpoliticsandauthorities.Before much requested.Moreover,theprojectgains dens, e.g.cookingworkshopsforschoolclasses,are Princesses Gardens’future development policy,and community of Princesses Prin- - - - 119 DE Categories Friedrichshain - Employment Kreuzberg (Berlin)

18/77 Job Explorer

18.1. Short description

The “Job Explorer” project aims to create new ways of job orientation for youngsters by paving personal links Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities between pupils and employers instead of between schools and companies. Hence, the project claims to establish a lasting, trust-based dialogue between tomorrow’s jobseekers and potential employers that could be regarded as innovative. A multiphase concept introduces pupils aged 13-17 years step by step to the working world, starting 3 years before they finish school, aiming to replace the currently common obligatory internships that quite often represent merely a desultory attempt to bring pupils closer to the job market. Instead, “Job Explorer” invites young people to discover a certain job in practical terms, while local companies have the opportunity to voice their specific demands to career starters. Thereby, the project avoids explicit references to stigmatising issues such as “precariousness” and/or ”underclass”. Youngsters are not a priori perceived as “the jobless of the future”. Instead, mutual prejudices should be eliminated, e.g. those youngsters might have towards employment in general and those employers might have against young people from less educated or long-term unemployed backgrounds. Participating pupils need a gentle introduction to possible fields of work and labour virtues; otherwise they may end up as lifelong clients of job agencies.

18.2. Conceptions and ways of addressing users

Job Explorer addresses pupils aged 13-17 years in secondary schools. Core of the project is an early introduction of youngsters to different jobs,vocational training schemes and the labour market. Thereby participants pass a multi-stage programme starting from scratch. In the first phase,Job Explorer teams ask pupils which jobs they know and where they want to work in the future. This “reality check” takes place in a playful manner that encourages participants to discover job opportunities in their local environment. By exploring “real jobs”, e.g. bus driver, baker or car mechanic, helps pupils to uncover partly unrealistic expectations (e.g. concerning potential earnings). In short, the first phase serves as an introductory course to the working world – a new territory for many pupils due to the lack of employment of their parents. The second phase addresses participants more directly as “future workers”. Employers visit schools and brief youngsters on what they ask from their trainees (e.g. reliability and persistence) and give them the opportunity to get to know a job in practice. Due to this strategy of “sticks and carrots” pupils feel taken seriously and may develop a “post-school” perspective. In the third phase things become even more concrete: during so-called “experience 120 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities aspects. Here, findingasoundbalancebetween an of workingconcernalsopedagogical anddidactical failure, arethepupilsthemselves. Therefore,modes partners, playingadecisiverole foritssuccessor support freeofcharge.However, theproject’skey offer coursesforjob particular sensitive.Participatingschools,obligedto - anissuetowhichthe respect andeffectivelystrengthentheirself-esteem of preciserecommendationshowtotreatpupilswith tion ofcontactbetweenschoolsandemployers is muchwelcomed.Servicescomprisethecoordina In thisrespect,supportprovidedbythe support toimprovetheirrelationshipswithschools. ees butlackingresourcestoacquirethemappreciate economy. Particularlycompaniessearchingfortrain and “match-making”betweenschoolsthelocal Explorer, describingherownjobas“translationwork” pany isdifferent”,statesMichaelaWestphalfrom before inthedistrict.“Everyschoolandeverycom were established-somethingthathasnotexisted schools andthelocalassociationofentrepreneurs this groundwork,cooperationwithnine(outof17) local schoolsandcompaniesinadvance.Basedon assessment ofneedsbyprofilingagoodamount Explorer teamstartedtheirworkwithanextended youngsters, schoolsandlocalcompanies.The ing aswellsustainablerelationshipsbetween philosophy: generatingtrustandmutualunderstand principles makeupthecoreofproject’swork plorer activities”and“publicrelations”.Threeguiding responsible forthe“ The JobExplorerteamconsistsofthreepeople modes of working 18.3. Internal organisation and dressing youngstersasfutureemployees. Thereby, localemployersplayapivotalrolebyco-ad to consecutivephasesofdiscoveringandlearning. to reducepupil’sdistancefromthe vacations. Allinall,the 4-day traineeshipatachosencompanyduringtheir in tenthgradepassafinalphase:theycomplete for ajobbecomesobviousveryquickly.”Finally,pupils ees: “Whethersomebodyshowscommitmentandfits phase isindicativeforcompaniessearchingtrain car dealerwhosupportsthe hours afterschoolonceaweek.Accordingtolocal days” participantsvisitdifferentcompaniesfor2 Kreuzberg (Berlin) Friedrichshain - DE Job ExplorerAcademy”,“Ex- orientation, value Job Explorerapproachisin Job Explorerprojectattempts Job Explorerprojectthis labour marketdue Job Explorer’s Job Explorer Neighbourhood revitalization/Housing Categories Job Job ------tional training. dating events”forapplicantsandprovidersof even moreinfaceofcompetingofferssuchas“speed competences turnedouttobethemainchallenge- attractive formatandthemuchneededteachingof economy shouldbedeveloped. promoting apprenticeshipsprovided bythelocal Explorer’s rangeofaction.In themid-term,atoolkit Council forLabourandEconomy wantstoextend ticeship) outofthemasses”. Nevertheless,theDistrict “helping tofindtheonerightperson(foranappren that inmanycasesithasbeen members”, saysaspeakeroftheassociation,adding “There isaconstantdemandfortraineesamongour operation withthelocalassociationofentrepreneurs. position: theprojecttakesadvantageofitssolidco importance. However,sofarJobExplorerisinagood project” (e.g.numberofinvolvedschools)isgaining numbers ofmediatedtrainees,andthe“scale the questionconcerning“measurableoutputs”,e.g. al programmessponsoredbypublicmoney.Hence, Nowadays, theprojectcompeteswithothervocation and waysofachievingthemhasbecomenecessary. ation withdistrictauthoritiesconcerningprojectaims al. Owingtothenewsponsor,amuchtightercooper However, JobExplorerhastopayapriceforitssurviv (Wirtschaftsförderung) of measure” bythe the projectisfinancedasan“economicallybeneficial council wasforcedtotakeaction.SinceJuly2012, all sidesandacrossparties.Asaresult,thedistrict Hence, supportformaintainingtheprojectcamefrom ture employerswhiletheprojectwasconceptualised. the localeconomythatvoicedtheirdemandsonfu born outnotbyauthoritiesbutincooperationwith dinarily strong,preciselybecause local stakeholdersduringthistestphasewasextraor of vocational was seenasanexperimentalinvestmentinnewways funding instrumentofthejobagency, due toitspilotcharacter.Sponsoredbyaspecial enjoyed theprivilegeofbeingrelativelyautonomous es. Withinthefirstphase(2010-12),projectteam Since itsstartin2010, welfare system 18.4. Interaction withthe ded inthe local welfaresystemintwodifferentphas orientation. Theproject’simpressionon Economic DevelopmentAgency Job Explorerhasbeenembed Friedrichshain-Kreuzberg. Job Explorer’smerit Job Explorerwas Job Explorer local voca- Job ------121 DE Categories Friedrichshain - Employment Kreuzberg (Berlin) Neighbourhood revitalization / Housing

19/77 Kreuzberg Acts

19.1. Short description

“Kreuzberg Acts – entrepreneurship in the district” pursues a twofold approach towards social inclusion. On the Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities one hand, jobseekers and local entrepreneurs, half of them migrants, receive comprehensive consultancy to explore their entrepreneurial potentials or rather stabilise their business. For instance, those interested in founding a start-up are coached by local mentors how to apply for public subsidies and how to launch an effective marketing campaign. On the other hand, the project is simultaneously striving for street credibility by building bridges to the local economy. Through the strengthening of local networks processes of gentrification are counterbalanced that go along with a rather one-sided setting of cafés, restaurants and luxurious stores at local in-places. In order to maintain a sound mix of local businesses the project eases cooperation of retailers, grocers and social services providers (e.g. physicians and carers) that also evoke a sense of belonging to the district. Moreover, project leaders and participants develop strategies of how locals may benefit from the districts’ booming economic sectors such as healthcare or tourism. Inventions are thought of in a neighbourhood-friendly way, e.g. by devising small-scale business ideas that fit the local social ecology. In short, members of the local economy should do both - get together and become profitable. During all these activities project leaders are constantly both facilitators and lobbyists for their clientele. The innovation results in the intertwining of two activities that are usually separated: on the one hand, individual consultancy for (future) entrepreneurs; on the other hand, a kind of concern with community development and urban planning addressing different local groups. Thereby,Kreuzberg Acts also bridges economic and social concerns.

19.2. Conceptions and ways of addressing users

According to the concept and vision of Kreuzberg Acts, social inclusion is thought of as something that inevitably takes place in the local environment and depends strongly on the plurality of people’s opportunities to unfold their entrepreneurial potentials. Therefore, service offers are twofold: on the one hand, people are encouraged in their decision to become self-employed by receiving various support to improve their skills as entrepreneurs before applying for a start-up financing grant; on the other hand, individual consultancy and coaching is accompanied by collective support for the local community of (future) entrepreneurs. Among other things, the collective dimension of the project involves devising common marketing campaigns, facilitating networking activities and boosting joint ventures between local businesses. “We are not only helping local entrepreneurs individually, bringing out the best of their potentials, but feel responsible for the long-term development of the district’s local economy”, underpins 122 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities to provide“innovative interventionsinmanaged Economy andLabourinthe Neighbourhood aiming by afederalprogrammeofthe sectorial policyinterventions. Theprojectisfunded on above),combiningspatial andurbanplanningwith called NMprogramme(anotherinnovationwefocus development needs.Allofthembelongtotheso- Acts operatedinthreeneighbourhoodswithspecial From September2009untilOctober2012, modes of working 19.3. Internal organisation and to theoverall for theirbusinessideabutisalsoinseparablylinked individual competencesandsufficientincubationtime their entrepreneurialsuccessdependsnotonlyon In alltheseroles,theprojectaddresseeslearnthat (social andactive)citizens, clientele asentrepreneurswithinthelocaleconomy, local references,KreuzbergActsaddressestheir had notbeenawareofbefore.Inshort,duetostrong nity ofentrepreneurs–adimensionbelongingshe from thebeginningasamemberof someone of“KreuzbergActs”whoaddressedher reported thatshehasbeenvisitedcontinuouslyby 25-year-old ownerofanAmericanDinerrestaurant, For instance,oneexperienceduseroftheproject,a ties andrequirescomplexwaysofaddressingusers. for anapproachthatissensitivetopeople’smultiple social beings,embeddedwithina the projectmanager.Perceivingusersas Kreuzberg (Berlin) Friedrichshain - DE development ofthedistrict. community members. ESF calledEducation, local context,asks local commu- Neighbourhood revitalization/Housing Employment Categories Kreuzberg that anyengagement mustpursuethe actually suitstheirkeyprofessional principle,stating sufficient leewaytodecide whetheracertainproject Operating withfewpermanent staffLok.a.Motionhas size ofstaffisstableandjobs aresociallyprotected. a sharpcontrasttopublicadministrations wherethe relations intheorganisationLok.a.Motionpresents limited liabilitycompany.Withrespecttoworking proach andnowholdsthelegalstatusofanon-profit Lok.a.Motion turnedtowardsanentrepreneurialap it-organisation for“youth ation withlocalstakeholders.Startingasanon-prof jor projectsandhasinitiatedseveralformsofcooper Within thelast3yearsLok.a.Motionhasrunfourma and thelocallevel. of Europeanandfederal tion, anorganisationthatoperatesatthecrossroads Kreuzberg ActsisoneofseveralprojectsbyLok.a.Mo while tracingopportunitiesfortheprojecttoconnect. generates trustamongallrelevantstakeholders of neighbourhoods.Indoinglobbywork,MsWeineck huge impactonthesocialandeconomicalstructure companies havebecomepivotalpartners,havinga floors havebecomescarceinthedistrict, bourhood managers.Sinceaffordableflatsandsales the chamberofcommerce,jobagenciesand networks bycontactingpoliticians,localauthorities, task ofprojectcoordinatorLunaWeineckisbuilding and communicationwithlocalcompanies.Themain sible forpublicrelations,marketing, four peoplefromLOK.a.Motion(seebelow),respon neighbourhoods”. Currently,theprojectemploys labour marketprogrammes welfare andlocaleconomy”, social media development housing neigh ------123

of its social environment. The flip side of the agency’s petition with other project providers. flexibility is that Lok.a.motion is not a good employer Defending the project’s design and modes of work- in traditional terms by benefitting from unsecured ing against the theft of innovative ideas is of utmost precarious jobs. importance. This is a dilemma, given the fact that close cooperation and a steady knowledge exchange Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 19.4. Interaction with the local is both a precondition to have a stake in the local welfare system landscape of service providers but also a risk to lose its own competitive advantage. “We have to prove In terms of local embeddedness, Kreuzberg Acts is a that we are innovative otherwise we cannot develop hybrid. Even though the project has cultivated solid new projects”, says Ms Weineck, who argues for a relations to most of the relevant stakeholders, it patent law that protects project concepts as it does remains to a certain degree an alien element, dis- commercial products. In comparison to established turbing routine patterns of local welfare governance. welfare institutions, tensions concern in particular the Being both embedded and dis-embedded at the same driving mission and the underlying working culture. time constitutes the innovative character of Kreuz- Foremost, the way of addressing users differentiates berg Acts. This ambiguity is mirrored by the project’s Kreuzberg Acts from established policies in the field relations to job agencies and local authorities, the two of labour. Especially in comparison to the job agen- most important welfare providers at the local level. cies its logic of integrating people is poles apart. Job Although both institutions acknowledge (and partly agencies pursue a fairly sequential approach where depend on) the work of the project, Kreuzberg Acts every minor support depends on jobseekers’ com- (as similar projects too) is mainly perceived as an “ad- pliance in advance – be it with regard to reveal their hoc consultant” for vocational training while lacking financial situation or to take any job they are offered. the status of a normal service provider funded on a In sharp contrast to job agencies’ verdicts of employ- regularly basis. It hence coexists with the local welfare ability, Kreuzberg Acts follows a process-orientated system, rather than interacting with it frequently. As a and tightly-structured approach, encouraging people result, Kreuzberg Acts fills a rather unsteady interme- to realise their entrepreneurial potential according to diate position depending on the respective situation their interests and personal skills in a gently way. of available projects. As a response to the challenge of coping with uncertainty the project team has developed a cooperative manner and invests much in trust-generating activities for acquiring new orders. However, this approach has its limits due to the com- 124 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities lems andconflicts arerarelythereasonof contacting and theresponsibledistrictcouncildepartmentarepreconditions forfuturesuccessoftheproject. fathers (despitefirstattempts toestablish networks. However,itisworth notingthatinpracticeitismostly are “family-minded”,including notonlyindividualusersbutalsopeoplewithlinksto theirfamiliesand in afriendlyand local authorities,pursuinga ratherdirectivestyleofuserinteraction, dressed asneighboursand Neighbourhood Mothersofferabundleofoutreachservices formigrantfamilies.Familiesusingtheofferaread 20.2. Conceptions andways of addressingusers requests asteadyrecruitmentofnew perspective makesitdifficultforthemanagementof project(the a professionaltraininginordertobecomesocialassistant forinterculturalfamilycare.However,thisrealjob labour market:neighbourhood The project,whichhasreceivedseveralawardsforsuccessfulintegrationwork,mayalsobeaspringboardtothe regular homevisitsfreeofcharge. (multicultural) communitiesandauthorities.Ifrequested, on thestreet–projectattemptstoestablishinformalsupport service inpractice– ents’ needsandconcernsinordertoimprovedistrictauthorities’awarenesstowardsthem.Beingalow-threshold Neighbourhood Mothersmakeexistingsupportstructuresbetterknownandaccessiblealsotranslatetheir cli range oftopicssuchashealthpromotion,languagesupportandchildprotection.Bypursuingatwo-wayapproach, berg’s NeighbourhoodMothers,mostlyimmigrantsthatcompletedaspecialqualificationphase,dealwithwide tural mediatorsandmentorshelpingimmigrantfamilieswitheducationalalsofamily-relatedissues.Kreuz strictly resource-orientedand ly andsymbolically.BasedonblueprintsfromtheNetherlandsotherGermancities,innovativeapproach is The projectNeighbourhoodMothersbridgesgapswithinamulticulturalbutfragmentedsociety,bothpragmatical 20.1. Shortdescription Neighbourhood Mothers 20 Kreuzberg (Berlin) Friedrichshain - DE cooperative manner.Asmultipliers ofknowledgeandmentors, Neighbourhood Mothersareeasilyidentifiablebyaredscarfinordertogetdirectlyaddressed /77 community members–insteadofbearersmultiple(social) problems.Incontrastto neighbourhood-related. Basically,theprojectdevelopedfurtherideaof mothers cancombinetheirvoluntarywork(asmallmonthly allowanceispaid)with neighbourhood Child andfamilycare Categories neighbourhood fatherstoo) aredifficulttoreach.Moreover,acuteprob Neighbourhood Motherswhobuilduptrust withfamilies mothers. Hence,non-bureaucraticsupportbythejobagency Neighbourhood Mothersgiveadvisetofamiliesthrough mothers whoacceptsupport bytheproject,while networks andtrustbybuildingbridgesamong Neighbourhood Mothersstrengthen families Diakonisches Werk)toprovidecontinuityasit Neighbourhood Mothers’services community intercul------125

via informal meetings, e.g. at the family café of the schools”, states a neighbourhood mother, appreciat- Diakonisches Werk, on the playground or chatting in ing especially the opportunity to simulate courses of the street. “First of all, we are helping companions conversation with clients before going into practice. for daily life matters rather than being experts for Furthermore, during reflection roundsneighbour - severe family problems”, states a neighbourhood hood mothers learn “what is going on elsewhere in mother who migrated with her parents from Turkey the district”. Being informed about other projects, e.g. 30 years ago. sewing courses for immigrant women or mother-child The range of daily life matters where Neighbourhood language courses provided by family centres (see Mothers offer support and consultancy is rather below), is central for neighbourhood mothers who broad, comprising issues such as basic knowledge also function as switchboards for various learning and on children’s development and needs, basic compe- leisure time offers. The project is coordinated and tences on health promotion, nutrition and sports, further developed by two managers of the Diakonis- linguistic development, the German child care and ches Werk, responsible for recruiting, qualifying and educational systems and problems in family networks accompanying neighbourhood mothers. In addition (e.g. drug abuse, divorce, violence). What differenti- both managers are in regular contact with similar projects in Berlin in order to cultivate professional ates Neighbourhood Mothers most from professional services concerning these issues is its peer-to-peer exchange and evaluation. The project managers es- approach. Most of the neighbourhood mothers went tablished strong links between Neighbourhood Moth- through similar situations as the families they care ers and other services provided by the Diakonisches for. They have a better understanding of feelings of Werk. Thereby sustainability concerning the work with alienation and particular needs than professionals, families may be strengthened, as Ulrike Koch, one of literally speaking “another language”. Therefore, the two managers, hopes: “The Diakonisches Werk Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Neighbourhood Mothers take “real problems” (e.g. has been providing social work in Kreuzberg for more missing knowledge about the German school system) than 30 years. Due to its temporary financing scheme, as starting points for support – instead of adapting the future of Neighbourhood Mothers remains future their services to the structures of silo-like service uncertain. Families cannot count on them alone.” departments. 20.4. Interaction with the local 20.3. Internal organisation and welfare system modes of working Similar to the Princesses Gardens, Neighbourhood Neighbourhood Mothers pass a 6-month qualifica- Mothers are a publicly recognised and well-known tion course before working with clients. For instance, social innovation in Friedrichshain-Kreuzberg. After Kreuzberg’s first generation ofneighbourhood moth- a good degree of initial scepticism and profound ers (30 women) has been trained with a curriculum reservations on behalf of established welfare institu- comprising of 10 modules such as children rights, tions and services providers, Neighbourhood Mothers health promotion and transition from kindergarten is now welcomed as an early protection intervention to school. The comprehensive qualification has two against severe social problems of immigrant fam- important effects: on the one hand, it facilitates iden- ilies that are hard to reach. In this respect, Neigh- tification and team building amongneighbourhood bourhood Mothers’ excellent public relations work mothers; on the other hand, Neighbourhood Mothers paid off, especially in relation to kindergartens and gather various contacts with local institutions during schools but also to the job agency. According to the this introductory phase through visits at the job agen- coalition agreement of Berlin’s government of Social cy, district authorities (e.g. child and youth welfare and Christian democrats, Neighbourhood Mothers aid) or birth houses which are valuable resources should be financed on a regular basis. So far, how- for their later work. After the qualification, quality ever, this political intention and the large amount of management takes place once a week via exchange public recognition have not spilled over into a secure and reflections about work experiences. “Recurrent future of the project. Started as a test run in 2008, the issues in those meetings are for example families’ project has been financed by different sources: the problems to subscribe their children to preferred job agency, the local youth welfare office andESF. “We 126 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities costly qualificationof demands ofregularfunding,inparticulartocoverthe example. Therefore,projectmanagerskeeprepeating Other institutionsandlocalemployersmayfollowthis become asocialassistantforinterculturalfamilycare. who additionallypassedaprofessionaltrainingto five part-timepositionsfor office in to localwelfare.Forinstance,theyouth strong interestinthemaintenanceofitscontributions services providers,evenifsomelocalpartnershavea a regularoffer,ateye-to-eyelevelwithestablished the otherhand,projectisstillfarawayofbeing their servicesforfamiliesareverymuchneeded.On the localwelfaresystemandthereisnodoubtthat ation. Practically,NeighbourhoodMothersarepartof After 5 years ofexistence,theprojectisin an odd situ- complains MsKoch. provisional solutionsinsteadoffar-reachingplans”, are constantlyre-calculatingourbudgetandmake Kreuzberg (Berlin) Friedrichshain - DE Friedrichshain-Kreuzberg hasalreadycreated neighbourhood neighbourhood mothers. Child andfamilycare Categories mothers welfare 127 DE Categories Friedrichshain - Child and family care Kreuzberg (Berlin)

21/77 Family Centres

21.1. Short description

Family centres are a complementary offer to kindergartens and day-care institutions pursuing a moreholistic Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities approach. Their innovative feature is to empower families by strengthening their competences instead of providing merely services to them that claim to substitute what the respective families cannot provide. This complementary and holistic approach of “family-minded services” represents a paradigm shift by offering support not only to one group (children) but also to parents. Another innovative aspect of family centres is to perceive families as partners to be (re)empowered and not as communities unable to perform. Currently, eight centres have been installed in Friedrichshain-Kreuzberg, mostly initiated by parents and sponsored by the Berlin Senate. Centres provide multiple family-related services and activities on a small scale, starting from giving families the opportunity to share leisure time together, receiving advice and participating in various courses that strengthen (e.g. linguistic and self-help) competences of children and parents up to regular working groups where service provides and families join in order to develop new service arrangements for the respective neighbourhood. As well-known contact points and low-threshold places to drop-in, family centres also support the work of the Child and Youth Welfare Office, e.g. by forwarding feedback from the “grassroots level” to the district department.

21.2. Conceptions and ways of addressing users

As all-in-one service hubs for the whole family, family centres represent a counterpoint to services organised in separate “silos” for singular groups. Family centres do not exclude classic childcare services to support families with their caring duties. However, according to their “family-minded” concept, parents are as well addressees of family centres whose competences should be strengthened. Which kinds of services are included in such a comprehensive approach strongly depends on the neighbourhood where the family centre is located. In short, bundles of services are offered, tailored to respective families’ needs. For instance, the intercultural family centre Adalbert- straße, a rather segregated area in Kreuzberg with a high number of immigrant families and transfer payment recipients, puts emphasis on helping families under stress. Owing to their main clientele, regular offers comprise of issues such as identifying and supporting families’ resources and self-help potentials, developing alternatives for families’ everyday live tasks and improvement of families’ language skills. Contrary to this, the family centre “Das Haus” in Friedrichshain, catering to a mostly middle-class clientele, is much more perceived as a place where families can spend their leisure time, e.g. by socialising and cooking. Furthermore, parents are invited to create their own support networks while having coffee in the family café or they may participate in the conception of new 128 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities developments andneedsatgrassrootslevel. freelance artists-duetotheir practicalknowledgeof - e.g.theatreandartisticprojects incooperationwith centres havemuchleewayto proposeinnovativeoffers specific offersaredemanded. Asinturnedout,family district councilonayearlybasis, statingexactlywhich make socalled“servicelevelagreements”withthe maintenance activities.Informalterms,familycentres centre withso-called“one-euro-jobbers”,inchargeof basis. Additionally,thelocaljobagencyprovides and apoolofflexibleexternalspecialistsonfreelance psychological counsellingandconflictmanagement) consisting ofthreeemployees(inchargeparentand ing.” Internally,MsBosseworkstogetherwithateam der tofacilitatethetransitionfromchildcareschool- dergarten, day-carecentres,schoolsandparentsinor- an expertforum,organisedandsteeredbyus,forkin- “Das Haus”inFriedrichshaindescribes:“Weestablished worked familycareservices,asBirgitBosse,managerof centres mayalsofunctionaslocal“thinktanks”fornet- and consultancytakeplace.Perceivedthisway,family of competinginstitutions,whereexchange,education and authorities,asfamilycentresembeddedinstead centre. Thisrequiresmuchacceptancebyprofessionals the districtbutservicesarealsooffereddirectlyin a pointofinformationaboutfamily-mindedservicesin Welfare Office.However,familycentresarenotmerely welfare associationsor,ofcourse,theChildandYouth existing parent-child-groups,consultancyagenciesof and family centresneedtocapitaliseonlocalresources in ordertoaddressfamilies,insteadofchildrenonly, twofold approachismirroredinorganisationalterms: stronger focusonthesocialandurbanspace.This the focusonfamilieswascombinedwithamuch tives and/orthirdsectororganisations.Inbothcases that werebuiltwiththehelpofneighbourhood services; ontheotherhand,newestablishedcentres conceptual one hand,traditionalkindergartensthatrevisedtheir centres coexistinFriedrichshain-Kreuzberg:onthe Since 2006,twotypesofservicesprovidedbyfamily modes of working 21.3 Internal organisation and ing withallkindsoffamilyissues. families, parents,childrenandlocalmultipliersdeal centres aremeetingpointandforumofsupportfor professional serviceoffers.Inbothexamples,family Kreuzberg (Berlin) Friedrichshain - DE networks. Hence, cooperation is key, be it with networks. Hence,cooperationiskey,beitwith orientation by developing family-minded orientation bydevelopingfamily-minded Child andfamilycare Categories initia- - the specificsocialenvironmentofeveryfamilycentre. need togiveroomforaprofilethatcorrespondswith el-fits-all approach.Instead,MsBosseinsistsonthe a perspectivecouldeasilyturnintoone-(best)-mod “best-practice-approach” becauseshefearsthatsuch Bosse. Inaddition,sherefusestocallfamilycentresa still usedtotop-downchainsofcommands”,saysMs of responsibilities.Somehugeserviceprovidersare family centresblossom.“Cooperationmeanssharing change andpracticalre-learningthatisneededtolet more, authoritiestendtounderestimatethecultural positions andlong-termplanningsecurity.Further much morecommitmentintermsofpermanent family centresinthesocialandurbanspaceneeds approach anditseffectivenessinreality.Anchoring public supportfor(andbeliefin)thefamilycentre Nevertheless, thereisadiscrepancybetweenthe ten with300to400children,shouldbeextended. of familycentrescooperatingwithhugekindergar meeting points,conceptualisedassmallbranches Harkenthal. Moreover,thenumberofso-calledfamily the respective need foradditionaleducationalofferstailoredto viding servicesand attempt toscale-upfamilycentres’roleashubspro and familycare.Now,MrHarkenthalhisteam ed inbecominglocalrolemodelsconcerningchild short timeofexistence,familycentreshavesucceed Child andYouthWelfareOffice.Despitetheirrather offer”, statesThomasHarkenthal,managerofthe stress. Inthisrespect,familycentresareastandard aim istoestablishclosecontactswithfamiliesunder to bevestedwith(atleast)onefamilycentre.“Our that dividesthedistrictintoeightsocialenvironments Welfare Office.Thelatterpursuesaspatialapproach full supportandbackingofthelocal Family centresin welfare system 21.4. Interaction withthe neighbourhood structure”,reportsMr Friedrichshain-Kreuzberg havethe networks. “Thereismuchunmet Child andYouth local - - - - - 129

debate on new risks and a life-course-orientation Conclusions in welfare; the ways new services are more family The description of innovations presented here can be minded, personalised, but yet tying in people’s discussed and developed further in various directions support networks contributes to an upgrading and within various frameworks. Three possible ways of the role of communities in mixed welfare – all to be dealt with in the WILCO project - will be systems; finally, the ways many innovative sketched here in the conclusive remarks. projects in local development link concerns of economic and social development exemplifies a Social services research: innovations as illustrative social investment perspective on public welfare. examples for a new generation of social services Researching innovation and change on the local Obviously, the innovations we have described are level: The importance of the local context marked by the specificity of time and circumstances – the special situation in Berlin with its mix of innova- A second line of making further use of our findings tive traditions but likewise rather stable traditions of is to look at the inter-connectedness of innovations how to handle social inclusion issues by local welfare with the local context. As far as this context has been administrations, the more general problem of new mentioned here our analysis underlines the central attempts in times of austerity and pressing household importance of four issues at given stages in the devel- depths. However, it can be assumed that behind the opment of innovations: diversity of single innovations in Berlin and in other >> Plurality of discourses. In order to understand recurrent patterns of cities and countries, there are the interplay of context and innovations it how to handle service issues differently , to be found is important to see them in a tension field across cities and countries. While there are obviously structured by the juxtaposition and rivalry of Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities national and local specificities, many traits of these different discourses, e.g. about classicalwelfare innovations are inter-national in character: issues, more managerial approaches to welfare and one where concerns with autonomy, >> Innovations entail approaches and instruments that enrich and change the classical tool kits of participation and pluralism prevail. social welfare and service policies, e.g. moving >> The impact of history. Practices and values that from fixed entitlements to flexible support guide action and politics are very much shaped budgets and ad hoc support; developing services by historical developments, experiences and that give personalised bundles of support; the ways they crystallise in a locality. A deeper creating new forms of social investments into analysis of the dynamics of local innovations must people’s capabilities; take historical underpinnings into account.

>> Innovations entail innovations in public governance, >> The welfare system, encompassing more than the at least to a certain degree. Some innovations political administrative system. We understand have a governance focus; groups organise and a welfare system as a large and mixed one, that present themselves and their concerns in new comprises the fields of family andcommunity, ways; networks and coalition building across the business sector and the third sector of departments and sectors are part of many associations – looking at all of them from the innovative projects and sometimes even “meta- perspective of welfare developments and their governance” takes new forms of deliberation and role as parts of a mixed welfare system. In such a consent finding in search for the public good; perspective, a welfare system encompasses more than the field of professional politics andwelfare >> There are shared features that point to the links between these innovations and post-traditional administrations, even though the latter usually welfare concepts: services that address the plays a dominating role. Social innovations strengths and not merely the weaknesses of their should be understood in relation to this wider target groups are examples for enabling welfare environment and not solely with respect to one of concepts; the focus on critical transitional stages the sectors of the welfare system rather than standard situations links with the 130 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities groups thatrepresent third sectorofassociations, hybrid organisations,and ticipants fromdifferentsectors: state,business,the and their the gamehavearisen.Inmany oftheseprogrammes for ‘new’services,professionalpracticesorrulesof grams, pilotschemesandtargetedsupport-schemes decades, anincreasingroleoftime-limitedsocialpro in Berlin,therealpicturewillbemuchwider.For While ourpaperhasjusttracedsomewaysfound without explicitlyusingthislabel. partners, developingpoliciesthatsupportinnovations already makeuseandtakeupnewapproachesfrom to lookattherangeofwaysinwhichpublicpolicies might bepreferablebothinanalyticandpolicyterms grammes insupportofspecialinnovationprojectsit Therefore, ratherthanonlylookingatspecialpro architecture ofwelfaregovernance. give socialinnovationaplaceintheoverallchanging tional supportfordevelopingthekindofpoliciesthat quality oforganisationsandprojectscangiveaddi policymaking? Weassumepointingatthe“innovative” isations playwithintheseformsof poratist frameworks.Whatrolecaninnovativeorgan in reaching fromcasualarrangementsandagreements ance increasinglyincludeinteractionswithpartners, are ofspecialimportance.Localpoliticsand the strategiesandvalueorientationsoflocalPAS upcoming andmoreovertheirfurther many contextfactorsthathaveanimpactontheir administrative system(PAS).Howeveramongthe small scaleandlocatedatthemarginsof Most innovations,likethosepresentedhere,are and Researching therole of innovations inlocalpolitics > networks overtocross-sectorpartnerships and cor- > Kreuzberg (Berlin) Friedrichshain - DE (locally prevailingvaluesandconcepts)ones. differences canbeasimportanthorizontal labour marketpolitics;vertical(policy-fieldrelated) innovative conceptsinchildcare,comparedto for thecityofMuenster)maysetlesslimits discourse forinstance(asithasbeensketched field. Then,theoverallimpactofaproductivist by acommunityofexpertsinspecialpolicy general discourse,maygetmuchendorsement ideas, whilerestrictedbythelocallyprevalent Differences bypolicyfields governance governance schemesonefinds amixofpar community actionandfamily . Ofteninnovative governance and development, govern- political - - - - - into motion. innovation andwiderrangingreformwillnotbeput Otherwise akindofnewdialecticbetweensmall-scale institutionalised practicesandpoliciesatdisposal. be adegreeofreadinesstoputthewidercontext beyond immediatepracticalissues;theremustalso in socialinnovationstermsofprospectsandvisions critical issues:onemustacknowledgewhatspillsover to innovationmakesadifference,dependsontwo ance. Thedegreetowhichanoutspokenreference and respective“mixed”openformsof of responsibility“paradigmssocialinterventions” ongoing debateaboutnew“ scaling upintothiscontextmayenrichthealready Bringing concernswithsocialinnovationsandtheir respective partnersandparticipantsgetinvolved? risk? Intowhatkindofoverarchingdiscoursedothe as socialinvestmentswhereoneisreadytotakea in short-termmeasurableformsordotheywork social innovation?Dotheyjustsupportwhatworks What abouttheirselectionasformsofscalingup linking changeagentsandmainstreamstakeholders? about theachievementsandlimitsoftheseforms political and projects andpoliciesthatcanfavourinnovationsof concerns. Itisthisincreasinglypluralistcharacterof governance concepts.Whatdoweknow welfare mixes”,divisions govern- DE Germany Münster

Patrick Boadu, Danielle Gluns, Christina Rentzsch, Andrea Walter and Annette Zimmer (Westfälische Wilhelms-Universität Münster) 132 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Subsidiarity Public administration Networking Local governance Child care Keywords: Local background of thesocialinnovations Introduction Münster DE therefore hasimportantimplicationsforthefieldofsocialpoliciesaswell economic considerations,ithasbeenappliedtoallpoliticalsectorsand efficiency and tractive locationforbusinesses.Themainaimswereanincreaseinmarket opportunities. Through adigms ofmarketefficiencyandsocialjusticeinordertoachieveequal The contextof applied inMünster isratherclosetotheoriginalBritishversion of“NewLabour”. only togiveageneraloverviewofthe main ideaswithoutgoingintodetail.However,theconceptas 2 There areseveralconceptionsofthe thirdway,whichdifferincertainpoints.Theaimhereis interview partnersinindividualinterviews aswellthethreefocusgroups. 1 The implicationsofthisdiscoursefor thefieldofsocialpolicyhavebeenhighlightedbyseveral and local involving stakeholdersfromlocalpoliticsandadministration,theuniversity WP4) arching logicofcompetitivenessandinvestment(seeCityReportMünster, The mainaimoftheconcept“thirdway outlined inthefollowing. on the“thirdway”of Its logiciscloselyconnectedtothewiderscientificandpoliticaldiscourse connection totheconceptofcommunitarianism(Vorländer2001) tradition, whichleadstoanemphasison At thesametime,socialpolicyinMünsterisinfluencedbyastrongcatholic former “curing”or“caring”state. phasised (Merkel2000:277-9).Thisapproachstandsincontrastwiththe state” whilepersonalresponsibilityandthemeritocraticprincipleareem spending. Inthisregard,theroleofstateisthata“ market insteadofenhancingthenumberavailablejobsthroughdeficit of increasingindividualemployabilitytofurtherinclusionintothe conservatism (Merkel2000:274).Thisleadstoamicro-economicapproach formed atitsbestandisclosetoneoliberalthinkinginpriorityforfiscal is confinedtoprovidingaframeworkinwhichmarketefficiencycanbeper contribute tothenationaleconomy(Jun2000:1514f.).Theroleofstate al shallbeempoweredtoimprovehis/herownchancesinlifeaswell ipation (Leuninger2002:113-16,121). and investmentsinhumancapitalasabasisforcompetitiveness and actively tosociety,whichstressesthesocialpoliticalfocus onprevention Leuninger 2002:20f.).Thus,thestateshouldenableeveryone tocontribute high valueofpersonalautonomyinthecatholictradition (Focke1978:192; tivisation (Leuninger2002:21-6).Thefoundationforthis claimliesinthe etc.) shouldberesponsibleforthis,inordertoavoidunnecessary collec themselves. Thesmallestpossibleentity(theindividual, the sequently, societyhasthedutytocareforthosewhoareunabledoso (Westfälische Wilhelms-UniversitätMünster) Andrea WalterandAnnetteZimmer Patrick Boadu,DanielleGluns,ChristinaRentzsch, Authors . Thisdiscursiveframewasestablishedinthe1990s,whenacoalition entrepreneurship joinedforcestopromoteMünsterasanat economic growth.Eventhoughthisdiscoursestemsfrom welfare innovationsinMünsterisdominatedbytheover welfare policy,themainelementsofwhichshallbe participation inthe solidarity and labour market,eachindividu 2 ” istorecombine thepar subsidiarity anda social investment community, . Con labour partic------1 . - 133

All of these aspects can be found in Münster’s welfare paradigm. Subsidiarity is promoted wherever possible, so that many public services are provided by private or third-sector organisations. During the last two decades, this trend has been reinforced by the need to decrease public spending. The labour market is considered the main promoter of social cohesion and participation, which is why (individual) employability shall be strengthened through welfare policies. As shown in WP4, the view prevails that prevention is a necessary and cost-effective approach for the welfare system. This general frame of welfare has profound impli- cations for social innovations, since they are not constructed at the drawing board. Instead, they are context-specific and embedded into the wider social, economic and political context (Moulaert et al. 2005). Accordingly, the context opens windows of opportunity 4 for social innovators and social entrepreneurs. It establishes the conditions social entrepreneurs encounter and thereby promote or inhibit new ideas. Regarding the role of municipal stakeholders and Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities their influence on thesewindows of opportunity, this can mean:

>> a laissez-faire attitude, neither supporting nor obstructing an undertaking;

>> steering attempts, either through (1) financing enterprises, (2) incorporating them (and possibly providing the goods/services themselves), or (3) selective intervention at neuralgic points (in order to achieve the maximum impact through minimal financial engagement);

>> the obstruction of ideas, e.g. through legislation.

The following chapters will analyse different innovations undertaken in Münster regarding their organisation and implementation. The aim is to identify their reciprocal effects with thelocal welfare system in terms of local discourse and interaction of different local stakeholders. The findings will be discussed in a final chapter. The discussion will also draw conclusions regarding the sustainability and possible diffusion of the innovations studied herein. 134 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities the Münsterland). ster undimMünsterland” (ActionprogrammeofMünster forthe 3 “MAMBA” istheabbreviationoffull title“MünstersAktionsprogrammfürMigrantInnenundBleibeberechtigte zurArbeitsmarktintegrationinMün tions, employers)worktogether aspartners.The MAMBA followsavoluntary and empoweringapproach public administration. situation ofrefugees,whichisrarelythecaseinpublicagencies. Therefore, counsellors speakseverallanguagesandhaveintercultural skills.Moreover,theyarefamiliarwiththespeciallegal than accessingapublicinstitutionsuchastheJobcenter, astheinterviewswith and wellreputedamongthetargetgroup.Refugeesare morecomfortableaddressingalocalNGOtoseekwork without apermanentresidencepermit.Oneoftheprogramme’s mainqualitiesisthattheGGUAwidelyknown initiatives alloverGermany.Conceptionsofandways addressingusersisopentoimmigrantsbothwithand where theGGUAnowoffersadvisoryservicesonceaweek. Moreover,itservesasablueprintforseveralsimilar (Nov. 2010-Dec.2013),theprogrammewasexpandedto includefurthertownsintheregionof pants. Intotal, MAMBA hasprovidedworktomorethan200peopleandinadditionthat,apprenticeshipsforyoungpartici e.V.), whichisconsideredoneofthemostexperiencedorganisationsinthisfieldGermany.Asearly2012, local organisationAssociationforRefugeeRelief( from thenon-profit,for-profitandpublicsector.Theconceptfor and qualifyimmigrantsaswelltofindemployerswillingofferthemjobs. As aninter-sectoral market integration(cf.Fiebigeretal.2009). ment andindependenceofsocialassistance.Obviously,refugeesneedspecialsupportconsultancyfor other hand,forsomegroupsthereisnochancetoobtainalong-termresidencepermitwithoutproofofemploy employers donotwanttohirerefugeesbecauseofbureaucratichurdlesanduncertainfutureperspectives.On the legislation regardingresidenceandworkpermissions.Withoutapermititishardtogetjobmany lems withintegrationintosocialandeconomiclife.Inparticular,refugeesareconfrontedaratherrestrictive Although immigrationratesinGermanyhaveconstantlybeenhighfordecades,manyimmigrantsfaceprob 22.1. Shortdescription MAMBA 22 Münster DE MAMBA hadaround300participantsatthetime.For durationofthesecondallowanceperiod network, MAMBAaddressesthisissuewitha“one-stop”concept:itsmaintasksaretocounsel /77 3 Related toallpolicyfields Categories labour market GGUA, GemeinnützigeGesellschaftzurUnterstützungAsylsuchender network offersawiderange ofservicestoitsparticipants-even . Allstakeholderswithinthe integration ofmigrants andpersonswitharighttostayin Münsterand MAMBA wasoriginallydevelopedin2008bythe MAMBA compensatesforthedeficitsof The networkcomprisesfivepartners MAMBA employeesindicate.The network (refugees,organisa Münsterland labour -

- - - - 135

after they have found a job. Those who do not have market and have contacts to local enterprises. A team sufficient language skills in German can participate meeting involving all concerned personnel within the in special language courses. Moreover, participants organisations is scheduled once a month. In order to can join computer courses or other kinds of training facilitate cooperation, all employees share the same programmes in order to improve their competences computer software, which provides them with data for the labour market. concerning participants. Within the MAMBA project, refugees are considered When the project started, the GGUA provided special as being able to contribute to the local labour mar- training sessions for employees in the public admin- ket. During a first information session at the GGUA, istration offices in order to strengthen intercultural they can indicate their preferences and qualifications skills as well as improve their knowledge concerning concerning a potential employment. GGUA’s coaches the legal situation of refugees in Germany. It may be try to build on the special resources and competences considered a positive side effect that throughMAMBA of MAMBA participants in order to find the right job the local administration became more acquainted for each person. They furthermore help participants with immigration issues and acquired special knowl- to cope with administrative procedures involving their edge as to how to deal with them. Through this devel- residence and work permits. Subsequently, partici- opment, at least a partial sustainability and legacy of pants get in touch with one of the partner organisa- MAMBA beyond the actual duration of the project has tions that provide contacts to potential employers been established. and offer vocational training. As the interviews indicate, employers are interested in the MAMBA 22.3. Interaction with the local project as they consider participants highly motivated welfare system for most kinds of jobs as well as for temporary work. Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities This motivation does not only stem from financial MAMBA receives multilevel funding from several reasons. In fact, employment can lead to improve- institutions. The largest share is provided by the ments in their residence status. This applies especially European Social Fund whereas the city of Münster to the group of several hundred Roma refugees from has contributed few resources on an ad hoc basis Kosovo, many of whom have been living in Münster according to requirements. However, funding by the for more than a decade without regular residence EU and the federal government is limited to the end permits. of the year 2013. As such, it is not assured that the network will subsist after 2013. Nevertheless, many 22.2. Internal organisation and local stakeholders see MAMBA as a big success and a modes of working flagship project. The success of the project in terms of the number of participants and the percentage placed Currently, 14 employees of the five partner organi- in paid labour is established in internal evaluations of sations work for MAMBA (most of them 19-30 hours the project as well as those of the federal programme per week). While GGUA is an independent non-prof- (Mirbach et al. 2012; Mirbach and Schobert 2011). it organisation, training and vocational education MAMBA is in line with Münster’s local discourse. programmes are offered by the Society for Promotion Strengthening the employability of individuals follows and Education (GEBA, Gesellschaft für Berufsförderung the main paradigmatic lines of Münster’s welfare und Ausbildung), a for-profit organisation, and the system outlined in the introduction. Furthermore, it Centre for Youth Education (JAZ, Jugendausbildungsze- fits into thelocal welfare discourse and can be seen ntrum), a non-profit enterprise belonging to the catho- as one way of promoting the image of Münster as an lic charity organisation Caritas. Contacts to employers integrative and liberal-minded city. and job-related counselling are provided by the Edu- In Münster there is a broad consensus across all par- cational Centre of the Chamber of Industry and Com- ties not to carry out controversies on refugee policy HBZ, Handwerkskammer-Bildungszentrum merce ( ) and in public. Therefore, in 2009 a resolution was passed Jobcenter the , a municipal public institution. The net- unanimously by the city council to stop deportations work efficiently links different competences: whereas of Roma to Kosovo. However, there is still no political the GGUA has good access to the target group, the consensus on a general right of residence for this other institutions are familiar with Münster’s labour 136 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities target groups)towhichtheprojectcanbeconnected. ner organisationsalreadyworkingwiththeintended people) ifthereareinstitutionalstructures(i.e.part (e.g. otherimmigrantgroupsorunemployedyoung It mightalsobetransferredtoothertargetgroups tion ofrefugees,theprojectcaneasilybetransferred. cal stakeholderstopromote as funding is guaranteed and there is an interest of lo- already appliedindifferentcitiesGermany.Aslong Concerning thequestionofdiffusion, network. market aswellhelpinsustainingthe networks forother“difficult”groupsonthe gration maybothfurtherthe received bythefederallevelfor of thecitywithinthismodeltodecideuponfunding regards tothelong-termunemployed.Theliberties sibilities inlocal model providesthelocallevelwithadditionalrespon apply tobean“ also hadanimpactonMünster’s2010decisionto department ofthemunicipaladministration, networks. Accordingtoarepresentativeofthesocial concept ofpublicprivate MAMBA’s modusoperandipositivelypromotesthe market integration. tending farbeyondaninnovativeapproachin MAMBAs politicaldimensioncanbeevaluatedasex more permanentstatus.With respect tothis situation, so labourmarketintegrationiscrucialtoreacha group ontheleveloffederalandregionallegislation, Münster DE Optionskommune” (seebelow).This labour marketpolicy,especiallyin partnerships, orinter-sector labour marketparticipa- development ofsimilar labour marketinte- MAMBA is MAMBA Related toallpolicyfields Categories labour MAMBA labour - - - 137 DE Categories Münster Employment

23/77 Optionskommune

23.1. Short description

Traditionally, labour market and social policies are organised and allocated separately in Germany. While labour Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities market related issues are taken care of by local branches of the Federal Employment Agency (Bundesagentur für Arbeit), communities have always been in charge of the provision of social services and welfare-related financial support. Most recently, this division has partly been abolished and combining different policy fields is the innovative aspect of this new development: the Federal Government institutionalised the possibility to hand over the provision of social assistance (welfare support) and assistance related to unemployment (in particular benefits granted for long-term unemployed) to the municipalities. This new approach permits the allocation of responsibility for labour market and social policy issues to local governments and is called “Optionskommune”. However, not being an Optionskommune means that the Federal Employment Agency remains the leading institution coordinating the supply of social benefits. It relies on cooperation with the local administrations. Either way, both models contain a legal obligation to establish joint institutions called Jobcenters. In order to become an Optionskommune local governments had to file an individual application to the State Min- istry for Labour, Integration and Social Affairs. They had to show that they are capable of successfully taking over the tasks and duties of the Jobcenter. Since the programme departs from the traditional German approach regarding social and labour market policies, this has been a competitive process. At the moment, there are around 110 Optionskommunen all over Germany. In 2012, Münster was chosen to become one of them, whereas several rural districts in the surrounding Münsterland have already established the model since 2004. This allows a coherent and integrated regional approach with respect to labour market initiatives, particularly for those groups and constituencies that face significant difficulties in finding a job. Indeed, the city of Münster hopes to significantly improve job placement processes and other services offered to citizens and local companies. The change towards theOption - skommune involves an adaptation of the structures of labour market policy and is therefore a quasi-permanent innovation.

23.2. Conceptions and ways of addressing users

Being an Optionskommune is an innovative approach as it allows a different perspective on unemployed people: unemployment is not seen as individual failure, it mainly considers unemployment a structural problem. There- fore, the development towards an Optionskommune can be seen as an answer to these structural problems as it brings social policy and labour market together. 138 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Department). völlig veränderterAnsatz…“ (FocusgroupinterviewIV,head oftheSocial so werdenauchdieEingliederungsmaßnahmen konzipiert.Dasistein nachdem, wieKundensosindundwo ihreChancenundStärkenliegen, training machen,nichtjedermussdies unddasmachen,sondernje umgesetzt werdenverändertsich[…]. NichtjedermusseinBewerber sprozess […]dieArt,wieEingliederungsmaßnahmen konzipiertund andere ArbeitmitdenMenschen,die zuunskommen.DerBeratung 5 “Das isteineandereSichtweiseauf dasThema.Esisteineganz view withtheheadofSocialDepartment). das IndividuummitihreroderseinerGeschichteanzuerkennen.”(Inter einen FallnichtmehrnuraufBasisvonSoftwarezubearbeiten,sondern 4 “Sie nutzennuneinenanderenBeratungsansatz,derdaraufberuht, the individualunemployed enough scopeforindependentdecisionsthatfavour It alsosupportstheideaofgivingcaseworkers focus ontheindividualandhis/herspecificsituation. quences fortheunemployedsinceitimproves cy inthe Moreover, localauthoritytriestodecreasebureaucra- wards theindividualandhis/herhistory” of theunemployedonbasissoftwaretoolsto another consultingapproach“awayfromtakingcare changed theirwaysofworking.Theyarenowusing more stafftosupporttheunemployed,existing Department explains.Asitisnotpossibletoappoint an empoweringapproach,astheHeadofSocial in paidlabour.Inthis,the of addressingusersandfinallyplacemorepeople it ispossibletoestablishmoreindividualisedways can relyonlocalexpertiseand people thantheFederalEmploymentAgency,sinceit stitution isbettersituatedtotakecareofunemployed proach: itisassumedthattheJobcenterasalocalin Essentially thismodelfollowsadecentralisedap approach...“ are conceptualised.Thisoffersanentirelymodified and strengths.Onthatbasis,integrationmeasures focus isplacedonthecostumeranditschances one hastoparticipateinthisandthat…ratherthe has toparticipateinapplicationtraining,notevery and implementedhaschanged.[…]Noteveryone which measuresofintegrationareconceptualised come tous.Theconsultingprocess[…],thewayin It isanotherwayofworkingwiththepeoplethat “another perspectiveontheissueof Subsequently thisapproachisbasedon to thelocaleconomythanas“problematiccases”. on itconsidersthemmoreaspotentialcontributors other perspectiveonunemployedpeople:fromnow states thattheJobcenteringeneralhastakenonan skommune Münster DE Jobcenter offersmoreroomforother,flexible 5 . Thisdecisionhaspositiveconse Optionskommune follows . Altogether,the networks. Inthisway, unemployment. 4 . Hefurther Employment Categories Option ------not availableyet(cf.focusgroupinterviewIIandIV). Optionskommune. Therefore,tangibleoutcomesare cial- and developing strategicprinciplesforthefutureso As thisisanongoingprocessthefirststephasbeen that wereimplementedwiththe proach astohoweffectandmodifylocalstructures society andpoliticalparties)areworkingonanap At themoment,involvedparties(administration, involved inthe political parties,thisboardisbecomingincreasingly ket policyfromtheadministration, regional representativesfromthefieldof given additionalweightinMünster:consistingof16 an advisoryboard,whichisrequiredbylaw,hasbeen ments havenotbeensetupindetailyet.However, and itsmodesofworking,becausethenewinstru quo oftheimplementation Currently, itisquitedifficulttoevaluatethestatus modes of working 23.3. the formermodeldid. and sustainableinstrumentsinaddressingusersthan of theJobcenter). Zielgruppen-Workshops teilzunehmen.“ (FocusgroupinterviewIV,Head Und habenalleAkteureausdemBeirat eingeladenansogenannten alles genauwissen,wasunsfehlt,sondern wirfragenmaldieAkteure. hin undmachenjetztmaleinArbeitsmarktprogramm, weilwirdasja sind nämlichhingegangenundhaben gesagt:nichtwirsetzenunsjetzt santen Ansatzgewähltunddenwerden wirauchweiterverfolgen.Wir Jobcenter undwirhabengeradeimletzten Jahreinenganzinteres des Arbeitsmarkteshier.16VertreterhabenwirimBeiratbeiuns Beirat zuwählen.DeristjaeinInstitutausregionalenVertretern 6 “Es gibtjavonGesetzeswegendieVerpflichtungeinensogenannten or theLändertowardslocallevel. cially: atransferofcompetencesfromthefederalstate changes forthelocal started acoupleofyearsagoandhasbroughtimmense mune isanexampleforageneralGermantrendthat Münster’s mainparadigms.Inthisway,theOptionskom- overarching structureoftheGermanwelfarestateand centralised authority.Thereby,thisconceptfitsintothe ity, statingthatmattersshouldbehandledbytheleast The welfare system 23.4. for theintegrationintojobmarket strategies inordertodevelopinnovativeapproaches Optionskommune followstheconceptofsubsidiar- Internal organisation and Interaction withthe labour market-politicalorganisationofthe development oflocal welfare system,particularlyfinan- Optionskommune. Optionskommune civil societyand labour market 6 . local labour mar- - civil - - - 139

Particularly concerning the provision of labour, the In terms of potential diffusion of the model, it must be opting-model follows the assumption that the local noted that the Optionskommune is a specifically Ger- authority is more appropriate than the state in pro- man model, which draws heavily on the German fed- viding jobs. Local authority in Münster can draw on eral structure and the traditions of local self-govern- good contacts to entrepreneurs and networks within ment. Thus, it might be difficult to transfer it to other, the local economy. Thus, the Jobcenter knows the local more centralised states where municipalities lack the job market and can help job seekers on their way to administrational capacities and experience. It would getting in touch with future employers. Therefore, the at least require stronger re-structuring and re-deploy- Optionskommune can be considered as an innovative ment of resources than was the case in Münster. In “lighthouse project”. It is not only beneficial to the addition, the expected success of the Optionskommune local authority of Münster, but to the entire Münster- in providing jobs more efficiently depends heavily on land region. the availability of local networks between the adminis- Even though this innovation is an instrument sit- tration and the local labour market. uated on a meta level it provides the context and structural framework for strategic and sustainable social innovations within the local welfare system: it can be considered a basic precondition to pursue an integrated local social policy that enables the administration to include labour market policy into their local governance approach. By integrating various stakeholders into inter-sector networks and trying to include local entrepreneurship as partners, a “city Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities of well-being” can be created. The most challenging, but finally successful process, was bringing together different participants: “We spoke different languages. The people of the social policy and the labour market area - they used the same words but told different stories. That was not possible in the past, working together on labour market policy focussing on the various target groups. […] Being tied together because of the opting-model is very valuable.7” Therefore, the most innovative aspect of the Option- skommune is the “chance of social policy and labour market policy in a city melting into unity”8. The Option- skommune opens up a potentially multi-purpose scope for integrated approaches addressing social problems (cf. MAMBA). Splitting funding between several social stakeholders is another positive outcome and a reason why the model seems to be a win-win situation for both the administration and social service providers.

7 “Man hat verschiedene Sprachen gesprochen. Die Sozial- und die Arbeitsmarktmenschen. Die haben dieselben Worte genutzt aber was anderes erzählt. Das gab es früher nicht. Dass man zielgruppenorienti- ert an der Arbeitsmarktpolitik [gearbeitet hat, C.R.]. […] Da sind dann auch alle Beteiligten durch die Option organisatorisch gebunden an einem Tisch. Und das ist sehr wertvoll.“ (Focus group interview IV, Chief executive of the Paritätischer Wohlfahrtsverband)

8 “Die Chance ist eigentlich das Innovative […]. Dass in einer Stadt Sozialpolitik und Arbeitsmarkpolitik zu einer Einheit verschmilzt.“ (Focus group IV, Chief executive of the Paritätischer Wohlfahrtsverband) 140 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities its workinAugust2008 ster withanewlybornchild.Thepreventionteam,responsibleforcoordinatingandrealisingthesevisits,started poorer areasasisdoneinothercities. A specificaspectofthis“Münstermodel”isthatallfamiliesarevisited,notonlysociallydisadvantagedonesfrom model” Office itself,particularlyfromtheheadofoffice.Theconceptthesevisitsfollowsso-called“Dormagener local mediacoveragefromJune2008).Theimplementationofthese Office aswelltopreventworst-casescenariossuchabuseorneglectofchildreneveninfanticide(cf.the In particular,theresponsiblelocalauthoritieshopetoimproverelationshipbetweenfamiliesandYouth child protection,basedonintensiveandearlyfamilycontact. children’s upbringing.Fromapoliticalpointofview,thesevisitsserveasanoperativeinstrumenttoimprovelocal and adaptedthismodel. Source:WebsiteofDormagen. violence. Thispilot project wasdevelopedintheGerman 11 The so-called“Dormagener Modell”isthetitleofalocal programmethataimedtodevelop instrumentsforpreventingchildabuse andintrafamilial Baby besuchen”(WN05/06/2008)as well asonthewebsiteof 10 All factsaboutthefamilyvisitsin followingsubchapterswithoutanydesignatedsourcesbasedonthenewspaper article“Jugendamtwilljedes 1,400 employees,the in Germany,whichisaggravatedbythe roleofthe children isthreatenedandcandecide, aslastresort,totakechildrenoutoftheirfamilies.Becausethis,the 9 The accompanies thevisits. line withtherespectivenationalityoftheirchildanddistrict oftheparents’home.Ifdesiredbyparentsamidwife benefits, childcarefacilitiesandpreventativehealth offers. Inthiscontext,familiesreceiveinformationleafletsin all, thepreventionteaminformsparentsinanindividual wayaboutdifferentissuesrelevanttoparents:parental of a secondletterinwhichthepreventionteamsuggestsan appointment. Theconceptoffersdifferentservices.First are about2,400peryearinMünster)receivesaletterofinqui ry bytheYouthOffice.Iftheydonotobject,receive The 24.2. Conceptions andways of addressingusers The conceptof 24.1. Shortdescription Prevention Visits 24 Münster DE participation in the family visits is voluntary for all parents. First of all, each family with a newly born child (these participation inthefamilyvisitsisvoluntaryforallparents. Firstofall,eachfamilywithanewlybornchild(these Youth Officeisresponsibleforchild protection(§1Abs.3S.3SGBVIII).Tothisaim,theofficecanintervenein familieswherethewellbeingof 11 of prevention visits,developedin2006.TheYouth prevention visitswasimplementedbythe Youth OfficeinMünsteristhelargest administrativeunitwithinthe /77 10 . Fromapracticalpointofview,these Youth OfficeduringtheThirdReich and intheGermanDemocraticRepublic.Withitsstaffofaround Child andfamilycare Categories municipality Dormagen in2006.Manyothermunicipalities wereconvincedofthisnewconcept Youth Office. Youth Office Office adaptedtheconcepttosituationinMünster.

prevention visitsaimtoassistparentswiththeir municipality (Source: prevention visitswasaninitiativeoftheYouth 9 . TheintentionistovisitallparentsinMün Youth Officehasanegativereputation Youth OfficeMünster2012:163). - 141

Furthermore, the first parent letter (Elternbriefe) is 24.3. Internal organisation and handed over to the families personally. These letters offer a total of 46 educational assistances (i.e. advice modes of working on the issues breastfeeding or protective vaccination). The prevention team is composed of six qualified Dispatch to families is staggered over the period from employees working part time. As members of the pre- the first month of life up to the th8 birthday of the vention team, they are employees of the Youth Office. child12. These parent letters are conceptualised by This underlines the main purpose of the prevention the working group Neue Erziehung e.V., a nationally or- team that it should serve as ambassadors for the ganised NGO13. They are also available in many other office. Volunteers, as in other German municipalities, municipalities, but not every Youth Office sends them would not have direct access to the services of the to families for such an extended period. “This stag- Youth Office, the head of the office explained. This is gered dispatch is very expensive. But it is a very early one of the reasons why the Youth Office decided to help”14, explained an employee of the Family Office15. integrate the visits into the office itself.Through fund- One of the main goals of these prevention visits is to ing the visits as part of the annual budget, they were ameliorate the negative image of the Youth Office, institutionalised in a financially sustainable way. amplified by the supra-regional media16. To underline Each of the six employees should care for about this aim, every child gets a welcome gift from the 400 newly born children per year. They coordinate Youth Office. This toy symbolises that the preven- all appointments and visits. The Social Democrats tion team does not want to take the children away criticised this ratio. They argue it would be impossi- from their parents but it wants all families to benefit. ble for six employees working part-time to care for Parents should get the impression that the Youth 400 children18. During the year 2009, 2,069 families Office might be useful for every family member and in were visited, almost as many visits as were expected. Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities every (difficult) situation.Families should realise that Figures for the first year of implementation (2008) are they can rely on the Youth Office as a service provid- not available19. Already in the development phase, er. Ergo, prevention visits are seen as a sort of “door there were difficulties in finding political majorities opener” by the employees of the Youth Office. for the programme. Many politicians did not want “About 10 years ago (…), the Youth Office had the the prevention team to visit families living in wealthy image of a supervisory authority. If its employees de- social environments as well. The head of the Youth tected any irregularities, they might take the children Office explained: “Then I said, either all or none (…) from their families. We have to get away from this child protection issues affect everyone (…) it is a image because we are service providers. Our job is to visitation service, not an inspection service.20” Today, assist parents in educating and developing their chil- the Youth Office is very satisfied with this programme. dren to happy and capable human beings (…). If you “That’s the best programme we have carried out in 3 talk about these questions in a situation with positive years.21” connotations, parents will find it easy to remember even in stressful times (…). This is a door opener”17.

12 The description of the parents’ letters is based on the website of the Youth Office. Image gehabt (.), die kommen kontrollieren und wenn die sehen, dass was nicht gut läuft, dann nehmen die einem die Kinder weg. Von diesem 13 The working group “Neue Erziehung e.V.” was founded in 1946 by Image müssen wir einfach weg, weil wir sind Dienstleister. Wir sind dazu teachers in Berlin. After the period of inhuman National Socialist and da, Eltern in ihrer Aufgabe zu unterstützen, ihre Kinder zu glücklichen, fascist tyranny, the members of this NGO aim to develop a new conver- lebenstüchtigen Menschen zu machen (…). Wenn man in einer positiv sational understanding of education. Source: Website of Arbeitskreis besetzten Situation über solche Fragen spricht, dann fällt es Eltern sehr Neue Erziehung. leicht, in einer stressbeladenen Situation sich zu erinnern (…). Das ist ein 14 “”Viele Kommunen verschicken diese Elternbriefe entweder gar Türöffner.“ (Interview with a representative of theFamily Office). nicht oder aber komplett als Mappe zur Geburt, weil das eine teure 18 Source: “Jugendamt will jedes Baby besuchen” (WN 05/06/2008). Geschichte ist, dieser gestaffelte Versand. Und wir sagen, es ist eine ganz, ganz frühe Hilfe.“ (Interview with a representative of the Family 19 Source: Youth Office Münster 2012: 154. Office). 20 “Dann habe gesagt, entweder alle oder keiner und Kinderschutz- 15 For the structure and aims of the Family Office see section 1.4 themen berühren hier alle in der Stadt, da kann ich Ihnen die Zahlen below. geben und das ist ja auch ein netter Besuchsdienst und nicht hier ein Kontrolldienst.“ (Interview with the Head of the Youth Office.) 16 Source: Interview with a representative of the Family Office. 21 “Das ist überhaupt das Beste, was wir (…) seit drei Jahren machen“ 17 “Jugendamt hat in Deutschland bis vor zehn Jahren (…) immer so das (Interview with the Head of the Youth Office). 142 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Youth Office.) das KindindenBrunnengefallenist.“ (InterviewwiththeHeadof 25 “Das istauchunserStandard:Mit Prävention anfangen,nochbevor view withtheHeadof 24 “teilweise rufendiehierschonan, wannkommenSiedenn.“(Inter Münster 2012:86. kontakte –Zielsetzungen,Konzepte,Wirkungen”). Source: parents –objectivetargets,conceptsandimpacts“(AufsuchendeEltern 23 The studyoftheInstituteforSocialWorkhastitle“Visiting WN 05/06/08. 22 “Reicht einBesuch?“acommentofthelocaljournalistKarinVölkerin after thehorsehasbolted.Thisisourstandard” tion andmustbecarefulnottolockthestabledoor of theYouthOffice prevention andespeciallytheprogramme This socialinnovationsupportsthecorevalueof welfare system 24.4. Interaction withthe step The localmediapraisestheprogrammeas“agood their preventionprogramme. fixed budget,theycanbeseenasanintegralpartof Office tocontinuethese visit them Office inordertoaskwhenthepreventionteamwill about thedifferentoffers.OtherscallYouth provided untilthepreventionteaminformedthem many familiesdidnotknowabouttheservices Günther 2012:251).AccordingtotheYouth towards a“regularoffer”(Regelangebot of preventionvisitspositivelyandseesitonthepath phalia, theempiricalstudyevaluatesinstrument instrument bymunicipalitiesinNorth-RhineWest municipalities, aswellthehighdemandofthis With referencetothefirstresultsofparticipating have introducedtheinstrumentof empirical studyaboutGermanmunicipalitiesthat image), onecaninfersignsofachangein prevention visits(improvementoftheYouth According tothisaspectandthesecondgoalof active roleinthisprocess. ance. Neithercivilsociety,norlocalpoliticshadan initiative andimplementeditagainstpoliticalresist aspect: itwastheYouthOffice to controlfamilies.Thisprocessshowsaninnovative had toconvincelocalpoliticiansthattheydonotwant media, politicsandsociety.Atthesametime,they to bepreventingworst-casescenariospickedupby office aimstoachievepublicconsensusbyarguing Münster DE 22 ”. Forevaluation,Münstertakespartinan 24 . TheseexperiencesencouragetheYouth . “Wehavetobeginwithpreven Youth Office.) prevention visits.Withtheir itself whostartedthe prevention visits ) (Freseand local welfare Child andfamilycare Categories Youth Office Office, Office’s 25 . The - - - 23 - . - 2010: 2,314,2011:2,080) visits carriedoutoverthelastyears(2009:2,069, Eingriffsinstanz Office Münster2012:85). of existing ing betweenearlyyearsservicesandtheexpansion visits” wasfounded.Thisstepenablesbetter unit “Prenataladvice,preventionservicesandfamily and thepreventionteamin2010.InJune2011, ster. Thisisapparentinthemergerofprenataladvice alised withinthefieldof of the Since itsimplementation4yearsago,theinstrument all parentsinthecity(FreseandGünther2012). with employeesoftheYouthOfficeas study emphasisethepositiveeffectsofbothworking specific MünsterModell:parentsparticipatinginthe in differentcitiesunderlinesthepositiveeffectsof In additiontothis,theevaluationof from acontrollingorganisationtoserviceprovider. the intendedimagechangeofYouthOffice 87). Thisway, focussing onchildcare(YouthOffice informed parentsabouttheoffersoflocalservices port. Inmorethan1,000cases,thepreventionteam a highdemandforadvice,informationaswellsup vention visitsin2010(497),theYouthOffice prevention visitsbyfamilies.Inaquarterofthose Youth Office show thatlocalpoliticsand chical instance.Negativereactionsinthebeginning a partnerforcivilsociety(families),notashierar governance: publicadministrationincreasinglyactsas 2012: 89). vacancy withinthepreventionteamfor 5months( cent from2010to2011isexplainedby the 26 Source: prevention visitshasbecomefirmlyinstitution Youth OfficeMünster2012:175.The decreaseby10per cooperative governancestructures(Youth as aninterventionauthority( prevention visitshavecontributedto ). Theincreasingnumberof local welfarepoliticsinMün 26 showsthehighdemandof civil societyperceivedthe Youth Officewithajob prevention visits Münster 2012: Youth OfficeMünster well asvisiting Ordnungs-/ prevention identified network- away - pre- - - - 143 DE Categories Münster Child and family care

25/77 Family Office

25.1. Short description

Each family is different and has different needs, problems and concepts of their individual family life (for example Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities concerning child-care facilities or the reconciliation of family and job). In everyday life, it is sometimes not easy for parents to find a suitable contact person for their individual concerns and needs. “Surely it cannot be that everyone calls up the office in order to get a child care facility”27, explained the head of the Youth Office. In2003, the office for children, youth and families set up Familya Office, which forms part of the Youth Office. Its primary goal is providing advice with respect to family-related issues. The office understands itself as a kind of signpost through the jungle of German bureaucracy. Concurrently, the office is supposed to serve as a kind of “ambassador for the Youth Office”28, fighting against the negative image of the Office. It is located in the same building. With its own outside entrance, the Family Office invites parents to enter: “You don’t need an appointment. You can leave the office without giving any personal data. That is the particular feature of the Family Office the clients appreciate.”29

25.2. Conceptions and ways of addressing users

The employees of the Family Office understand themselves as service providers. “We are the ‘citizens’ advice office for parents and families”30. During daily consultation hours and via the telephone they support people in difficult situations by putting them in contact with specialised social service institutions. Their clients range from the pregnant women who need advice about financial assistance, grandparents who are concerned about their grandchild, the uncle who asks about playgrounds in the city, to the mother who is concerned about her 16-year-old son skipping school31.

27 “Es kann ja wohl nicht sein, dass jeder kreuz und quer durch die Verwaltung uns immer anruft und sagt, ich will einen Kitaplatz, ich will dies, ich will das (…).“ (Interview with the Head of the Youth Office).

28 Source: Interview with the Head of the Youth Office.

29 “Aber dieses Niedrigschwellige, dass man keinen Termin vereinbaren muss, dass man auch hier weggehen kann, ohne Sorge haben zu müssen, meine Dinge werden weitergegeben oder die ruft sofort die nächste Stelle an und vermittelt das weiter, das ist das Besondere am Familienbüro, was die Ratsuchenden sehr schätzen.“ (Interview with a representative of the Family Office.)

30 “Wir sind sowas wie die Bürgerberatungsstelle für Eltern und Familien.“ (Interview with a representative of the Family Office.)

31 Source: Interview with a representative of the Family Office. 144 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities al institutionsetc.) service providers(advicecentres,familyeducation cooperate withlocalpoliticiansaswell portant aspectoftheirwork.Consequently,they Both employeesconsider child-care facilities). contact withspecificinstitutions(e.g.counsellingor ly Office.Staffalsosupportsclientsbyestablishing phone or personally) between the client and the Fami- be achievedwithinamaximumoftwocontacts(by the rightinstitutiontosolvetheirproblems.Thisis is toputtheclientsintouchwithrightperson see theirfunctionasasignpostforclients.Theirjob over addresslists.TheemployeesoftheFamily not employadministrativestaffwhoprimarilyhand well knownoutsidethe word-of-mouth-recommendation, theofficeisalso 33 Source: Interview witharepresentativeofthe (Interview witharepresentativeofthe FamiliyOffice). kann esjetztnichteingrenzen,liegt daranoderdaran” ist, dieFamiliespürt,beiunsläuftirgendetwas nichtrichtig,aberman 32 “(…) manchmalistesauchso,dass dasProblemsehrdiffuseimKopf the realproblem” something goeswrongtheyarenotabletolocalise problems oftheirclients.“Oftenparentsfeelwhen they arewellpositionedtodetecttheunderlying pedagogues. Duetotheireducationalbackground, The teamoftheFamily modes of working 25.3. Internal organisation and Family tacts withtheYouthOffice,asarepresentativeof as akindof“admissionticket”foranyfurthercon- taged familiesinMünster.Itwantstobeperceived a particularlyimportantroleforsociallydisadvan- (Youth OfficeMünster2011).TheFamilyplays amongst thoselabourmarkettopicsorfamilycrises care, and40percenttoawiderangeoftopics, of which60percentarerelatedtotopicschild clients rangebetween5,000and6,000perannum, The FamilyOfficeishighlyfrequented.Contactswith to employmentissues. integrated inthefacility,providingadvicerespect more, arepresentativeofthelocalJobcenteris to childcarefacilitiesandbaby-minders.Further- In addition,theFamilyOfficeenablesflexibleaccess Münster DE Office explains. 32 33 . ThatiswhytheFamily Duetoexisting Office iscomposedoftwo municipality. networking averyim networks and Family Office. Child andfamilycare Categories Office does - Office - federal levelonlyabout3percent in North-RhineWestphaliahaveaFamily the municipality.Only9percentofmunicipalities house thataddstothecity’sreputationevenbeyond in thefieldofchild-carepolitics.Itisakindlight Family Officehasturnedintoanimportantinstitution issue ofreconciliationworkandprivatelife.The Most requestsconcernchild-carefacilitiesandthe prevention policyisonlyonepartofthedailywork. 2011; YouthOffice is risingcontinuously(from5,421in2009to6,641 number for2011).Overall,theofrequests Office received6,641enquiries(5,000wastheaspired the cityasafamily-orientedcity.In2011,Family as aflagshipforthewhole Unlike the ly embeddedandactiveheadoftheYouthOffice. the establishmentprocess,whichwasledbyhigh in ahierarchicalprocess.Thisisalsounderlinedby more andin ascribed tothe interview. Thisindicatestheimportancegenerally a representativeoftheFamily and ships withotherlocalstakeholders(frompolitics administrative staff,andtheymaintaincloserelation by thefactthatitsemployeesarepedagogues,not role asserviceproviderandpartnerforthefamilies the pastdecades.TheFamilyOffice underlines its new entiation ofsocialservicesonallpoliticallevelsover new understandingisbasedonanincreasingdiffer policy asacentralpillarin more “customerfocus”andexpandingtheprevention ilar goals:improvingtheimageofYouthOffice; Family Officeandthe starting pointinthisprocessofimagechange.Both presenting itasserviceprovider.Itcanbeseenthe The FamilyOfficeistheflagshipofYouthOffice, welfare system 25.4. Interaction withthe schlechthin.“ (Interview witharepresentativeofthe Vereinbarkeit vonFamilienundBeruf. DasistdasThemaderZukunft 35 “Münster hatsichganzgroßaufdie Fahnengeschrieben,die bundesweit sindesnurca.dreiProzent (Possinger2010). 34 In NRWverfügenneunProzentder KommunenüberFamilienbüros, private life.Thisisthetopicoffuture taken upthecauseofreconciliationworkand civil society). prevention visits,theFamily labour marketinMünster. Local welfarepolicyseemstowork networks asopposedtooperating Münster 2012:97).Implementing prevention visitshaveverysim local welfarepolicy.This municipality inpresenting Office explainsinan 34 . “Münsterhas Family Office.) Office serves per se” local Office, at 35 , - - - - - 145

The evaluation of the prevention visits, interviews with employees of the Youth Office andlocal media coverage regarding the innovations indicate the success of both measures in changing the image of the Youth Office andestablishing better connections to families. This can ensure more effective protection of children as well as serve the different needs of families, while strengthening Münster’s image as a family-friendly city at the same time. Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 146 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities ers’ associations(Eigentümergemeinschaften,WEG financial capacitiesofmanyownerswereidentifiedasthemainobstaclesforprivateinvestment.Legally,onlyown - need forrenovation(Sanierungsgebiet)bythecitycouncilin2005,fragmentedownershipstructureandlacking In areportconcerningthepreparationofrenovationprogrammefollowingdeclarationasanareawithspecial uninhabitable andasaresult,povertyhighfluctuationofresidentshavebecomesymptomaticthisarea. owners withfewresourcesandnecessaryinvestmentswereomitted.Asaconsequence,severalapartmentsbecame upon e.g.renovation/modernisation measures,contributions toamaintenancereservefund, etc. 37 Wohnungseigentümergemeinschaften areassociationsofallownersanapartmentbuildingora 36 “Der zirkuläreundkumulativeDegradationsprozess” (V/0686/2005). to carrythefinancialburden. whereas (b)individualowner-occupiers shouldbeconvincedofjoiningthepro-renovation fractionandbeenabled efforts: (a)financialinvestorsshouldbeeitherforced to investbymajoritydecisionordrivenselltheirflats; Consequently -basedontheproblemanalysisowners wereidentifiedasthemainaddresseesofpublic further theidentificationofinhabitantswith heide bymeansofsocialworkandservices.This,however, onlyresultedinverylimitedsuccess:itdidnot In afirstapproach,the 26.2. Conceptions andways of addressingusers a “circularandcumulativeprocessofdegradation” been soldtoprivateinvestorsorindividualowner-occupierssincethelate1970s.Throughout1990sand2000s, built in1963byaprivatecompanyandhavesincebeenusedtheBritisharmy.Gradually,apartments Osthuesheide isaneighbourhoodconsistingofseveralapartmentblockswithabout800inhabitants.Theywere 26.1. Shortdescription Osthuesheide 26 third owners’ association opted – with WGL representing almost 50 per cent of the units – for substantial investments. third owners’associationopted–withWGLrepresenting almost 50percentoftheunits–forsubstantialinvestments. missioned tobuyflatsuntilthosewillinginvesthadamajorityintherespectiveowners’association.In2010, Therefore, apubliccompanywasformedin2006,WohnungsgesellschaftGroßeLodden(WGL).Thecom - decided infavourofinvestments,whileapositivedecisionthethirdandbiggest(128units)lackedmajority. Münster DE /77 municipality triedtocounteractthenegative Neighbourhood revitalization/Housing Categories neighbourhood 37 neighbourhood andfailedtopromotesignificantimprovements. ) were able to make decisions on major investments. Two of these ) wereabletomakedecisionsonmajorinvestments.Twoofthese 36 was observed: the low standard attracted mainly tenants and wasobserved:thelowstandardattractedmainlytenantsand housing situationandreputationof housing estate.Inyearlyassemblies,they decide Osthues - 147

In WEG I and II, with a high share of owner-occupi- legally liable in the event that the owners’ associations ers, the municipality initiated a moderated process. were unable to repay their debts. The general aim was to foster decisions for reno- In order to avoid this, the separate company (WGL) vation without further financial engagement of the was founded as a subsidiary of the communally municipality. The owners were assisted - following owned Wohn+Stadtbau. This company was supposed an empowerment approach – in developing realistic to gain a majority share in WEG III, where both the investment and modernisation plans. Regarding WEG need for investment and the number of flats owned III, some owners considered the net costs38 of the by corporations were highest. The close connection renovation a financial problem. Therefore, for the first between the established public housing company and 4 years a subsidy of 100 euros per month was offered the new WGL allowed for the obtainment of a sub- by WGL. As an alternative option, owners could sell stantial loan for the renovations, since Wohn+Stadtbau their flat to WGL at 4,000 euros above market value39. offered other houses as guarantees. In the short The third option - reducing the monthly payment by term, the WGL needed to invest a high amount of work contribution during the renovation process – money in order to buy and renovate the flats43. In the was not chosen by any tenant. long run, however, these investments are expected to The aim of the renovation was not only to improve be profitable in terms of a sustainable income (rents) the living situation for existing tenants but also to at- or through a resale. tract new and well-to-do inhabitants to the area40. The According to the complex statutes of the owners’ common catchphrase for this is “to create a (healthy) associations and housing ownership laws (Wohneigen- social mix”41. The underlying assumption is that those tumsrecht), one single decision for the whole area of in a worse socio-economic situation will indirectly WEG III (128 flats) had to be taken. As a public support benefit from this mixing process. It can be argued, programme for renovations was due to be discontin- Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities however, that this concept does not strike at the core ued, a decision was taken quickly by simple majority. problem of poverty/ inequality but merely changes Court cases - arguing that a qualified majority would the settings in which it exists. have been necessary - are still ongoing, but have been rejected in the first instance44. 26.3. Internal organisation and modes of working 26.4. Interaction with the local

The direct intervention of the municipality was lim- welfare system ited to a few measures improving the quality of the Both the moderated process in WEG I and II and the surroundings as well as changing the name of the renovation in WEG III represent a governance inno- 42 neighbourhood, in order to improve its reputation . vation in Münster and probably even in Germany45. Involvement of the city in purchasing units - as initially Interventions in the ownership structure of neglected intended - was soon considered inappropriate. The neighbourhoods have not been executed before, influence obtained through the acquisition of a low especially not to such a high degree in terms of number of flats was remote and there were concerns financial volume. However, both the representatives that the municipality would be in danger of being of the WGL and of the Municipal Office for Housing do not observe a paradigmatic change in housing policy. 38 Each owner-occupier has to pay approx. 230 euros per month to According to the representative of the Municipal amortise the collective loan for the renovation, saving about 30 euros in Office for Housing, a long-term re-communalisation energy costs, resulting in a net burden of 200 euros per month. of housing stock is not necessary. It would suffice to 39 WGL offered to pay 19,000 euros instead of an estimated market value of 15,000 euros per unit in WEG III.

40 “Siedlung Osthuesheide/Bonnenkamp: Nachfrage ist da“ (WN 43 5.8 million euros; 46,000 euros per unit contrasting with 15,000 14/7/2012). euros current market value per unit in WEG III.

41 This phrase was found with some variations in several council 44 “Klagen abgewiesen: Osthuesheide wird saniert.” (MZ 25.11.2010.) debates, some party programmes and a number of WILCO-related interviews. 45 Regarding the moderated process, one single blueprint reference example can be found in the small city of Stade. This however was a 42 “Angelmodde: Osthuesheide: Kein neuer Name ohne Renovierung.“ model project funded by the Bundesland Niedersachsen, while in Mün- (WN 17/09/2010). ster it was carried out without external funding (cf. Bartkowiak 2008). 148 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities large privateinvestors isacommonprobleminseveralGerman cities. 49 The degradationofthe sentative ofthemunicipalofficefor 48 “Kapitalisierung derSozialmiete”(phone interviewwiththerepre maintain theimageofMünster. All oftheseseemtounderlythesame logictointerveneinorder already rundownorthreatentodeteriorate furtherinthenearfuture. 47 The engagement andhasalreadyboughtoneofthemostneglectedblocks. complex inthenorthofMünster,cityhaspreparedforpossible “capitalisation ofsocialrent” municipal officefor lack ofprivateinvestment.Therepresentativethe interaction betweenpublictransferpaymentsandthe Additionally, consciousnesshasbeengrowingforthe acceptance ofpublicintervention. ed abroadnumberofstakeholdersandledtothe tion forprivateinvestments.Thisperceptionactivat overarching imageofMünsterasanattractiveloca reputation ofthe lion’s shareofthecoststhemselves,amajorityfor preconditions: theownerswereabletoshoulder in theseunitswasruledbyonlyasmallnumberof a startingpointfordiffusionprocesses.Theprocess and ested, especiallyinthemoderatedprocess up inthecaseof This relianceonmarketmechanismswasonlybroken control. nisms incombinationwithacertainlevelofmunicipal This underlinesthepredominanceofmarketmecha 46 For example,inthecaseof the future based onacontractincludingobligationsregarding neglected blocksandresellingthemtoprivateowners take upanintermediaryrole,forexamplebybuying Most stakeholdersconsiderthe er formofindirectinfluenceonthe vestments andrenovations,whichwouldofferanoth neglected apartmentscouldbeusedtopressforin to theowners,reducingpaymentsincaseofseriously tenants. Especiallyifthepaymentsaremadedirectly owning neglectedflatsareevenactivelyseekingsuch disincentive toinvestment.Somefinancialinvestors regardless ofthestateflats,thiscanposea rents forrecipientsoftransferpaymentsarepaid munities facingsimilarproblems municipal representative,anumberofothercom solution totheunderlyingproblems. tion programmehighlysuccessfulandasustainable Münster DE II. Anorganisedtransferofknowledgemightbe municipality isalsointerveninginothercityareas,whichare development oftheneighbourhoods Osthuesheide neighbourhood threateningthe housing issuescallsthisprocess housing stockof Kinderhaus-Brüningheide housing issues). 48 . Heexplainsthatifthe 47 duetothestateand Osthuesheide 49 housing associationsand aregreatlyinter- housing market. According tothe , alarger Neighbourhood revitalization/Housing Categories renova- WEG I 46 housing . ------destruction. might alreadybeinaconditionthatonlyallowsforits possible, whileotherseriouslyneglected time wascrucial:atthattime,arenovationstill flats wasanotherprerequisite.Finally,thepointin ness ofexistingownerstoeitherrenovateorselltheir to offeritsexistingstockasguarantee.Thewilling erungsgebie rates dependedbothonthedeclarationas duce. Thepossibilitytoobtaincreditsatlowinterest however, andassuchwillbemoredifficulttorepro The processinWEGIIIwasalotmoredemanding, of the renovations waseasilyobtained,andtheinvolvement community remainedlow. t andontheabilityof Wohn+Stadtbau housing Sani- - - 149 DE Categories Münster Neighbourhood revitalization / Housing

27/77 Hafenforum

27.1. Short description

The Hafenforum was a broad moderated citizen participation process carried out in 2010 and 2011, concerning a Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities plan to reshape Münster’s harbour area and the surrounding densely populated Hansaviertel. The Hafenforum and its repercussions represent a new episode in the swelling conflict in terms of urbandevelopment projects within the city of Münster. It could be an innovative form of public dispute management to establish early stakeholder involvement (of residents, local merchants, etc.) to prevent possible resistance. The process is situated in the context of a strong pro-growth coalition focusing on large-scale prestige projects on the one hand and dwindling public resources on the other. Therefore, the need to attract private investors is constantly increasing. At the same time, citizens’ awareness levels concerning the effects of property led urban planning – which are clearly visible in the city - seem to be on the rise, as indicated by an increase in public conflicts around such topics. This awareness surfaced in the opposition of local merchants and residents towards the plans of two private (main) investors, backed by the local administration, to transform old industrial compounds in the harbour area into high-end housing facilities. Another point of contention was the induction of a shopping centre as well as big car parks into the surrounding areas. Left-wing parties picked up on the local peoples’ apprehensions and reached a decision in the city council50, calling for the Hafenforum to precede any further formal decision-making processes about the area. This call for a public consultation process on the neighbourhood’s future resulted from the fact that neither the city council nor the administration had full disposal rights to the areas affected by the investors’ plans. The Hafenforum attracted hundreds of participants in a number of open sessions and workgroups. The administration engaged the local public relations agency bürofrauns to organise, moderate and document the process. It was furthermore agreed that the Committee on Urban Development, Urban Planning, Traffic and Economy (ASSVW, Ausschuss für Stadtentwicklung, Stadtplanung, Verkehr und Wirtschaft) should decide upon the projects after the end of the process. Through this, the existing Masterplan Stadthäfen, which outlines the long-term development concept for the wider harbour area (approved by the city council in 2004) should be modified.

50 The Green Party (Die Grünen/GAL) and smaller parties achieved consent of the Social Democratic Party and thereby reached a majority decision in the council against the votes of the Liberal and Christian Democratic Party. 150 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities planned citymusic halljust2yearsprior. defeat inareferendum,followinganextensive openconflictabouta 51 It shouldbementionedthatboth parties sufferedanemphatic referendum ontheplans This seemedtobeameasureavoidpotential include criticalstakeholdersasquicklypossible. Party andtheChristianDemocratic-wantedto development process-namelytheSocialDemocratic rum, themainpoliticalstakeholdersinongoing Once theresolutionwastakentohold to formaldecision-making. developers, neighboursandotherstakeholdersprior tries tocreateanopportunityforameetingbetween mandatory citizeninvolvementsubstantiallyand conflict inthecityofMünster,sinceitextends the Hafenforum are obligatoryinurbanplanningprocesses.However, In manycaseshearingsandcounsellingprocesses addressing users 27.2. Conceptions andways of forum. chance to“getincontact”with thecitizensin could notrelayanylegislative power,butsawagreat Meanwhile, politicalstakeholdersneverwantedor and investorsexpectedamereinformationevent. grated inactualplanningprocesses,otherresidents be abletocontributefactualdecisionsandinte Hafenforum which makestheevaluationofsuccess This ambiguityresultedindivergingexpectations, towards andalternativestothisplan. the Hafenforum investor planontheagenda-itwasobviousthat Stadthäfen area, concludinginanupdatetothecity’s forum shoulddiscussperspectivesfortheharbour participate. Nominally,theparticipantsof which asmallnumberof30participantseachcould cific topics(setbytheadministration)wereheld,in communicated. Inaddition,workinggroupsonspe was provided,questionscouldbeaskedandideas ticipants each.Informationaboutinvestors’plans Three openforumswereheldwith200to400par and administrators. of urban wanted toposittheiroppositionthecurrentlogic and sawitselfasaresidentadvocate.Inaddition,they other hand,hasastrongholdintheconcernedarea Münster DE development carriedoutbylocallegislators . Butgiventheactualsituation–withan difficult.Whilesomecitizensexpectedto isanewwayofaddressingpublic wouldmainlyfocusonopposition 51 . TheGreenParty,onthe Neighbourhood revitalization/Housing Categories Masterplan Hafenfo- Hafen- - - - modified andshallnowbepushedthrough” plans presentedinthebeginningwereonlyslightly the engagementof vices ofprivateenterprisesinparticipatoryprocesses, Even thoughitisnotuncommontocallupontheser modes of working 27.3. Internal organisation and (Norbert Fiedler,Das Nieberdinge.V.,inWN26/10/2011.) nur leichtabgeändertwurdenundnun durchgezogenwerdensollen.“ 53 “Ich habedenEindruck,dassdiePläne, diezuBeginnvorlagen, das soist“(RainerBode,InitiativeZukunftHafen, inWN26/10/2011). 52 “Uns wurdemitgeteilt,wasgehtund wasnicht,aberwarum not why” “We weretoldwhatispossibleandisn’t,but Representatives ofdifferentassociationscriticised: thus hadstrongtop-downandpaternalistictraits. In theeyesofsomecriticalparticipants,process financial reasons. individual suggestionsasimpossiblefortechnicalor to this,administrationrepresentativesrejectedsome too dominatedbycertainstakeholders.Inaddition the forum,otherscriticisedsameprocedureas praised theparticipatoryqualityandopennessof publicly inahighlycontroversialmanner.Whilesome Its roleaswelltheentireprocesswasdiscussed controversial politicaldiscussionprocessiscrucial. munication, planningandmarketing”inthishighly investors andcriticsofthe the forum’sdirectingcommittee,administration, to holdtalksasafollow-uptheprocess,involving As areactiontothesecontroversies,allpartiesagreed a pseudo-participatorycharacteroftheforum. stakeholders, illustrateawidelysharedimpressionof statements, unitingaspectrumofquitedifferent as welltheultimatedecision ofthecommittee,as sions wereconductedanddocumentedby regarding boththewayinwhich participating associationsexpressedmassivecritique some representativesoftheGreenPartyandfive Liberal DemocratsandSocialDemocrats.Incontrast, passed byabroadmajorityofChristianDemocrats, changed inseveralminoraspects.Theproposalwas cent of project approvedwiththeobligationtoinclude30per – the shopping centre was downsized and the the plansofinvestorswithsomegradualchanges continue todiverge.DespitethistheASSVWpassed judgments onthequalityandsuccessofprocess social housing.The 52 , and“I’vegottheimpressionthat bürofrauns Hafenforum Masterplan Stadthäfen , anagencyfor“com Hafenforum . However, bürofrauns 53 . These housing ses- was - - , 151

it would not in any manner reflect the actual discus- realistic alternative plans for urban development is a sions54. Furthermore, even though the Social Demo- lot harder to achieve by participatory processes. cratic representative in the committee commented It can be concluded that the aims of such a participa- positively on the Hafenforum, his counterpart of the tion process should be made as clear as possible in Green Party is quoted as saying that the administra- order to avoid discontent and frustration. This holds tion “willingly falsified the results”55. especially true for processes where the level of emotional involvement is high. A clearer legal framework 27.4. Interaction with the local might be helpful despite its potentially limiting effect welfare system as regards the flexibility of the methods. Hafenforum The Hafenforum is an outcome of growing demands The affected the political local landscape for participation at the local level and growing frustra- in so far as it split opponents of the project into more tion about the one-dimensional doctrines of local de- radical groups and those willing to compromise to- cision-making. However, as several politicians stated, wards a modified concept. In fact, the formal decision the given means of participation – mainly allowing for in December 2011 reflected one of the main aims of resistance against proposed ventures - make it diffi- the local social democratic housing policy: increasing cult to realise projects. Therefore it appears necessary social housing, especially in areas close to the city. It to involve stakeholders, including radical opponents, was obviously a negotiated compromise between the at an early stage of planning, as the “political price” administration, investors and Christian Democratic, (and probably also the monetary) of failure through Liberal Democratic and Social Democratic Parties, a referendum is high. Therefore, the municipality opposed by the Green Party. attempts to involve citizens early if resistance against It is unknown what consequences the experience of a project is anticipated. The Hafenforum was a special the Hafenforum will have on local politics in the future. Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities case, however, due to the number of citizens involved Obviously, it could not solve the strategic dilemma as well as the prolonged duration of the participation between large-scale urban planning with regard to process. the whole city on the one side and resistance against Conflicts are likely to arise, especially in cases of them by citizens from the affected neighbourhoods urban planning and the field of basic public supplies. on the other. However, they may also occur in social policy in a narrower sense. Nonetheless, the heavy and ongo- General trends ing controversies regarding the Hafenforum point to Some general trends linking the innovations studied the fact that if a topic is as controversial as this, even herein can be observed. The innovations point to a involving stakeholders in a moderated process may different understanding of the role ofpublic admin- not solve or calm the conflict. This holds especially istration. It is increasingly seen as a service provider true if, as in this case, matters seem predetermined with a strong focus on its clients. Therefore, one of its or are presented without a viable alternative. This lack increasingly important functions is the empowerment of openness regarding the results might have been of citizens. Contemporaneous with this change the the biggest flaw in this case because expectations of role of NPOs in the local interplay of stakeholders politicians, investors and citizens diverged significant- is undergoing a transformation as well, i.e. they are ly. The lack of neutrality of the administration and gradually focusing on networking with different kinds the assigned agency bürofrauns was another point of of stakeholders from all sectors of society. contention. This suggests that while opposition seems to be rather easily organised, the development of

54 It is necessary to underline that data collection only encompasses the time frame until the beginning of 2012. In the meantime, the controversial debate about the development of the harbor area continued, where the results of the Hafenforum and the political independence are used strategically as arguments.

55 “die Ergebnisse des Hafenforums bewusst verfälscht” (Helga Ben- nink, Green Party, in WN 13/12/2011). 152 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities discursive frame.Thetwoinnovations inthefieldof the municipalityinaccordancewith theoverarching that urban this caseseemstohavebeen derivedfromthefact a measureoflastresort.The activeinterventionin renovation ofthe on acomparativelyhighlevelinordertoachievethe owned policy. Inthecaseof pality is averyactiveplayerin the field of seen asalaissez-fairestyleofpoliticsthe harbour area).Generallyspeaking,thiscannotbe Optionskommune tutions orpoliticallevels(asinthecaseof they aretryingtosecurefundingfromotherinsti provide fundingorgiveotheractivesupport.Instead, most casesthemunicipalitywasnotwillingorableto the overarchingframe.Nonetheless,itseemsthatin tors forsocialinnovationsiftheycanbeconnectedto bers ofthelocaladministration–areactingasfacilita Municipal stakeholders–politiciansaswellmem tive andprivatestakeholders. through thebroadnetworksofpolitical,administra- the dominanceofmainparadigmaswell influence onsocialpolicytoday.Itiswieldedthrough investment frameinthe1990s-stillexertsimportant innovation -establishingthecompetitivenessand strated thatthecoalitionformedaroundinitial tions andsocialentrepreneursinMünster.Itdemon- available undertaken conveysimportantinsightsintothe The abovedescriptionandanalysisofinnovations innovations Windows of opportunitiesfor ity anddiffusionofinnovationswillbeexpounded. to belearnedfromMünsterregardingthe stakeholders canbetypified.Afterwards,thelessons categorical frameworkwithwhichtheroleofpublic for innovationsinMünsterwillbeusedtogeneratea first, thegeneralcontextorwindowofopportunity lessons willbeanalysedinthefollowingsections: and socialentrepreneursinothercontexts.Those in Münster,butrathercontainlessonsforinnovators examples forinnovativeprojectsandundertakings The innovationspresentedabovearenotonlylocal Conclusions Münster DE Wohn+Stadtbau windows ofopportunityforsocialinnova- development isoneofthekey issuesfor ortheprivateinvestmentsin neighbourhood, despitethisbeing Osthuesheide evenintervenedfinancially , thecommunally local welfare MAMBA, sustainabil- munici- - - - (Hafenforum zens tomunicipalprocessesshallbestrengthened other hand,the embedded stakeholdersandorganisations.Onthe their differentproblemsbycompetentandlocally comprehensive way.Thereisanattempttoaddress Optionskommune Office, preventionvisits, On theonehand,someinnovations(e.g.Family innovations studiedhereinservetwomainfunctions. Regarding theireffectonthe process whilekeepingtheirownengagementlow. to preventafailureoftheplansthroughmoderated other stakeholderswastobeexpected,theysought by mostcommunalstakeholders.Asresistance same logic,sincetheplansofinvestorsaresupported a signpostforcitizens.The spheres ofinfluence,whiletheYouthOfficeacts the differentinstitutionsmaintaintheirrespective vices inordertoachieveclearerstructures.Instead, ple, didnotattempttomunicipalisethedifferentser engagement, ifnecessary the corevaluesofcoalitionarepursuedbyactive tion: subsidiarityispreferredwhereverpossible,while holders mainlyseemstobeoneofselectiveinterven Therefore, theinterventionstyleofcommunalstake es withintheannualbudget. its tofamilies)werefinancedbyredeployingresourc family policy(theFamily Within the selecting innovationsandundertakingsforsupport. ty asa“spiderinitsweb,”whichexertsinfluence From theseinsightsfollowsaviewofthe welfare policy. communities shallbefortifiedandutilisedfor the strengthsandassetsofcitizenssmall-scale system regardingnewlyemerging challenges. the adaptivecapacityandinnovativenessoflocal ticed bythecoalition.Infuture,thismighthamper work, whichuntilnowseemstoremainlargelyunno leads toacertainsaturationandrigidityofthe coalition ensurecontinuity.Ontheotherhand,this the dominantframeandmainstakeholdersin sive coalitionremainsimportant.Themaintenanceof community, theroleoforiginaldiscur , Osthuesheide participation inandaccessofciti ) aidinviewingclientsamore MAMBA, and,inparts,the Office andthe . TheYouthOffice,for ). Throughbothfunctions, Hafenforum local welfaresystem,the followsthe prevention vis communi- local net- exam- as ------153

Sustainability and potential for has been widely criticised and has not resulted in a broad consensus about the future of the harbour diffusion area. Ongoing debates about the development of The innovations studied in Münster also demonstrate the neighbourhood can be expected. Results of the some relevant factors in regards to the sustainability consultation process will not be a reliable outcome on of innovations that can be applied to other settings which to build future policies. Instead, it can serve as and innovators. In the following, those general les- an example from which to learn for future consulta- sons are outlined. tion processes. Regarding MAMBA, the broad alliance for refugees in Münster points to the possibility that One of the most important aspects is sustainable a long-term solution for the project might be found. funding. Some of the innovations in Münster (e.g. the A potential connection point might be the Option- Family Office, the prevention visits and the reno- skommune, which offers the possibility to integrate vation process in Osthuesheide56) have been issued MAMBA into the broader framework of labour market with sustainable resources, either from the munic- integration. ipality itself or through guarantees by communal enterprises. The Optionskommune is a special case, Diffusion since funding is granted by federal level according to specific regulations57. One aim of the WILCO project is to investigate the On the other side are innovations funded on a project potential diffusion of innovations. This encompasses basis, such as MAMBA. Its existence largely depends on both the transfer to other cities and regions as well acquiring follow-up financing after the end of the grant as the application of an innovation to other target from the European Social Fund (ESF)58. Hitherto, even groups. Drawing on the experience of innovations in though the project is considered a success in Münster, Münster, which factors need to be considered in the Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities no local stakeholder has signalled the intention to pro- transmission of innovations to other contexts and/or vide funding from 2014 onwards. Apart from the need target groups? to cut public expenditure this might be associated with Probably the most important result of the research the fact that aid for refugees is not a core aim of the in Münster is that possible innovators need to assess dominant coalition (i.e. competitiveness). the local discourse coalitions in their respective con- This assumption leads to another factor for sustain- text and try to find linkages to the main frames and ability: continued support by local stakeholders. The prevailing problem perceptions. This can help with broader the network supporting an innovation the the creation of a network of supporters and might easier its maintenance will be. This can be observed even help to secure funding for an undertaking. If in innovations in the field of family policy, which have the innovation cannot be connected to the particular been installed by a broad coalition of supporters and dominant frames and goals, it will at least be a lot which are solidly established as permanent institu- more difficult to establish support structures. In the tions. The process of the Hafenforum, in contrast, case of a strong, closed coalition, a lack of consideration for the discursive frames can even obstruct an

56 The Osthuesheide is special, in that an income – either through undertaking altogether. rents or through a resale of the procured apartments – can be expected in the long run. However, in the short term it required a substantial Pleading the case of social innovations and enter- financial engagement by the communal WGL prises requires active and persuasive social entrepre- 57 Basically, federal funding for labour market integration measures neurs or supporters fulfilling this function, who can is allocated by the same formula to all municipalities. It is based on the number of jobseekers within the responsility of the local Jobcenter, present their ideas in the prevailing local discursive weighted by the overall share of population receiving basic social context and as a possibility to further the main goals security benefits Grundsicherung)( . Thereby, municipalities with a high percentage of the latter receive a higher sum per jobseeker. In an of important local stakeholders. They are even more Optionskommune, expenses are directly granted by and booked into the assertive if they have good connections to different federal state’s budget, and not co-administered by the Federal Labour Agency (Bundesagentur für Arbeit). Sources: www.o-ton-arbeitsmarkt. societal sectors (politics, civil society, administration). de/o-ton-lexikon/eingliederungsmittel; http://www.kreise.de/__cms1/ For example, the innovations in Münster regarding images/stories/pdf/sgb%20ii%20gute%20grnde%20option.pdf. family policy were implemented by the Head of the 58 It is noteworthy that even in a rather well-off city such as Münster Youth Office whois well connected in the city. The po- the ESF plays a role in the funding of social innovations. 154 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Gelsenkirchen Abschlusstagung am17.April 2012imWissenschaftspark und Wirkungen.Präsentation der Ergebnisseauf jekt: AufsuchendeElternkontakte. Konzeptionen,Zugänge Frese, D.&Günther,C.(2012): Praxisentwicklungspro tal: PeterHammerVerlag. katholisch-sozialen BewegungundinderCDU.Wupper wortung. DieIdeeeineschristlichenSozialismusinder Focke, F.(1978):SozialismusauschristlicherVerant itsmarkt. Ders.(Hrsg.):Berlin. Bleibeberechtigte undFlüchtlingemitZugangzumArbe Thematischen Netzwerksim und Stolpersteine.GrundlagenpapierdesNationalen Fiebiger, K.,etal.(2009):Zwischenbilanz:Meilensteine gramm__bleibeberechtigte.html(22/02/2012). www.esf.de/portal/generator/6610/sonderpro- berechtigte undFlüchtlinge XENOS –ArbeitsmarktlicheUnterstützungfürBleibe Bundesministerium fürArbeitundSoziales(2012b): dungen/ bleibeberechtigte.html(22/02/2012). Themen/Soziales-Europa-und-Internationales/Mel weiter. Onine.Availableat:http://www.bmas.de/DE/ Das ProgrammBleibeberechtigteundFlüchtlingegeht Bundesministerium fürArbeitundSoziales(2012a): nal/05394-20120614.pdf. at: http://library.fes.de/pdf-files/akademie/kommu- raxis, Bonn:Friedrich-Ebert-Stiftung.Online.Available Arbeitshilfe zuStrategienderkommunalenPlanungsp neigentumsanlage zumbenachteiligtenStadtquartier; Quartier!VonderWoh- Bartkowiak, J.(2008):Rettetdas Bibliography philanthropic institutions–forfunding. external stakeholders–i.e.otherpoliticallevelsor case ofMAMBAshowsinMünster),istoapproach facilitate accesstofunding.Anotherpossibility(asthe discourse andgainingaccesstolocal funding. Asmentionedabove,connectingtothelocal diffusion ofaninnovationisthatthereaneedfor Another obviouscommonfactorregardingthe perseverance andnetworking. the project.Thisunderlinesgeneralnecessityfor the mainpromoterandherdiscursivejustificationof into theschemewasovercomebypersistenceof prevention visitsagainsttheinclusionofallfamilies litical resistanceintheconceptualisationphaseof Münster DE , Institutfürsoziale Arbeite.V.Online. . Online.Availableat:http:// ESF-Bundesprogramm für networks can ------

senthal, Helmut(eds.): Jahrhunderts sionismusstreit derSozialdemokratieamEndedes20. Merkel, W.(2000):Der“DritteWeg“undderRevi- kath-soziallehre.de (20/02/2013). Limburg, 3.Einheit.Online.Availableat:http://www. Limburg e.V.,KAB-BildungswerkDiözesanverband Katholische Arbeitnehmer-Bewegung,Diözesanverband Ein KurszurEinführungindieKatholischeSoziallehre. Leuninger, E.(2002):GerechtigkeitschafftFrieden- pp. 1501-1530. SPD. ZeitschriftfürPolitikwissenschaft zialdemokratie. DerDritteWeg,NewLabourunddie Jun, U.(2000):DieTransformationderSo Bundesverwaltungsamt. Münster. Arbeitsmarkt“. Zwischennachweis Bleibeberechtigten undFlüchtlingenmitZugangzum sprogramm zurarbeitsmarktlichenUnterstützungvon GGUA (2010):SachberichtBleiberecht.“ pdf (26/02/2013). ende_elternkontakte/ISA_Ergebnisse_Tagung_17.04. load/ pdf/tagungsdokumentation/abschluss_aufsuch Available at:http://www.isa-muenster.de/cms/up 1969–1990. of LocalInnovation. González, S.(2005):TowardsAlternativeModel(s) Moulaert, F.,Martinelli,F,Swyngedouw, E& erke.pdf (08/04/2013). uploads/dateien/ zwischenbilanz_bleiberechtsnetzw www.perspektive-arbeit-nrw.de/argumentum/data/ runde –Zwischenbilanz.Online.Availableat:http:// Flüchtlinge mitZugangzumArbeitsmarkt“.2.Förder itsmarktlichen UnterstützungfürBleibeberechtigteund grammevaluation “ESF-Bundesprogrammzurarbe Mirbach, T.,Triebl,K.&Farrokzhad,S.(2012):Pro- Cltig.pdf (08/04/2013). %20Bleiberechtsprogramm%20V11%20endg%C3%B argumentum/data/uploads/dateien/Endbericht%20 Available at:http://www.perspektive-arbeit-nrw.de/ Zugang zumArbeitsmarkt.Abschlußbericht terstützung fürBleibeberechtigteundFlüchtlingemit ESF-Bundesprogramms zurarbeitsmarktlichenUn Mirbach, T.&Schobert,B.(2011):Evaluationdes pp.263-290. Gesellschaften tionenpolitik inkapitalistischenundpostsozialistischen . Hinrichs,Karl/Kitschelt,Herbert/Wie . Frankfurt/NewYork:CampusVerlag, Urban Studies,Vol.42,No.11, Kontingenz undKrise.Institu desProjektesfürdas , Vol.10,No.4, ESF-Bunde . Online. ------155

Possinger, J. (2010): Kommunale Familienbüros als >> ASSVW (Committee on Urban Planning, Urban zentrale Anlaufstellen für Familien. Online. Available Development, Traffic and Economy): Protocol at: http://www.familie-in-nrw.de/index.php?id=2365 of the session on 13/12/2011, including (accessed: 24/02/2012). proposal of Die Grünen/GAL “Änderungsantrag Aktualisierung MasterplanStadthäfen Stadt Münster (2008): Leitbild “Migration und Integra- ” tion in Münster“. Federführung: Koordinierungsstelle (V0800/2011) and competing proposal of SPD/ MasterplanStadthäfen: Perspektiven des für Migration und Interkulturelle Angelegenheiten in CDU “ Hafenforums aufnehmen! Zusammenarbeit mit dem Ausländerbeirat der Stadt ” Münster. Online. Available at: http://www.echo-muen- >> Council of the City of Münster (Rat): Protocol of ster.de/files/migrationsleitbild2008.pdf (10/03/2013). the session on 17/03/2010, including common Stadt Münster (2011): Flüchtlinge in Münster. Zum proposal of the Fractions Bündnis90/Die Stand des Münsteraner Flüchtlingskonzepts. Antrag der Grünen/GAL, SPD, Die Linke and UWG-MS/ödp Hafenforum – neue Perspektiven für die Entwicklung Fraktion Bündnis 90/Die Grünen/GAL vom 07.07.2011. “ am Hafen Online. Available at: http://www.stadt-muenster. ” (A-R0020/2010) and competing de/sessionnet/sessionnetbi /vo0050.php?__kvon- proposal of the FDP fraction. r=2004033549&voselect=7880 (10/03/2013). >> Council of the City of Münster (Rat): Protocol of Stadt Münster, Amt für Wohnungswesen: Ab- the session on 09/06/2010, including the proposal schlussbericht: Vorbereitende Untersuchungen gem. of the Integration Board for a Resolution against §§ 140 und 141 Baugesetzbuch (Bau GB) Angelmodde the Deportation of Minorities to Kosovo and for a Resolution gegen die Waldsiedlung/ Osthuesheide. Change of the Right of Abode ( Abschiebung von Minderheiten in den Kosovo und Stadt Münster, Amt für Wohnungswesen: Geschäfts- zur Veränderung des Bleiberechts, AIR/0002/2010). Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities bericht (Annual reports 2006 to 2011) >> V/0686/2005: “Wohnsiedlung Osthuesheide”. Vorländer, H. (2001): Dritter Weg und Kommunitaris- Sanierungssatzung gemäß §142 Baugesetzbuch Aus Politik und Zeitgeschichte mus. , Vol. 16-17, pp.16-23. (BauGB), Stadt Münster. Youth Office Münster (2011): Yearbook of the Youth Office 2010. Newspaper articles

Youth Office Münster (2012): Yearbook of the Youth >> Westfälische Nachrichten (WN – online edition) Office 2011. >> 05/06/2008: “Jugendamt will jedes Baby besuchen“ Council documents >> 05/06/2008: “Reicht ein Besuch?“ (commentary by >> ASSVW (Committee on Urban Planning, Urban Karin Völker) Development, Traffic and Economy): Protocol of the session on 02/12/2010. >> 25/08/2008: “Polizei und Bezirksbürgermeister äußern sich zum Vorfall in der Osthuesheide“ >> ASSVW (Committee on Urban Planning, Urban Development, Traffic and Economy): Protocol of >> 24/03/2009: “Hafenforum für den Hafen“ by Klaus the session on 20/01/2011, including proposal Baumeister. of the SPD fraction “OSMO-Hallen: Hafenforum >> 24/02/2010: “Osmo-Hallen: Sechser-Gruppe fortsetzen – Planungshoheit wahren – Status quo fordert Hafenforum“. sichern” >> 30/06/2010: “Stress mit dem ‚Hafen-Center‘“. ASSVW (Committee on Urban Planning, Urban >> >> 24/07/2010: “Osthuesheide-Instandhaltung: Development, Traffic and Economy): Protocol of Rettung oder Ruin?“ the session on 19/05/2011. >> 17/09/2010: “Osthuesheide: Kein neuer Name >> ASSVW (Committee on Urban Planning, Urban ohne Renovierung“. Development, Traffic and Economy): Protocol of the session on 13/10/2011. >> 29/09/2010: “Was passiert am Hafen?“ by Klaus Baumeister. 156 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Internet > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > Münster DE eingliederungsmittel (08/04/2013) http://www.o-ton-arbeitsmarkt.de/o-ton-lexikon/ familienbuero.html (07/01/2013) http://www.muenster.de/stadt/jugendamt/e_ (08/04/2013) pdf/sgb%20ii%20gute%20grnde%20option.pdf http://www.kreise.de/__cms1/images/stories/ (07/01/2013) http://www.dormagen.de/familiennetzwerk.html (17/01/2013) http://www.ane.de/ueber-uns/geschichte.html wird saniert.“ 25/11/2010: “Klagenabgewiesen: helfen. Verlängerungfastsicher/Finanzlücke“. 20/10/2010: “‘Mamba‘kannFlüchtlingenweiter einen ArbeitsplatzundAlltag“. Flüchtlinge bekommendankEU-Fördermitteln 05/06/2009: “MüttersindSchlauberger. Münstersche Zeitung(MZ-onlineedition) Bonnenkamp: Nachfrageistda“. 14/07/2012: “Siedlung erweitern“ abgespecktem Einkaufszentrum/Rewe-Marktwill 13/12/2011: “CDU,SPDundFDPsagenJazu Kalitschke. 26/10/2011: “HafenvereineinAufruhr“byMartin 12/05/2011: “Osmo-FlächenhabenVorrang“. by GünterBenning. 10/05/2011: “Einkaufszentrumbleibtumstritten“ 18/04/2011: “O-Heidewirdauflinksgekrempelt“ vergeben“ 19/02/2011: “ by MartinKalitschke. 19/01/2011: “HafenvereinestellenForderungen“ 26/11/2010: “Zweites Osthuesheide-Sanierung istrechtens“ 25/11/2010: “Angelmodde:Amtsgerichtbestätigt: durch dieInstanzen?“ 12/11/2010: “ bittere Pillen“byMartinKalitschke. Osthuesheide-Sanierung: Aufträge Osthuesheide: DrohteinMarsch Hafenforum: Träumeund Osthuesheide/ Osthuesheide Interviews > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > Familien): HeadofOffice. Youth Office(Amt Chief ExecutiveOfficer. WGL (WohnungsgesellschaftGroßeLodden): council: Fractionmember. Social DemocraticParty(SPD)fractioninthecity council: Fractionchairman. Social DemocraticParty(SPD)fractioninthecity interview. Wohnungswesen): ProjectDeveloper,phone Municipal officefor MAMBA: Projectparticipant. MAMBA: ProjectCoordinator. Bildungszentrum): Memberofstaff. Industry andCommerce(Handwerkskammer Educational CentreoftheChamber GGUA: Memberofstaff. GGUA: ProjectCoordinatoroftheGGUA. Focus groupinterviewIV. Focus groupinterviewIII. Focus groupinterviewII. Focus groupinterviewI. Family Office:RepresentativesoftheOffice. Municipal Councillor/HeadofDepartment. Gesundheit, Umwelt-undVerbraucherschutz): (Dezernat fürRecht,Soziales, Health, EnvironmentalandConsumerProtection Department ofJustice,SocialAffairs, Head ofDepartment. Migration undInterkulturelleAngelegenheiten): of theCityMünster(Koordinierungsstellefür Department ofMigrationandInterculturalAffairs für Kinder,Jugendlicheund housing issues(Amtfür Integration, Integration, IT Italy Brescia

Giuliana Costa and Stefania Sabatinelli (Politecnico di Milano) 158 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Social housing Single Participation Employment services Child education Child care Keywords: Local background of thesocialinnovations Introduction Brescia IT mothers in theurbanperiphery velopment ofthecityisclearlyvisibleinresidentialareas builtinthe1960s whose acronymmeans“furrow”).Thecontributionofcooperatives tothede- the 1980s,aprovincialconsortiumofsocialcooperativeswas created(Sol.Co., third sectoragenciesandacapillarynetworkofsocialcooperatives.During tions, especiallyexpressionofthesocial-Christianworld,e.g. manyCatholic social approach inanincreasingnumberofpolicyfields.Fromthepointview elections ofregionalgovernors,hasdevelopedaquitestrongquasi-market by theLombardyregionalframeworkthat,sinceintroductionofdirect The municipalwelfaremodelhasbeenconditionedinthelasttwodecades municipal elections. localist NorthernLeague.InJune2013,acentre-leftwingcoalitionwonthe coalitions andthen(2008-2013)byacentre-rightwingcoalition,includingthe then, themunicipalitywasgovernedformanyyears(1992-2008)bycentre-left consequence ofthemajorcorruptionscandalsknownasTangentopoli.Since until thepoliticalshockthatinvestedItalyatbeginningof1990s,asa predominance oftheChristianDemocratsinlocalgovernmentscontinued some state-of-the-artprojectsandcontroversialinterventions).The Bruno Boni,whosegovernmentsbuiltmanyurbaninfrastructures(including the guided bytheCatholicparty(DemocraziaCristiana).Between1948and1975, In thepost-WorldWarperiod,Bresciawasmainlygovernedbycoalitions as universitysite,with–presently(2013)-around25,000students. medium andsmallfamily-basedfirms.Thecityhasalong-lastinghistory (Provincia Brescia2011),withastrongindustrialvocation,mainlybasedon The provinceisoneofthemostindustrialisedareaswholecountry both bydemographicandeconomicsize(intermsofoveralladdedvalue). The provinceofBresciaisthesecondinLombardyregion,afterMilan, migration (CostaandSabatinelli2012a). has beenpartlycompensatedinthelastdecadesbyveryimportantratesof the fifthmostpopulatedincountry.Thestrongageingofthepopulation metropolitan areacountsaround500,000inhabitants,andtheprovinceis region andthesecondlargestmunicipalityinbypopulation.The 189,085 inhabitants Brescia isamiddle-sizedcitysituatedintheeastofLombardyregion,with 1 1 January2012(http://demo.istat.it/). (Politecnico diMilano) Giuliana CostaandStefaniaSabatinelli Authors municipality was administered by the same Christian Democratic Mayor, municipality wasadministeredbythesameChristianDemocraticMayor, solidarity, Bresciahasaconsolidatedtraditionofcivilsocietyorganisa - 1 . It is the main town of one of the twelve provinces of the . Itisthemaintownofonetwelveprovinces 159

Welfare innovations in the three policy fields

The present report presents and analyses cases of social innovation in three areas of Brescia’s local welfare. The first one deals with employment (re)insertion of specific groups of the population; the second one with activities in favour of families in conditions of need (including monetary and in-kind support, care and support services); the remaining deals with housing inclusion of different target groups. As will be seen, the selected cases are quite diverse as to the type of stakeholder that initiated the programme or the project (public or third sector), and to the width of territorial networks involved, which often include also for-profit bodies. Each case-study is based on interviews with representatives of the different stakeholders involved in the programmes2, as well as on the analysis of available documents, official websites and press information and, in some cases, on visits of the sites where Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities programmes are carried out.

2 We hereby thank all the interviewees who devoted their time to answer our questions: Beatrice Valentini, Silvia Bonizzoni, Claudio Perlotto (municipal social services); Giorgio Maione (former town councillor for Social Services); Fabio Baresi (Bimbo chiama Bimbo); Santina Katiuscia Bugatti and Achille Gasparotti (Provincia di Brescia); Margherita Rocco and Manuela Archetti (Immobiliare Sociale Bresciana); Alessandro Augel- li (Informagiovani and Cooperativa Il Calabrone); Giovanni Valenti (Ufficio © Giuliana Costa Stranieri) and Giovanni Boccacci (Centro Migranti). 160 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities emergency” thatgoesbeyond thepossibilityoflocalauthoritiestotackleitwithitsresources. whose mainrequestis“ajob”. Bothsocialworkersandmunicipalcouncilmembers define theincomeneedas“an ed dailywithdesperatepersons inneedofincomesupport,whoseutilities(gasand electricity)havebeencut,and of theLocalHealthAgency.Sincecurrenteconomic crisis hasworsened,municipalsocialservicesareconfront them wereItalians;morethanhalfaredisabled,including seventy-twopsychiatricpatientspreviouslyinthecharge cial crisisontherealeconomyand The numberofuserstheSALservicehastripledin lastdecade,evenmoresosincetheimpactoffinan can presenttoSALtheiruserswithemploymentpotential. over 50years,etc.Generally,allbasicandspecialisedsocial services,andalsothirdsectorones(suchasCaritas), pal socialservices,likepeoplewithaddiction,formerconvicts, with severesocialvulnerabilities(i.e.homelesspeople), and lateralsotoapplicantsbeneficiariesofthemunici Since thehalfof1990s,thismethodologyhasbeenapplied toothertargetgroups,too:firstbeneficiaries and the work experience),witharelationshipbetweentheserviceandfirm;mediationbeneficiary ment ofcompetencies;individualisedfollow-up,trainingandplacement;traineeshipsorinternships(i.e.subsidised employment ofdisabledpersons.Forthispurpose,theserviceusedtoworkwithaspecificmethodology:assess Like afewothermunicipalservices(e.g.inMilan),theSALwasfirstcreatedatendof1980stosupport cial servicesorbyrunthirdsectorbodieswithlong-lastingcollaborativerelationsthe serimento Lavorativo The municipalityofBresciahasbeenmanagingfortwodecadesanEmploymentInsertionService( 28.1 Shortdescription Insertion Service Lavorativo, SAL-Employment Servizio perl’Inserimento 28 Brescia IT labour market. , orSAL).Itisa“second-level”servicethatonlytakesonpersonssignalledbyeitherpublicso /77 labour market.In2010,theservicedealtwith421persons;69percent of Employment Categories single mothers, long-termunemployed,peopleaged Servizio perl’In municipality. ------161

A specific voucher (dote is the Italian term used to in- basis of an informal social contract. These social inser- dicate this kind of measures in the framework of the tion experiences may be a first step that - after a posi- Lombardy region social interventions3) has been man- tive conclusion - leads to a real labour-market insertion aged by the SAL in the last 3 years. The “Dote Invest- project, following the same steps described above. ing in Expertise” (the official name of the voucher is in Since the beginning of the current economic crisis, the English; from now on we shall refer to it as “IiE”), was personal fragility of applicants has increased, as well introduced and financed by the province of Brescia as the duration of the insertion period. SAL officers and reserved for two groups of unemployed people therefore tend to develop longer traineeships, also with particular difficulties in finding a job: due to the augmented difficulty in (re)inserting the >> persons aged over 45 years; applicants into the labour market. >> single women with family charges. First of all, it should be considered that the genesis of the voucher “Investing in Expertise” is rather typical for The social innovation character here lies in the defi- the Italian context: some funds were available since nition of a measure with the aim to work with the 2007 from the Lombardy Regional Agency for Educa- municipal SAL and to facilitate the (re)insertion into tion, Training and Employment (ARIFL); a project was the labour market of particularly fragile groups of drafted and a target identified on the basis of the ac- jobless people. cessible money, i.e. 350,000 euros from regional funds plus a 20,000 euro contribution by the Province of 28.2. Conceptions and ways of Brescia4, rather than the other way round. This contrib- addressing users uted to limit the process of programming. The objective was to cover unprotected segments of the popu- The employment insertion activity of the SAL is based lation, particularly at risk of unemployment in general Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities on personalised paths that are organised around terms, and even more so in these years of crisis. three main phases: The general framework was given by the regional >> preliminary actions (CV drafting, competence voucher system (Sabatinelli and Villa 2011). The spe- assessment and guidance in the active research cific model of functioning was inspired by the provin- of jobs); cial voucher system for the targeted employment-insertion of the disabled5. The measure, operating >> training (professional training groups, on-the-job training, apprenticeship); since 2010, was introduced to all municipalities in the province, but it was defined in its details in strictcol - >> support in hiring (subsidised jobs in cooperatives laboration between the province and the municipality or firms, extraordinary post-hiring interventions, of Brescia (and particularly with the SAL office). The in order to mediate conflicts or strengthen skills if distribution of resources concentrated in the provin- necessary). cial capital: thirty vouchers were reserved for the city A traineeship compensation payment is foreseen. In of Brescia, while forty-seven vouchers were available cases where the trainee received a municipal mone- to the other 205 municipalities of the province. All tary benefit, the compensation payment substitutes it applicants were selected by the municipalities (and by (see Costa and Sabatinelli 2012a). Caritas in Brescia, as explained below), and were already beneficiaries of local social services. This helped For beneficiaries/applicants whose personal situations to further qualify the target group of this measure as do not allow for professional training, “social train- cases with a particularly high level of fragility. eeships” are developed. They are a sort of voluntary activity with educational content, aimed at giving them Each of the smaller municipalities of the province (back) a social role, enhancing their self-esteem and could apply only for one voucher. The municipal ser- “justifying” the monetary benefit they receive on the 4 Residual funds were individuated later on and used to integrate this amount and finance eight more vouchers. 3 The dote (literally endowment or dowry) is the voucher tool used for the development of a quasi-market approach in the provision of 5 In the province of Brescia the targeted employment-insertion of disa- employment services (after introducing it in other policy areas), imposed bled people concerns 200 persons a year, of which 100 forms the basis by the Lombardy region to provinces and local providers (Sabatinelli and of national norms on compulsory hiring of disabled persons (national Villa 2011). law nr. 68 introduced in 1999). 162 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities municipality were fifteenmenagedover 45 yearsand payment. Thebeneficiaries of IiEvouchersinBrescia of recession,eventhoughthis meantlosingtheextra rather shortercontracts,all the moresointhistime to beratherineffective.The firmsinvolvedoptedfor bled withmunicipalresourcesinBrescia,itproved a 1-yearcontract.Eventhoughthisbonuswasdou 500 eurosfora6-monthcontractand1,000 foresaw arathergenerousbonusincaseofhiring: at theendofapprenticeshipperiod.Theproject firms werenotobligedtohiretheinsertedperson resources tocomplementtheIiEmeasure.Involved nation knows,noother 200 eurosbyCaritas).Asfarastheprovincialcoordi (of which400euroswerepaidbythe 600 eurospermonthincomesupportfor6months come benefitforalltheBresciabeneficiaries,granting Brescia city,andcontributedtofinanceanextrain measure. Caritasselectedathirdoftheapplicantsfor Caritas, tocollaborateonthemanagementofthis pality ofBresciasignedanagreementwiththelocal In ordertotackletheseshortcomings,the report onIiEvoucher). had beenaccomplishedinallitsparts(municipal the wholeperiod,onceitwascertifiedthatproject foresaw thatthebenefitwasonlypaidatendof difficulty arosefromthefactthatvouchersystem the (re)insertionpathwithdignity.Anadditional by theMunicipalityofBresciatoallowthemsustain support forthebeneficiarieswasconsideredtoolow The quotaofvouchersreservedtoprovideincome with basicsocio-healthqualifications. professional coursestobecomecarersfortheelderly Examples aregettingadrivinglicenceorcompleting training results,andtoenhancetheircompetences. the opportunitytoachievespecificeducationaland/or techniques, theobjectivewastogivebeneficiaries versal skills,asCV-draftingandactivejob-research with the was togivebeneficiariestoolsbemoreabledeal ment servicesandtutoring.Theaimofthemeasure voucher topayforapackageoftrainingand Selected personsappliedinagreementwithSALfora dren’s Officeorthirdsectorbodies,suchasCaritas). es (inthecaseof voucher werepersonssignalledbybasicsocialservic a “firstcomefirstserved”basis.Beneficiariesofthis then voucherswereattributedtomunicipalitieson vices wereinchargeoftheselectioncandidate, Brescia IT labour market(again).Besidesbasictrans single mothers themunicipalChil municipality foundadditional municipality and Employment Categories munici- employ------would behardtoplace,especiallyintimesofcrisis. social servicestoofferajobwomenwhootherwise is evenmoreimportantasapossibilityformunicipal solutions asalevertoincreasefemaleemployment.It important resultthatdrawsontheroleofchildcare ers actuallyactivatedtwowomenatatime.Thisisan ment. Asaresult,mostvouchersgiventosingle Children’s Office,withthepaymentofareimburse a neighbour,oranothermotherinthechargeof case-by-case baby-sittingservices,involvingarelative, hours, themunicipalChildren’sOfficehasorganised Because mostavailablejobshaveatypicalworking and anxiety. cases finditparticularlydifficulttomanageinsecurity worsening ofpersonalweaknesses,becausefragile are neverthelesstricky,astheymightinfactimplya useful inprincipleasanenrichmentofindividualCVs, derline, though,thatshort-termcontracts,although exciting, butinteresting”.Municipalsocialservicesun management definesemploymentoutcomesas“not eficiary washiredonapermanentbasis.Theprovince tract lastingbetween6and24months,oneben months). Onlyfourpersonswerehiredwithacon them (sixteen)withashort-termcontract(lessthan6 persons werehiredafterthetraineeship,butmostof in afirmor teen outofthirty)wereinvolvedinajobexperience involved intrainingcourses.Morethanhalf(seven A vastmajority(90percent)ofparticipantswere and halfforeigners. single fifteen womenwithfamilycharges(mostlyimmigrant accredited private employmentagency. including case-management, wereoutsourcedtoan the coordinationofactivities, whileallothertasks, the municipalitytoonlykeepdirect responsibilityfor reorganisation wascarriedout recentlyinorderfor and answerto,childcareneedsmentionedabove).A and needs(seeforinstancetheconsiderationof, the overallidentificationoftheirpersonalresources signalling ofpotentiallyemployableusers,butalsoin vices. Thecollaborationdoesnotonlyconsistofthe with theothersectorsofmunicipalsocialser employees (civilservants)whoworkincooperation The municipalSALstaffaremadeupoftwo modes of working 28.3. Internal organisation and mothers). HalfofthebeneficiarieswereItalian cooperative (traineeship).Twenty-one moth------163

The service traditionally works in partnership with policy, specifically implemented in the Municipality social cooperatives linked to the municipality by an of Brescia, where it could count on particular munic- agreement; one of them is specialised in employ- ipal services with specific experience in the field, on ment services for the disabled, the other one for trained staff and consolidated routines in order to be persons with social disadvantages. Since the mid- implemented. The smaller municipalities had to ex- 1980s the municipality has an agreement with local ternalise the case management to private accredited social cooperatives that they can obtain contracts to bodies and, despite the province claims to have kept develop outsourced activities for the municipality, the application procedure as simple as possible, many such as maintenance of green areas, cleaning servic- of the municipalities that did apply had severe difficul- es, data-entry, etc., under the condition that they hire ties in approaching the instrument, characterised by persons signalled by the social services. This allowed rigid online procedures. This calls for some caution in SAL to include work experience in the individualised applying the same standardised procedures to differ- path developed for each user, making a stock of ent, albeit close, or even neighbouring, contexts. protected job experience placements (around fifty Although the project is virtually still in place (a few per year) available. However, this agreement has vouchers have not been closed yet, since some of been contested in the last years, as it goes against the the individual activities are still running), it has in fact possibility to sign outsourcing contracts at the lowest expired, as the fund has been used up, and no other price possible, which has been difficult to defend in a resources have been destined to this purpose. This period of heavy budget constraints. makes the whole measure a sort of an unintended To manage the IiE vouchers, partnerships with ac- experiment that would certainly need more resources credited private job centres needed to be developed and more continuity in order to have a real impact in further. Interestingly, the evaluation of SAL is that not terms of: Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities all private job centres are ready to support paths of integration for persons with fragile profiles at pres- >> long-term social and professional (re)integration ent, and municipal services had to provide strong of beneficiaries; tutoring of the individual cases even when these were >> institutional learning by the involved public and in charge of the private bodies. The smaller munici- private bodies. palities of the province who do not have an internal employment service comparable to SAL needed to The “accidental” experimental feature would have establish partnerships with (mostly private) employ- also gained much more value in presence of a sys- ment agencies. tematic monitoring of the implementation. On the contrary, evaluation was not officially and compulso- 28.4. Interaction with the local rily required in the procedure. Brescia was the only municipality to produce a synthetic report on the welfare system results, and there was no systematic collection of feedbacks from the smaller municipalities, where the The measure originates in a project developed by space for institutional learning was in principle wid- the Province of Brescia, in close connection with the er, since in many contexts this was the first and only employment insertion service of the Brescia Mu- case, or one of the rare cases, in which a measure nicipality (SAL). The aim was to manage most of the with such contents, objectives and procedures was available resources in the provincial capital, due to ever implemented. the concentration of province population there and to the relatively higher weight of the labour market. As we have seen above, the other municipalities of the province did have the possibility to participate, but only forty-seven vouchers were available for them; thus less than a quarter of the remaining municipalities were able to benefit from the measure, obtaining only one voucher for one selected beneficiary each. This means that the measure was basically an “urban” 164 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities households. families; the privateuseofcarsforshortitineraries activeinvariousmunicipalitiesItaly);vegetablegardeningwithchildren; leisureandsocialisationactivitiesfor 6 Other activitiescarriedoutbytheassociation include:studyhelp; areas: The differentactivitiesandservicesdevelopedtotackle theneedsoffamiliescanbegroupedaroundthreemain 29.2. Conceptions andways of addressingusers including schools.Theobjectiveistosustaina“careful,supportive,respectful dren andtheirfamilies,throughprojectscollaborationswith it counted395volunteers,committedtosocial,culturalandleisureactivities.Itsmaintargetisthesupportofchil neighbourhood ofMompiano.In2004itwasofficiallycreatedasanassociationvolunteers.Attheend2011 of the1990sinfavourCroatianchildrenhitbywaragroupfamiliesclosetoparishBrescia The association“Bimbochiamabimbo”(childcallschild)stemsfromthe 29.1. Shortdescription Child callschild Bimbo chiamabimbo- 29 psychological counsellingandtheneedforintegration parenthood supportandsocialisationneed,theneedforpersonalsocialrelations, related needsofhouseholdswithchildreninanencompassingway:theincomeneed,childcare Interesting froma azione Bimbochiama2012). > > > > > > Brescia IT child educationandcare solidarity-based shopping; peer-to-peer andspecialisedfamilysupport; Scuola-Mestieri, apprenticeshipproject;various social innovationpointofviewistheattemptassociationtotackledifferentbutinter /77 6 . initiatives forself-financingoftheassociation (e.g.sellinghandcrafts);and Child andfamilycare Categories Pedibus (initiativetocollectivelywalkchildren toandfromschool,inorderreduce participation oftheyoung. neighbourhood and solidarity activitiescarriedoutattheend development ofthechildren”(Associ municipality stakeholders, solidarity withCroatian - - - 165

Peer-to-peer and specialised family Solidarity-based shopping support A solidarity-based Food Store (Magazzino Alimentare) La Porta Accanto (“Next door”) is a service by fami- was opened at the beginning of 2000. Beneficiaries are lies for families, in an attempt to support families in households in severe economic need and indicated by need in an encompassing way. Keywords guiding the municipal social services or by the “Next Door” service service are receiving with a non-prejudicial attitude, of the association, or sent by other local associations. listening (in order to be able to walk in others’ shoes), These families receive a voucher to be spent once a helping with immediate basic needs, and tutoring to month in a space that resembles a mini-supermarket, regain autonomy. It was first born as a mutual help for a value that varies according to family size and service, but has evolved during the years and is now conditions. Households are met one by one by a secre- coordinated by six employed workers. tary who keeps a personal and individual relationship with them. The voucher allows for a monthly shop for The main available resources are: non-perishable food, cleaning products and personal >> a front-desk for families who turn to the hygiene. Also, since 2010, a weekly distribution of fresh association in search of support; food is organised: the beneficiaries are around 150 households, signalled by the Next Door service, plus the >> listening (350 meetings/year), with the presence of an educator; thirty households with new-born children part of the 0-12 regional project described above; the number of >> services available for free, also thanks to a beneficiaries has increased in these years of crisis. The network built with other territorial stakeholders; volunteer-run food store opens four afternoons a week and on Saturdays, to facilitate the beneficiaries who >> a 2,000 euro monthly budget to be distributed Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities among families in need; work during the week. Twenty-eight unpaid collabora- tors guarantee this service, including young volunteers “Supporting Families” (Famiglie d’Appoggio) >> from the parish and Scout groups. Products to be dis- sustain other families in temporary condition of tributed come from food collection organised by volun- disadvantage, in order to help them carry out teers (products donated by private citizens at the exit of some everyday activities (caring for children supermarkets), from selective wholesale purchases in for a few hours, taking them to or from school, big stores, or from a yearly agreement between Caritas shopping, going to medical examinations, talking and AGEA7. Fresh products are bought at forfeit price with children’s teachers) or achieving educational from other local social cooperatives and associations objectives (building a social network for those producing fruit, vegetables and dairy products. who have no relationships in the place where The municipality pays a contribution to cover the cost they live; achieving new abilities; school and of vouchers of beneficiaries selected by its social ser- relationship-building support for children). It is vices, but the agreement has been reduced year after in fact a mutual help programme – mediated year, justified by themunicipality with the reduction by the association with training, mediation, of available resources. and the support of a psychologist – in which In another building of the association a large store the supporting families also learn. Twenty-two (Guardaroba, “wardrobe”) collects used clothes and families are supported in this way yearly. shoes, for men, women and children, together with >> 0-12 un anno per cominciare a crescere (“0-12 a a sector for cradles, strollers, toys and other stuff for year to start grow up”) allows, since 2011 and babies, toddlers and children. thanks to a regional fund (24,000 euro/year), to Around 500 users come from the whole city and even support thirty families with new-born children the province of Brescia. Most of them have two or for a year, to distribute fundamental goods three children. The clothes store is open three after- (food, hygiene products, pharmacy vouchers noons a week and on Saturdays. It is managed by fifty and strollers), and to support mothers through a volunteers working in weekly shifts, including some psychologist and a cultural mediator. adolescents. Given the high demand, and its increase

7 National agency on behalf of the European Union for the support of agricultural production. 166 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Italy and of 2.4 per cent in the Lombardy region (ISTAT Italy andof2.4 percentintheLombardyregion (ISTAT rate ofchildrenagedunder3 yearsof1.6percentin ing, arestillrathermarginalin Italy,withacoverage so-called integrativeservices, althoughslowlyincreas- strong familyandprimarynetworkwheretheylive. The ly yearsofparenthood;especially,iftheydonothavea end upsociallyisolatedinthedelicateperiodofear- other services,suchasday-carecentres,andwhomight include familieswhoseyoungchildrendonotattend main strengthofsuchservicesisthepossibilityto non-public bodies(CostaandSabatinelli2011).The innovative childcareservices,promotedbypublicor 1990s, includingparentingsupportandintegrative carried outbylocalnetworkssincetheendof (LN 285/97)hasbeenfinancingprojectsforchildren Caritas (Apiccolipassi,or“tinysteps”).nationallaw cia, foundedbytheCatholicthirdsectorstakeholder The initiativewasinspiredbyasimilarcentreinBres- two menandfivepersonsofimmigrantbackground. flects theheterogeneityof(adult)users,including who arecurrentlyusingit.Thevolunteers’groupre or grandmotherswhousedtheserviceinpast and volunteers.Someofthevolunteersare organised byaneducator,supportedassistants an occasionalbasis.Theactivitiesaremediatedand shifts); someotherfamilieshaveusedtheserviceon the service(aroundtenchildrenaday,dividedin three hours.Aroundsixtyfamiliesregularlyattend two morningsandthreeafternoonseveryweek,for tion ofproblemsrelatedtoearlychildhood. selves. Italsoaimsattheconfrontationandpreven children, amongandadultsthem the enhancementofrelationshipsbetween adults and cognitive andemotional environment. Theserviceaimsatsupportingthe child-minders, andotherchildren,inastimulating experience withtheirparentsorgrandparents centre”), wherechildrencanliveaneducational children agedunder3years( The cooperativeprovidesaserviceforfamilieswith Child education andcare adults choosetheproductstheyneed. prepared wherevolunteersplaywithchildrenwhile tionship withusers,andasmallseparatespaceis office isavailable,toestablishapersonalisedrela users areaskedtomakeanappointment.Awelcome to managetheservicehavebeenwidenedand in connectionwiththecrisis,shiftsofvolunteers Brescia IT development ofchildren,and Centro ZeroTre,or“0-3 Child andfamilycare Categories mothers It isopen - - - - gramme to receive children aged from 2 to 6 years on gramme toreceivechildrenaged from2to6yearson the samespirit,association recentlystartedapro- whom toentrusttheirchildren whentheywork.With care servicesareclosed-many familieshardlyknowto (long) holidayperiodsinwhich -sinceeducationand reconciliation function,sinceitcoversexactlythose socialisation value,butclearlyalsotakesacrucial This servicedoesnotonlyhaveeducationaland bution wasfixedataloweramount. agreement wasreactivated,butthemunicipalcontri- nection withnationalausterityprogrammes.Later,the not granted,duetocutssocialexpenditureincon- conditions. In2012suchcoveragewasnevertheless fee forhouseholdswithverylowincomesordeprived ment, theMunicipalityofBresciagenerallypays income-related fee,and,basedonanofficialagree- as itcosts40,000eurosayear.Familiespayweekly This serviceisthemostexpensiveforassociation, and thusalsofewerstaffvolunteersareenrolled. smaller numberofchildren(twenty-five)tobereceived, During thewinterholidaysinsidespaceallowsa teers agedbetween13and17yearssupporteducators. training and6hoursofsupervision.Fifty-eightvolun- of work,twentyhourscoordination,20 educators workedintheservice,providing1,500hours ty-five ofthemattendingeverydayonaverage.Six In 2011,sixty-eightchildrenwereenrolled,withthir- clude educators,assistanteducatorsandvolunteers. ty ofactivities,especiallyduringthesummer.Staffin specific routines:awideoutdoorspaceallowsvarie range ofattendingchildren.Activitiesarebasedon in day-carecentres,andspiteofthebroadage it isbasedonatimeframethatmuchshorterthan and aqualityrelationshipwiththechildren,although baby-sitting. Itintendstobuildaneducationalproject, of parents.Theaimtheservicegoesbeyondmere pm, inordertocoverthedifferentiatedworkinghours during theChristmasholidaysfrom7.30amto for everydaychildcare.Itisopeninthesummerand and familieswhocannotcountonthefamily are closed.Theprincipaltargets the periodswhenday-carecentresandkindergartens care ofchildrenagedfrom18monthsto6yearsin babysitting”) isorganisedbythe A servicecalled they arelacking. those territories(meaningalsoneighbourhoods)where 2013). Thus,suchinitiativesconstituteaninnovationin Babysitting diemergenza cooperative totake single (“emergency mothers network - - 167

Saturdays (opening hours from 8 am to 8 pm). Espe- after having come together for a solidarity project cially (although not only), children of working parents out of the city and of the country (in Croatia), later are welcome; here the reconciliation objective is either decided to commit also to local solidarity projects. direct for parents who work on Saturdays, or indirect They chose a rather peripheral neighbourhood (in the for parents who work during the week and must de- north of the city), comparatively deprived in terms of vote Saturdays to run personal and family errands. social infrastructure. The association is in fact very well known in the neighbourhood. Yet, as long as the 29.2. Internal organisation and activities of the association grew, increasing numbers modes of working of people in need from other areas of the city began to turn to the association. The association is – by nature and definition – mostly The activities are carried out thanks to a territorial managed by volunteers. Nevertheless, as some of network of several stakeholders from the neighbour- the activities have grown in a rather massive way, a hood, the city and the province, including many third core team of employed workers was established (six sector bodies, such as associations, cooperatives, persons), to grant coordination and professionalisa- foundations and parishes, but also public authorities tion to the organisation, although the bulk of the work and services. The sources of financing are diversified. continues to be carried out by volunteers. The main resources come from: A peculiar feature of the association is the involve- 5xmille: ment of teenage volunteers (aged 13-17 years). Young >> 5 per cent share of the amount of the volunteers who commit themselves to at least four taxes on personal income that taxpayers are hours a day in the babysitting service, but who are not free to target to bodies carrying out socially yet professionally trained, are considered “assistant useful activities (e.g. various non-profit activities, Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities educators”, also with the aim to train those who could scientific research). The association is one of the work as educators in the association in the future; main receivers of this quota in the city of Brescia; adolescents with a low-income family background >> agreements with the municipality, implying receive a small reimbursement. financing in exchange of the destination of part of Many members of the families who receive support the resources/services to beneficiaries signalled from the association are also involved in activities for by the municipal social services (e.g. for the food the maintenance of the association structures. The site store and the 0-3 centre); where the association is currently located, for instance, >> agreements with Caritas and local foundations; was provided by the foundation of a Catholic body >> donations from supporters, which can also take Congrega di Carità Apostolica - the - but it was autono- the form of continuative bank transfers; mously restored, almost entirely by volunteer work. Alternatively, they are engaged in specific initiatives, ac- >> self-financing activities (like a small market of cording to their competences and skills. This approach handcraft products); is oriented at emphasising reciprocity and circularity >> voluntary work (see above). of help, and reducing the dependency and feelings of passivity that may lead beneficiaries to sentiments of The connection with the municipal social services shame for their condition of need and stigma for their does not only consist of the funds that the municipal- position of persons who receive help. Obviously, it is ity devotes to the association to support some of its also aimed at reducing the costs of functioning of the activities. There is a mutual signalling of cases of per- whole association and of its single services. sons in need between the municipal social services and the association. Some of the cases are managed 29.4. Interaction with the local in a coordinated way by municipal social workers and the employees of the association. welfare system

The association is strongly embedded in the neighbourhood where it was created. The families who founded the first nucleus of the present association, 168 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities real estatebelonging toISB(alldevoted socialactivitiesand Finance, ConsorzioAcliDuemila, andCooperativasocialeMargheritaCVLsocietàcooperativa socialeOnlus. Sociale Onlus,IlCalabroneSocietà CooperativaSocialeOnlus,ConsorzioAcliSolidale,Cassapadana, ConsorzioCGM The subjectsaffiliatedtoISB in2013are Figure 1-Composition of ImmobiliareSocialeBresciana.Source:Bresciana2013. cooperatives andbanks,asseeninFigure1. “weak workers”,suchaspsychiatricpatients,formerprisoners,etc.),aconsortiumofcooperatives,otherkinds activities. ISBiscomposedofsocialcooperatives(AandB,thefirstonesofferservices,secondinclude or tohosttheiractivities).Inanycase, ings todevotesocialtargetpopulations. participating cooperativestodoitanddevelopingitsownprojectsbuildingnewapartmentsorrecuperatingbuild a consortiumofcooperativesbornin2001withtheaimdeveloping The projectwasdevelopedby 30.1. Shortdescription “Via delCarmine15” 30 Brescia IT 20% 20% 10% /77 10% Immobiliare SocialeBresciana(ISB,BresciaSocialRealEstateAgencyinEnglish). 40% social cohesionisoneofthemostimportantcriteriathatguidesISBinits Cerro TorreSocietàCooperativa SocialeOnlus,LaReteSocietàCooperativa Child andfamilycare Categories ISB alsobuildsforitsaffiliatedsocialcooperatives(tohosttheirworkers Non Social cooperativeorconsortiums Consortiums ofsocialcooperatives people (kindB) Social cooperativesthatemploydisadvantaged (kind A) Social cooperativesthatprovideservices social housing)in2012 wasaround12millioneuros. project social housingprojects,bothsupportingthe The valueof ISB is - 169

Compared to other stakeholders in the field (such as big, medium and small building cooperatives) ISB is in economic and financial health. Revenues amount to around 300,000 euros per year. Both assets and revenues grew significantly in value during the last years because of the increase in assets devoted to the core activity (social housing). From 2002 till now, ISB developed many different projects working with a lot of different agencies (municipalities, affiliated and not affiliated cooperatives, third sector stakeholders). At the beginning, they were only temporarily hosting problematic people who did not have any other housing opportunities. ISB gives tenants the possibility to access new and furnished apartments at modest prices (compared to the market) and offers personal services that permit them to reach housing autonomy. In half a decade, ISB has in fact pluralised its housing stock in order to propose different levels of apartments and solutions: from emergency solutions for evicted families Figure 2 - Via del Carmine 15 building- Immobiliare So- or for homeless people, to secondary solutions and ciale Bresciana for single mothers and single women. permanently let apartments to stabilise users in their The social housing project implemented in Via del Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities housing needs. ISB operates in favour of different Carmine 15 was developed to cope with the housing target groups (according to kind of families, age, their needs of single mothers who were referred to ISB origin and their problems). ISB owns the buildings (or by Brescia Municipality, mostly women with young part of the buildings) where social housing projects and very young children who experienced domestic are developed, is the social manager and the provider violence and who were trying to be independent from or developer of a multiplicity of housing and personal their partners. Most of them were immigrants from services. Social housing for ISB means renting with Eastern Europe. In 2009, an ISB building was refur- modest prices (for example the “rent to buy” formulas bished and fourteen apartments were rented to single are not used). women or single mothers with young children. They ISB also has a whole building to host immigrant range in size from 50 to 80 per m2. Rents are quite be- families who moved from Il Carmine, the historical low free market ones, about 60 euros per m2 (which in centre of the city. A huge requalification project the Lombardy context is called canone convenzionato). in the last decade pushed many people, mostly Tenants hold personal rental contracts with ISB. immigrants, to other parts of the city. Here, rents From 2009-12, the condominium hosted mostly are quite below the market levels ones. ISB works single mothers (80 per cent). In the smallest apart- with them with the same philosophy that will be ments three single women live together and in the explained below. Two specific recent projects of ISB biggest one a whole family with three children and will be analysed here, both located in Il Carmine, the one single earner started to live. At the end of 2011, historical centre of Brescia. Contrada del Carmine hosted three families, six women with young children and five single women (in total twenty-eight persons; thirteen Italians and fifteen migrants). During 2012, four (out of fourteen) apartments have been occupied by new dwellers, in most cases because the previous ones moved owing to better life and work conditions (they got married or bought a house). This project did not suffer from arrears in rent payments. 170 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities immigrants, drug dealers,prostitutesandso on. long-standing stigmaattached tothehighpresenceof a the city)andistosomeextend gentrified,butbears to middle-classhouseholds(as agentrifiedpartof ing islocatedinaneighbourhoodthatnowattractive countries andhavedifferentbackgrounds.Thebuild- this “socialcondominium”comefrommanydifferent plained. Ithastobeconsideredthatthosewholivein self-organisation, sothisstatementneedstobeex- that thesocialmanagerhadtointervenesupport at leastinthefirst2years.Itcouldseemaparadox ganisation capacities”inthosewholivethebuilding, a lotofenergyhasbeeninvestedin“buildingself-or- project withregardtotheinternalorganisationisthat One ofthemoreinnovativeaspectsthisspecific modes of working 30.3. Internal organisation and The ViadelCarmineISB addressing users 30.2. Conceptions of andways of receive helpwithothersupportor with childrenareonlyhostedtemporarilyanddonot clients. Inothercontextsandprojects contexts. Theyareconsideredtenantsratherthan dividuals andfamiliestendstobelongerthaninother initiatives, contactwithformer,currentandfuturein In thisproject,aswellinotherISB common goalsarerecognisedasbeinginplace. contexts characterisedbyhighdiversitybutwhere delegates”, showinghowdemocraticwillcanrisein help andtothedecisiondefine“realcondominium to findsolutionspersonalneedswithreciprocal high mobilisationofinhabitantstohelpeachother, trouble. Thesecognitiveresourcesgavelighttoa port housingawarenessofthosewhoareinpersonal Bresciana (“BresciaCommunityFoundation”)tosup acts”) financedin2011byFondazionediComunità vices) fromtheprojectIntermezzo(literally“between of themcanusespecialresources(counsellingser ners” oftheprojectand in whatevertheyneed,consideringthemas“part ISB managesitstenantsverycarefully,helpingthem known byISB,whochoosesitstenantsoneone. “people withdifficulties”. beautiful andpeacefulplacetolivein,notas ceives ofusersasnormalpeoplewhoneedanice, Brescia IT social housingprojectcon All inhabitantsareverywell housing initiative.Some case management. social housing single Child andfamilycare Categories mothers - - - - - Bresciana 2013. number of months. Source:ImmobiliareSociale Figure 3-Contracts inViadelCarmine15,by economic pointofview. which alsoledtoasocialmixinthebuildingfroman have relativelyhighincomes(30,000eurosperyear), eligible forpublic between 8,000and17,000eurosperyear,are 50 percentoftenantshavequitemodestincomes, Services Division)orduetotenants’needs.Morethan tenancy arrangedwithBresciaMunicipality(Social seen inFigure5.Shortcontractsarerelatedtospecial Most tenantshavelongrentalcontracts,ascanbe whole buildinganditsinhabitants’needs. who worksforISBandcan“keepaneye”onthe work wellforall.Thisyounggirlisasocialoperator solution, orthatauto-organisedcleaningactivities heard, thatproblemsfindatransparentandefficient ing asatenantandassuresthatdwellers’voicesare owner/general manager,ISB.Shelivesinthebuild nection betweeninhabitantsofthebuildingand The socialmanagerisayoungwomanwhothecon works without publicfunds. because theprojectfunctions wellandbecauseit with thelocalpublic to pay.ISBjustdidnotreceive thatmoney.Interaction person (sentbythe ants. Asamatteroffact,this didnothappenwhena payments incasesofarrearsorinsolvencyten rents andthe consisted ofthefactthatISBwouldapplymoderate own strategicobjectives.Theoretically,theagreement ipality ( has beendeveloped in agreement with Brescia Munic As statedbefore,thisspecific welfare system 30.4. Interaction withthe 69% Assessorato aiServiziSociali)albeitfollowing municipality wouldguaranteerental 8% housing. Morethan30percent public administration)wasunable welfare systemisnotverystrong 23% social housingproject months more than18 13 - 18 months 1 -12months local - - - - 171 IT Categories Brescia Employment Neighbourhood revitalization / Housing

31/77 Fare e abitare - Doing and living project Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 31.1. Short description

This project was also developed by Immobiliare Sociale Bresciana. Fare e abitare is a very small but quite innovative project devoted to young people (aged 18-30 years) who want to leave their family and live independently. Two apartments (100 per cent furnished) are available, one for two young people and the other for four of them. They are located in a little building now owned by ISB which was bought apartment by apartment (one thanks to a bequest to ISB). Rents are about 140 euros per month plus expenses, total 200 euros per month per person. Dwellers pay quite low rents but have to activate themselves for the city or for the neighbourhood through voluntary activities, be they cultural (for example through events that promote integration among migrants and “autochthonous”), social (for example offering help to migrants during daytime moments) or pro-environmental (for example doingurban gardening). The project idea was launched and then implemented by ISB and one of the affiliated cooperatives,Il “ Calabrone”. The cooperative is also the social manager of “Fare e Abitare” following its mission.

31.2. Conceptions of and ways of addressing users

Initially, ISB wanted to simply devote the two apartments of the current project to cope with young people’s housing needs because in Brescia policies to support young people’s housing inclusion are very weak. After some discussions with the municipality director of policy sector on young people that decided to support the project, it was decided to turn to a wider project in terms of scope, even if no further resources were dedicated to it. Through “Fare e Abitare” ISB launched an “ideas event” for the city, inviting interested young people to apply, bringing projects for the neighbourhood (Il Carmine) or for the city in some way assuming that “young people are not the needy but those who have resources and capacities to share” with the rest of the population. 172 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities of thoseprojectsdeclaredaswinnersare: the dwellingsarelocated,in“IlCarmine”. all projectsarerelatedtothe ent groupsofpotentialco-habitingpersons.Almost “Fare eabitare”receivedsixteenprojectsfromdiffer policies foryoungpeople. Italian academicswhoarealsoinvolvedindeveloping partially their been donetosupporttheirworkingactivitiesand in ManchestertheUK,whereyoungdistrictshave have beenstudiedindetail.Theylookatexperiences vators havebeeninspiredbyinternationalcasesthat These aimsshouldbereachedalltogether.Theinno The projectaimsarethefollowing: 1. > > > 2. > > > Brescia IT po diacquistosolidale ject arethelocalethicalpurchasinggroup( well-known popularadagio.Partnersofthepro translated as“talkyoueat”followingavery project iscalled running mostlyethniccommerceactivities).The migrants (wholivetherebutmainlywork bourhood is relationsships amongneighbours.The neighbourhood tosupportfriendshipand To promotemomentstoeattogetherinthe new constructions. characterised bytheneedtoreducelanduseand young peopleinthisspecifichistoricalmoment, To promoteco-habitationasalifestyleamong bring strong neighbourhood withlow-costactivitiesthatcan To increasethequalityoflivingin stable accommodation. to developvalue-addedactivitiesandgivingthem To activateyoungpeopleinthecity,askingthem day andhaveanapartment to useinthesehours. permission toworkoutsidetheprisonduring a termofimprisonment,sleepsinprisonandhas ners arefouryounggirls;oneofthemisserving is supportedalsobythelocaluniversity.Thewin Museum andintheVerzianoprison.Thisproject To promoteculturalactivitiesinSantaGiulia housing needs.Theyalsoworkedwith “Il Carmine”,wheretherearealotof social cohesion. “Parla comemangi”thatcanbe ) andBresciaUniversity. neighbourhood where The content Neighbourhood revitalization/Housing Employment Categories neigh Grup------be thoughtwithduties”. dependence […]theproject shows thatrightshaveto the youngpeopleliberatethemselves fromthefamily housing autonomyaretheinstruments thoughwhich bility andaccesstocredit[…]because outcome. with theothers’,givinglifetoapositiveandsynergic all theinvolvedstakeholderstoconjugatetheiraims to passthroughaselectionmechanismthatobliged Dwellers hadnotbeenchosendirectlybyISBbut tors andagents”astheselecteddwellersare. work among“formaloperators”and“informalfacilita project, whichimpliesfurtherandmorecollaborative has alsotohelpandsupportthemindevelopingtheir and managetheirinsertionintotheapartments,but the socialmanagernotonlyhastorecruitdwellers that hasanimpactonthewayofworkingbecause community andnotjust“aspecifictarget”,aconcept Young peopleareconsideredasresourcesforthe 2 months,receivingsixteenprojectsandapplications. projects waslaunchedinAugustandclosedafter the waybywhichusershavebeenrecruited.Acallfor One ofthemoreinnovativeaspectsprojectis modes of working 31.3. Internal organisation and project goesalongwith“our councillor hasdeclaredthatthepublicsupportfor work, studyopportunities,etc.).Thecompetenttown information serviceforyoungpeoplewholook manager ofthelocal Cooperativa IlCalabrone(affiliatedtoISBandthe following partnership:ISB,BresciaMunicipalityand The callforprojectswasbeenlaunchedunderthe being provided. opportunities, etc.)topubliciseit.Nofundinghas look forjobs,informationaboutworkingorstudying formagiovani” (aspecialserviceforyoungpeoplewho calls topromotetheprojectandhasinvolved offered anofficeandapersonwhomadetelephone they haveformallysupportedit.The iche Giovanili)inthisprojectisquitemarginalalthough The roleoftheBresciaMunicipality( welfare system 31.4. Interaction withthe informagiovani counsellingand initiatives foremploya Assessorato Polit municipality has housing and local “in- - - - 173

The emphasis put on the project by public officers is high even if no substantial public resources have been invested in it. The social manager thinks that the interaction with Brescia University and with the prison, as well as with one of the principal museums of the city (Santa Giulia) through the winning projects, will enhance the possibility to collaborate in the future within the same scheme (ISB provides new apartments and call for projects) or in other relationships as participating to financing opportunities, etc. As a critical point, it is considered that rents (at the time of writing, about 140 euro per month plus expenses, total 200 euros per month) are too high for young people that have to share their home. Even if 200 euros is a low price to live in Brescia, in order to really help and support young people, housing autonomy costs should be significantly lower. Anoth- er critical aspect is that the two-room apartment is too big and has too many common spaces that do not allow enough privacy for its dwellers. This aspect in- forms future other opportunities that will be provided to young people. Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 174 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities at theendofperiod. to haveagoodaccommodation, topayrentsbelowmarketpricesandhavetheopportunity tobuythedwelling with longcontractsof10+yearstheformula gamo cooperativealsorespondedtothecall.Theideawas identify apartmentsthatcouldberentedtomigrants cooperative, “CasaAmica”,whosegoodprojectshavebeencopiedbyothersinLombardy acrosstheyears.TheBer in thecallfordevelopingsomethingthathadalreadybeen experiencedinBergamobyaverybigmigrant housing solutionsformigrants.Themigrantsofficerof Bresciaatthattimeinvitedthe The project“Unacasainpiù”wasdeveloped2003/2005thankstoaspecialregional programmethatfinanced relationships withpublicagenciesandthelocalchurch. activities, focusingalsoonpreventionandinterventions incaseofmigranthardship.The In 2005,the economic growthofdwellers. apartments, restructuringthemandthenrentingtomigrants,alsoencouragingautonomythesocial and not onlyasmembersofthe the hostingcity Brescia), assumingthatthiscouldbeagoodstartingpointtosupporttheirautonomyandsocialinclusion in was, fromthebeginning,tofind that nootherpolicies shouldbedevelopedforthem. 9 Following themostintelligentpositions foundintheliterature,whichstatethatmigrantshavetobeatleastsupported through 8 Now the“DioceseCentreforMigrants”. retariat forMigrants was bornin1990asabuilding The projecthasbeendevelopedbyaverysmall 32.1. Shortdescription One housemoreproject Una casainpiù- 32 the “cooperativespirit”(insenseofworkingandparticipatingin development ofneighbourhoodsinhabitedbymigrantsonly.Furthermore, Brescia IT cooperative transformeditselffromabuilding 9 . Thecooperativehadtheaimofcreatingconditions ofsocialinclusion formigrants, avoidingthe 8 (“SegretariatoMigrantidellaDiocesidiBrescia”)from1981onwards.The /77 cooperative butalsointhedirectoryboard.The cooperative, acknowledgingmigrants’needsvoicedoutintheBresciaDioceseSec housing solutionsformigrants(which,inthoseyears,arrivedquitemassivelyto Neighbourhood revitalization/Housing Categories cooperative, theCooperative “patto difuturevendita” cooperative toasocialpluralisetheir cooperative activities)inmigrants the cooperativewasborntoincrease (“renttobuy”)inorderpermitthem cooperative workedonidentifying Scalabrini Bonomelli.Thecooperative cooperative toparticipate cooperative hasmany cooperative’s mission housing inclusionand , present housing - - 175

The project has been appreciated pretty much by 32.3. Internal organisation and academics working with migration issues and who were quite influential in regional decision-making. Even if the modes of working first evaluation of the Lombardy region was negative, The project “Una casa in più” in some way changed the at the end the cooperative Scalabrini Bonomelli received way of working because it inaugurated this small but 500,000 euros to develop the project through the par- crucial activity of supporting migrants in their way to ticipation to the call by the municipality of Brescia. homeownership. The cooperative had to structure its The cooperative identified fifteen apartments to capacity to interact with banks and funding stakehold- devote to the project, half of them to let at normal ers, as well as supporting migrants in accessing credit rents, and the other half with the rent-to-buy formu- opportunities. la. Monthly rents were and are around 500 euros (canone convenzionato), and the price to pay at the 32.4. Interaction with the local end of the 20 years, transforming dwellers into home- welfare system owners, around 1,500-3,000 euros. This rent value incorporates also a capital part (to buy the dwelling The project has been financed by the Lombardy month by month) and is higher than normal rents region with 500,000 euros. The cooperative has been applied by the cooperative. As a matter of fact, one of invited by Brescia municipality to participate to the the goals of the cooperative was to generate a con- regional call and had to work with it to prepare its sistent cash flow to invest in other similar projects. candidacy. Afterwards relationships had been very weak, and no special support has been given by the 32.2. Conceptions of and ways of local stakeholder to the project or to the cooperative, which continues to insert very slowly migrants into addressing users Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities the public housing stock, facing all the problems re- The project has been considered as very innovative lated to the scarcity of housing opportunities. In other because for the first time migrants where targeted words, the project “Una casa in più” did not create as possible buyers of houses through contracts that better conditions for the cooperative activities in the permit them to rent for 20 years paying a sum that is, following years and the project has not been replicat- in part, an anticipation of capital. The project acknowl- ed by the cooperative or by the Municipality. edged that migrants would stay for long years in the The principal critical aspects of the project are related city, would adopt in the middle term the same hous- to its timing, not to the main ideas of it. At the begin- ing strategies as Italians (be homeowners) and that ning of the 2000s, migrant home ownership rates were they would need stable housing accommodation. almost double (22 per cent) than current ones (12 per Thanks to the window of opportunity presented by cent), they were the highest in Italy. So the project was regional funding, this formula could be applied to mi- well contextualised, aiming to support stabilisation grants. The latent aim of the project was also to make of migrants in the city through an assisted pattern to dwellers more responsible for payment of rent and homeownership. The project contemplates a very long for the good maintenance of the cooperative hous- period to rent and then buy, 20 years, which from one ing stock. Migrants, once inserted into cooperative side was the necessary base to permit people to buy dwellings, tended to assume that they had a “right” their own dwelling, but from the other side creates to them, without respecting duties attached to the uncertainty attached to changes over a long period, possession of a home. This project permitted to some especially in the migrants’ lives. In the last 5 years, the extent the reversion of this behaviour, clarifying with scenario changed pretty much. Many migrants are go- dwellers, and potentially future owners, the terms of ing back to their countries of origin. Not all the apart- their insertion in the housing stock. ments destined to be bought with the 20-years renting formula have been allocated, because this span of time has been considered too long at that time by potential dwellers. Originally, eight apartments were devoted to the rent/buy formula, but two of them have at the end been devoted to normal rent. 176 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities transportation ofdisabled people,notanalysedinthisreport. 10 An exampleisgivenbythenewmodalities introducedforthepublic quality oftheservice. necessarily beingdetrimentaltothecontentsand and positivereorganisationalprocesses,without cases, the“spendingreview”hasleadtouseful Some intervieweesunderlinehow,insomespecific Voucher investinginexpertise,seesection2.1). prolonged orrenewed(asitwasthecaseof section 2.2),orfixed-termprojectshavenotbeen been delayed(asinthecaseof0-3centre,see downsized, and/ortherenewaloftheirfinancinghas and agreementswiththirdsectoroneshavebeen to non-publicstakeholdershavebeenreduced, directly managedbypublicservicesandoutsourced consequence, manyprogrammesandprojects,both certain thresholds,eveniftheydohavemoney.Asa fiscal parameters–impedestheirspendingover stability pactthat–inordertorespectEuropean municipalities areheavilyconstrainedbytheinner been drasticallyreducedaswell.Moreover,Italian at thecentrallevel,andtransferstolocallevelshave Resources forsocialpolicieshavebeenseverelycut and surelynotenough,dedicatedresources. have enormouslyincreased,inthefaceofscanter, insertion, housinginclusionandotherkindsofhelp also applications)forincomesupport,employment crisis, isarecurrentelementinourcases. The scarcityofresources,especiallyintheseyears networking. to financing,durationofprojects/programmesand presented heresuggestsomeconclusionsinrelation The quitedifferentcasesof Conclusions the smallmunicipalitiesin provinceofBrescia, for thestakeholdersinvolved , astheexampleof representing an opportunity for institutional learning in theircontext.Furthermore, theyrisknoteven really marginal,eveniftheircontentisinnovative for theobjective,impactofmeasurescanbe intercept casesinneed.Iffundsarenotadequate even whenprovidedbynon-publicstakeholders,do financing fornewandconsolidatedservicesthat, continuity andstability(andevenincreases)of shadow thefactthatthereisaclearneedfor Nevertheless, suchpositiveexamplesshouldnot lost qualityorquantityofintervention. protestations, untilbeneficiariesverifytheyhavenot Brescia IT 10 Thesechangesmayraise social innovation Need (and investments. The onlychannelthroughwhich itis very lowrentsthatwouldnot remuneratetheir the poorerbecausetheywould beobligedtoapply It isveryrarelythatprivatestakeholders workfor and arenotwealthyenough tostandinthemarket. see CostaandSabatinelli2011; 2012aand2012b) automatically implytoaccessit,asitisveryscarce, the public for thosewhoarenotpoorenoughtobeeligible ers normallyworkforthe“grey”partofmarket, Social housingprojectsfosteredbyprivatestakehold even start. these twoconditionsisnotinplace,projectsdo to finance “in themarket” Moreover, theyhavetobemixedwith“pro-market”or private funding(thatdonothavetobepaidback). terms oflanduseorconcession,publicgenerous if theycancountonfavourableconditions,bein ties. Normally,socialhousingprojectscanbefeasible in thepoliticalcontext,mixofpromoters’activi a varietyofoscillationsin economic financialpointofview.Theyareexposedto Social housingprojectsarequitevulnerablefromthe in thesocial access publicresourcesincaseofindividualdrop-outs example, fillingthegapsandprovidingafasttrackto in supportingtheseprojectswithothermeans(for things” butthen,afteraninitialengagement,theyfail that “somethingisgoingon”orbetter“wearedoing social often localpublicstakeholders(asmunicipalities)use to it,whichposesproblematicissues.Moreover,very substitutes forpublicactionandnotascomplementary Social at amodestrentcomparedtogrowinghousingneeds. very smallregardingtheircapacitytoofferdwellings Social paradigmatic ofthis“new”issueintheItaliancontext. the casesonhousinginclusion,whichweselectedas Some specificconsiderationsareworthdrawingon and context-basedperspective. should beimplementedwithoutlosingalong-term time tobedevelopedbystakeholders.Moreover,it important inacontextoflimitedresources,needs of opportunity,whichbecomesmoreand (see section2.1).Also,thecapacitytousewindows single voucherforlabourmarket(re)insertion,shows having tomobiliseinordermanageonlyone housing projects as “flagships projects” to show housing projectsas“flagshipsprojects”toshow housing projects are sometimes intended as housing projectsaresometimesintendedas housing housing stock(which,anyway,wouldnot social housingactivities.Ifatleastoneof housing projects). initiatives are expanding, but remain initiatives areexpanding,butremain initiatives whichprovidetheresources housing andlandmarkets, - - 177

possible to develop social housing for the most needy References is very conspicuous public funding for its construction and management, which is quite rare in the actual Associazione Bimbo chiama Bimbo (2012), Relazione context. Operating for the grey part of the market can di missione 2011 (“Mission report”), internal document. be a good solution for operators (who are experienc- Comune di Brescia, Final Report on the voucher ing the economic crisis in the normal market) because Investing in Expertise, internal document. they can intercept some public financing and can, Local welfare in at the same time, cope with the housing needs of Costa, G. & Sabatinelli, S. (2011) Italy: specific groups of the population (such as members Housing, Employment and Child Care, WILCO of housing cooperatives, people signalled by social Publication 02. services, etc.), but in any case, they are not able to Costa, G. and Sabatinelli, S. (2012a) City Report: Brescia, respond to housing hardship situations. WILCO Publication 18 (http://wilcoproject.eu/wp- A mismatch between projects and needs is observed. content/uploads/2013/04/WILCO_WP3_Brescia_18.pdf) Housing needs are frequently long-term needs, so Costa, G. & Sabatinelli, S. (2012b) City Report: Milan, that what was thought to be a temporary solution WILCO Publication 23 (http://wilcoproject.eu/wp- (even if not an emergency-based one) becomes a content/uploads/2013/04/WILCO_WP3_Milan_23.pdf) permanent housing insertion. Social housing projects, Immobiliare Sociale Bresciana (2013) Bilancio Sociale as well as public housing ones, have a low turnover in 2012, internal document. terms of users/dwellers: even if those who apply for L’offerta Comunale di Asili Nido e Altri social housing projects are invited (if eligible) to apply ISTAT (2013) Servizi Socio-educativi per la Prima Infanzia also for public housing, because of the scarce produc- , Rome: tion of new dwellings and the very low turnover of the ISTAT. Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities existing dwellers, they tend to occupy these apart- Provincia di Brescia (2011) Oltre la crisi: competenze e ments for many years, preventing other persons to lavoro per un nuovo sviluppo del territorio. Documento benefit from this (temporary in principle) opportunity. di Programmazione Integrata Lavoro e Formazione This specific problematic aspect was positively man- 2011-2013, available at: http://economia.bresciagov.it/ aged by Immobiliare Sociale Bresciana, who decided attachments/177_DPILF2011_2013.pdf to pluralise its mission and length of contracts in an Sabatinelli & Villa (2011) Individualisation without innovative and useful (for dwellers) mix. personalisation? The paradoxical logic of the quasi- As a way of conclusion, and given this problematic market based employment services in the Lombardy scenario, it is worth stating that innovation is happen- Region, paper presented at the 9th Annual ESPANET ing in Brescia. Not all analysed projects are sustain- Conference, Valencia, 8-10 September 2011. able and have the possibility of being replicated, but Municipal documents available at most of them show that stakeholders learn from http://www.comune.brescia.it experiments (in the case of social housing, they can be quite costly ones) and evolve in their capacity of structuring or focusing their activities. The territorial networking and collaboration between public and private stakeholders has a long-lasting tradition in Brescia, but quite some margins of improvement are observed. In some cases, in fact, relations are limited to rather narrow ways of cooperation (e.g. specific agreements on financing parts of services), which are furthermore currently endangered by the shrinking of resources. The scarcity of available means would call for more synergic collaborations, overcoming the potential barriers due to the defence of the legitimate organisational identity of existing bodies.

IT Italy Milan

Stefania Sabatinelli and Giuliana Costa (Politecnico di Milan) 180 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Social investment Social housing Participation Micro-credit Family needs Empowerment Child educationandcare Child care Keywords: Local background of thesocialinnovations Introduction Milan IT Camp”). Thisapproachisreflected insomeoftheprogrammesanalysedhere. taken place,andafirstedition oftheForumYouthPolicies(“MIGeneration instance, twoeditionsofthe municipal “ForumofSocialPolicies”havealready participation isoneofthekey elementsofthemunicipalcoalition’saction.For municipal electionsagainsttheoutgoingcentre-rightmayor. Thisemphasison definition ofpoliticalprogrammeandcampaign,who laterwonthe outsider candidatemayor,GiulianoPisapia,whoproposed aparticipatory the primaryelectionswithincentre-leftcoalitionwere won byaleftist In spring2011,aradicalchangeinthelocaladministration tookplace.First, initiatives (child of rightsaccesstoservicesforirregularimmigrants,either dueto rity issues,coupledwitharhetoricagainstimmigrationflows, atightening as vouchers.Alsorelevantinthisperiodwasthepolitical emphasisonsecu kets, thefreedomofchoiceusers,andusecash-for-caretoolssuch being developedinthesameyears,emphasisingsetupofquasi-mar and ments, especiallythecontracting-outor coalitions haveboostedtheuseofsomenewpublicmanagementinstru Northern Leaguemajority,thenwithmayorsfromBerlusconi’sparty.Such of mayors collapse oftheearly1990s,andintroductionin1993directelections as theplaceofnationalinstitutionalandpoliticalpowers.After “moral” capitalcityofthecountry,alsoasopposedtoopacityRome known asTangentopoli(BribesCity),shakingtheimageofcity at thebeginningof1990sbywide,nationalcorruptionscandals local governmentsduringthe1970sand1980s,citywasdeeplyshocked From thepoliticalpointofview,afteraratherlongexperiencecentre-left teristic ofthecityeconomyatpresent. area. Theshifttotertiaryandadvancedsectorsisthemajorcharac average, alsothankstotheconcentrationofservice-basedactivitiesin male employmentandactivityrateshaveincreasedmorethanthenational a long-lastingreputationofsocial to thewidepossibilitiesofsocialinclusionthroughemployment,Milanhas city couldobtainbycontributingtoits defines the“Milanese social mobility.Adeep-rootedlegacy,sinceamedieval(religious)reference for thesocialinclusionofmigrants,toacquire ment demand was very ample, and employment represented a key element ternal migrationfromsouthernregionsduringtheperiod1950-70.Employ Gène andTurinintheFordistera,itwasoneofmaindestinations Sabatinelli 2012).Oneofthevertexesformerindustrialtrianglewith capital ofItaly,itisarichandeconomicallydynamiccontext(seeCosta Milan isthecapitalcityofLombardyregion.Theeconomicandfinancial 1 For municipalities withmorethan15,000inhabitants, basedonatwo-ballotsystem. (Politecnico diMilan) Stefania SabatinelliandGiulianaCosta Authors welfare services.Thisfitcoherentlywiththeregionalframethatwas 1 , 20yearsofcentre-rightlocalgovernmentsfollowed, firstwith a care services,schoolcanteens,etc.)ornational(healthcare). citizenship” asastatusthatanybodycomingtothe solidarity. Sincetheendof1970s,fe welfare throughwork.Alsothanks privatisation ofprovisionpublic citizenship andpursue local ------181

The financial and economic crisis, which first burst in 2008 and is still ongoing in Italy, hit the city rather Welfare innovations in the sharply, due to the high concentration of firms in the three policy fields urban and suburban area. An increase in unemployment and inactivity rates, in the applications for state The three social innovation cases presented here unemployment benefits, in the use of short-time work predominantly concern three different policy are- schemes, in the use of temporary instead of per- as: Milan Welfare Foundation (Fondazione Welfare manent contracts is observed (Costa and Sabatinelli Ambrosiano, or FWA) relates to income support and 2012). In addition to the existing municipal social labour market integration; Maggio 12 (M12) regards assistance schemes, non-public stakeholders, such early childhood education and care policies and as the Milanese trade unions and the Catholic curia, services; Fondazione Housing Sociale FHS) concerns have been active in creating solidarity funds and dis- housing policies. Nevertheless, as will be seen, in each tributing forms of support, monetary and in-kind, to of the cases, overlapping, trickle-down effects and syn- individuals and families hit by the crisis. ergies with other policy fields are observed, pointing at directions for integration among programmes and Some expectations in terms of economic and la- sectors. The role of the municipality of Milan differs in bour market development are placed in the coming each of the three cases, as we shall see, ranging from International EXPO 2015, the only project to promote being the promoter of the project (M12, section 2.2), to the local economy of some relevance in recent years. being one of the founding members of a public–private Delays in the implementation are observed, also due foundation (FWA, section 2.1), to being part of a wider to disagreements in the definition of the projects; the network involved in programmes initiated by a large selection of the involved areas and the type of public– non-profit stakeholder (FHS, section 2.3). In all the cas- private relations in their purchase and management, es analysed, the relationship between public, private Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities and their future use; and conflicts among institutional and third sector stakeholders is a prominent issue. levels about the distribution of competences. Infra- structural works were also jeopardised by the scarcity The following paragraphs present the three cases of resources due to the economic crisis and the con- analysing: straints of the European and national stability pacts. 1. the story of the single case; Between inertia and small innovations, Milan needs 2. the types and contents of programmes developed to find a way out from the crisis and recession, and and the way needs or demands are addressed; a (new) place in the changing world (Bonomi 2008; 3. the patterns of organisation of the bodies partak- Lodigiani 2010). ing in the initiatives; and

4. the embeddedness of the projects in the local welfare system and its evolution. Each case study is based on interviews with representatives of the different stakeholders involved in the programmes, as well as on the analysis of available documents, official websites and press information2.

2 A foundation is a body made up of a capital aimed at pursuing a specific goal, either directly, through its organisation, or indirectly, by financing other subjects that also pursue the same goal. 182 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities difficulties –riskfallinginto realpoverty.Theaimisnot,then,tosubstituteexisting institutionsassistinglong-term or personsfamilieswhodonotliveindisadvantaged conditions, butwho–duetotemporaryandunexpected existing, category-basedsocialprotectionmeasures,and thereforeareexposedtonewformsofsocialexclusion, porary needforvariousreasons(jobloss,illness,etc.).These couldbeeitherpersonswhoarenotprotectedby their placeoforiginandpreviousorcurrenttype workingcontract,andwhoareinconditionsoftem who haveafirm,orwanttoopenfirmoperatingwithin theadministrativeboundariesofcity,disregarding The foundationhasthemissiontosupportindividualsand familieswhoeitherliveorworkinthecityofMilan, welfare (Ferreraand Maino2011). paid 1,400millioneuros.Theseinterventions canintegrateexistingmeasures,andalsobeinnovative,butthey cannotsubstitutethe“traditional” 4 The Italianbankfoundationshavean overallcapitalof50billioneuros.In2010theycarriedoutmorethan30,000 socialinterventions,forwhichthey subjects thatalsopursuethesamegoal. 3 A foundationisabodymadeupof a capitalaimedatpursuingspecificgoal,eitherdirectly,throughitsorganisation, orindirectly,byfinancingother The “Fondazione 33.1. Shortdescription Fondazione WelfareAmbrosiano 33 Caritas Ambrosianaand designed anddevelopedtogetherbythemembersof foundationandwithotherthirdsectorbodies,suchas tion, two-thirdsoftheavailablebudgetisdestinedtosupport innovative to difficultiesincoordinationwithlocalbodiesthiscapitalhadneverbeenused.Intheframeworkoffounda to implementsocial the Cityacapitalof6millioneuros,accumulatedduring1970saspartcollectivebargaining.Originallymeant The foundationwasinitiallycreatedaftertheimpulseofMilanesetradeunionsthatwantedtomakeavailable blames ontheformermayorandcouncillors’scantpoliticalwillresiliencetorapidlytackleproblem. agreement withtheNationalAssociationofBanks,butthisattemptfailed.Thepresentmunicipaladministration pay loanstocitizens,forwhichitwasnecessarydefineagreementswiththebanks.Thefoundationpursued an municipal administration.Thelonggestationwasdueto“technicaldifficulties”,mainlyrelatedthepossibility to mer MayorofMilan,andcreatedin2009,thefoundationreallyinitiateditsactivitiesonly2011undernew Unione SindacaleTerritorialediMilano;andUILMilanoeLombardia).Afterbeingannouncedin2007bythefor Handcraft andAgriculture;thethreemainMilanesetradeunions(CGIL,CameradelLavoroMetropolitana;CISL, ciative stakeholders:theMunicipalityofMilan;ProvinceMilanChamberCommerce,Industry, Milan IT 3 WelfareAmbrosiano”(FWA)wascreatedbya heterogeneous coreofbothinstitutional andasso development projects,andparticularlytosupportwomen’saccessthe /77 Fondazione Cariplo(abigbankfoundation Related toallpolicyfields Categories 4 ). local welfareinitiativesthatarebeing labour market,due - - - - 183

situations of need (such as long-term unemploy- persons, that is persons who have slight or no chance ment). Rather, the aim is to intercept short-term risks to access bank credit, due to lack of guarantees and/ of workers or jobless people who experience excep- or to a past record of “bad payers”. tional economic problems that often have serious Two types of micro-credit are foreseen: long-lasting negative effects for the whole household. For instance, “families with budget problems may >> “social credit”, reserved to persons who – make decisions, such as the interruption of children’s especially, but not only because of the crisis – can education, that they would not make in other cir- hardly afford expenses such as the payment of cumstances, and that may affect the future of family university fees of their children, or unexpected members on the long run, since they are hard to health expenditures; catch up later”. >> credit for self-employment, to overcome an The targets of the foundation’s measures are there- unemployment or under-employment or harshly fore all persons living or working in Milan with eco- precarious condition. nomic difficulties that make it impossible for them to The access to micro-credit is promoted through a make ends meet. The definition of the household is network of selected local bodies that operate as flexible, and for instance disregards whether the ap- territorial “front-desks” intercepting existing needs. At plicants are married, separated or cohabitating. This present, eighteen front-desks are operating, mainly reflects a secular orientation of the foundation and of managed by trade unions, but also by social cooper- its members, which distinguishes it from other bod- atives, associations, parishes that are not among the ies, especially confessional ones, acting in the area. members of the foundation (e.g. ACLI, Legacoop, etc.). Two fundamental feature of the foundation’s action New front-desks are going to be opened, with a “light are the active approach and the rotation in the use of accreditation system”. The idea was not to create new Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities funds. The active approach is reflected in its slogan: structures or offices in addition to the existing ones, “we help you to help yourself”, which underlines that but rather to ask those organisations that already the commitment of the recipients to project their own deal with poverty and vulnerability in the city to be- path to solve their problem is understood as neces- come the “working branches” of the FWA. rotation in use of the funds sary. The is obtained – as These bodies are asked to stand “moral surety” for we shall see – by privileging financing tools such as the families that they introduce to the foundation. micro-credit, as opposed to non-repayable financing; They carry out: this choice is specifically due to the will of the involved trade unions to create an economic capital for the city >> First screening: during the first interview, that could last in time. information about the micro-credit programme is given to the applicant and, at the same time, 33.2. Conceptions and ways of information about the applicant is collected. addressing users >> Orientation: applicants may be addressed to other welfare agencies (managed by public or third- The foundation intends to answer emerging social sector bodies), that may be more appropriate for needs and reduce economic precariousness. At their case. present, this purpose is basically pursued through Take-up and counselling: if after the first interview the promotion of guarantee funds to favour access to >> the case appears to have a profile that fits the credit, via the micro-credit tool (Yunus 1998). requirements to access micro-credit, a second The first goal of the foundation was in fact to build interview is organised with an expert of the instruments to overcome one of the main negative Bank Volunteers for Social Initiatives association effects of the present financial and economic crisis, (Volontari Bancari per le Iniziative nel Sociale, or i.e., the credit crunch, which prevents many individu- Vo.b.i.s.)5. In this interview, an analysis of the need als with few resources to access to bank loans despite of the deservingness of their need conditions and/ 5 An association of retired bank clerks, created in 2009 to favour the financial inclusion of “non-bankable subjects”. The experts assess many or of the feasibility of their projects. FWA favours the variables, such as personal story, income situation, family situation, access to micro-credit of the so-called “non-bankable” social context and territorial relations, in order to estimate whether the recipient may overcome his/her economic problem thanks to the loan. 184 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities agreement withthefoundation for credittooneofthebanksthathavesigned With thisguarantee,applicantscanmakearequest FWA issuesaguaranteeof80percentthecapital. or notapprovetheproject.Ifprojectisapproved, plication toacommissionofthefoundationthatmay preliminary inquiry,thefront-desk“presents”ap 20,000 eurosperapplicant.Onthebasisof The capitaltobelentisbetween2,000eurosand the technicalcommitteeof foundation,because credit; 54percentreceived a negativeevaluationby presented applications:30per centhadreceivedthe (Bramanti andSpina2012).InDecember2012,ofall social creditand27percentforself-employment 2012 772applicationswerereceived,73percentfor carried out.BetweenOctober2011andNovember in thefirst12monthsofprogrammehasbeen A preliminaryevaluationoftheapplicationsreceived and introduce changesifneeded. results monitoring systemhasbeenorganisedtoassessthe and thereasonsofpossibleinsolvency.However,a it istooearlytoevaluatethedegreeofsolvency, repayment isbeginninginthesemonths;therefore, Since thefirstloanshavebeengranted1yearago, of thecapital. insolvency, thefoundationcoversupto80percent and canbespreadoverupto6years.Incaseof repayment ofcapitalbeginsafterthefirst12months one: duringthefirstyearonlyinterestisrepaid.The is suchthatshouldallowsustainabilityforevery- cent ofcredittofirms).Thedurationrepayment ment credit(againstanaveragerateof10.25per to rate forcredittopersonsof11.21percentaccording credit: 4percentforsocialcredit(againstanaverage the averagebankrates,anddifferentiatedbytypeof relationship. Theinterestratesaremuchlowerthan The loanisbasicallygrantedonthebasisofatrust – allocatethemoney. application within30daysand–inthepositivecases in progress. di MilanoandBancaPopolareCommercio Industria;otheragreementsare 6 At thetimeofwriting: > > Banca d’Italia)and6.5percentforself-employ- Milan IT of theproject. support isprovidedthroughoutthe Monitoring andtutoring:moralbureaucratic study isformulated,aworkplanoutlined. and/or oftheprojectiscarriedout,afeasibility Intesa Sanpaolo,BancaProssima, Popolare 6 , thatwilltreatthe development Related toallpolicyfields Categories - the recipients. at buildingsomebusinessculture andawarenessin developed bytheoperators and volunteersalsoaim In self-employmentcreditthe counsellingactivities them tofaceupanexpenditure,albeitminimal. from thefoundationcommittee,andthatmeansfor firm, operatinginMilan,beforereceivingtheanswer a signofcommitment,applicantsneedtocreate cent ofapplicationsareaccepted(Mallone2012).As ployment by Italians(71percent).Theselectionforself-em Most applicationsforthiskindofcreditarepresented applications arebetween17,100and20,000euros. case ofsocialcredit:38percentself-employment isting activities.Theamountpaidishigherthaninthe or needtopurchasegoodsservices,ofalreadyex number ofcasestheyareduetoeconomicdifficulties, start-up projectsin31percentofcases;alarger Applications forself-employmentcreditconcern citizens (BramantiandSpina2012). 57 percentofsocialapplicationsaremadebyItalian and 5,000euros.Astodemographiccharacteristics, credit areinthelowestamountrange,between2,000 rather moderate:54percentofapplicationsforsocial cal contracts(Mallone2012).Theamountawardedis one ofthefamilymembers,orpresenceatypi applicants’ situations,togetherwiththejoblossof Indebtedness ofthehouseholdisbehindmost expenses, healthexpensesandmortgageloans. reduction and identified are Among socialcreditapplications,themainreasons of applicantsareresidentinthe temporary difficultywiththeFWA’shelp.76percent to theprofilesofbeneficiariesthatcouldovercomea parents aregenerallyrefusedasnotcorresponding Applications ofyoungunemployedlivingwiththeir 60 yearsrepresentonly6percentofapplicants). years; 22percent51-60whilethoseagedover (33 percentareaged41-50years;2631-40 men and43percentwomen),butdiversifiedbyage Applicants areratherbalancedbygender(57percent applications forwardedtobanksarefurtherrefused. maining werestillunderevaluation.Only9percentof es becauseofnon- per centwerereorientedtowardsothersocialservic of lackingrequirementsorexcessiveindebtedness;9 micro-credit isratherstrict:around30per housing expenses,debtdischargeor family needs,followedbytraining sustainability oftheloan;thosere municipality ofMilan. - - - - - 185

33.3. Internal organisation and on the territory. Training and update meetings are organised for this purpose. The front-desk operators modes of working have attended a specific (2-day) training course to be The different orientations, traditions and interests of prepared to carry out social tasks of welcome and lis- the founding members of the foundation is reflected tening. The foundation carried out a rather wide com- in the negotiations about objectives and programmes. munication plan, advertising its micro-credit activities Trade unions have a tendency to privilege initiatives via the local press, Internet, flyers, and thenetwork of 7 for standard workers; the chamber of commerce is inlocal public and third-sector welfare agencies . Among clined to promote the creation of new firms; themu - the persons who applied in the first 4 months, 71 nicipality is more willing to search for overall solutions per cent knew about the project from the press, 18 to problems that concern the general citizenship. per cent by word of mouth and 11 per cent (mainly Italians) from the internet (Mallone 2012). Also, the distribution of positions reflects the heterogeneous composition of the members. The president 33.4. Interaction with the local of the Fondazione is the mayor of Milan, while political competence is devolved to the town councillor for welfare system Employment, Economic Development, University and In the words of its founding members, the foundation Research; the vice president is indicated by the trade intends to go back to the historical Milanese solidarity unions, while the general director of the foundation tradition and update it to issues currently at stake, is a member of the council of the chamber of com- as well as methods of intervention and patterns of merce. The governance of FWA is dualistic: a steering governance. In this sense, the FWA seems to be an committee (Consiglio di Indirizzo), named by mem- innovative experience deeply rooted in the local bers and chaired by the mayor, and a management Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities context. The head office is located in a periphery committee, named by members and by the steering area, Quarto Oggiaro, a symbolic choice to underline committee. A technical-scientific committee, formed the approach to improve and enhance the role of the by academic and institutional experts, evaluates appli- working-class neighbourhoods out of the city centre. cations and formulates proposals. The programmes developed by the foundation are The agreement with the banks about micro-credit defined as relevant by the promoters, since few tools proved to be a very difficult coordination issue that are available for public subsidised loans, whereas took a long time to be solved. Even with those banks access to credit is a major concern due to the credit that did sign the agreement, procedures are not crunch that followed the financial crisis. smooth yet. Although an answer to the credit request In the words of its director, the foundation can and is in principle due within 30 days, banks tend to ex- must become a laboratory for social innovation, a pand this time very often and for long. The agreement place for the exchange of experiences and practices, with the banks was complemented with an agree- and the study of original solutions. In addition, for the ment with the Lombardy Anti-usury Foundation which competent city councillor, the challenge of the foun- contributed a supplementary insurance of 30 per cent dation lies in the “degree of project innovation” that of the capital to the project, thus de-facto widening it will be able to develop. Accordingly, the aim of the the available resources. The FWA charter foresees foundation at present is not to enlarge the available the possibility to collaborate with external bodies, capital, but rather to collect and elaborate ideas and and negotiations in this sense are already ongoing. proposals to exploit as best as possible the available The access-to-credit activities of FWA are possible resources. In this perspective, the collaboration with thanks to the voluntary contribution of the Vo.b.i.s other territorial stakeholders is wished for (Percorsi network (see above). The foundation also counts on Secondo Welfare 2011). the counselling of Permicro (http://www.permicro. it/), a company specialised in micro-credit targeted at Born as an anti-crisis initiative, the foundation is entrepreneurship. currently envisaging its role also beyond the (hopefully close) end of the recession. New projects are on Common procedures are shared among all the the go. A programme has just started that aims to members of the network and all the front-desks 7 See for instance the website of the foundation: www.fwamilano.org 186 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities first andmostinfluential presidentsoftheassociation. Workers ofNorthernItaly,nownamed “CesarePozzo”,afteroneofthe 9 A famouscasebasedinMilanwasthe FriendlySocietyofRailway 8 http://www.fwamilano.org/index.phtml?Id_VMenu=101 benefits areeffectivelypaid cedures generallytakeseveralmonthsbeforethe to concernedworkers,sincethebureaucraticpro anticipate thepaymentofshort-timeworkschemes Milanese context. functioning ofthe the future,whatcitizenshavelearntabout ically atassessingtheFWAprojects’resultsand,in knowledge onrelatedthemes,butalsomorespecif These initiativesarenotonlyaimedatdeepening functioning, typesofapplicantsandterritorialimpact. the young,andexperiencesof a focusonweakgroupssuchasmigrantwomenand aimed atcomparativelystudyingurbanpoverty,with doctoral fellowships(financedbyprivatesponsors) ships andprizes.Uptonow,FWAhaspromotedthree cial problems,viaseminars,trainingcourses,fellow The foundationalsopromotestheanalysisoflocalso initiatives arebeingstudiedinthehealthfield. contracts andmostofthejoblessuncovered.Other social protectionthatleaveworkerswithatypical to tryandfillthegapsofItaliancategory-based Società diMutuoSoccorso teenth-century traditionofmutualapproachthe – afteraproposalofthetradeunionsnine New projectsinprogressaimatrevisingandupdating of resources. (INPS), thusmaintainingtheapproachofrotation be paidbackbytheNationalSocialSecurityInstitute Milan IT micro-credit toolthatisnewforthe (friendly societies) 8 . Thefoundationwillthen micro-credit, its Related toallpolicyfields Categories 9 , inorder - - - - - 187 IT Categories Milan Child and family care

34/77 Maggio 12 – Nuovo Manifesto Pedagogico per la Città Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 34.1. Short description

Investing in and reorganising the early child care services system was one of the programme points of the campaign for mayor Giuliano Pisapia in the winter/spring of 2010/2011 (Costa and Sabatinelli 2013). The commitment of the new administration for a more inclusive, open and plural city was intended as a frame of intervention also for this policy field. In a typical “social investment” approach (Morel et al. 2011), expenditure on education and early education is understood to be an investment for the present and future wellbeing of the city and of the citizenship. Such a commitment stems from the acknowledgement of the transformations that have occurred in the life conditions of Milanese citizens and families in the last decades. First, the working conditions of parents, and especially of mothers, have deeply changed, with high requests in terms of flexibility and hard fatigue to reconcile work and family time. Secondly, family structures have diversified, and bear different needs: from needs that concern babies and children to needs that concern disabled adults and dependent elderly. Besides, the presence of children with foreign parents steadily increases (around 20 per cent). All these changes originate new social and educational needs and demands. In this context, a debate was launched stemming from the idea that childhood services have an educative mission, as opposed to being an assistance task. According to Maria Grazia Guida (vice mayor with competence in education until January 2013) “it was since the mid-nineties that the city council did not organise a table to reflect and update the pedagogic model to which our child services should refer to. We want to put the child back at the centre of the city life”. The project “Maggio 12” (May 2012, initially named after the deadline of the first year of participated planning) aimed exactly at promoting cultural debate and confrontation with all services’ workers, educators, families and experts, as well as with all the citizens on the themes related to the Child Education Services of the Milan Munici- pality. The widest participation of all “souls” of the city – civil, social and professional – was considered necessary by the promoters. 188 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities neighbourhood levelaroundsevenmainthemes: nated bytheteamofexpertsandorganisedat This pathincludedanumberofmeetings,coordi of pre-schoolage. private providers,aswellthefamilieswithchildren parts ofthemunicipalservices,representatives gartens, representativesofprivatebodiesmanaging educators ofmunicipalday-carecentresandkinder a “participatedpath”involvingallthealmost3,500 be achieved.Infact,theprojectwasdevelopedalong nation ofstakeholdersandparttheobjectivesto participative path is atthe same timeastyleofcoordi- ance pattern,evenforanalyticalpurposes,sincethe the contentsofprogrammefrom In thecaseof addressing users 34.2. Conceptions andways of constraints. a periodofeconomiccrisisandseverebudgetary The expertsparticipateforfree,whichisrelevantin cation servicesandtheoveralleducationsystem. and inspirethere-organisationofmunicipaledu- and directions,re-formulatepedagogicguidelines, to re-elaborateinaninnovativewayorientations ted todraftanew“pedagogicmanifesto”forthecity, third-sector representatives.Theteamwascommit- neuro-psychiatrists, paediatricians,journalistsand project, includingpedagogues,psychotherapists, A teamofexpertswasappointedtoworkonthe 4. 3. 2. 1. Milan IT discrimination, promotingautonomy andpropos Children withhandicaps. years. contradictions thatcharacterisecontemporary family ingeneratingidentity,evenamidthehuge Family asprotagonist.Afocusontheroleof equipment offacilities. als, supportingservices’staff andimprovingthe holders caringforchildren. Solid synergiestobepromotedamongallstake Public andprivatedimensionofchildhoodservices. Children aseverybody’sgoodandre als, freedomandrights. didactic humus,promotingitsautonomy,propos processes, tobepromotedinapedagogicand sponsibility “Maggio 12” . Centralityofthechildineducative , itis Goals:overcoming difficult toseparate govern- Child andfamilycare Categories ------dergoing. “LookingatMilan from thepointofview cohesion, despitethecrisisand thedivisionsitisun future toacitythatasksfor start fromchildrenmeansgiving backhopeand words ofthemunicipaladministration, then,anew largely gainedinqualityoflifeforallcitizens.Inthe since thecitiesthathaveinvestedinchildren city”. Thechildisdefinedasa“goodinvestment”, youngest meanscaringforthefutureofwhole municipal administrationasfollows:“Caringforthe Vice-mayor Guidadescribedtheapproachof they received. them and,growingup,theywillgivebackthecare idea thatchildrenfeelthecommunitycaresfor Howard Gardner(2007).Thistheoryfocusesonthe theory of“ethicalcommunity”thepsychologist Morel etal.2011).Thedeclaredinspirationisthe approach (Esping-Andersen2002;Jenson2007; clearly showstheadoptionofasocialinvestment children oftoday,buildersourfuture).Thetitle bambini dioggicostruttoridelnostrofuturo(May12: cities. The2-dayconferencewastitledMaggio12: of representativesotherItalianmetropolitan el, butalsoatthenationallevel,withpresence public debatewaslaunchednotonlyatthecitylev- with the results of the thematic sessions, and where the pedagogicmanifestowaspresented,together A publiceventwasorganisedinMay2012,when top-down way(seealsosection2.2.2). meetings wereonlyinformativeandorganisedina management ofthepreviousadministration,whose towards thenewcourse,asopposedtocentralist ipants, thewide around fiftypeople.Accordingtosomeofthepartic cil website.Eachmeetingcountedthepresenceof meetings havebeenmadeavailableonthecitycoun the months.Synthesiscontributionsofallthematic the differentcityareashavebeenorganisedover For eachofthethemesanumbermeetingsin 7. 6. 5. Miscellaneous. educators andteachers. and confrontationmoments,especiallyamong focus ontheimportanceofsharing,exchange Professional educationandlife-longtraining. mankind. diversity aspeculiarcharacteristicofthewhole Children anyway,Italiansorforeigners.Afocuson participation wasduetoenthusiasm Diverse pedagogicreflections. development and social A - - - 189

the youngest can help us see what does not work and of citizenship. This project has therefore not only has to be changed” (Guida 2012)10. material objectives (improving the green areas at “Maggio 12” is understood as a sort of umbrella pro- the disposal of children), but also cultural objectives, gramme for various types of projects and initiatives, of developed along a path that keeps together “account- different size and scope. Among the wide-scope objec- ability, participation and environmental education” (as tives of the city council in this policy field we find: stated in the city council website). Another small project, “Happy Popping” concerns The reorganisation of municipal early child edu- 1. the organisation of areas where mums are welcome cation and care (ECEC) services (day-care centres to breastfeed babies in public places. This initiative and kindergartens). is coherent with the approach of making of Milan a 2. The release of a new regulation for the ECEC ser- child-friendly (and mum-friendly) city. vices, the first revision since 1975.

3. The revision of the rules, procedures and crite- 34.3. Internal organisation and ria for the accreditation process of private ECEC modes of working services and for the agreement process (conven- zionamento) with accredited private providers to Coherently with an approach that defines childhood “buy” places in day-care services to be reserved to services as educational interventions, the municipal children on the waiting lists for municipal facilities. Directorate for Education has been reorganised and recreated, after a period of 30 years during which Among the more specific projects currently ongoing competences were split into separate areas. The mu- is Appunti per la città - Giardini scolastici (Notes for nicipal administration intends to pursue the continui- the city - school gardens). This was developed from ty of provision for the whole 0-6 years age range, but an idea of two associations (Legambiente and ABCittà) Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities institutional and legal constraints that overarch mu- and promoted by the municipality of Milan, after the nicipal regulations have limited this possibility up to children of the city had asked city councillors, during now. The reform of the governance of education and the last International Day of the Rights of Children, childhood services also foresees the establishment of to improve the school gardens. The project involves children’s city areas councils, consultative bodies that 4,500 children of sixteen schools. Nine gardens have had been promised during the electoral campaign been identified in nine municipal kindergartens (one and that are currently being organised. in each neighbourhood of Milan), located in areas that suffer from a lack of urban green areas. In order to Specific to the M12 programme, as we have seen, the be selected, the kindergartens needed to be available municipal administration claims the adoption of a to open to the neighbourhood (the gardens need participatory approach, a public dialogue and a listen- to be accessible from a public street) and willing ing path. Nevertheless, the organisation was reported to undertake a re-design of the gardens, together to be insufficient, and the general objectives were not with the children themselves who will work on the always clear to the different participants. Participating projects during the winter, and on the restructuring in the whole path was described as rather demanding from the spring, together with teachers, parents and in terms of time and organisation but – at the same local associations. After the re-design, which will be time - some of the stakeholders felt excluded from carried out thanks to a residue of 600,000 euros from the steps in which synthesis was made and conclu- a national fund on childhood (law 285/97, see Costa sions were drawn. Moreover, it should be noted that and Sabatinelli 2011), these gardens will be opened to some trade union organisations of ECEC services did all citizens out of school hours. In this sense, school demonstrate outside the theatre during the “May 12” gardens become bridges between the services and event, denouncing that after a participative path that the neighbourhoods, spaces for the construction had lasted several months, no voice at all was given to them during the official event, and warning that staff 10 In the same perspective, a city council deliberation of a few months working conditions may not be safeguarded in the ago (not directly related to the M12 programme) has established that it organisational changes that the city council adminis- must be allowed for children to play in the courtyards of condos, which had been hampered for decades. This was a zero-cost message to fam- tration was about to apply to municipal ECEC services. ilies with children that Milan is operating to become a child-friendly city, Other stakeholders have defined this final public from where young families could possibly not feel obliged to escape. 190 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities the private relations,withastrong coordinationrolefor sound basisonwhichtobuild well-balancedpublic– ity standardsandpedagogic projects,tobeusedasa point ofreferencealsoforprivate providersforqual- traditionally widecoreofdirectmunicipalprovision, maintain (notenlarge,duetolackofresources)the the intentionofMunicipaladministrationisto a jobtendtoreducetheirperiodofleave.Allinall, have insteadincreased,sincethosewhodo dren, butdemandsforcarebabiesandtoddlers are joblesstendtotakecaredirectlyfortheirchil- years: overalldemandsdecreased,sincethosewho for childcareserviceschildrenagedunder3 recent crisishadambivalentimpactsontheneeds politan context(seeCostaandSabatinelli2012).The iation policiesandservicesintheurbanmetro- within theframeofsteadilywideneedsforreconcil- policies andservicesforchildhoodfamilies, The welfare system 34.4. Interaction withthe administration. between tradeunions,educatorsandthemunicipal services. Thiscontributedtorelaxtherelationship around 150precariouseducatorsofmunicipalECEC particular thepossibilitytohireonapermanentbasis conditions. Inthe Pact forspecificobjectivesandinpresenceofprecise ernment aboutthepossibilitytobypassStability obtained wasaconfrontationwiththenationalgov the biggestItaliancitieswasmaintained.Afirstresult palities (ANCI),butatthesametime,aspecificityof built withintheNationalNetworkofItalianMunici (in 2011,thatis,inthemidstofcrisis).Thiswas all partofadministrationselectedinthesameyear ropolitan cities.Bytheway,theseareallwomen,and cillors ofeducationservicestheotherItalianmet sought toestablisharelationshipwiththetowncoun the Milantowncouncillorandvice-mayor,hasactively The municipaladministration,undertheimpulseof were overcome. educators (seebelow),thetensionswithtradeunions basis ofquitealargenumberformerlyprecarious of reorganisation,andthehiringonapermanent vice-mayor statesthataftertheactualintroduction event asa“shop-window”kindofhappening.Yet,the Milan IT municipality itself. Maggio 12programmeintendstoinnovatelocal municipality ofMilanthismeantin local Child andfamilycare Categories - - - - its children),inMay2013. si prendecuradeisuoibambini(Thecitytakescareof The finaleventwasanationalseminartitledLacittà around threetopics: to careforchildren.Thereflectionwasorganised whole city,aroundthemainthemeofability to involvenotonlythemunicipaleducators,but Even morethaninthepreviousedition,aimis guide ofthenewcitycouncillorFrancescoCappelli. taken place,duringtheyear2012/13under hood issues.Asecondedition(May13)hasalready for continuativeparticipativereflectionaroundchild- municipal administrationunderstandsitasaspace May 12isnotintendedtobeasporadicevent:the > > > > > > and culturaldisadvantages. Bambini comunque plurality) onmulticulturalism. Vivere insiemenellapluralità(Livingtogetherin community”. role offamiliesandhowtocreatean“educating their organisation,costsandfeatures,onthe the knowledgeofdifferentservicesavailable, the relationshipbetweenchildrenandcity,on Milano eisuoibambini (Childrenanyway)onsocial (Milan anditschildren)on 191 IT Categories Milan Neighbourhood revitalization / Housing

35/77 Fondazione Housing Sociale

35.1. Short description

The Fondazione Housing Sociale (FHS) has been chosen as a case on innovation in housing policies in Milan even if Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities its scope is regional and now, as will be explained, national. It is a pioneer experience that gave birth to the first ethical fund for social housing in Italy, anticipating ad hoc legislation and policymaking that has undergone a scaling-up process. It is considered to be a very interesting case by policymakers and by public and private stakeholders, because FHS expanded its activities since its creation and has been replicated around the country. Here we will describe its genesis and development, focusing on a plurality of aspects, each of which can be considered as an innovation in local welfare, even if there are some critical aspects. So, the FHS will be presented as a whole, then we will focus on the description of the developed social funds, and, finally, we will illustrate very briefly some of the social housing projects launched by the foundation. Our analysis is based on interviews, internal and public reports, articles and other available materials on the web. The FHS case has to be shortly contextualised. In the past years, a new form of social housing emerged in the Italian market. Contrary to what happens in other countries, until the beginning of the decade “social housing” was implicitly intended as the “public” component of this policy field. In many cities characterised by highhousing or rehousing needs, many private housing initiatives have been developed to cope with (or to try to cope with) the scarcity of dwellings devoted to low and middle-low incomes, normally through the constitution of cooperatives and associations that promote self-building activities, buy and restructure private buildings for rent or sell at lower prices and get concessions from public agencies to remould and manage entire buildings with the same aim. Fol- lowing local experiences, law 244/2007 defined a new typology of dwellings defined “residence of general interest destined to location”, non-luxurious real estate localised in municipalities with “high tension housing needs” and bound by contract to at least 25 years renting destination. The law introduces an important principle: dwellings destined to long-term renting, even if private, represent an economic service of general interest. They can be privileged by tax exemptions and by planning and economic support by public stakeholders (ANCI 2010). One year later, The Ministero degli interni with the decree 22 April 2008, defined social dwelling (alloggio sociale) as “a unit for residential use in a permanent location aimed to reduce housing problems for individuals and disadvantaged families, who are not able to access to renting housing solutions in free market conditions”. The definition of “social housing“ in the decree is quite general and can be actuated through: the imposition of a minimum number of dwellings rented at a “fair rent“ for builders that use lands prior devoted to “standard services“; the free assign- 192 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Fondazione Cariplo.Theinitiativethustookconcrete the potentialofethicalinvestmentproposal Department of the Milan Polytechnic (DiAP) confirmed study carriedoutbytheArchitectureandPlanning and privateinstitutionsstakeholders. range of investments (andnolongerongrants) ing instrumentsbasedon dation decidedtoexperimentwithinnovativefinanc of resourcesavailableintheformgrants,foun bani 2007,Urbani2009).Awareofthelimitedamount grants tothird-sectororganisations(BarbettaandUr ex-convicts andex-drug-addicted),mainlythrough est segmentsofthepopulation(homelesspeople, realisation ofhousingprojectsdedicatedtotheweak housing conditionssince1999,contributingtothe Cariplo hasaddressedtheissueofdisadvantaged their community”(www.fondazionecariplo.it). of beingaresourcethathelpssocialand civilorganisationsbetterserve ciple ofsubsidiarity,anticipatingneedsandfulfilling itsspecialmission tradition. FondazioneCariploaimsatoperatingonthebasisof prin mio delleProvinceLombardetocarryonitslong-standingphilanthropic 11 It “managestheassetsgatheredover 180yearsby foundation specifictoItaly,setin1991 These foundationsareakindofprivate,grant-making the largest“foundationwithabankorigin”inItaly. FHS wasfoundedin2004bythe addressing users 35.2. Conceptions andways of in thiseffort. with newstakeholders,traditionalonesareinvolved in ordertoenlargetherental that aretryingtopromotepublic–private thanks tothe big citieswhere“trialsofinnovation”aretakingplace, private marketisgrowing)andbecauseitoneofthe number offamiliesthatcannotaffordtogetintothe shortage ofaffordabledwellingsinthecityand Milan becauseofneedspressure(thereisanacute The issueof“ Gaimo2011). investment. (Baldini2010;PlebaniandMerotta2011; ethic investmentaimsandacceptlowerreturnson involvement ofprivatestakeholdersthatprivilege urban taxexemptionsand,lastbutnotleast,the case lowerthatprivatemarketrates)plusmunicipal dwellings onlydevotedtorentatfairvalues(inany ment ofmunicipallandimposingtheconstruction Milan IT social housingprojectsinvolvingotherpublic social housing”isquiteimportantin development ofawebstakeholders sustainability andethical housing stock.Along Fondazione Cariplo, 11 to expandthe . Fondazione Cassa diRispar- partnerships Neighbourhood revitalization/Housing Categories A feasibility - - - - - according toinstitutionaldocuments: The socialhousingprogrammehasadualidentity, implement theprogrammeitself. ation ofthe form inthe neighbours) andtothe who aredirectlyinvolvedin the projects(asusersor tion ofpositiveand special attentiontoproximity services,tothepromo hood inwhichitsactivitiesareinserted,thanksto standard oflifeforresidentsandthe model ofurban building ofnewhouses,butabovealldevisinga Such commitmenthasalsomeantpromotingthe residents’ empowermentandtheir in theirinstitutionaldocuments)isalsoto The missionoftheFHS(atleastinwhatisdeclared to standintheprivatemarket. housing andatthesametime,arenotfinanciallyable the greyarea,thosewhoarenoteligibleforpublic to promoteaccesshousingbythosewhoarein steps inwithalong-termstrategyintendednotonly buy, tobehomeowner.Itisinthisscenerythat rental houseshasarisenbythepopulationunableto houses (morethan80percent),astrongdemandof of Italianfamilies.AlthoughmostItaliansowntheir and notaffordable)theactualeconomicmeans supply (dwellingsinthefreemarket,mostlyexpensive the problemofgrowinggapbetween “modern housingpolicies”intendedasaresponseto an innovativestakeholderinthefieldofso-called active memberintheItalianrealestatepanoramaas association ofLombardymunicipalities),theFHSisan ed bytheLombardyRegionand Created in2004by 12 http://www.fhs.it/eng.pdf (FHS website) partners foraddressingtheissueof sector andprivateoperatorscanbecomeeffective show howpublicadministrations,thenot-for-profit new organisationalpropositionsandmodelsthat produce notonlyinitiativesbutalso,andespecially, on theother,itisaninstitutionalenterpriseaimingto provide thenecessaryguaranteestoprivateinvestors; the definitionofrobustmanagementmethodsthat very significantlevelsofinvestmentandthusrequiring on onehanditisaneconomicenterpriseprovidingfor social housingprogrammeandthecre Fondazione HousingSociale development propertoensureahigh 12 Fondazione Cariploandsupport solidarity relationsamongthose development ofsocialpro Anci Lombardi social integration. housing needs , institutedto neighbour ensure housing a (the FHS - - - - - 193 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities grammes devoted to facilitate and improve cohabita- documents, “another portion of the fund is allotted to tion conditions. supporting projects inspired to the principles of the The work of FHS developed along three main axes: ‘ethic estate finance’, which specifies that no invest- promoting ethical financinginitiatives, and in par- ment should be made in projects of buildings used for ticular, real estate funds dedicated to social housing; the trading and stocking of weapons, tobacco, alcohol 13 testing of innovative, non-profit management mod- and similar items” . els; and developing project design instruments to be The ethics of the fund was related to the fact that it shared among all sector operators and promoting was devoted to “non-speculative investors”, assuring public–private partnerships to develop their initiatives yearly returns in the range of 2-4 per cent plus in- complementing the existing public housing policies flation. These investors have been defined in inter- and substituting them. views as “patient investors” (but also in the literature: The first endowment byFondazione Cariplo permitted Giamo 2011). The fund has a lifespan of 20 years and FHS to move the first steps into the real estate world its management has been assigned to Polaris SgR and thereby create an ethical fund, the Fondo Abitare (savings management firm) as indicated by legislation Sociale 1, in 2005. It is limited to institutional inves- for all real estate funds; while the follow-up of social tors such as public institutions, big firms and bank purposes obtained through the fund itself has been Fondo Abitare Sociale 1 foundations. Its purpose was to finance the building entrusted to FHS. The has of apartments and services to solve tenants’ housing been financed with 85 million euros by the following Fondazione Cariplo, Regione Lombardia, problems, supporting the public administration and investors: Cassa Depositi e Prestiti14, Banca Intesa San Paolo, Banca the third-sector agencies’ efforts in this direction. Popolare di Milano, Assicurazioni Generali and Cassa The fund’s aim was to give birth to affordable dwellings for students, elderly people, one-income families, 13 http://www.fhs.it/eng.pdf migrants, young people, and more generally, those 14 http://www.cassaddpp.it. Cassa Depositi e Prestiti (CDP) is a joint-stock who cannot afford market prices to cope with their company under public control, with the Italian government holding 80.1 per cent and a broad group of bank foundations holding 18.4 per cent, housing needs. According to what is stated in FHS the remaining 1.5 per cent in treasury shares. 194 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities projects thathave astrongsocial 2013 the that lack2or3millioneuros inmostcases.Frommid initiatives bylocalfundsand agenciesaroundItaly 60 percentofinvestmentin ordertounlockplanned (mainly tothecreditcrunch), 2012, duetothecurrenteconomicandfinancialcrisis along withlocalfunds(astheFILone).FromJune each localinitiativeorsocialrealestate more than40percentofitstotalcapitalinvestedin tate, and,untilJune2012itcouldparticipatewithno more than3years.Itwillinvestexclusivelyinreales a lifespanof35yearswithpossibleextensionno 888 millionbybankingandinsurancegroups.Ithas Italian InfrastructureandTransportsMinistry; given by 2 billionand28millioneurosbyMarch2012;1 very wide(theentirecountry)anditscapitalreached (edilizia residenzialepubblica) free marketbutarenoteligibleforpublic of housingdemanders”,thosewhocannotaccessthe above andasstatedbyinterviewees,“thegreyarea ing policies. ing public(national,regionalandmunicipal) for rentingandselling,supportingintegrat to incrementthesupplyofaffordable FIA investandwillin and theiractivities. launching andsupportrealestateclosed-endfunds one BancariaItaliana,orABI),tobuildaplatformfor Cariplo) andtheItalianBankAssociation(Associazi ACRI -actuallydirectedbythepresidentof azione diFondazionieCasseRisparmioS.p.A S.p.A., theAssociationofBankFoundations( Investimenti SgRpromotedby Investimenti perl’abitare”(FIA)managedbyCDP “A NationalRealEstateFundSystem”called“Fondo further developedwiththecreationin2009/10ofa The wholesystemofsocialandethicalfundshas by PolarisSgR. vestimenti perl’Abitare and othernewinvestorssuchas FHS, alongwiththesamepartnersoffirstfund (FIL), participatedmainlyby into anewfundcalled In 2006theAbitareSociale1fundwastransformed respectively (FondazioneHousingSociale2009). Italia andPirelliwith2.552.45millionofeuros, Geometri with10millioneuroseachandTelecom Milan IT Cassa DepositiePrestiti participation canreach80per centincaseof Thetargetofitsactivitiesis,aswritten (seenextparaghaph,managed Fondo ImmobiliarediLombardia social housing Fondazione Cariploand . Itsgeographicalscopeis participation couldreach Cassa DepositiePrestiti ; 140millionbythe Prelios andFondoIn- orientation. housing, both development housing Neighbourhood revitalization/Housing Categories initiatives Fondazione Associ hous- ., or - - - - structure ofprivate offices, the“financearea”,focusedonfinancial Until 2011-12,FHSwasorganisedintotwomain modes of working 35.3. Internal organisation and calls “sustainablecommunities”. its housing nity will finallyfocusitsattentionin“developing system ofethicfundsissolid,FHS,seatedinMilan, tegration, servicesand ensure, throughitsaction,goodlifeopportunities,in – particularlyinfavouroftheweakestbutalsoto mote theencounterofdemandandsupply of housing bator ofhousingpolicies”,thereforenotonlytopro be, asstatedbytheprojectmanagerofFHS,“anincu national atlocallevels.NowadaystheFHS’saimisto isation andcapacitytooperateasapolicymakerat Fondazione Cariploishugeintermsofscope,capital The evolutionoftheinitialinnovativeideaFHSand with a“coaching”andsometimes,“scouting”role. operate asatechnicaladvisorsformanyofthesefunds, billion euros.FHSandPolarisSgRhavebeenaskedto for investment managementcompanies(throughoutItaly local realestateethicalfundsmanagedbydifferent tively inspiresthepromotionandorganisationofnew Currently, withintheNationalFund(theFIA),FHSac- legislation isveryrecent). social housing(ithastobeconsideredthatalsothe corpus ofpolicies,instrumentsandissuesfor specific competencesinthisprettynewandcomplex internalised by of theFIA,financeareahasbeenabsorbedand and thelegislativeframework).Withcreation service design,urbananalysis,redevelopment management and projects (e.g.design tectural designandalsoonthesocialaspectsof development area”,specialisedinurbanandarchi real estatemarketanalysis);andthe“planning planning, strategicpartnersearch, negotiation support,financialstructuring, procedures (preliminaryanalyses,feasibilitystudies, on themanagementofassociatedimplementation social housingprojectsproposesaprocess of The integratedmanagementplan envisionedforthese initiatives with an aggregate value of more than 3.5 initiatives withanaggregatevalueofmorethan3.5 welfare programmes”(asstated ininterviews) initiatives. Itwillfullyexperiment whatFHS Cassa DepositiePrestiti participation, occupantselection, social housing guidelines, localrelations,social housing quality.Nowthatthe In theirwords: initiatives and governance and , whichneeded commu- com------195

munity building mainly addressing accommodation A brief presentation of the Milan projects developed needs. The inclusion of people in disadvantaged cir- by the “Fondo Immobiliare Lombardia” (FIL) will give cumstances is also favoured via specific projects that some idea of how the interaction of the local welfare not only help meet the needs of their direct beneficiar- system takes place. It has to be considered that all ies but also help strengthen the community identity, these projects are developed with the Milan munici- the network of interpersonal relations, and a shared pality in different kinds of partnership (use of public feeling of a more sociable living dimension. This sce- land, use of other public resources and institutional nario entails the objective of achieving an appropriate support) and that buildings are designed to ensure social mix, i.e. a heterogeneous and balanced com- high energy technology and energy standards at a munity including disadvantaged segments and a good reasonable cost of construction and maintenance. range of diversity, implementing instruments and The actual projects that are being developed (in organisational methods that facilitate the manage- construction if ex novo buildings or in action if implement of cohabitation and community functions and mented re-using spaces) are Cenni di cambiamento, safeguard its components. The social mix must be ac- Figino Borgo Sostenibile, Maison du Monde 36, Abit@ companied by a functional mix incorporating a variety giovani. Each of them is based in a different public– of services into the residential context, contributing private arrangement and try to respond to different to improving the quality of life and ensuring services social/housing needs. It is important to point out that in the territory, oriented especially to help the most most of these projects have yet produced lived-in vulnerable. The development of a sense of identity and spaces; people have not yet entered the social hous- membership in the place where one lives is considered ing buildings. Only Cenni di Cambiamento have been to be one of the most critical elements in providing inaugurated in November 2013 and residents moved incentives for active participation in community life, in. All these projects aim to develop communities of transforming the residents from simple beneficiaries residents that organise themselves to manage their Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities of a service into active players in the determination of spaces and common life. The core idea is that this can the quality of their condition and their context happen when people know each other and with the (FHS website) help and support of social managers that can “ac- company” residents to share some activities. All the projects are also based in the co-opting of an organi- 35.4. Interaction with the local sation that functions as “social manager”. welfare system Cenni di cambiamento FHS’s challenge is therefore complex: to encourage different stakeholders towards common goals, attract- Cenni di cambiamento means “signs of change” in Ital- ing investments for social housing projects, monitoring ian. Cenni is also the road in which the social housing their results and developing management sustainable intervention is located. The title of the project plays models that can be replicated in other contexts than intelligently with words and “speaks” about its philos- the Milan or Lombardy one. Looking for sustainability in ophy. It was one of the first building realisations of the Italian context means mainly finding economic and FHS, 124 flats in the western part of the city. The main financial conditions that make social housing projects targets are young people, intended as newly formed attractive not only for dedicated stakeholders (as FHS) families or singles who have just left their family. or public ones, but also to private stakeholders. In this On the ground floor there will be premises assigned sense, FHS need and want to be fully embedded in the to social and community businesses, designed to local welfare system, aware that its projects need to be improve quality of life and to encourage social contact supported by local authorities and partners that have among residents. The core of the project is the inner (by mission or by convenience) the same long-term ho- court, meant to become a small park and open to rizon for investments. According to what is declared in residents of the district, which includes playgrounds, institutional materials and in interviews to FSH and Fon- a resting area and pergolas. On 30 March 2012, the dazione Cariplo executives, innovation is such when it apartments started to be assigned on the basis of a becomes a practice and such practices may be followed rent of 5000 euros for a two-room flat per year (that is by action models acquired by policymakers. less than 500 euros per month), thereby allowing low 196 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 15 The siteoftheproject is:www.maisondumonde36.it to integrativeservicesresidents. people; andcommercialspacesdevoted home andfamiliesthatareavailabletohostdisabled with manychildren,professionalsthatworkfrom of 320apartmentstotargetyoungcouples,families relations. Theprogrammeconsistsofthebuilding neighbourhood andsupportinformalpositivesocial dimension ofaborgothatstillcharacterisesthe This projecthastheaimofvalorisingsocial Figino Borgo Sostenibile 2011 andwillbefinishedbyMarch2014 office onthegroundfloor.WorkstartedinDecember for living”,twocommercialspaces(forshops)andan as wellcollectivespacesfor“integrativeservices newed, fiftyapartments(differentsizes)willbemade, housing quality.Thehistoricalbuildingisbeingre new public–private sustainable modelof Via Cenni,buildingandimplementinganeconomically memory” ofthisplace.Thelogicisthesameasthat already livethere,andthatconstitutes“thehistorical also toofferbetterlivingconditionsthosewho cannot copewithfreemarketprices.Theprojectaims and researcherswithtemporaryhousingneedsthat to youngcouples,migrantfamilies,students,workers planned tooffer50apartmentswithaffordablerents oriented streets(andneighbourhoods)inMilan.Itis ed in This project’saimistorecuperateabuildinglocat MAISONDUMONDE36 activities forandbyneighbours,soon. such astakingcareofchildren,supportingvoluntary created topromoteself–organisedpersonalservices, this specifictargetandaresidents’associationwillbe of possiblestay).Fiveapartmentswillbedevotedto young people,fortemporaryhousingneeds(2/3years (a historicalandveryactiveassociation)afoyerfor ni will be developed in cooperation with “ARCI will beDARCasa,athird-sectorhousingagency.InCen- rent-to-buy formula.ThesocialmanagerofViaCenni Almost halfoftheapartmentsareproposedwitha rents (publiclyregulated)andhigh Milan IT Via Padova , n.36,oneofthemostethnically governance anddevelopinggood social housingexperimenting housing quality. 15 . Neighbourhood revitalization/Housing Categories Barabba” - - services tofutureresidents. the availabilitytosharetimeandcommonspaces the philosophyofprojectthatasks,hereagain, couples haverespondedtoit,insomewaysharing for thefirstapartmentsandmorethan500persons/ In thefirstpartof2013acallhasbeenlaunched ples musthaveacombinedageoflessthan70years. Single adultsmustbeamaximum35yearsold,cou buy theseapartmentsattheendof8-yearperiod. a rent-to-buyscheme).Residentswillbeallowedto is embedded(iftheywish)abuyingcomponent(in young peoplewhowillpayanaffordablerentinwhich by thepartners.Theywillberenewedanddevotedto in thecity.Thefirst250havebeenalreadyidentified objective oftheprojectistoidentify1,000dwellings who worksinthecitymany original ideaofDonGinoRigoldi,awell-knownpriest reasons, arenotusedorempty.Itstemsfroman the public recuperate andvalorisesingledwellingsbelongingto the city,andwithMilan FHS withALERMilan,thepublic housing project”.Itisanewprojectdevelopedby Abit@giovani (www.abitagiovani.it)isa“diffused Abit@giovani housing stockthat,formanyanddifferent municipality. Itsaimisto welfare services.The housing agencyof social - 197

Conclusions The experience of Fondazione Housing Sociale (section 2.3) and its pioneer ethical fund for social hous- The cases of innovations presented here cover three ing is a very innovative case in the Italian panorama. areas of policy: income support and professional As explained, the creation of a special agency to de- reintegration; early child care and education; and velop social housing projects, detached from the bank housing. A few elements emerge as relevant in all foundation (Fondazione Cariplo) enabled the plurali- cases considered. sation of activities and a call for the participation and A first major issue at stake appears to be the amount funding of strong institutional/financial stakeholders of available resources as opposed to increasing and and put the issue/problem of lack of affordable and changing needs, a trade-off that the economic crisis good accommodation on the local scene. The most and consequent austerity plans have sharpened. positive aspects of this experience (that needs to be Social innovation also stems from the need to use developed further for definitive conclusions in terms scant resources differently, and/or not to abdicate to of sustainability) was the alignment of FHS policies to reflection aroundwelfare issues because of the lack public ones, the enactment of public–private partner- of resources. In the FWA case (section 2.1) an innova- ships and resource pooling, the development of new models of social housing oriented to high building tive feature has been the aim to implement a circular use of available capital. In the M12 case (section 2.2), standards and to focused social mix criteria (which is on one side one observes the successful attempt of possible because of the derogation of public dwell- the municipal administration to unblock the use of ings allocation criteria) and, above all, the scaling up available funds frozen by the rules of the stability of the first ethical fund, which now is much wider and pact, and to also put to good use meagre residual richer and the inspiration given to other contexts and funds, to implement small-scale projects. On the oth- groups of stakeholders around Italy. Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities er hand, it has aimed at initiatives that were low-cost The case of FHS has to be read considering that it is from the economic point of view, but that promoted backed by a very big and rich institution. Fondazione participation and public debate in view of a rethink- Cariplo is the second biggest foundation in economic ing of the approach to, and a reorganisation of, the terms in the world, following the Bill & Melinda Gates services’ system. Foundation. All the critical events of FHS could count Cariplo A second element is in fact about participation and on the resources of , both financial as well as empowerment. In the FWA micro-credit project this is more intangible ones. Moreover, FHS could use some a major element, in that recipients are helped to over- of the last empty plots to develop its projects, thanks come a transitory difficult moment mobilising also to conventions with the Municipality of Milan. Social their own resources and being responsible of their housing initiatives need in general a complex mon- personal project. In M12 the empowerment element tage and the participation of different stakeholders is understood as inherent in the wide involvement of to be attractive and compatible for private and public citizenship in the participative path that aims to give aims at the same time. Some observers state that FHS voice not only to the expression of needs, but also of and the FIL are using their resources very slowly and proposals and resources. that they are not risking enough to produce affordable dwellings, that they are using (as other operators) A third element refers to inter-institutional and spatial public resources (mostly public land) to produce too relations. The difficulties of the Italian incomplete small proportions of housing to rent. Some critiques federal reform are evident in the conflicts among are more profound in the sense that they accuse local, intermediate and central levels on the release of subjects like FHS of draining scarce public resources resources, on the definition of priorities, on the distri- from the most needy and deprived in the housing bution of competences. The announced but never-ac- market. In a context of scarcity of resources for this complished reform of metropolitan areas leaves also policy sector, it is very difficult to cope with differenti- the services and projects analysed here in an institu- ated needs. tional limbo that reduces the potential synergies and scale effects in the use of (always scant) resources. 198 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities risks: consequences forchildren”,inLewis, J.(ed.) Jenson, J.(2007) nostro futuro”, Guida, M.G.(2012) 10-11. risorse, soggettieprogettualità”,Urbanistica,242,pp. Gaimo, C.(2011) Harvard BusinessSchoolPress. Gardner, H.(2007) sociale. Online.AvailableHTTP:www.finlombarda.it 1. Primofondoimmobiliareeticodedicatoall’housing Fondazione HousingSociale 17-22. in Italia:sfideeprospettive”, Ferrera, M.andMaino,F.(2011) ty Press,pp.26-67. we NeedaNewWelfareState,Oxford:OxfordUniversi investment strategy”,inEsping-Andersen,G.(ed.) Esping-Andersen, G.(2002) Report. Costa, G.andSabatinelli,S.(2013) tent/uploads/2013/04/WILCO_WP3_Milan_23.pdf) WILCO Publication23(http://wilcoproject.eu/wp-con Costa, G.andSabatinelli,S.(2012) Publication 02. Italy: Housing,EmploymentandChildCare Costa, G.andSabatinelli,S.(2011) Internal report,5December2012. Bramanti, V.andSpina,F.(2012) Mondadori. ere, lavorare,ProdurreNellaCittàInfinita,Milan:Bruno Bonomi, A.(2008) Venice: Marsilio. Politiche ImmobiliarieInvestimentinelloSviluppoLocale le fondazioni”,inRigon,A.&Sbetti,F.(eds) Barbetta G.P.&UrbaniS.(2007) Mulino. Baldini M.(2010) line. AvailableHTTP:www.anci.it(April2011). Domande Sociali,gliAttorieStrumentiOperativi.On ANCI (2010) References Bibliography Milan IT IComunielaQuestioneAbitativa.LeNuove Bambini, 28,5,EdizioniJunior. “TheLEGOparadigmandnew social LeCaseDegliItaliani,Bologna:Il “Edilizia socialeepianourbanistico: MilanoaiTempiDelleMoltitudini,Viv “Bambinidioggicostruttori del , Cambridge: Five MindsfortheFuture,Cambridge: (2009) “Achild-centred Italianieuropei, 3,pp. “Il‘secondo “L’housingsocialee , MicrocreditoFWA. FondoAbitareSociale WILCOWP4Milan CityReport:Milan LocalWelfarein , WILCO Fondazioni, social welfare” Why

, - - - - , Websites Press Limited. Yunus, M.(1998) Market eRealEstate,Milan:Egea. sociale”, inDelliSanti,R.&Mantella,S.(eds) Urbani, S.(2009) ni/intervista-guerinoni.html http://www.secondowelfare.it/terzo-settore/fondazio Ambrosiano: laparolaaldirettoreRomanoGuerinoni, Percorsi SecondoWelfare(2011) 2011. presented atthe Lombardy solutiontofinance Plebani, F.&Merotta,V.(2011) Bristol: PolicyPress. Investment WelfareState?Ideas,PoliciesandChallenges, Morel, N.,Palier,B.&Palme,J.(2011) fondazioni/fondazione- gio 2013,http://www.secondowelfare.it/terzo-settore/ Ambrosiano”, in Mallone, G.(2011) Angeli. Welfare Ambrosiano,FuturoCercasi Lodigiani, R.(2010) ham: EdwardElgar,pp.27-50. Children, ChangingFamiliesandWelfareStates > > > > > > > > > > > > > > > > www.maisondumonde36.it www.fwamilano.org http://www.fhs.it/eng.pdf www.fhs.it www.fondazione http://www.cassaddpp.it www.arci.it www.abitagiovani.it Percorsi diSecondoWelfare “I fondiimmobiliariperl’edilizia Banker tothePoor,London:Aurum ENHR Conference “Inaugurata la Rapporto SullaCittà.Milano2010. cariplo.it welfare-ambrosiano.html social housing”,paper “Ethicalsocialfund:a FondazioneWelfare Fondazione Welfare , Toulouse,5-8July , Milan:Franco TowardsaSocial , 18mag Capital , Chelten - - -

NL The Netherlands Amsterdam

Francesca Broersma, Joost Fledderus and Taco Brandsen (Radboud Universiteit Nijmegen) 200 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Sustainability Social enterprise Participation Local welfare Local governments Housing corporation Diffusion Citizen initiatives Activation Keywords: Local background of thesocialinnovations Introduction Amsterdam NL dam, and 4,400 euros in Utrecht and The Hague). dam, and4,400eurosinUtrecht andTheHague). be 7,900eurosperinhabitant inAmsterdam,against6,400euros- inRotter eleven civilservantsper1,000 inhabitants(thecostofwhichwasestimatedto inhabitants inAmsterdam,whileotherlarge municipalitieshadanaverageof 2012 (Berenschot,2012)claimed therewerenineteencivilservantsper1,000 other largemunicipalityintheNetherlands:astudythatwascarried out in ber ofcivilservantsinAmsterdamisproportionatelystillhigherthanany ty fortheadministrationandinsecurityamongitscivilservants. Yetthenum- whole seriesofreorganisations,which,everytime,cause asenseofambigui- and budgets.Amsterdamcitydistrictshavethusbeengoingthrougha they areresponsiblefor,butintermsofhavingseparate councils, aldermen terms oftheterritorialboundariesthattheyrepresent,nor ofthetasksthat there isadiscussionabouttheeliminationofcitydistrictsalltogether–notin number ofcitydistrictswasreducedfromfourteentoseven,andcurrently tricts, allofwhichhadtheirowncouncilandaldermen.In2010,however,the others werefusedtogetheragain,until,by2002,therefourteencitydis- 1980s. Throughoutthe1980sand1990smorecitydistrictswerecreated, ( Another importantfeatureofAmsterdamisthatitdividedincitydistricts everyone is,aboveall,an“Amsterdammer”. that, regardlessofone’ssocio-economicstatusorculturalbackground, based ontheconceptsof“diversity”and“ that aremadeinthecityof deep-rooted beliefthathasasignificantinfluenceonthepoliticalchoices the 1990s,ideathatequalityisabasicsocietalfoundationremains Although theLiberalPartyhasbeenpartofmunicipalcoalitionsince municipal politicsinthesensethat“everyoneshouldbetreatedequally”. and, accordingly,thevalueofequalityhaslongplayedacriticalrolewithin underlined, itisthePvdAthathaslongbeencallingshotsin been amemberofthePvdAeversince.AsseveralintervieweesWP4also since theendofsecondworldwar,andmayor van deArbeid, One characteristicofthecity the wayinwhichthesedevelopatlocallevel. cussions forwhatareconsidered“socialinnovations“in regulations withwhich trends towhich history, mentalityandstructure,therearebroader(national/European) in aninternationalcontextandtheDutchcontext.Despiteitsparticular age ofbeingan“avangardist”citythattriestoremainaheadtimes,both tolerant andprogressivecapital, having itsownparticularities.Internationallyrenownedasanopen-minded, wants todothingsinitsownway,andindeed,itisacitythatkeenon In theNetherlands,itisoftensaidhow city districts were established at the beginning of the stadsdelen). Thefirstcitydistrictswereestablishedatthebeginningof (Radboud UniversiteitNijmegen) Francesca Broersma,JoostFledderusandTacoBrandsen, Authors orPvdA)hasbeenthelargestpartyinmunicipalcouncil Amsterdam isnotimmune,aswellnationalpoliciesand Amsterdam toohastocomply.Allofthisreper Amsterdam. Municipalintegrationpolicies Amsterdam isthattheLabourParty( Amsterdam alsostrivestoupholdthisim Amsterdam is“arrogant”andalways citizenship” alsostressthefact Amsterdam and Amsterdam has Amsterdam Partij - - 201

In functional terms, city districts hold a position that a change of culture, but that always stays focused on is very similar to that of any other municipality,and, obtaining concrete results. especially, they carry similar responsibilities regard- Another national trend that has affected the way in ing the provision of local welfare services/facilities. which welfare is implemented at the local level is the Hence, depending on the coalitions within the district continuing decentralisation of welfare (and in particu- councils, city districts can also set their own priorities lar care) policies from the central government to the and give their own twist to the way in which certain municipalities. Next to the complete decentralisation welfare provisions are provided. On the one hand, of youth care services, more and more caregiving the formation of fairly autonomous districts within a services that used to be part of the “General Act on larger municipality enables these districts to provide Special Healthcare Costs” (Algemene Wet Bijzondere more “personalised” services by focusing on the provi- Ziektekosten, or AWBZ), and thus a (financial) respon- sion of specific services that are deemed necessary in sibility of the central government, have been included a particular area. On the other hand, this means that in the Law of Societal Development (Wet Maatschap- in every district there are different services, differ- pelijke Ontwikkeling, or WMO) and are now the ent ways of organising these services and different responsibility of municipalities. Although the central welfare organisations providing these services. To government supports local governments with these this day, there is a particularly large number of actors transitions, in times of crisis and increasing budget re- involved in the provision of welfare services and the straints, this basically means that municipalities have organisation of welfare within Amsterdam is rather to do more with less. Furthermore, the WMO – a law compartmentalised. that concerns the provision of services for citizens in A national policy that clearly marked the way in difficult conditions, such as, for example, the elderly, which Amsterdam implements welfare policies at people with a handicap or psychological problems, Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities the local level is the “Neighbourhood Development but also people with financial problems – stipulates Programme” (wijkaanpak) that was launched in 2007, that citizens should have an independent life and par- following which a selection of disadvantaged neigh- ticipate in society as much as possible. To achieve this bourhoods in Amsterdam was classified as a so- purpose, municipalities are free to set their priorities called “attention area” (aandachtswijk or krachtwijk). wherever they feel there is a more stringent need for Major regeneration projects have been carried out support. So far, generally, the municipality of Amster- in these neighbourhoods ever since. The approach dam has been responsible for the individual provi- of the wijkaanpak is an integrated, more holistic sions that were part of the WMO and the city districts approach towards neighbourhood regeneration: have been responsible for the collective provisions. besides improving the physical environment, the Recently, in response to the decentralisation process- wijkaanpak aims to enhance the broader “liveability” es that are supposed to be completed by 2015, the (leefbaarheid) in disadvantaged neighbourhoods, i.e. municipality introduced a “new vision” of the WMO: to improve the social and economic environment too. the so-called “New Style of Welfare” (Welzijn Nieuwe Municipalities were granted additional governmental Stijl). This vision is based on more self-responsibility funds for the implementation of the Neighbourhood and self-reliance - it expects the people of Amsterdam Development Programme, although housing corpo- to look more for possible solutions to their problems rations are largely responsible, both financially and within their own networks. Hence, the focus is now logistically, for the completion of the programme. At on collective provisions and informal support mech- the same time, in the wijkaanpak, citizen participation anisms – which are “happening” at the level of “the is key. Moreover, it encourages actors at the local neighbourhood“. level to engage in new partnerships with other actors In summary, due to the particular structure and that are operating within the same neighbourhoods. history of the city of Amsterdam, it has an exten- wijkaanpak Finally, as the programme manager of the sive and intricate network of separate and rather at the municipal Service for Societal Development compartmentalised actors involved in the provision Dienst Maatschappelijke Ontwikkeling ( , or DMO) also of local welfare services. Every district has its own wijkaanpak underlined, the is meant to be a learning (welfare) programme and organisations, and, due to experience, open to experimentation, that promotes the availability of sufficient funding/subsidies, all of 202 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities culture, butalsotheirentireapproach. reconsider notonlytheir(traditional)organisational services inAmsterdamareincreasingly“forced”to the organisationsinvolvedinprovisionof more targeted,andthusdiversifying,policies.Hence, sure” hasalso“madeway”fortheintroductionof efficient manner.Atthesametime,financial“pres societal problemsinamorecoordinatedand aged allofthevariousactorstojoinforcesandtackle wijkaanpak fairly independentlyfromoneanother.Recently,the these actorshavelonghadthepossibilityofworking Amsterdam NL andtheongoingbudgetcutshaveencour (Radboud UniversiteitNijmegen) Francesca Broersma,JoostFledderusandTacoBrandsen, Authors welfare -

- 203 NL Categories Amsterdam Neighbourhood revitalization / Housing Employment

36/77 Buurtbeheerbedrijven - Neighbourhood management companies Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities

36.1. Short description

Neighbourhood management companies (buurtbeheerbedrijven, or “NMCs”) in Amsterdam were an initiative of the housing corporation mere. In 2007, as part of the larger national Community Development Programme (“wijkaanpak”), it was decided that in a selection of so-called “problem areas” – or “aandachtswijken” - large-scale urban renewal projects were to be carried out: in these neighbourhoods, a significant part of thesocial housing stock was to be demolished and rebuilt or renovated and sold on the private market. At that time, it was expected that it would take 10 years to complete this transformation. Ymere, which owns a large (if not the largest) share of the properties in some of these “problem areas” in Amsterdam, feared that during the renovation period these neighbourhoods would deteriorate even further. Hence, Ymere decided to set up an easily accessible service point in those neighbourhoods, where tenants/residents could go to if they had any questions or problems. These service points – which then came to be referred to as NMCs – were going to perform additional maintenance tasks, on top of the regular maintenance services that were already provided by the municipality or housing corporations in those neighbourhoods, to keep them “clean, intact and safe” and to ensure that the “livability” (leefbaarheid) would not degenerate in these neighbourhoods during their renewal. At the same time, NMCs would address (youth) unemployment in the neighbourhoods, as they would be set up as learning/reintegration companies for residents with a distance from the labour market. The first NMC inAmsterdam opened its doors in 2009 and by now there are five of them in different parts of the city (Oost, Osdorp, Noord, Slotervaart and Landlust). Four years ago I got a call from a director (of one of the division of Ymere in Amsterdam), and he said to me “I want something in the neighbourhood , we are doing major renovations, and I saw in…” Where had he seen it? Arnhem I think. There they had these NMCs since longer already. “That’s what I want, I want something like that too”. That’s usually how things work with a director. I said: “That’s great Jan.” […] And that’s how the whole idea of NMCs started. It was not entirely new, because it already existed in Arnhem, and in Deventer too they had been working with them 204 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities neighbourhood; 2)a inside thedwellings(ownedbyYmere)inaparticular (klussenteam NMC comprisesfourdisciplines:1)atechnicalteam some NMCsaremore“advanced”thanothers),a (although thereareexceptionstothisas,atstage, a certaindistancefromthe provide learning/reintegrationplacesforpersonswith them “clean,intact,safe”and“livable”,theyall are goingthrough they allprovidemaintenanceservicesinareasthat The basicframeworkofalltheNMCsissame: group, i.e.theunemployed. or another.WeherefocustheonWILCOtarget unemployed areallusersoftheNMCsinoneway City districts, addressing users 36.2. Conceptions andways of the labourmarket. gration programmesforpeoplewithadistancefrom disciplines are(orcouldbe)linkedtolearning/reinte to forinformation/filingcomplaints.Allfourofthese dewerker) –whoresidentsofthat in the meesters bourhood “clean,intactandsafe”;3)caretakers( – whichhelpskeepthepublicspacesinthat (Project leader,Ymere) also wantanNMC“ and thenveryquicklyfourotherdirectorssaid:“we One directorhadsaidhewantedoneofthoseNMCs, before. […]Andwell,thenitbecamesuchasuccess… Amsterdam NL (Project leader, Ymere) let’s focusthoseonyoungpeople homes, soyouhavetomore socialskillstoo– require moreskills,andwhere yougointopeople’s we thought:hey,maybethetechnical teams–which you cannotturneverynickelintoadime.[…]Sothen join a (Ymere). Butthenitturnedoutthatthosepeoplewho profession. Andthentheycangetaregularjobwithus the technicalteam.Andthentheycanlearnareal and theniftheyworkwellcanmoveonto participate inoneofthose and then,toactivatethepeopletheywouldfirst Initially, theideawasthatpeoplewouldstreamin, neighbourhood; and4)areceptionist( ) –whohandlesocialandphysicalproblems neighbourhood team,well…toputitbluntly, ) –whichcarriesouttechnicalrepairs housing corporations,residentsandthe urban renewal,inordertokeep neighbourhood team( labour market.Generally neighbourhood teams, neighbourhood turn Employment Neighbourhood revitalization/Housing Categories wijkploeg) neigh balieme- huis- - - case, rather: are prepared to first “get back into the rhythm”. In this employment, the“users”of carry outaprofessionandoftenstreamintoregular “users” ofthetechnicalteamareactuallypreparedto too (step3onthe a relativelyshortdistancefromthe by theDWIto their thirtiesandforties.Thepersonsthataresent can beofanyage,buttheyoftenhappentoin teams arenotfocusedonyoungstersandparticipants Service (DWI)istryingto“reactivate”.Neighbourhood benefits andwhomtheMunicipalWorkIncome and tenpersonswhoarereceivingsocialassistance of aprofessional–frontmanandbetweensix Instead, the looking tohiremore“all-roundservicestaff”. much likemanyother will hirethemonaregularcontract,sinceYmere- programme, thechancesarefairlyhighthatYmere apprenticeship andiftheycompletetheeducational wage plus10percent.Iftheydowellduringtheir apprenticeship theyoungstersarepaidminimum collaboration withavocationalschool.Duringthe programme thathasbeensetupbyYmereitselfin that arefollowingan“all-roundservicestaff”training professional –amentor-andtwoyoungapprentices Today, thetechnicalteaminanNMCiscomposedofa ok”. And: “Ilike this”… There were alsopeoplethatsaid my bedagain”.Andtheydiscover: “hey,thisisactually - socialcontacts.“AndIhavea purposetocomeoutof something, thattheythensay: “hey,Ihavecolleagues!” people, becausetheyaresometimes semi-forcedtodo that workcanalsobefun.Soitisnicetosee, inactive foralongtime,thenyoucannotevenimagine It’s socialactivationyouknow.Ifhavebeen (Project leader,NM) And itworks,atleastwiththetechnicalteamworks to bemoretolerantwiththem.Sothat’swhatwedo. target groupforthat.Weallknowthat…thatweneed you cannottreatthemnormally.[…]Andit’snotthe normal company.Andtheyneedthat,because,well… difficult. Theyalsogetmorechancesherethanina going thewrongway.[…]Withapprenticestoo,it’s some problemswiththepolicemaybe,andtheyrisk schooling -thatdroppedoutofschool.Orhad a distancetothe And those(apprentices)areboysthat,well,alsohave neighbourhood teamsarecomposed neighbourhood teamsinNMCshave activation ladder),butwhilethe labour market,butmoreintermsof housing corporations-isoften neighbourhood teams labour market 205

at some point: “I want to do a horticulturalist course collecting rubbish, looking after green areas, etc.). because I want to do something with gardening”… But This kind of “exchange” with the city district occurs in that’s really per person. Some people think it’s ok as it all NMCs. However, as the NMCs also look for extra is, they just want to hang around (income-generating) maintenance jobs, they may seal (Project leader, Ymere) contracts with different types of clients too – depending on their location, in some NMCs the neighbour- Learning/reintegration programmes that are associ- hood team is able to carry out more “commercial” ated to the various disciplines of the NMCs are thus jobs for private owners/companies than in others. intended to stimulate people with a (relatively short) The housing corporation always supplies the leader/ distance from the labour market. By working in a mentor of the technical teams. In contrast, the front NMC, people have the opportunity to refresh basic men of the neighbourhood teams (and the recep- etc. skills - such as being on time, working in a team, – tionists, and the caretakers, and the project leaders but also to develop specialised skills and acquire new of the NMCs, for that matter) are supplied by social experiences so as to improve their chances on the enterprises that specialise in working with people labour market. who have a distance from the labour market. In It’s difficult, because they are people that have gone some NMCs, however, depending also on how the off track for a reason. And that do not work anymore. relationship is/has been between the local division of And have problems… So you have to take your time Ymere and the city district, the relationship between for this, to make the switch again, and tell them: “work the NMC and the city district is closer than in others. is important, for you, but also for the people around Subsequently, in the NMC in Osdorp, for instance, the you”. And that’s how we proceed, slowly slowly. […] city district supplies the front man of the neighbour- It’s maybe crude to say, but in the end these people hood team. Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities are usually dumped somewhere and they are just We’ve contracted partners that have experience in told: “do your thing”. […] And it is because we have a working with people with a distance to the labour different concept here, that we are able to assist them market. And that is a different partner in every neigh- better. Which is why they stay so long also. […] It’s bourhood , just to make things more confusing. […] important that we make it a broader experience (than Because we as Ymere are the initiators (of the NMC), simply collecting litter from the street), that one thinks: but we don’t have that much expertise ourselves to “Hey, do I like this? Do I want to continue with this?” work with people who have a distance to the labour And because we have so many different things to do, market. So what those partners do, they often deliver they usually like it. Not everything of course, but still a project leader, who is there every day, and they take they say: “yes, I actually do kind of like it here” care of the people in those neighbourhood teams. And (Project leader, NMC) Ymere sends one of their employees – the guy who normally drives around in a van and comes to fix your 36.3. Internal organisation and tap - that one is now hired by the NMC modes of working (Project leader, Ymere) In all NMCs, the recruitment of persons that take part Ymere provides most of the funding for all the NMCs, in the reintegration programmes linked to the neigh- but one of the conditions that was set by Ymere for bourhood teams goes via the DWI. The recruitment of the establishment of any NMC was that the respec- youngsters that join the technical teams as apprentic- tive city district be a partner in this kind of venture. es, however, may happen through different partners. Subsequently, arrangements have also been made Although all youngsters that become apprentices between all the NMCs and their city districts - the in the technical teams are enrolled in an “all-round city district gives a certain financial contribution to service staff” training programme, youngsters can be the NMC so that, in return, it can make use of the placed in such training programmes through various neighbourhood team for a certain number of hours. social enterprises. Depending on which social en- In this way, the city district is basically “hiring” the terprise is operating in a particular neighbourhood, neighbourhood team to do part of the (simple) main- different NMCs may recruit suitable youngsters for tenance tasks in public spaces (e.g. fixing pavements, 206 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities establishment ofNMCs. changes tothe this respect,therehaveperhapsnotbeenanyradical “take over”thefunctionsoftheseotheractors.In citizens. However,asyet,NMCsdonottrytoactually social enterprises,welfareorganisationsoreven from themunicipality,other (social) servicewithintheirneighbourhoods–bethey more actorsinvolvedthatareprovidingsomesortof In fact,NMCsareconstantlytryingtogetmoreand welfare system 36.4. Interaction withthe (Project leader,NMC) to another: organised canbesomewhatdifferentfromoneNMC target groups,thewayinwhichtheyareinternally Overall, whileallNMCshavethesametargetsand live inthe reintegration programmesbefilledbypeoplewho of staff–or“users”inallNMCsisthatthelearning/ The onecriterionthatisimportantfortheselection with adistancetothe kinds oforganisationsthataretryingtogetpeople and/or toitscaretakerscanbefilledthroughdifferent grammes thatarelinkedtothereceptionofNMC Similarly, thereintegrationorwork-experiencepro the technicalteamsviadifferentsocialenterprises. in Arnhemtheysaid“wearegoing todoallofthe regular maintenance(bythe additional tasksintheneighbourhood,ontopof ther. BecausewhatwedoinAmsterdamaremerely This isAmsterdam.InArnhemtheyare muchfur (Project leader,Ymere) stamp onit,thentheywillalsotellyou“it’syourthing work forthecitydistrict,andifyoureallyputyourown hoods tojoin.Butalsobecauseyouarecarryingout corporations thatareoperatinginthoseneighbour- Ymere’s flag,becausewealsowantedotherhousing We explicitlychosenottoexportthem(NCMs)under Amsterdam NL every neighbourhoodneedssomethingdifferent. that’s different…Every lar too.Buthowyouhandlethings,whattasksdo, everywhere. Andthesetup,intermsofstaffaresimi It canbedifferenteverywhere.Thegoalsarethesame There isnoformat,ofthepracticalthingsImean.[…] neighbourhood . local welfaresystemsasaresultofthe labour marketbacktowork. neighbourhood isdifferent,so housing corporations, municipality). While local Employment Neighbourhood revitalization/Housing Categories - - - local welfare”. the relationshipsbetweenactorsandorganisationsin citizens. Inthisrespect,NMCshavecertainly“altered districts, educationalfacilities,socialenterprisesand different actors,including innovative formsof the labourmarketinthoseneighbourhoodsrequired trying to(re)activatetheresidentswithadistance living conditionsincertainneighbourhoodswhilealso neighbourhood. Inpractice,tryingtoimprovethe in the of servicestogetherunderonename,inlocation, NMCs isthewayinwhichtheybringdifferenttypes However, forAmsterdam,theinnovativeaspectof already existedinothercitiesoftheNetherlands. “innovative” ifweconsiderthatsimilarcompanies of fact,thewholeideaNMCisperhapsnotthat places to(young)unemployedpersons.Asamatter sations/companies offeringlearning/reintegration Likewise, therewerealreadymanyotherorgani bourhoods longbeforeNMCswereevercreated. caretakers werealreadyoperatingintheseneigh repairmen, “clean,intactandsafe”services, perhaps notexactly“innovative”services:technical As fortheservicesprovidedbyNMCs,theseare maintenance service providersthatwerealready a waynottobeperceivedas “competitors”byother city districtswassomewhat difficult. NMCshadtofind process. Initially,forinstance, the the organisationofNMCsis a continuouslearning concept hasbeeninconstantevolution;practice, Since thefirstNMCstartedin 36.5. Development anddynamics (Project leader,Ymere) the establishedorder people toworkwith.[…]It’sdifficultgoupagainst are ofcourseextremelypig-headed.It’snotaneasy culture, in political alliances.[…]Ialsothinkithastodowith you havealotmore scale, youhaveonemunicipality.HereinAmsterdam for that.AndinArnhemeverythingisonasmaller Here youseethereisnotenoughpoliticalsupport here have,thatisgoingtohappentoo.[…] they collecttherubbish.That’sfearthatpeople they actuallydrivearoundwiththesweeping-car,and maintenance ofpublicspacesattheNMC”.Sothere neighbourhood, andonlyforresidentsofthat Amsterdam. Thepeoplefrom collaboration betweenmany city districts,allwiththeirown housing corporations, Amsterdam, the collaboration with Amsterdam - city - 207

carrying out maintenance tasks in the neighbourhood ment the renovation is completed, it should no longer before the NMC appeared. be necessary to perform additional maintenance Often you see that at the management level (in the mu- tasks. Moreover, at the moment, city districts are nicipality) the idea (of NCMs) is very much supported, dealing with significant cutbacks. Because the NMCs social entrepreneurship is of course a “hot” topic right seem to be so successful, however, they are currently now, but that at the implementation level, especially in thinking about how they could continue in case the the beginning, it encounters a lot of opposition…then city districts were to withdraw their funding: the people from the municipality that normally do the There is money now. When we need something, maintenance, of neighbourhoods and streets, they see there are reserves. At the city district, at Ymere, and it as taking the bread out of their mouths. […] We’ve everywhere really. That’s why this is possible. Because had it that people would come, you know, one of those of course it costs money. […] At the moment we do excursion of managers, and that the day before, they not have to make any profit…at some point, we might would throw rubbish on the streets on purpose. […] I have to become independent. But that’s an entirely cannot prove it of course, but I am 99 per cent sure different perspective. […] Ymere is very much of the that it is people from the municipal cleaning services kind to want to set up a project with residents, assist that did that. […] They feel threatened. […] They’re them in getting it running, and that then the residents scared that if it becomes successful, that they are going themselves take over at some point. […] But this… you to lose their jobs. […] And also internally (at Ymere) I’ve cannot just change this. Then you get something com- encountered a lot of opposition. […] Everything that is pletely different. I used to work for another company, new or experimental encounters opposition in large at a facility-point. That’s an option. But then… if all the bureaucratic organisations. houses here become owner-occupied and you keep this (NMC) here, then you will start doing maintenance (Project leader, Ymere) Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities for the homeowners. That’s a completely different With time, however, actors operating in the neigh- market. There you can ask money. […] But then you bourhood understand what an NMC does, and how are really commercial. it is actually meant to assist them in performing (Project leader, NMC) their own tasks better. For instance, the cooperation between NMC and housing corporations other than Ymere has gradually strengthened – although here too there is still room for improvement. Ideally we would have one location where everything is together, all the caretakers (from different housing corporations in the neighbourhood), that we all sit together, and can brainstorm, and work together much faster. But that is not really working in practice, because everybody wants his own image… and that’s a bit difficult. Also in terms of funding. Now for instance, Eigen Haard (another housing corporation) has a very small percentage of houses in this neighbourhood, their caretaker […] holds consultation hours here (in the NMC) twice a week. And she pays for that, a small amount, so she can have a kind of “flash-office” here. And that works. But ideally we would all be sitting here together. Maybe that is something for the future.

(Project leader, NMC)

Yet the future of NMCs is still uncertain. Originally, the idea was that they would stay in the neighbourhoods as long as there were works in progress – the mo- 208 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities organisations. directly byofferingservices/assistance tothem,orindirectlybyofferingservices/ assistance topartnering( at the university, and they would do so in a way thatwould also benefit theresidentsin the neighbourhoods, either manner, studentswouldhavetheopportunitytodevelop practicalskillsandtoapplytheknowledgetheyacquired ers andprofessionals,wouldprovidecertainservices activitiesfortheresidentsin“problemareas”.Inthis jke Ontwikkeling,orDMO),theHvAcameupwithBOOT concept,wherestudents,undersupervisionofteach dam, forAmsterdam.AfterdiscussionwiththemunicipalService forSocietalDevelopment(DienstMaatschappeli and non-profitorganisations.Meanwhile,theUniversity ofAppliedSciencesaspiredtobetheuniversity neighbourhoods. Atthecoreofwijkaanpakliesanintensified (“aandachtswijken”) in the knowledgeandcompetencesofitsstudents,teachers, researchersand question abouthowtheHvA–largestinstituteforhigher professionaleducationin Amsterdam, orHvA).TheCommunityDevelopmentProgramme(“wijkaanpak”),whichstartedin2007,raisedthe en Talentontwikkeling,orBOOT)areaninitiativeofthe Neighbourhood StoresforEducation,Research,andTalentDevelopment(BuurtwinkelsvoorOnderzoek,Onderwijs 37.1. Shortdescription Development Education, ResearchandTalent BOOT -NeighbourhoodStoresfor Onderwijs enTalentontwikkeling Buurtwinkels voorOnderzoek, 37 Amsterdam NL /77 Amsterdam, insuchawayastocontributethesocio-economic Employment Neighbourhood revitalization/Housing Categories Amsterdam UniversityofAppliedSciences(Hogeschoolvan collaboration betweengovernmental,for-profit network tothe“problemareas” Amsterdam –couldconnect development ofthese , welfare) Amster- - - 209

The first BOOT was opened in 2008, 37.2. Conceptions and ways of and we did that together with housing corporations. addressing users They gave us a premise so that we could really be in those neighbourhoods with the students. Because In reality, there are different kinds of “users” of the we also could have chosen to do it from here, out- BOOTs. From the perspective of the university, the reaching projects, from the University itself. But we main users are the students – BOOTs are set up and deliberately chose to let those students actually live in supported by the HvA so that their students can gain those neighbourhoods as much as possible. […] And practical experience and so that their teachers are the programme that they offer, that is decided by the more in contact with their work field. Ultimately, for residents themselves, and by the organisations that the university, what matters the most is that through are in that neighbourhood . That can be the library, the BOOTs, they are able to educate better social the ABN-AMRO, banks, medium-small businesses, but workers for the future. At the same time, the students especially social organisations, like social councillors at BOOTs are also “used” by city districts and local (sociaal raadslieden), social work (maatschappelijk (welfare) organisations to conduct research projects werk), business one-stop shops (ondernemersloket). So and/or to help them in their provision of services. it’s not only focused on social work, but also on urban Last, but certainly not least, BOOTs are meant to development […] and on starting companies, on the provide services to residents – in terms of knowledge/ guidance of medium-small businesses. So the range advice as well as activities/hands-on manpower. The of services that we offer in BOOTs is very diverse. […] fact that there are different kinds of users is perhaps But they have to be concrete services that benefit the one of the most appealing aspects of the BOOTs, but, residents themselves. Or the organisations in that as the following quotes indicate, it is also what makes neighbourhood that work with residents - that it works it particularly challenging, since it is not always easy to Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities indirectly like that. That’s actually the most important combine different interests: criterion that we have. You are there with students, your purpose is to bring (Manager, BOOT) in assignments for students in higher education. And the neighbourhood and the partners quickly tend to By now there are four BOOTs in four different dis- see students as “welcome hands”. On that very practical tricts (West, Oost, Zuid-Oost and Nieuw-West) and a level. And every time you have to explain that you are headquarters that is located within the university in looking for assignments that are of a certain level for the centre of the city. Various programmes of differ- the students. And that those hands are also there - be- ent domains of the university give their students the cause I understand that the neighbourhood also wants opportunity to do an internship for a minimum of 5 to see those hands - but it’s not volunteering that those months and a maximum of 10 months, 4–5 days a students are doing. They do it all within the framework week, at one of the BOOTs. These domains include, of their studies. There are points/credits involved. And it for instance, the Domain of Economics and Manage- is difficult to always find a balance in that. ment (Domein Economie en Management, or DEM), the Domain of Technique (Domein Techniek), and (Coordinator, BOOT) the Domain of Society and Law (Domein Maatschap- See, students have to be guided by people who can give pij en Recht, or DMR). Accordingly, various services knowledge. Residents definitely have a lot of knowledge are offered at BOOTs. The “standard” set of services too, but they don’t always have that academic charac- that are provided in all the BOOTs comprises finan- ter that is necessary for an assignment for the universi- cial, legal and social consultation hours (and in most ty. Thus, you have to find an organisation that fits with cases also a nutritional consultation hour), homework that, that is coupled to that. So you really want to in- support for 6–10-year-olds, and an atelier for urban troduce students into the world of residents’ initiatives, renewal. In addition, depending on the needs of the and you want them to support that, but there has to be neighbourhood/residents/organisations, the BOOTs a professional framework on top of it for the student in may also engage in different activities. order to guarantee the quality of the assignment. And that is a bit difficult sometimes.

(Coordinator, BOOT) 210 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities preciate theexistenceofaBOOTintheirvicinity. that residentsofdisadvantagedneighbourhoodsap various BOOTlocationseveryweekclearlyindicates In fact,thatonaverage350to500residentsvisitthe As oneoftheusersmentioned: organisations/associations. assistance thanthatofferedinotherexisting for themandthattheytrytooffermorepersonalised fact thatstudentstaketheirtimetofigurethingsout Moreover, residentswhoresorttoBOOTsvaluethe to approachthe(studentsinthe)BOOTsforhelp. welfare organisations,theyseemtobelesshesitant that areprovidedbymoretraditional(municipal) may bemorehesitanttoapproach“formal”services While someresidents,foronereasonoranother, easily accessiblepointofinformationandassistance. prove theirlivingconditions–BOOTsappeartobean the BOOTsareofferingtheirservicessoastoim disadvantaged neighbourhoodstowhichstudentsin For theWILCOtargetgroup– Amsterdam NL by studentsthere-Ineverexpected somanypeople coming toBOOTWesthave theirtaxformfilledin But thatnow,5yearslater,there arestillpeople a certainrelationship, historywiththem. are intheofficeofcitydistrict becauseyouhave want somethingdifferentthansocialcouncillorsthat something maybeinteresting,orahype,thatyou make useoftheservices.Becauseinbeginning What Ifindmostsurprisingishowmanyresidentsstill pick anumber… approach. Theydon’tofferyouanycoffee,just that theyarecoveredinacage,givesyouanother went onlytothecentreof And it’stheapproachthatyouhavetothem,like…I organisation thatprovideslegaladviceforfree).[…] kind ofthings-waswiththeJuridischeLoket(another previous time-whenIwasaskingforadviceonthis advise wronglyinthefuture.[…]BecauseIthink trouble, soyoutrytolearnitproperlywon’t these”. Andwhenyouarelearningtrytoavoid Oh, I’vebeenthroughmuchworsescenariosthan you feel:“Oh,I’vedonethis.beenthrough mind setting.Yourisdifferent.Becauseinone different whenyouworkasanapprentice.[…]The approach whenyouworkasaprofessionalandit’s for themselves.Youknow,becauseitisdifferentthe you information,butalsoongatheringinformation I noticedtheytrytomakeanextraeffortonoffering Amsterdam, andtheway i.e. theresidentsof Employment Neighbourhood revitalization/Housing Categories welfare - - always veryeasytoaccomplishinpractice. this ideaof“ (students workingin)BOOTsdoattempttostress themselves and/orintheirown tries toencouragepeoplecomeupwithsolutions too realisethatthe“newstyleof to beanswered,bythestudents.However,BOOTs “clients” thatcomewithspecificquestionsneed hours though,residentsaremainlyperceivedas thereby alsolateroninlife.Duringtheconsultation enable thesechildrentoperformbetterinschooland provide toyoungchildren,asthiswill,inthelongrun, BOOTs isperhapsthehomeworkassistancethatthey most “empowering”approachthatisappliedinthe empowering” thembyteachingnewskills.The on “simplyhelping”theresidentsthan“actually On thewhole,sofar,BOOTsarefocusingmore more ongivingpeopleafish than onteachingpeople We nowalsohaveconsultation hoursthatarebased (Coordinator, BOOT) are alsoalotofexceptions. not easytoorganise.Withsomepeopleyes,butthere make useofthat?Butit’snotalwaysthateasy.Oritis is aroundthem.Howthatnetworkandcanpeople ground ofapersonandwhatkindnetworkthere pay extraattentiontoit–thattheylookattheback for thatmoreandthroughouttheyearsothey into theconsultationhours.Andwe’llbetrainingthem fare“ andself-relianceallthat,it’swoven learn duringtheirstudiesaboutthe“newstyleof Students ofsocialworkandserviceprovisionalso (Manager, BOOT) value ofit-thatwasaverybigsurprise. at school.Butthatresidentsalsowouldseetheadded out thewindowthantheyprobablywouldhavelearnt ed…well, they’velearntmoreinhalfayearoflooking coffeehouse, infrontofasquarethatisbeingrenovat of thoseneighbourhoods,nexttoamosque,Turkish way. Evenifyouputtheminfrontofawindowone time Ididthink:studentswilllearnsomethingeither professions… Youdon’tknowthisonforehand.Atthe courses abouteatinghealthy,bullying, week theygethelpwithreading,writing,and been comingfor4yearsnow,and2.5hoursper BOOT thatcomebackeveryweek.Somechildrenhave the samepeople,wealsohaveninetychildreninevery to systematicallycomebackeveryweek.Newpeople, self-reliance”, itissomethingthatnot networks. Although welfare provision” wel- - - 211

how to fish. So people come with their forms, and we However, in most cases housing corporations provide try to explain them to them, but in the end they are the location, and the city districts pay the fixed costs filled in with someone else. Then that person leaves such as gas, electricity, water and Internet. In some and thinks “oh that was nice”. Next letter they get, cases BOOTs have set up a so-called “neighbourhood well, that letter also comes to us. So we are looking for partner agreement” (wijkpartnerovereenkomst), which other ways of providing services, to be innovative in is an agreement between the BOOT and partnering that too, in order to break that “revolving door” effect. organisations, in which BOOT promises to provide Primarily by providing information, by giving courses… certain services in return for a location/compensation Migrants for instance often have their own network – of the fixed costs. In other cases it is the city district it- migrant organisations. If we train people there who self that asked for a BOOT to be set up, and thus also are in charge or who have a good relationship with a provides a location for them. By now all BOOTs have certain group of people, then they can explain how to a “standard” set of services that they provide, but they fill in a tax form. So then you are building more of a also carry out additional services/activities depending kind of circulation of knowledge, rather than just hav- on the specific needs and desires of residents and ing students do the work. Which can sometimes be like organisations in the neighbourhood: “It’s a bit like a mopping with an open tap. […] It’s not like everybody menu, where you can choose: I want a BOOT with the has to do everything themselves always, but as much standard set of services. But if you want BOOT to car- as they can yes. Not just because it is cheaper, but ry out extra projects on top of those, for which other also because people really like to understand things people need to be hired, then that is also financed themselves. In the end it is just nice - people gain a lot separately” (Manager, BOOT). confidence when they start to understand the letters The modes of working, though - in terms of the themselves. services that a BOOT offers - are very much based on Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities (Manager, BOOT) the needs of the neighbourhood in which a BOOT is located. In fact, BOOTs seek to fill the gaps inwelfare 37.3. Internal organisation and provision that are left by other (municipal) welfare organisations that are already active in the neighbour- modes of working hood – either by offering specific types of services, or by targeting specific groups of residents. To be able to The way in which the BOOTs are internally organised fill this gap and to adjust the services that are offered is mainly decided by the HvA. The HvA delivers most by BOOTs to those that are provided by other organ- of the staff for the BOOTs (be they students, teach- isations, close collaboration with existing (welfare) ers or mentors), it supplies the bulk of the funding organisations in the neighbourhood is crucial. (most of the participating “domains” at the university contribute a certain amount of money to be able to The students actually offer extra services, in addition pay for the staff and the necessary equipment), and to the existing offer. We discuss it very well also so that its academic schedule decides the timeframe of the they do not do the same thing just around the corner. activities that are carried out in the BOOTs. That there are not more office windows than there already are, but that we look at things that “Vluchtelin- City districts gave us the Neighbourhood Implementa- genwerk” (an association for refugees) is dealing with, tion Plans (Buurtuitvoeringsplannen) – the BUPs – and or what the “sociaal raadslieden” (social councillors) those are actually the plans that were made when are dealing with, the “Formulierenbrigade” (a brigade they got the extra money from Minister Vogelaar (for that helps people understand/fill in forms)… And then, the “wijkaanpak”). And with their regular occupancy in consultation with those organisations we make a they did not really have the means to implement those programme, so that they (i.e. the students) offer sup- plans. So that’s what we mainly started working with. plementary services. A lot of times the professionals So we got input concerning content. But the concept come to BOOT to guide the students. That is the whole itself, and the organisation, and moving students and idea – that we do it together, with the residents and teachers from the University to there, that has been a with the professionals of the neighbourhood. very internal process within the HvA. (Manager, BOOT) (Manager, BOOT) 212 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities particular way andtheyweregenerallyvery much had beenusedtoproviding a particularservicein hoods, thiswasadifficulttransition tomake,asthey organisations thatwerealready inthoseneighbour much. WhenBOOTsfirststarted, formany territorial boundaries,yetnotnecessarilycooperating organisations thatareoperatingwithinthesame welfare provision–playsbetweendifferent( – asa“fresh”andmore“neutral”actorinthefieldof binding rolethataneducationalfacilityliketheHvA In fact,themostinnovativeaspectofBOOTsis which theyarelocated. welfare systeminthedifferentneighbourhoods bourhood, thereisastronginteractionwiththe not yetbeingoffered(enough)inaparticular As BOOTsfocusonproviding welfare system 37.4. Interaction withthe (Manager, BOOT) tions – that justhappenedwith trust thatcamevia via. less directworkingrelationshipswithotherorganisa up duringthefirstyear-becausethenwehadmuch caseload. Buttheexistingcontacts,howwebuiltthose full, andweareareliablepartner.Sosharetheir other organisations,becausetheirwaitingroomsare isations, sobynowhalfoftheclientscomethrough We nowhaveverysteadycollaborationswithorgan- Amsterdam NL (Coordinator, BOOT) very important. initiatives –bothofresidentsandorganisationsis neighbourhood. Sothe then wewanttoredirectthemourpartnersinthe the questionsbecomedeeperandmorecomplex, actually verypractical,materialquestions.Andwhen isations”. Theclientsthatwehelp,thosequestionsare much aswecanbysendingpeopletotherightorgan something differentthanyou,andwesupportyouas much aspossible.Thatyousay:“No,wearedoing itors?” Soyoutrytolookforthat what aretheydoinghere?[…]Areourcompet it couldbethatawelfareorganisationthinks:“Hey, provide afinancialconsultationhour,forinstance, in yourwork?IfyouweretostartaBOOTand together, andespecially,howcanwesupportyou that alreadydoalotofwork,tosee:howcanwework You trytocollaboratealotwithexistingorganisations collaboration withexisting welfare servicesthatare collaboration as local Employment Neighbourhood revitalization/Housing Categories welfare welfare) neigh local - - - - - organisations tohaveamore“outwardlook”. that arelacking,butitalsostimulatesallpartnering are presentinacertain vides acleareroverviewofthefacilities/servicesthat far disconnected,actorstogether,whichnotonlypro organisation. BOOTsbringmanyofthesedifferent,so focused towardstheinside-ontheirownactivities/ (Manager, BOOT) very wellnowactually forced tocollaboratemore.And, well,that’sstillgoing a bitmoretowardstheoutside.Yea,theywerekindof fare organisations–wetriedtogeteverybodyturn or wel- corporations, of themunicipality,orhousing there, andwewereindependent–sonotpart problems. […]AndIthinkthatwe…becausewewere you wouldbringyourforcestogethertosolvesocietal hour?”… While,thepointof“wijkaanpak”wasthat And howmanypeopledowehavetotalkinone start registering.Orregisteringmore.Countingheads. very busywiththatinternally,like“Oh,wehaveto had tostartworkingmoreresult-driven.Theywere very muchturnedtowardsthemselves,andwell,they was… aculturalprocessalso.Organisationswere Community DevelopmentProgramme(“wijkaanpak”) to dothat.Butwell,thatissomethingwiththe one else’shelp,itisabitweirdifyouwouldn’twant the residents.Soifyoucandothatbetterwithsome money fromthegovernmenttocarryoutservicesfor see thisascompetition…Youhavebeenputtherewith it all.Becauseit’sactuallyabitweirdthatyouwould bit too-isthatyouputtheresidentsatcentreof – andinthatyoucaneducateotherorganisationsa up atrustingrelationship.And,themostimportant redundant. Soyouhavetogiveitalotoftimebuild out oftheirmouths,liketheyweregoingtobecome They wereabitafraidthatwestealingthebread fulltime students…well,theythought:“whatisthis?!”. and notjustalittleproject,butstructurally,long-term, workers: “well,justtelluswhatyouwanttodo”, people uncomfortable.Sowhenyouaskcommunity refuse, whenitistoogoodtobetrue–thatmakes because itwasallalittle…whenit’sanofferyoucan’t organisations that,atfirst,didn’tunderstandwhat… is whatwearegoingtodo”.[…]Weinvitedalotof Plans –fillintheNeighbourhoodStorewith“okthis though wehadthoseNeighbourhoodImplementation The mostimportantisthatwechosenotto–even neighbourhood andofthose - - 213

37.5. Development and dynamics over our destiny. But that is because we are there where there is a need for it. And if that need is no BOOT tries to bring together all the various actors longer there, or if people are no longer able to invest that are active within a neighbourhood and main- in that, yea, then you should leave actually. […] So that tain a closely cooperating network of partners. Not support is very important. only it takes time and effort to gain the trust of local (Manager, BOOT) (welfare) organisations but, as the following quote underlines, it is also a necessary to convince the HvA At some point the city district is going to pull itself and the city districts to “think outside of the box”. back more, simply because they are not getting any In practice, a constant challenge for a BOOT, which money for this anymore. And then you have to look seeks to reflect the dynamics of (fast-changing) neigh- at how you can, with certain projects, creatively… bourhoods, is that its functionality requires a certain how you can keep this going, without costing more degree of flexibility. money, but that you still grow. In reality it is a very Both the university and city districts are bureaucratic weird growing model, because the better we perform, environments. And they are very much framed in what the higher the cost because we have no income. So they do. So you have to try to lure them to step out of the more people come, the more it costs, rather than those frames. And with a bit of steering and willing- the more income you have, which is how it normally ness, persuade them that collaboration is always works. […] So you have to look how you can create an possible somewhere. […] Sometimes I meet people exchange system with existing partners, so they can who are too much into those frames and who only see keep their costs low by using students. So that you do impossibilities in terms of collaboration. And I try to bring that innovative influence of students in that or- challenge them during a conversation - with some- ganisation, in that neighbourhood. So that, eventually, Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities body from the city district or with a teacher. […] And what we are doing now, that it can stay. It will change that sometimes requires quite a bit of creativity. a bit. Now of course we have a very anonymous, neutral attitude. And if we are going to be linked more (Coordinator, BOOT) and more to other organisations you lose that a bit. But well, you also have to look how you can survive. Flexibility is required not only from all the partner- And we are especially busy with looking how residents ing organisations, but it is also required within the – because there is of course a lot of knowledge also BOOTs, as they are reliant on the funding of these with residents, and time, unfortunately these days partnering organisations. In fact, the entire BOOT also with people who are highly qualified, but that are concept is based on non-profit-making growth-model, unemployed – to look how they can guide the students which may be difficult to maintain in a future where for a part. And then all we need is a location. But that all partners are facing budget cuts. Hence, BOOTs too would be great, matching the trend that residents are constantly looking for ways to innovate them- themselves are looking for themselves how to organise selves, so they can still somehow offer their services things. in disadvantaged neighbourhoods. The difficult thing is that there are so many different (Manager, BOOT) parties involved - which is our starting point, and we are very proud of that - but every party also has its own interest, a different agenda, and they typically think short-term. Not that they have a short-term vision, but they can only make plans for a year, because the availability of money is decided on a yearly basis. So that means that I am very dependent on that, and my team has to react to that very flexibly and dynam- ically. […] I can’t tell these people: “I am going to invest in you for the next 10 years, and this is going to be our growing model, and if you just do your jobs well, then it will all be fine”, because other people decide 214 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities join tomake/raisetheirown incomebydoingthatwhichtheydobest–inthiscase: cooking. certain “basic”activitiesthatthesewomendo,andofestablishing akindof( cipation on eithertheirhusband’sincomeorsocialassistance benefits,andthatexisting that, tothisday,manywomen(inparticular,butnotonly, womenofMoroccanandTurkishdescent)arestillreliant independent soastobeabledevelopthemselvesinwhichever waytheyliketo.Theinitiatorssaw,however, roccan descentwhohaveregularjobsthemselves,andstrongly supporttheideathatwomenshouldbefinancially In fact,thestartofcateringprojectisrelatedtoinitiators’ ownexperiences,aswomenofTurkishandMo the “wijkaanpak”hasdefinedasaso-called“attentionarea”. Neighbourhood MothersCateringisaninitiativeofthreegirlfriendswholiveinNieuw-West-onetheareasthat 38.1. Shortdescription Neighbourhood MothersCatering Buurtmoeders Catering- 38 It’s partofyour identity.Thosearecorecompetences. […]Everybodyhasa talent,theirownstrengthlet’s say.Well,in lives. Andtobegoodinwhatthey do.Alsoconcerningcaring,towardsyourparents, children,yourhusband. they werelittlechildren.Andto care.Soyoucouldsaythatthosewomenhavebeenlearning howtocooktheirwhole If youlookatitanthropologically also,thegenerationbeforeusatleast,[…]theyweretaught howtocookeversince (Project initiators) structurally offertheircookingactivities–intheformofacateringservice? beginning ofitall.Sowethought:well,whywouldn’tyouaskthosewomenthatmadethecookingbookiftheywantto professionalised. Andthatthosewomenstructurallygainfromtheirinitiative.Withinthe structural character.Whatyoureallywantisthatthosewomenaretrained…andideaofthecookingbook see, that’ssuchapity!Therearelotofsubsidiesthatinvestedintothosekindsthings,buttheydon’thave en thatlivetheremadetheirownrecipes,withpicturesandall.Butthat’swherethestoryended.Andwethought: to applyforacookingbook.AndtheymadethatInthe saw thatalotofinternationalwomen–ourbackgroundcametogetherandsomebodyhadtheidea Within theframeworkof“wijkaanpak”residentsmayapplyforfundingso-calledresident Amsterdam NL initiatives failtosuccessfullyaddressthisparticularissue. Theythereforethoughtofprofessionalising /77 Related toallpolicyfields Categories neighbourhood, withallthoseresidents-wom cooperative) platformthatwomencan re-integration and/or neighbourhood. Thatwasthe initiatives. Andwe eman- - - 215

business you talk about competences then. Well, look role in that, that they try to emancipate women and at this! And what you see is that there is a mismatch give them a role in society from that perspective. […] in society, or at least in the municipality, that they do While we think that financial independence can play a not approach those women on the basis of what they big role for the emancipation of mothers, of women, can do really well. […] When they see a woman with and for their role in this society. And so also for their a headscarf, then that’s often perceived as “pitiful”. integration. […] In the end, every person has a talent. And stupid. That’s the first prejudice. And then they And those women too. So go and look at what they also talk to them as though they are deaf and dumb. already can do, and try to help women develop them- They just can’t look past that. It’s not an accusation! selves from that perspective. But that’s how it is – those are the facts. Often not (Project initiators) knowing Dutch well, or wearing a headscarf, well, that means you’re stupid, incompetent. While those women The women that take part in Neighbourhood Mothers can do a lot. Catering are recruited mainly via via - through the personal networks of the initiators, or because some- (Project initiators) body heard about the project and approached the The idea of Neighbourhood Mothers Catering is that initiators asking if they could join. Sometimes it takes mothers, or, more broadly, women in the neigh- a bit of convincing for women to participate, as many bourhood, collectively form a catering service. Every of those who are receiving social assistance benefits mother/woman is specialised in certain dishes, but – one of the groups of women that Neighbourhood alone they would not be able to take on large orders. Mothers Catering is targeting - are afraid they may Together, they can. Neighbourhood Mothers Catering be penalised if they were to engage in (paid) catering therefore seeks to coordinate women who would activities. like to have a bit of an extra income and brings them The first question is often: “is something going to Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities together, happen to my benefits? Are tax offices going to come and those women can, from the beginning, work after me? Or is DWI (the municipal Work and Income from home – their kitchen has to comply with certain Service) going to get mad?” […] They are terribly afraid. conditions – but they can cook their best dish from Because, especially when you are talking about people home. And sell it. So then they are not being pitiful, on benefits, […] those people are financially less well they’re not holding their hand up, but they are making off. So the risk for them is simply too big, whereby a product that companies, individuals, governmental they are also very anxious and hesitant to act. Until organisations, can buy, and order. we explain that “it does not necessarily have to affect your benefits”. Which means that you are limited to… (Project initiators) or rather, that you say: “you have the opportunity to go until…” - rather than talking about limitations - 38.2. Conceptions and ways of say that they have the opportunity to earn up until x addressing users amount of money extra. And that could just be that little bit of support and space that these women need The way in which Neighbourhood Mothers Cater- to discover themselves in another way. To give them ing addresses its “users” – in this case the mothers/ that bit of self-confidence. And perhaps that then they women of the neighbourhood – is by focusing on the will take that step towards…even just a part-time job. capacities that these women already possess, rather That is also secretly the thought behind it all. than on those that they are lacking. As the following (Project initiators) quote also indicates, Neighbourhood Mothers Cater- ing is clearly following a capacity-building approach: If women decide to participate, though, the kind of It started from a kind of frustration also that women, guidance that they receive depends on the personal or mothers – and then especially those with a lower circumstances of each and every one: education – that they are often approached on the ba- Guidance can be in any kind of form. […] Take the sis of what they cannot do. They cannot speak Dutch simplest form, and that’s a lady for whom doing the well; they do not have any qualifications; etc. And you groceries is already a pretty big step. A person like see that social initiatives, or organisations that play a that is guided in how to do her groceries. How should 216 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities catering jobevery nowandthen” because allthesmallbitshelp. Andsotheyalsodoa get acompensationforvolunteering everynowandthen and is perhapsnotreceivingsocial assistancebenefits And, lastbutnotleast,there isagroupofwomenthat these women: sation forvolunteering”( Mothers Cateringreceiveanadditional“compen in thecompletionofanorderfor social assistancebenefitsandwhentheyparticipate do. Thereareapproximatelytenwomenwhoreceive also sendinajobapplicationforeveryorderthatthey of NeighbourhoodMothersCatering–meaningthey are thusactingasakindofsupplier/subcontractor issues), havemanagedtobecomeself-employed,and concerning food are threewomenwho,withguidance(forinstance, a wayofmakingbitextramoney.Bynowthere ject. Somedoitasaregularjob;othersseemore ticipate inthe Indeed, therearedifferentkindsofwomenwhopar (Project Initiators) They cannotgooverthat,ortheywillgetintrouble. amount thatyoucangivetopeopleforvolunteering. work everydaybecausethereisacertainmaximum in mind,becauseyoucannotaskthosewomento …there ismaximum,somethingthatwealwayskeep (Project initiators) ments/orders outofthem. are abletocouplethosetwoworlds,andgetassign world inwhichweare.Andcouplethosetwo.We we do.Wecanswitchbetweentheirworld,andthe of circlesfromwhichtheycangetassignments.And those womenareoftennotable,ortheypart ents –thematchingasaformofguidance.Because the acquisitionofclients,andgettingintouchwithcli administration. […]And,inaddition,wealsoconsider them, oryouorganiseacourseonhowtohandleyour find thatabitscary.Well,thenyouhavetoexplain not knowmuchabouttheadministrationyet.Orwho have ladiesthatareself-employed,butmaybedo - theguidance–tohowdoyoumakeaninvoice?We ments… Soitgoesfromthosesimplekindofthings at thedish–deliveringontime,qualityrequire What arethecoststhatyoumade?[…]Thenwelook why isitimportant?Howdoyoudeclareyourcosts? you conserveyourreceipts?Whatisimportant,and Amsterdam NL “that isnottooambitious,but thatdoeslikeitto Neighbourhood MothersCateringpro safety issuesand/oradministrative vrijwilligersvergoeding). For (Projectinitiators). Neighbourhood Related toallpolicyfields Categories ------eventually turnedouttobeworthwhile: association wasastrenuousprocess,yetonethat started. Asthequotebelowindicates,settingup sultant, tosetuptheassociationandgetproject a friendoftheirs,whohappenedtobelogisticcon not existyet.Atthatpoint,theinitiatorsresortedto three singleindividuals-theassociation(STAM)did When theywontheprize,infact,were“simply” of 5,000euros. part inacompetitionthatenabledthemtogethold However, togettheprojectstarted,initiatorstook erate wouldbeusedtopaytheparticipatingwomen. es, andtheprofitsthatcateringorderswouldgen the professionalisationofwomen’scookingservic ative thatwouldfunditself–theyweregoingtoguide ed NeighbourhoodMothersCateringtobea From theverybeginning,projectinitiatorsintend modes of working 38.3. Internal organisation and serve theclient initstotality,andthreewomen have But iftheydoitwiththethree ofthem,thanyoucan just wantasteak.Andyoudon’t justwantadessert. and anothercanmakeagood steak.Well,youdon’t in makingdesserts,theother can makeagoodsoup, women wouldworktogether. You know,oneisgood cause wehadthisideaofacooperative,wherethose yet onabankaccount.Andthenitturnedout…be to getthatmoney?Itsayssoonthecard,butit’snot ok, whatnow?Veryniceandall,buthowarewegoing card onwhichitsays5,000euros,andthenyouthink: We gotthiskindoflotto-feeling,youknow,geta (Project initiators) initial costs. website, thematerialandwell,basicallypaidfor With those5,000euroswesetuptheassociation, that prize.Andwewonthemainprizeof5,000euros. plied withtheNeighbourhoodMothersconcept,towin and werenotfinanciallyindependent.Sowethenap women, between20and60yearsold,didn’twork, only 27percentwasworking.Andthatmanyyoung and Moroccanbackground,werenotworking,that that alotofwomen,especiallywomenwithTurkish the frameworkofWomen-Monitor.Whichshowed from themunicipalityofAmsterdam.Thatwaswithin Amsterdamse Buurtmoeders,orSTAM)wonaprize of NeighbourhoodMothersin To start(in2011),we-astheboardofAssociation Amsterdam (Stichting

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a job. Well, that’s of course a great idea. But, how with other (welfare) organisations. As a matter of fact, are we going to organise this? And then, one of the STAM is now, in collaboration with a social enterprise conditions of the subsidy giver – because it was of located in Nieuw-West, in the midst of turning the course just a hidden subsidy, they may call it a prize, “project” into an actual “cooperative“: but it’s just a kind of subsidy – and you cannot give The association remains, and her goal, i.e. guiding, that to a company, it has to be an association. […] supporting those women. But Neighbourhood Moth- So I took it on me to set up that association, to figure ers Catering is now going to be part of a cooperative. that out. So I set up the association, and well, there is Because in a cooperative you can make profit. In an so much hustle and bustle that comes with that, you association you can do that, but it’s different, legally cannot even imagine. So before you can even start it’s a different structure. And for that cooperation we doing something… But then we also saw chances: deliberately looked for a collaboration with Coffee- if you are going to set up an association, then don’t mania, because Coffeemania has a status whereby just do it for catering. Let’s then try to expand that it can offer women a traineeship (“werktestplek”) […] whole concept of catering – because it all started with Because at the moment we don’t have that yet, and cooking, because those women can often cook really Coffeemania can add that – offer traineeships to well – maybe you can expand that whole idea to other those women. branches too, like child care, care…you could set up Neighbourhood Mothers Care. Or something like an (Project initiators) atelier we thought, because maybe those women Noticeably, the approach towards Neighbourhood can repair clothing or sow really well too, you know, Mothers Catering is mainly commercial. In practice, sowing curtains, or whatever. It was very much based the board of STAM has a business minded view – on our own experiences too: I don’t feel like sewing my the idea is that the women cook, STAM assist the curtains, you don’t have the time for that if you are Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities professionalisation of the process, and the women working full-time. And I don’t even know how to. But subsequently sell their services. In this manner, it is those women do. So why would you not just buy each also supposed to fund itself. That STAM wants it to other’s services? So that’s how the whole idea grew. be in the form of a cooperative is to make sure that And that’s how we realised that the burden of having the profits that are generated also come back to the to set up an association, that that was also an oppor- participating women rather than to any stakeholders. tunity to make it even bigger. So then we thought: this At the same time, the board of STAM also realises whole thing of the association is actually a good thing. that they are targeting a particular group of women, Because the association can approach the women, who thus also requires a particular kind of approach. and help them. And then you can place them in differ- Hence, “success” is measured in relative terms: ent branches, where they can develop themselves. And then you can start those other projects through the From day one, I think our approach was different, it association as well. was more of a business approach. After all, we say that we want things to be lasting. We don’t want to be (Project leader) a 1-day-fly. We don’t believe in that. But we do believe in different approaches. For a woman for whom At the moment, Neighbourhood Mothers Catering getting a volunteering compensation of 20 euros is is still “a project” of the association STAM, which, in already a huge financial independence – because turn, is composed of the three initiators. The board those women really exist – then that’s fine no? You of STAM does, however, due to the lack of time and don’t have to push that woman – also because it is not knowledge on specific items, resort to professionals realistic – to become self-employed. That doesn’t work. from time to time, whom they manage to pay out There are different situations, and it’s important that of the turnover of the catering service (the project you approach people according to their situation, and leader being one example hereof). In practice, the help them from their position. Because we always say board of the association is extremely hands-on: from that they have to be able to, they have to want to, and marketing to administration, from the trainings of the they have to be allowed to – those three things always women to the delivery of their dishes – all of it is or- have to come together. ganised by the board of the association together with the project leaders they hire, and, increasingly, also (Project initiators) 218 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities the projectstarted,interactionwith manner. Althoughtheygota(subsidised)prizetoget not approachwomeninveryapositiveorsustainable programmes/ reaction tothecurrent project thatwasstartedbysingleindividualsin In reality, welfare system 38.4. Interaction withthe municipally funded servicethatprovidesinforma they havemadeuseofthe“ had tofollowprofessionalise thecookingservices catering service.Forexample, toknowthestepsthey them intheorganisationand functionalityofthe financial independence-orthatcouldsomehowhelp goals – prises and( However, STAMdoescollaboratewithsocialenter have amorelastingimpact. self-funding dependent onmunicipalgrants–theywantittobea intended theexistenceofcateringservicetobe familiar withtheworldofsubsidies,andwhonever ver, itwasaninitiativeofwomenwhoarenotallthat ity was,especiallyinthebeginning,minimal.Moreo (Project initiators) transparent, ornotaccessible. the municipalitiesandworldofsubsidies)it’snot So, asfarI’mconcerned,thiswholething…(i.e. sically screamingfortransparency,towardseveryone. […] It’snottransparent-whiletheentireworldisba that’s alsosomethingthatweareslowlydiscovering. But itturnsouttobemorecomplicatedthanthat.So of partiesareliving,andthentheydividethatmoney. ments, andthenthereisafund,onwhichhundreds municipality, thenyouprobablyhaveafewdepart business minded.Sowethought,ok,youhavethe Really, whenweenteredintothiswholethingwere grammes, onecitydistricthere,theotherthere… municipal, participation,association,projects,pro regular businesses.Andwedon’tknowthatwhole funds. Andwhatisalsonewforus…see,wecomefrom you stillhavetofigureouthowgetaccessthose if thereareanyfundsavailableanywhere.Andthen to see,understandhowitallworks,figureout accessible. Youhavetotakeawholelotofstepsjust Let’s behonest…Idon’tthinkthe Amsterdam NL i.e. helpingwomentogainacertainlevelof Neighbourhood MothersCateringisa welfare) organisationsthathavesimilar cooperative thatwilltherebybeableto initiatives, whichtheythinkoftendo re-integration/emancipation Ondernemershuis

municipality is local Related toallpolicyfields Categories municipal ” – a ------to adhereiftheywishexpandtheirinitiative: certain rulesandregulationsapply,whichtheyneed ating withinaparticular(bureaucratic)settingwhere Fietsdienst with adistancefromthe with otherassociationsthatareworkingpeople delivery ofthedishestheyhavesoughttocollaborate tion andadviceforstartingenterprises-the (Project leader) that. well, that’saniceaddition,wecanworktogetherin here. Sotheycandothattoo.thenwethought: that aredoingsomesortofre-integrationprogramme part oftheirwholeconcept–theyhavealotpeople meets alltherequirements,andtheyalsohave–it’s they areopen,thestaffisalwaysaround,kitchen But theycandothathere(atCoffeemania),because helping thosewomenthatyouactuallywanttohelp. up against.Thenyoudonothavethepossibilityof that. Soyea,thosearethekindofthingsthatIwas sorry, butIhaveotherthingstodotoo.can’t offer that.Andthenwhat,Ihavetoguidethem?Yea, and Idon’tknowwhatelsemore.Well,wecouldn’t because therehastobeadesk,andcertainchair, put thembehindatableandchair,theysay“eheh”, to complywithallsortsofARBO-conditions.[…]SoifI in mykitchenathomethen?[…]Andthenyouhave So Ithought:what,dotheyhavetocomeandthis to haveatraineeshipwithsomanyhoursofguidance. were allsortsofconditionsattachedtothat.Theyhad keeping theirsocialassistancebenefits…butthere that wantedtodoatraineeship(werktestplek)while a greatinitiative,andtheyhadquitefewwomen nicipal re-integrationservice),andtheythoughtitwas in that.BecausewehadsometalkswithPantar(amu- benefits…they alsohavepeoplethatcanguidethem possibility oftakingonwomenwithsocialassistance if wecouldworkwiththem…becausetheyhavethe That’s whyIgotintouchwithCoffeemania,tosee ). Moreover,theyrealisethatareoper labour market(e.g.Stichting - 219

38.5. Development and dynamics the social cohesion within such a neighbourhood too, the interaction between a highly educated two-earner The driving force behind Neighbourhood Mothers household, and their neighbour with six children. And Catering have been individual residents who wanted that’s how you hope to have an effect on those chil- to come up with a sustainable, lasting concept that dren too, that they get in contact with each other. […] would help women gain a certain degree of financial You hope that those children […] maybe go and visit independence, at their own pace. A remarkable as- the two-earner household once. And that the child pect of the project is the fact that there were no pro- says: “hey, I want that too. And what he does, I can fessional municipal/social workers directly involved in maybe do that too”. […] And another side-effect, one the set up of the whole project. This means that the of the main ones, is of course that those children see startup of the catering service has been a “learn-as- that their mother is working. And that she is earning you-go” kind of process that perhaps took more time money. That’s a really good example. A lot of children than the initiators ever anticipated, but it also means don’t have that. […] Because we still think, despite all that it is a concept that keeps evolving, and that re- these idealistic things about emancipation – super! mains open to developing itself further. Finally, it is a – still, a mother is a different kind of example for the concept that its initiators firmly believe in, and which children. […] Fathers also participate, but mommies they are eager to expand, both in terms of the kind of have a bit more visible of a role. That’s why it is impor- services they could “sell”, as well as the locations they tant for the mother to set a good example. And show could “serve”. that working is part of you, of who you are, and of We are constantly looking for: what can we do now? who you are going to be. And that you are developing. Thinking about new kinds of collaborations…looking Seeing other things. That’s a richness. The more knowl- for chances and possibilities. And grabbing whatever edge, the broader your horizons. We really see that Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities comes our way. […] The way this whole thing started as a kind of richness. And if children see that in their also – the thought that: why does everything have to mothers, then they will start thinking “that’s normal”. be temporary? Why can’t we all think a bit more long- (Project initiators) term for once? Set up lasting things so that people can do things a bit longer also. And enjoy their own ac- Our plan is to make it much broader, as an associa- complishments longer too. Otherwise it’s huge peaks tion. […] There are a lot of easily accessible branches and valleys, where the valleys become even deeper, in which these women can play a role and be finan- or harder. And if you have that thought, then it’s not cially independent. So we thought, ok, catering, caring, smart to take every step that you want to take so well, child care. […] And like that there are some quickly, without thinking it through. So we deliberately other branches of which we think that they are easily chose to take it easy. So not take on 100 neighbour- accessible, and it’s not too much of a hassle to guide hood mothers immediately, give them hope, and then women into those branches. And the intention at some point is to scale it up. We started in Nieuw-West, say “oops sorry, didn’t work”. but we also want to scale it up to other city districts of (Project initiators) Amsterdam. And if possible, also to other cities in the We want to expand the concept further. That’s why we Netherlands. do it at the neighbourhood level… We want to build (Project initiators) the website of the cooperation in such a way that you as an individual, man/woman, two-earner households, that do not have the time to cook a healthy meal, that they can buy a subscription with a Neigh- bourhood Mother in their neighbourhood, and that they can get a healthy meal twice a week for example. […] So that you have Neighbourhood Mothers in every neighbourhood that do not only handle large catering orders together, but also on a smaller level, cook a healthy meal for the neighbourhood. […] It stimulates 220 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities an “extrabonus”. may deemtobethemaingoal,othersperceive “success” ofBOOTsforinstance,whatsomeactors about whatthose“results”shouldbe.Regardingthe compromise, betweenthevariousactorsinvolved that thereissomesortofunderstanding,oratleast of aparticularinnovationitisthereforeimportant be manydifferentgoals.Toassurethecontinuation bring differentactorstogether,thereareboundto are especiallyinnovativeinthewaywhichthey experience” nonetheless.In experiment” thatfailed,butwasagood“learning litically andfinancially;ifnotitwillbeconsidered“an supported bythe is consideredtobesuccessful,itwillcontinue “result-driven” projects–ifacertain explicit emphasisofthemunicipal Neighbourhood DevelopmentProgramme An importantaspectofthelargerframework bility oftheseinnovations. extent municipalfundingalsobenefitsthe cuts, andgeneralinstability,itisquestionabletowhat innovations, intimesof“crisis”,continuousbudget funding maystimulate/fastenthestartupofsocial all. However,whilsttheavailabilityofgovernmental and perhapssomewouldnothavebeensetupat innovations wouldhavebeenmoredifficulttosetup, implementation ofthe (and theadditionalfundsthatwereavailablefor Without thefinancialsupportof innovations thatwerepresentedinthisreport. pality/city districtsplayedaroleforallthreesocial Undeniably, financialcontributionsbythe Sustainability Conclusions working withthe students,thatisaresulton itsown structurally beencomingfor2.5 hours,andhavebeen great ofcourse!Butthefactthat thesechildrenhave also becauseIdonotlookatit likethis.Itwouldbe measure itnow,butIamalways verycarefulwiththis, come betteratmathandlanguage? Wearetryingto years now:isitreallymeasurablethattheyhavebe- things. Alsothechildrenthathavebeenwithusfor4 with, becauseitisverydifficulttomeasuresome then, “results”,that’ssomethingyouhavetobecareful do obtainquitesomeresultsina very happy,becausewithaminimalinvestmentthey In generalhousingcorporationsand Amsterdam NL municipality/city districts,bothpo wijkaanpak welfare provisionsthat ), allofthesesocial neighbourhood. And wijkaanpak social innovation municipality city districtsare munici- isthe sustaina- on - though residents withadistanceto the re-integration trajectoriesthat NMCsofferto(young) Instead, still the(physical)renovation ofthe for the a distancetothe eeships and they canalsoorganisethisinawaythatcreatestrain housing corporation.Thefactthat,ontopof ful -whichmakesthemaworthyinvestmentforthe hoods. Andinthisregard,NMCsareindeedsuccess more “distant”organisation-inthoseneighbour be morevisible/accessible-asalarge,andotherwise residents inareasthatarebeingrenovated,andto tion istoprovideaservice/informationpointforthe As forNMCs,themaingoal “right toexistence”ofBOOTs. The HvAthusalsohasagreaterrightofsayinthe more (funding,personnelandtime)than less structural-proportionatelytheHvAinvestsmuch tant sponsorsaswell,butthefinancialrelianceisfar basis. InthecaseofBOOTs, city districtsareprovidingfundingonastructural pend ongovernmentalsupport.InthecaseofNMCs, NMCs inthisrespectistheextenttowhichtheyde BOOTs (and justify investments.Anoteworthydifferencebetween the municipality,whowantstoseetangibleresults cess”, andthus For innovationsthatrelyonmunicipalfunding,“suc (Manager, BOOT) come bonusofcourse. that makeaneighbourhoodbetter,welliswel that thisconcretelyaddstoa develop themselveswithinthatfield.Andeverything better viewoftheworkingfield,andthatstudentscan the win–winsituationisatforBOOT:thatwehavea students thataredevelopingthemselves.That’swhere informal, andespecially(focus)onthefactthatit’s the investmentisworth.Soyouhavetokeepitvery because forthatyoucannotclearlyindicatewhat not ofthesetimes.Andyoushouldn’tdothateither, isations withalotofmoney,because…well,that’s have tobecarefulnotgetinvolvedwithhugeorgan- that areverydifficulttomeasure.Andthat’swhyyou students andresidents,thatcreatesalotofthings of thethingsthatwearedoing,dynamicbetween already. Andthat’showwelookatittoo-thatalot housing corporation,whose primaryfocusis housing corporations arenowalsoexpected city districtsmaybemoreinterested inthe Neighbourhood MothersCatering)and activation programmesforpeoplewith sustainability, ispartlydeterminedby labour marketisanaddedbonus city districtsareimpor- neighbourhood, things labour market.Even housing corpora neighbourhood. city districts. ------221

to contribute to the “liveability” of neighbourhoods, That’s the difficult thing – on the one hand people considering the (traditional) division of (welfare) want to do all sorts of things, and on the other hand tasks between different kinds of actors,city districts there comes a civil servant from the municipal Work (and the organisations they subsidise) are still more and Income Service and says: “Yes but you are retract- focused on the social and economic development ing yourself from the labour market, and you are not of a neighbourhood than housing corporations. The allowed to do that”. And if they get paid even just 100 fact that merely two youngsters at a time can follow a euros, they immediately get penalised on their social traineeship in a technical team, and that of those two, assistance benefits, so people lose all their motivation. one might get a job in the regular labour market, may In that sense the Netherlands is a bit weird, the sys- not be considered enough of a “success” by the city tem... People are hindered from taking any initiative. districts - at least, not in proportion to their invest- Also in the neighbourhood – at the moment you hear ment. Yet, within the present construction of NMCs, a lot about how citizen initiatives are the solution for city districts are crucial partners. In a context where the lack of municipal funds. But then when citizens funding is directly linked to performance, which, in take initiatives, they have to make all sorts of budgets turn, depends on one’s perspective, the sustainability and those budgets have to be according to all sorts of NMCs is most at risk. of rules. While, these are volunteers, they cannot make such complicated schemes...yet it all has to be Of the social innovations that were presented here, professionally all of a sudden. And well…that’s where the importance of the availability of municipal funds it clashes. Something goes wrong there. for the functioning and the sustainability of a particular innovation is thus most striking in the case (Assistant Professor, Dept of Political Science, Uni- of NMCs. However, since the municipality and city versity of Amsterdam) districts have been known to be dealing with budget Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities restraints for some time now, “social innovators” are Diffusion generally also constantly innovating themselves in that regard too, preparing themselves for the fact that To assess the potential for diffusion of social innova- there will be less municipal subsidies to resort to in tions, one must look at what kind of actors initiated the future. Hence, what is equally important for the a particular project, and, especially, what interests sustainability of social innovations (and perhaps even and rights of say they have. In terms of the kinds of more so than financial support) is that themunicipali - actors involved in the social innovations presented ty and city districts support change, first of all admin- here, within the Netherlands, if the willingness is istratively, but also “culturally” - culturally in the sense there, all three could be diffused to another city. In that the local governments must play a leading role fact, there are already concepts in other cities in the in steering and stimulating a change in the traditional Netherlands that are similar to those of NMCs, BOOTs patterns of behaviour of the organisations that are and Neighbourhood Mothers Catering. Outside of the involved in the provision of welfare services. Netherlands, though, some of these social innova- Furthermore, in a city with such a large and divided tions may be “easier” to introduce than others. NMCs public administration, the challenge is not only to are the most “typically Dutch”, considering the role bring about movement among third sector welfare or- that housing corporations play herein. Yet, similar ganisations and “novice” actors on the scene, but also constructions could be envisaged in contexts where to change the attitude of its very own public sector, local governments are in charge of both employment and then especially of its civil servants. At the mo- and housing policies, and are able to match different ment, as a result of a long-standing history in which policy-fields at the local level. The BOOTs - for which the public sector has been subdivided into many very the motivation and the driving force comes from specific clusters, civil servants too are still very much more “common” educational facilities – are perhaps anchored in certain modes of thinking and/or doing. a type of innovation that is more likely to be diffused As the case of Neighbourhood Mothers Catering in in an international context, and, as a matter of fact, particular also suggested, to stimulate sustainable already is: social innovations, the public sector too needs to “go with the flow”, so to speak. 222 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities ence ofanextensive tions thatwerediscussedinthisreportistheexist What certainlyhelpsthediffusionofsocialinnova pronounced, yetthepeople of entrepreneurial attitudehas perhapsbecomemore trepreneurial” atthesametime. Inrecentyears,the structure –itspeoplearegenerally “social”and“en Amsterdam isalso“blessed” withaparticularsocial tion tohavingcertain“institutionalised”structures, the socialinnovations.Withregardhereto,inaddi ties, itiscriticalthattheinhabitantsofacitysupport self-reliant andtakeonmoreindividualresponsibili governments areincreasinglycallingoncitizenstobe Last butcertainlynotleast,especiallynowthatlocal encouraged. of (organisational)culturemustbesupported,and and dynamic.Inotherwords,politically,achange puts pressureontheadministrationtobeinnovative wants to“setanexample”intheNetherlandsalso and fragmented,thefactthatitisacapitalcity istration surrounding together. In scattered anddisjointed( more importantthattheyremainactiveinbringing support thewaytheyusedtoinpast,itisall governments maynotbeabletoprovidefinancial of coordinatingeffortsmoreefficiently.Whilelocal edge andpersonnelareoftenthere,butitisamatter local welfareprovisionsinplacemeansthatknowl of Amsterdam,thefactthattherearealreadymany that takeonaleadingandsteeringrole.Inthecase organisations andthepresenceoflocalgovernments (Manager, BOOT) whole oftheNetherlands,eveninEurope. with thecity?Andthat’satrendthatyouseein tional way.Buthowcanyoureallyusethatexchange facilities candomorethanjusteducationinthetradi has beenverygood,toseehowhighereducational neighbourhoods. AndthatisamovementIthink fits withtheneedsofresidentsthatliveinthose in theirownway.Thatfitswithuniversity;that concepts inotherpartsoftheNetherlands,whodoit interesting information.SotherearealsootherBOOT within theirowncontext.Andthatgivesusalotof Sciences inNijmegen-toseehowtheycoulddothat ucation Center)InHolland,theUniversityofApplied Regionaal OpleidingenCentrum(ROC,RegionalEd We talkalotwithothereducationalfacilities-like Amsterdam NL Amsterdam, althoughthe network ofthirdsector( welfare provisionsisbulky welfare) organisationscloser Amsterdam (many public admin welfare) ------nieuws/nieuws-2012/berenschot-verwacht online athttp://www.berenschot.nl/actueel/nieuws/ saontslag ambtenaren Berenschot (2012,May14 Reference and (politically)supportiveofsuchsocietaldynamics. governments istobe(administratively)responsive sustainable socialinnovations.Thechallengeforlocal and “active”citizensarevitalfortheemergenceof in whichlocalgovernmentsareretrenching,“social” Neighbourhood MothersCateringshowed,atatime fairly solidarity-basedandsocial.Asthecaseof and perhapsevenuncooperative,itis,internally,still Amsterdam isoftenexternallyperceivedasarrogant izen isstillstrong.Inreality,despitethefactthat citizens towant“mean”somethingforafellow-cit squatting movement)andthedesireofindividual ing historyof“active of whomarehighlyeducated)alsohavealong-last citizenship” (thinkofthelocal . Accessed09-12-2013.Available th ). Berenschotverwachtmas - - - NL The Netherlands Nijmegen

Joost Fledderus, Francesca Broersma and Taco Brandsen (Radboud University Nijmegen) 224 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Sustainability Social cohesion Participation Networks Neighbourhood Municipality Local welfare Governance Empowerment Diffusion Co-production Child care Keywords: Local background of thesocialinnovations Introduction Nijmegen NL hoods, the broader“qualityoflife”( improving thephysicalenvironment, ed, moreholisticapproachtowards completion oftheprogramme, Not onlydidtheybecomeresponsible,financiallyandlogistically, forthe main themesinthe more, citizenparticipationandpartnering withlocalorganisationswere of housingcorporationswithinthefield wijkaanpak not haveproblemsonthesamescaleaslargercities. Nevertheless,the its neighbourhoods( people weresurprisedtohearthatnationalgovernment appointedoneof major regenerationprojectscouldbeinitiated.In as Amsterdam,thishadasignificantimpactonneighbourhoodsbecause financial resourcesweremadeavailable.Especiallyinthelargercities,such areas” (aandachtswijkenorkrachtwijken).Fortheseneighbourhoods,extra forty disadvantagedneighbourhoodswerelabelledasso-called“attention comprehensive a might havebeenbetter.Theneedtotakecareofthelesswell-offhasled has toolongbeena“caressing”state,whilesometimesan“innovativekick” appears toarisefrompoliticsandtheuniversity.Forothers,however,city to socialrenewalbecauseoftheprogressiveandentrepreneurialspiritthat uous. Forsome,Nijmegenhasbeenalwaysafront-runnerwhenitcomes these discoursesmeanforthe“innovativeness”ofcityisratherambig- (north, eastandcentre)broughtthesediscoursestotheforeground.What periphery (roughlythewestandareasaroundcanal)other the pastfewyears,afearofincreasingdivisionsbetweenresidentsin tunities toparticipateinsocietyandtheurgeforan“undivided”city.Over values relatedtotheprotectionoflesswelloff:solidarity,equaloppor- Over time,astronglyleft-wingpoliticalcultureemergedinNijmegen.Itskey organises itslocal and regulations,whichundeniablyhaveaninfluenceonthewayNijmegen there arebroader(national/European)trends,aswellnationalpolicies cial cutbacks,themaintainabilityofsuchasystemisthreatened.Moreover, that help,theyargue.Yet,nowDutchmunicipalitiesarefacingbigfinan- the wijkaanpak. Everybody” and“Sirocco” In 2007,theso-called obligations ofpeopleonincomesupporthavealsochanged. welfare policiesshouldbeimplemented.Finally,perceptionsoftherightsand cially inthefieldofcare,hasanimpactonthinkingabouthowandbywhom experimentation. Furthermore,ongoingdecentralisationofwelfare,espe- the roleofhousingcorporationsinneighbourhoodsandpavedwayfor the “NeighbourhoodDevelopmentProgramme”(wijkaanpak)haschanged (Radboud UniversityNijmegen) Joost Fledderus,FrancescaBroersmaandTacoBrandsen Authors i.e. toimprovethesocialandeconomic environmenttoo.Further did haveanimpacton local Housing corporations nowtakeup welfare. To begin with, as elsewhere in the Netherlands, welfare. Tobeginwith,aselsewhereintheNetherlands, wijkaanpak. welfare system with a passive role for the recipients of welfare systemwithapassiverolefortherecipientsof Hatert wijkaanpak arebestunderstoodagainst thebackgroundof ) too.Thegeneralbeliefwasthat leefbaarheid Accordingly, projectssuchas waslaunched.Throughoutthecountry, Nijmegen becauseitinfluencedtherole wijkaanpak neighbourhood ) indisadvantagedneighbour wijkaanpak neighbourhood also consistedofanintegrat Nijmegen, however, initiatives inthe social regeneration. Besides also aimstoenhance regeneration. Nijmegen did “A Futurefor - - - 225

domain in addition to their “core business” of provid- (local) WMO policy: focus on vulnerable groups, ing affordablehousing: self-responsibility, “community reliance” (samenre- For example, we let people in Hatert write and dzaamheid), inclusive society, personalised services perform a theatre play that is paid for by the corpo- and de-compartimentalisation and prevention before rations, I think 40,000 euros. Back then they said, are cure. These things come together in what the mu- you completely insane, we are not going to pay that. nicipality has called “social neighbourhood teams” Eventually they did invest the money. But they thought (sociale wijkteams), of which pilots started in 2012. that was very distant from what they were supposed These teams consist of professionals with different to do and sometimes it did hurt. But now, particularly specialisations, often from different organisations, about investing in the social domain, corporations and are supposed to create a network of caregivers at are more and more convinced that investing in that the neighbourhood level. According to a neighbour- domain also adds value to their real estate. Not that hood manager of the municipality, the idea of social that would be their primary goal, but it is for them neighbourhood teams denotes a radical change: an important factor to keep doing their job. To keep The experience is that residents of a neighbourhood providing sustainable social housing. are often able to solve a lot of things together, without the need of professional assistance. There is a big, (District manager) natural preparedness to do something for somebody Another national trend that has affected howwelfare else, if you are asked to do so. The social neighbour- is implemented at the local level is the continuing hood team builds a broad neighbourhood network of decentralisation of welfare (and in particular care) people, associations and organisations that want to policies from central government to municipalities. do something for their neighbourhood. … That is the In addition to the complete decentralisation of youth youngest development we are experimenting with. I Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities care services, more and more caregiving services that expect that will be a revolution. We have of course the used to be part of the General Act on Special Health- advantage of the WMO; I really think that that is going care Costs (Algemene Wet Bijzondere Ziektekosten), and to mean a revolution. thus a (financial) responsibility of the central gov- (District manager) ernment, have been included in the Law of Societal Development (Wet Maatschappelijke Ontwikkeling, Parallel to the developments in the field of care, when or WMO) and are now the responsibility of munici- it comes to income support measures, such as social palities. Although the central government supports assistance, new or announced national laws and regula- local governments with these transitions, in times of tions also emphasise that everybody should participate increasing budget restraints municipalities have to in society, whether you are handicapped or unable to do more with less. Furthermore, the WMO – a law find paid work for example - such as the possibility of that concerns the provision of services for citizens in obliging people to do a “returning favour according to difficult conditions, such as, for example, the elderly, capability” (tegenprestatie naar vermogen) and the to be people with a handicap or psychological problems, introduced “participation law” (Participatiewet). Again, but also people with financial problems – stipulates municipalities carry the responsibility for getting as that citizens should have an independent life and many people as possible “active”, but their financial participate in society as much as possible. means are severely cut. Since Nijmegen has been To achieve this purpose, municipalities are free to investing in expensive subsidised labour in the past set their priorities wherever they feel there is a more decade, a radical shift was needed. In an attempt to still stringent need for support. Although the first parts of offer people a chance of a job, the concept of “work cor- werkcorporaties) the WMO reform are expected to be set in early 2014, porations” ( was introduced. and the complete form in 2015, the municipality of Accordingly, these developments, in combination Nijmegen chose to start right away with restructuring with the historically strong focus on taking care of the local care arrangements in a fashion that resembles weak, pose a real challenge for the city of Nijmegen. the basic idea of the new law. In a policy plan called However, as all three innovations in this report in- “Solidarity, together, and solid”, the municipality deed attempted to increase the role of citizens, a shift points out the most important priorities of the new seems to have been made, albeit not without hurdles. 226 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities pality of Yet, itwasbelieved that corporations andcooperation betweenmunicipalorganisationsthatweredependent onsubsidisedemployees. current policyinan“innovative fashion”.Thismeantthereductionofsubsidisedjobs tozero,thecreationof ise theambitions”of down to13millioneuroin2013 andeventuallyto8millioneuroin2014thereafter. Hence,inorderto“real tional government.Infact,the municipalbudgetof26millioneurofor The needforrearranging “modernise” subsidisedlabour(Gemeente made theideamoreconcrete.Workcorporationswere explicitly consideredasanew what wasregardedasaworkcorporationdeveloped yet.InMarch2011,apolicyplanwaspublishedwhich could betterconstitutetheoutflowofbeneficiariesto workthansubsidisedlabour.Still,nodetailedplanabout work corporationswereincludedintheircommonmanifesto. Here,theconceptwasseenasaninstrumentthat a coalitionwiththeGreenparty( service sectorfor,interalia,the example, whichsuccessfullyprovidedjobsforhomeless people,bydoingcontractualworkintheurbanupkeep corporations inordertopreservesubsidisedjobs.Itmentionsaparticularfoundation(FoundationDagloon)as an their partyprogrammeof2010.Injusttwosentences,theexpressedneedfor The conceptof 10 years. really differsfromformsofsubsidisedlabourintheNetherlands,wherepeoplecouldbeemployedformorethan character; thismeansthatafteramaximumof2years,peopleshouldleavetheorganisation.Becausethis,it should beabletoself-sufficient.Alsoimportantisthatworkingataworkcorporationhavetemporary product deliveredshouldhavesocietalrelevance(whichmaybeinterpretedverybroadly);andaworkcorporation few conditions:itshouldofferpeopleachancetodevelopthemselves(mainlythrougheducation);theservice or work andeducation.Basicallyeveryentrepreneurcaninitiateacorporation,aslongitcomplieswith receivers withaconsiderabledistancefromthe In thesummerof2011,severalso-called“ 39.1. Shortdescription Work corporations 39 Nijmegen NL Nijmegen. These work corporationswasintroducedinthecitybylocalLabourParty( /77 work corporations shouldnotbeseenasa one-on-onereplacementfor subsidisedjobs.A municipality withrespectto reemployment, the re-employment serviceswasgivenbythefinancialcutbacks thatwereimposedbyna work corporationsaimatre-employingsocialassistance( municipality andabiggarbagecollectioncompany.When theLabourpartyformed GroenLinks) andthesocial-liberalpartyDemocrats’66( work corporations”(werkcorporaties Employment Categories Nijmegen 2011). labour marketbyofferingthemaplacewheretheycancombine re-employment in2012would bebrought municipality wasforcedtoadapt their ) startedoperatinginthe Wet WerkenBijstand, re-employment schemeto Partij vandeArbeid)in Democraten ’66)in2010, development of munici- orWWB) work work - - 227

work corporation should operate at the intersection ences through time. Especially important here is the of business and civil society. This can be seen as one recognition of existing organisations that are already of the innovative elements of the project. For the mu- executing certain programmes with characteristics nicipality, the possibility for a re-employment organ- of the work corporation concept. The involvement of isation to earn money is the particularly new aspect. these organisations from the very beginning led to For the organisations that are familiar with subsidised the start of six work corporations in October 2010: labour it is especially the educational facet, the em- “We have actually written the plan how work corpora- phasis on personal development, and responsibility tions must look like during the discussions with those for outflow to work, which break with tradition. [interested] organisations” (Mark van der Velden, Work corporations are not new in the Netherlands. policy advisor). Now, there are over ten work corpora- The idea was used for unemployed youth between tions active in Nijmegen. 2004 and 2008 in three Dutch cities, financed by aEu - Table 1 provides some examples. Most work corpo- ropean Social Fund (ESF) subsidy. Yet, the municipality rations are part of larger welfare organisations, but a of Nijmegen clearly states that it does not work with few private companies also started a work corpora- a “blueprint”. Rather, it has been trying to develop a tion. Some are based on a particular method which is flexible model which suits the locality ofNijmegen, used in other cities in the Netherlands as well. and which could be changed according to experi-

Table 1. Examples of work corporations in Nijmegen

Work corporation Short description Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities

Social Work Inter-Lokaal (Maatschappelijke 20-25 users, giving help to low-income clients of the Inter-lokaal Dienstverlening) migrant organisation in combination with higher secondary vocational education

World Cooks (Wereldkoks) 20-25 users, cooking and serving food in a restaurant in combination with lower secondary vocational education

Solar Train (Zonnetrein) 3-6 users, driving a solar-driven tourist bus in combination with gaining a bus driver’s licence

Bike-work (Bike-werk) 6 users, repairing bikes in combination with higher secondary vocational education

2Switch Green & Maintenance (2Switch Groen & 30-35 users, doing maintenance in neighbourhoods, Klussen) mainly around social housing in combination with several courses

Fashion with a Mission (Mode met een Missie) 20-25 users, sewing clothes for a fashion line in combination with lower secondary vocational education

5-15 users, traditional master–apprentice relationship Craft Square (Ambachtsplein) learning a particular craftsmanship in combination with lower secondary vocational education

Dar & Breed Dar & Breed, urban upkeep services ( 4-6 users, maintaining municipal parks onderhoud van parken) 228 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities profession; and (2)theperformancetarget thathas ly withoutacertainpassion or preferenceforthe impossible tocompletethe programme successful intrinsic motivationwerementioned: (1)itisalmost profession. Twoimportantreasons forselectingon whether theywouldlikearegular jobinthisparticular come alongwiththejobtheywouldbetrainedinand whether potentialparticipantsliketheactivitiesthat application. Most intake conversationorsometimesevenanofficialjob users ofthedifferent sically motivatedparticipants.Therefore,almostall Most workcorporationswouldprefertohaveintrin of Social completed someeducation,suchastheparticipants their lives,comparedtouserswhohavealready no educationatallandhavenotworkedduring what moreimportantforparticipantswhohavehad and beinganactiveemployee.Thismightbesome- operate withotherparticipants,takingresponsibility calling insick,etc.Butitalsomeanslearningtoco- on time,askingforafreedayorplanningholidays, elements ofbeinganemployee,suchasgettingin skills isatleastasessential.Thisincludesthebasic “technical” skillsisimportant,butattainingsocial rations generallyagreethateducationandteaching The professionalsandmanagersoftheworkcorpo- work andSolarTrainconsistonlyofmen. are singleparents),whileGreen&Maintenance,Bike- with aMissionattractsmainlywomen(ofwhommany of different represented inthecompositionofgroupusers fied tojoinaworkcorporation.Thispersonalisationis ceives socialassistancebenefitsisautomaticallyquali of personalisationinvolved:noteverypersonthatre (Gemeente Nijmegen2011).Thus,thereissomelevel since workcorporationsalsodifferfromeachother moreover, whethertheavailableworksuitsclient, is themostsuitable be judgedwhetherworkinginaworkcorporation capabilities. Itstatesthatforeveryindividualitshould es severaltypesofclients,withdifferingtalentsand regular labourmarket.Themunicipalitydistinguish will gainsufficientskillstobeablefindajobonthe the workcorporationsisthatafterayearortwousers For themunicipality,mostimportantaspectof addressing users 39.2. Conceptions andways of Nijmegen NL Work. work corporations.Forinstance,Fashion work corporationswantedtoknow re-employment strategy,and, work corporationsmusthavean Employment Categories - - - - - leagues tochat withisveryvaluableforpeople who life. Professionalsemphasise aswellthathavingcol social contactsatworkandthe rhythmofaworking cause ofherrelativelyhighage, especiallyvaluesthe on the ucation. Yetanotherclient,whothoughtherchances work corporationisjustasteptohigherlevelofed For anotherparticipantofFashionwithaMission,the her morechanceonthe motivator forhertoparticipate.Adiplomawouldgive opportunity togetadiplomawasthemostimportant One participantofFashionwithaMissionsaidthe People enter stopped ifhedidnotcomplywiththerules. he wasastonishedtofindouthisbenefitcouldbe he wasnoturgedtoparticipatebythe the contractafterafewweeksworkingthere.Because tarily appliedforaworkcorporation,andhadtosign period. Yet,oneusercomplainedbecausehevolun for instance,whenaparticipantisabsentlonger useful tohavemoreoptionsputpressureonusers, used. Someprojectleadersnoticedthatitwouldbe shown up.Untilnow,thismeasurehasbeenrarely benefit –forexampleifauserhasrepeatedlynot could includea(temporary)reductionofthereceived basic rightsandobligationsaredescribed.Asanction Users signacontractwiththe any formofmotivation–sanctionsmaybegiven. the caseofreversescenario–aparticipantlacks that itisnotsobadafterall”,shesays.However,in sible thatsomeonefindsoutafteracoupleofweeks necessary topersuadeparticipants:“Itisalwayspos slight formofpressurewouldnotbewrong,ifthatis A projectleaderfromWorldCooksalsonotedthata so muchtheyactuallywouldliketostayevenlonger. ter withgreatreserve,butafter12monthstheylikeit job. Ontheotherhand,hesaidthatsomepeopleen difficult, especiallyifyouwanttogetusersaregular ration acknowledgedthatthismakesitsometimes not thatimportant.Themanagerofthisworkcorpo Green &Maintenancehowever,evenmotivationis requires anaffinitywithdriving.Forthecorporation cial skillsandlanguagefluency,SolarTrain,which ing at Social Work, which requires a certain level of so- terms ofeducationallevel).Exceptionsincludework work corporations(orisevena“requirement”in Lack ofcapabilitiesoftendoesnotmatteratmost unmotivated workers. been setforoutflowtoworkcannotbereachedwith labour marketwerealready verysmallbe work corporationsfordifferentreasons. labour market,shethought. municipality where municipality, ------229

have been unemployed for a long time. Moreover, for The concept of work corporation does not apply to some participants, just the fact that they must change for-profit companies – all profit should be invested in things at home to be able to go to work – for instance, the reintegration of the clients. arranging child care – already ensures that their world There are a few possible types of work corporations. broadens. A first type is a “traditional” work corporation. Such an Most work corporations try to encourage an ordinary organisation tries to get people back to work through work environment with a manager (or project leader work experience and education. A second type is or mentor) and his or her employees. Participants called a “broad” work corporation. Here, “activation” is who were interviewed therefore regard themselves part of the organisation as well. Activation is especial- mainly as employees, although they don’t receive ly suitable for people who have not worked for a long salary (they keep their social assistance benefit plus time and who really need to develop certain basic so- a 600-euro bonus after half a year). However, a user cial skills in order to do regular work. A third type only (of World Cooks) said he likes to see himself as a focuses on this activation part, and could be consid- student, being occupied with learning rather than ered to be a recruiter for the other two types of work with work. At the same time, many project leaders corporations. In practice, most work corporations are also try to create a safe and lenient environment – as the traditional type, because this form is best suited a project leader from Fashion with a Mission said “if to generate income. Nevertheless, work corporations they cannot succeed here, then where can they?”. that involve activation too, such as Green & Mainte- Users indeed said that they appreciate the absence of nance, could be beneficial, sincework corporations work stress (although this might differ betweenwork then “organise basically their own breeding ground corporations) and that they feel they could ask and to assure outflow to their ownwork corporations” tell anything to the project leaders. (Policy advisor). Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities In general, the concept of work corporations stems At a basic level, three parties are involved in a work from the idea that people who are in need of guid- corporation: the work corporation itself, the mu- ance in their search for a job are still able to gener- nicipality, and (often) an educational institute. The ate income. In this sense, the municipality looks at responsibilities for the first two parties are clearly what clients of social assistance are capable of rath- described in the development plan of the municipali- er than what they cannot do. This is clearly repre- ty. The work corporation is involved with the selection sented in the vision of the Craft Square, which takes of participants; creates a personal re-employment empowerment as its main goal: guiding participants programme/development plan for the participant; to develop the feeling that they are in control over guides the participant during the development their own life, the confidence that everything will be process; and provides education/training. The mu- all right and the sense that they can do something nicipality has the primary role in the recruitment of about their situation. participants, if possible in cooperation with the work corporation; provides required facilities for the re-em- 39.3. Internal organisation and ployment programme according to the WWB act and modes of working other regulations; and monitors the output target (in terms of outflow of clients). Themunicipality makes If an existing organisation or a new organisation a contractual arrangement with the work corpora- wants to become a work corporation, a starting grant tions. The content of the contracts is not always the will be appointed after approval. Instruments that same. Some work corporations have to comply with are used for the re-employment of participants (such a performance target – for example, 66 per cent of all as coaching and education) are also financed by the participants must find a job or follow a higher level municipality. Structural overhead costs and non-struc- of education after they finish the programme of the tural development costs must be compensated by the work corporation. Other work corporations do not income the organisation earns by selling the services have to fulfil any targets. This could depend on the or products it offers. In the first 1.5 years this will be characteristics of the participants or the sector people partially funded by the municipality, but after 2 years, are trained in. For instance, the labour market for bus this should all be covered by the work corporations. drivers and bike mechanics is fairly good compared to 230 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities look forpotential buyersoftheirproductor service. income willputmorepressure onorganisationsto of theseorganisations.Thenecessity ofgenerating still hastoleadsomechanges inthemanagement income andtheoutflowto regular workhasledor larly high.Nevertheless,theemphasisongenerating governance ofthe tion oftheirpolicy.Thiscouldmeantheimpacton the launchofplanactuallymeantjustacontinua Green &Maintenance,WorldCooksandSocialWork, corporations. Forseveralworkcorporations,suchas or re-employmentservicestodevelopaplanfor organisations activeinthefieldofsubsidisedlabour As noted,the welfare system 39.4. Interaction withthe the sameperson( but sometimesmultiplefunctionsarecarriedoutby management aredividedbetweendifferentpersons, times, generalguidance,specialisedhelpandproject developing thepractical,technicalskillsdiffers.Some other wayaround.Howparticipantsarehelpedwith – teachersattendtheworkcorporationinsteadof programmes arefollowedattheworkplaceifpossible which about8hoursareineducation.Educational work forapproximately25-30hoursperweek,of differs perworkcorporation.Often,participants The internalorganisationofthe reading Dutch. pants whohavedifficultieswithspeaking,writingand porations provideextralanguagecoursesforpartici have thedesirededucationallevel.Many involved inscreeningtheparticipantstoassessifthey shorter period.Educationalinstitutesaresometimes a busdriver’slicence,whichcouldbedoneinmuch programmes thataremoreflexible,suchasgetting Work andBike-work),buttherearealsoeducational a durationof1year,sometimes2years tional programme.Often,thestudyprogrammehas educational instituteorprovidesaninternaleduca Almost everyworkcorporationcooperateswithan the workcorporationsand why therearedifferencesinthecontractsbetween Project leadershoweverdonotalwaysunderstand corporations intheformersectorthanforlatter. ipality mightexpecthigherratesofoutflowfor the fashionorclothingbranch.Therefore, Nijmegen NL municipality hasinvolvedexisting e.g. FashionwithaMission). local welfaresystemisnotparticu municipality. work corporations (e.g. Social local work cor- Employment Categories munic- work work - - - - - manager ofSolarTrainargued, will havetobeimproved,say somemanagers.Asthe Secondly, cooperation between the workcorporations investigated. bilities toincreasetheflexibilityofROCarebeing replaced byaninexperiencedgroupofusers.Possi since agroupwithrelativelymanycapabilitieswillbe a negativeimpactonthecontinuityofcompany, new groupofparticipantswillenter.Thiscouldhave in Septemberthefirstgroupwillexitandanentire tions ( each year.Thismeansthatforseveral start ofeducationalprogrammes,whichisSeptember tion, iscurrentlyunabletodeviatefromthegeneral (ROC), whichprovidessecondaryvocationaleduca cational programmes.TheRegionalEducationCentre rations complainaboutthelackofflexibilityedu changes inthefuture.Firstofall,several a fewpointsofdiscussionwhichmayleadtosome is roomfordevelopment.Therehavealreadybeen new andthe The conceptof to employers. that itcansenditsrecentlyschooleddriversdirectly Train hascloseconnectionswiththetaxisector,so ration havehighchancesoffindingajobthere.Solar employees. Hence,participantsinthatworkcorpo with abigcyclecompanybecausetheyareinneedof to regularwork.Forexample,Bike-workcooperates specific economicsectortobeableassureoutflow nise theimportanceofclose had toworryabout.Many ployment wasneversomethingtheseorganisations ferently aboutthefutureofparticipants.Re-em dised employeesarenowrequiredtothinkquitedif organisations thatwereusedtoworkingwithsubsi towards theorganisationsinfield sponsibility for ance ofthe Yet, whatprobablyhasmoreimpactonthe may berentersoftheir but alsobecauseparticipantsoftheworkcorporation benefit fromtheservice(maintainingtheirbuildings), housing corporationisthebiggestclientbecausethey delivered. InothercaseslikeGreen&Maintenance, Work, becauseitisinitsinterestthattheservice commissioner oftheservice,asiscasewithSocial Sometimes, themunicipalityisbiggestorsole e.g. WorldCooksandFashionwithaMission), local welfaresystemistheshiftofre municipality clearlymaintainsthatthere re-employment fromthe work corporationsisstillrelatively housing. work corporationsrecog- collaboration withthe . Inparticular, work corpora- municipality work corpo- govern------a - 231

Everyone has the same assignment, and if you have to purchase certain services, why won’t you buy it at a fellow work corporation? For instance, if the train has to be painted, why wouldn’t I let it be done by men of 2Switch [Green & Maintenance]? And if 2Switch has to drive from point A to B, why won’t they be transported by our train? We already have a concrete cooperation with World Cooks, because they also offer arrangements which include a ride with our train, while we can offer an arrangement which includes dinner at World Cooks. Then you will strengthen each other.

(Manager, Solar Train)

A manager of World Cooks thought the cooperation between work corporations can be very useful if a participant is not entirely happy at his current work corporation: “if someone is somewhere else and he says he would like to cook, well then they just have to call us. That little network has to be more visible”. She also wanted the municipality to assist more with regards to achieving re-employment. Many work corporations expressed their doubts whether they can really realise the expected outflow to regular work. Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities They often lack the experience in getting in touch with the regular labour market. This knowledge is available at the specialised departments of the municipality, they argue. A fourth potential problem is that there is a tension between the performance targets and the type of clients that are selected by the municipality. It could be that if the performance targets are difficult to reach, work corporations could request a higher entry level in terms of social skills and intelligence. Then the question would be whether the original target group enters the work corporation. The municipality wants to take enough time to see if the concept can develop into a successful instrument. Hence, at least all current work corporations will continue in the near future. It is too early to say something about the “success” of work corporations. The municipality will carry out an evaluation at the end of 2012. Currently, project leaders are satisfied how things are going right now, particularly when it comes to the personal development of the participants. The number of work corporations is now set at sixteen. The municipality especially hopes that more private companies will be interested in forming a work corporation by offering single learn–work trajectories. 232 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities housing are feasible, and the sixth and last phase is appointed to implementation. The two last innovative forms ofhousingarefeasible, andthesixthlast phaseisappointedtoimplementation. Thetwolast and (potential)end-usersofthe realestateinthedevelopmentofinnovativeideas. Then,itisdecidedwhetherthe active societalpartnerssuch astheprofessionalsoccerclubNijmegenseEendrachtCombinatie (NEC),entrepreneurs and offersintheneighbourhoodonrelevantissues. Thenextphaseisdesignatedtoinvolveresidents, front-runners, from anexternalconsultancy company.Inthesecondphase,thisprocessmanagermakes aninventoryofdemand The projectisdividedintoseveral phases.Thefirstphaseconsistsofemployingaprocessmanager, whoishired general, theprojectfitsspiritofnewWMOlaw societaldevelopmentverywell(seeIntroduction). plans hadtobepostponedbecauseoftheeconomiccrisis, thefocusisnowespeciallyonsocialsub-goals.In with stimulatingresidents’ownresponsibilityandentrepreneurshipofvulnerablepeople.Sincealotbuilding ing theneedsofresidents,activesocietalpartnersandentrep reneurs; and(2)toexperimentduringtheprocess and integrationbetweenthesegroups.Therearetwoimportant sub-goals:(1)tohaveaprocessaimedatconnect- minorities, incombinationwithhousesforyoungstersand/or teenmothers,inordertostimulatetheinteraction residents aswellforelderlyresidents.Therearealsoplans tobuilddwellingsespeciallyfortheelderlyofethnic education andwork.Theprojectentailstherebuildingof asquareandthedevelopmentofhousesformentallyill residents, ideasshouldbedevelopedaboutinnovativeforms ofhousingpertainingtothemessuchaswelfare,care, The centralgoaloftheprojectistoinvolveresidentsinrestructuringneighbourhood.Incollaborationwith some signsthatthequalityofsocialclimateisslowlyincreasing(Gemeente of involvementwiththe between nativeresidentsandethnicminorities,butalso“traditional”newcomers,alack share ofethnicminoritiesthaninthecityasawhole.Socialcohesionisunderthreatbecausegreatdistance or vulnerablesocio-economicbackgroundlivehere.Themeanageishigherthanaverageandtherealarger was builtpartlyintheperiod1910-20,andafterSecondWorldWar.Relativelymanypeoplewithaweak The planisdirectedatthe – participationinthe ments”, butthefocushadtobevulnerablegroups.ForPortaal,itwasabout rangements” withinalargerprogramme.Itwasnotstatedclearlywhatmeantby“innovativelivingarrange body” in2009becausetheprovince(Gelderland)reservedmoneyfor Housing corporationPortaal,togetherwiththe 40.1. Shortdescription A FutureforEverybody 40 Nijmegen NL local communityaswellcontactsamongresidents. /77 neighbourhood, andnuisanceonthestreets,particularlybyyouths.However,thereare neighbourhood of Related toallpolicyfields Categories Wolfskuil (Wolf’sHollow),whichislocatedinthecitypart municipality of Nijmegen, startedtheproject“AFutureforEvery development of“innovativelivingar participation inthebroadsense Nijmegen 2012). Oud-West. - - - It 233

phases are not executed yet. The municipality of the power of creating something on your own; that is Nijmegen and Portaal have set up the project together, important for the neighbourhood”. The process man- but in the second and third phases the municipality ager argued that it would be great if someone were is the main party, while in the fourth and fifth phase to come into the Hobby Centre practising his or her the housing corporation leads the project. In the last hobby, and to see the same person as a small entre- phase, both parties will deal with implementation and preneur some time later. This is exactly what hap- completion. The entire project costs around 150,000 pened with one of the residents. He was the father euro, where 25,000 euro is contributed by Portaal and of the family who baked Turkish pizzas (lahmacun) at the municipality, and 100,000 euro is funded by the the square. He received some help to buy a covered Province of Gelderland. The greatest part of this mon- mobile stall, to sell his pizzas throughout the city ey used to pay for the process manager. regardless of the weather. This allows him to make some extra money next to his subsidised job. He also 40.2. Conceptions and ways of became a member of the neighbourhood committee addressing users as the only resident of foreign descent.

In the project plan it is stated that residents of the 40.3. Internal organisation and Wolfskuil, along with the “end users” of innovative modes of working forms of real estate, have to come up with concrete plans for the realisation of these innovations. They The process manager started with a so-called “neigh- also should have a role in the development and bourhood safari”. This is a method to get familiar implementation phase and have the final responsi- with the neighbourhood by talking to residents and bility in daily practice after implementation. One of professionals, to come “behind the front door” of the basic principles of the project is to “make use of role models, but also of vulnerable persons. All these Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities everybody’s talent and the focus on what is possible”. people were asked what they do in the neighbour- The project leader of Portaal underlines this: “It is hood, how they experience that, what needs to be not about doing everything for big groups of people, done, what do people need to achieve that, what especially not that. It is about facilitating that they can are their intentions, how do they work together, etc. do it by their selves”. How residents are seen exactly Some people were asked to help with the so-called becomes clear in the way they were involved in the Kuul contact week, along with professionals from the “goodbye” festival of a central, old square that was most important organisations in the neighbourhood. about to be demolished and rebuilt: During this week, residents and professionals paired What we did is to say goodbye of the square with a up to consult other residents about their concerns, lot of residents, where we also [involved] an artist and their needs and their willingness to become active in a poet from the neighbourhood, and a family who the local community. A total of 102 people were con- baked Turkish pizzas. […] It was more in the direction sulted. One result was that people would like to have of co-production, as in communicating about how more contact. It appeared to be that people have was the neighbourhood, back then and now. We tell great willingness to do something for the neighbour- stories, you could tell your own story. There were hood too. Another very important outcome was that different people who did something, made a product many networks exist in the neighbourhood which are of the neighbourhood. Former residents were invited not easily visible. too, so it starts with thinking from the viewpoint of the It was not only the social networks of residents that resident, what would it mean for him or her? Next to mattered. The network of local organisations was resident they were a producer too that day. also crucial in encouraging participation. The project (Process manager) leader of Portaal emphasised this: There is no longer any organisation that can do this Hence, residents are regarded as co-producers rather on its own. You need cooperation on neighbourhood than passive consumers. The idea is that people level with the most important stakeholders, to create a do something because they can experience direct network in order to protect the most vulnerable areas. benefits to themselves and to others. The head of the And at the same time, that regular networks keep an Hobby Centre said “the power of entrepreneurship, 234 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities norities too,itappeareddifficulttoreachthem. Although attemptsweremadetoinvolveethnicmi cleaning backalleysandmaintainingplaygrounds. same vein,peoplewhoarementallyillparticipatein They wereaskedtohelpwithdemolitionwork.Inthe the opportunitytoworkforasmallreimbursement. the project.Thisfoundationgiveshomelesspeople for residents.FoundationDagloon by deliveringparticularservicesorproductsand factory”, whichissupposedtobecomeself-sufficient to turnthiscentreintoaso-called“ their hobbiesandcometogether.Theintentionis Centre, whichisaplacewhereresidentscanpractice project. Investmentsaremadeinaso-calledHobby Hence, differentorganisationsplayaroleinthe process manager: also hinderedbythem.Thiswasunderlinedthe ing theinvolvementofcitizenscanbefacilitated,but from professionalsandlocaladministrators.Stimulat intentions oftheprojectdemandachangeinattitude local welfaresystemin The mostimportantimpactonthe welfare system 40.4. Interaction withthe (Project leader,Portaal) searching fornetworksyoudon’tknow. things, cooperationwithotherorganisationsand origins whocookeveryweek.Actuallytherearetwo eye onothernetworks,forexamplewomenofmigrant Nijmegen NL (Process manager) clear. Thenitmightbesuccessful. over, butthattheyonlyfacilitate andkeeptheirtasks can doapartthemselves.And thattheydon’ttake sometimes. Andthattheybelieve thatthosecitizens patient, becauseadelaywillcome,itbedifficult cials, thattheyarewillingtolisten,very […] Itisaboutthatpublicofficial,orthosefewoffi they mowedandstraightenedit.Sogoodbyeinitiative. what happenedoneday…the together andgrassflowersstartedgrowing of ground.Theyploughedandsowedtheground example, agroupofresidentswouldmaintainpiece can reallydiscourageyoutakinguptheinitiative.For of Portaal.Becausetheycanhelporbotheralot.They partners andtheroleofgovernment,or An aspectinwhichIamnow...iswhattheroleof Nijmegen wouldbethatthe municipality cameand isalsoinvolvedin governance ofthe neighbourhood local Related toallpolicyfields Categories - - - During theprojectideaofaso-called“ yet whattheirexactcontributionwouldbe. organisation areinvolvedtoo,althoughitisnotclear such asabank,supermarketandhealthinsurance free, suchasfreepaintinglessons.Biggercompanies, services forweakgroupsinthe few timespermonth.Theyagreedtoprovidesome bring agroupofentrepreneurstogetherwhomeet al organisations.Theprocessmanagermanagededto as entrepreneurs,thesoccerclubNECandeducation societal organisationstolessobviouspartners,such Linked tothisistheaimconnecttraditionallyactive ly donebefore. to thinkbeyonditsownorganisation,whichwasrare Recent changesinpoliciesandthinkingobligePortaal of Portaalarguedthissituationisnolongerfeasible. only thinkaboutthemselves”.Still,theprojectleader and letters.Also,henotesthat“ and grantedhisrequestonlyaftermanyphonecalls the municipalitystumbledoverrulesandregulations requested apermittostarthissmallpizzabusiness, comes clearthatsuchashiftrequirestime.Whenhe his story,done.”Intheinterviewwitharesident,itbe order catering,placeadraftandtheAldermansays in thiscase,andthe ently inthepast,processmanagersaid:“Portaal corporation wouldhavedoneitcompletelydiffer of thegoodbyefestivalsquare, For Portaal,thisrequiresashiftinculture.Inthecase should begiven spacetogetinvolvedinthe factory. of ownership.Also,localentrepreneurs andartists together: participation,gettingtogether andasense tory, severalmainaspectsof theprojecthavetocome is aplacewhereeverybodyfeels welcome.Inthefac Centre waschosenasthelocation.Itisbelievedthat Nijmegen. Tofurtherdevelopthisidea,theHobby ago andtheywouldliketoseeifitcanberealisedin example ofsucha ble atrustasitisknownintheUK.Portaalsawan hood factory”developed.Thisfactorywouldresem (Project leader,Portaal) ther the groups youneverhearorsee,wedidthat,nei sound. Consciouslysearchingfor Maybe thatisthemostinnovative,howbasalitmight important discovery.Butyouhavetolookforthem. works andthattheyareeverywheremightbethemost I thinkthattherecognitionofpresence municipality. neighbourhood trustafewyears municipality wouldsay,well,we neighbourhood for housing corporations networks within housing neighbour net------235

The process manager and project leader of Portaal In the end, to have a successful neighbourhood explain how it would work: factory, the role of residents is of great importance. Wouldn’t it be great if that former shoe factory be- The director of the Hobby Centre thinks that the comes a neighbourhood factory, where you can devel- neighbourhood factory stands or falls with the sense op activities for and by the neighbourhood. Where the of ownership. Residents should be aware that a idea is with each other, for each other. So the people neighbourhood factory not only provides services or have to be owner of that neighbourhood. products for them, but they are a part of it: “It means that people don’t have to think like, this is what we get (Process manager) subsidy for, no, we have to work together for it, just Residents have to manage and maintain a neighbour- like other companies. [..] This [the Neighbourhood hood centre. If everything goes well, they have to gen- Factory] is not a company with a pure consumer and erate income from this and one way or another they a producer, it is a co-production” (Director, Hobby should reinvest this money back into the neighbour- Centre). hood. You can do that in different ways. You could talk to people, those women who come together every week to cook something, well let’s sell those products. […] But you can think of everything, people can work with local entrepreneurs, cleaning of back alleys, organising activities. Maintenance, which is now the responsibility of the municipality, could be handed to such an organisation. What we [as a housing corporation] do in the living environment could go there too, Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities so there are plenty of opportunities.

(Project leader, Portaal)

According to the director of the Hobby Centre, the idea of a self-sufficientneighbourhood centre has two causes. First, the dependence on subsidies from the municipality is a cyclical problem: you can only plan a few years ahead, because you never know what is going to happen when a new executive board is installed. Secondly, it would increase independence of the demands of the municipality. If they give a subsidy, they often would like to keep control over the way the money is spent. Still, it could be that in the first stage of the factory some professionals of Portaal will be part of the management, delivering knowledge and competence to support the development of an independent organisation. 236 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities es, dealingwithwalkie-talkies, clothing,rightsandobligations, The grouptooksurveillance trainingprovidedbyaregionaleducationalcentre.This consistedofbasiccompetenc position, talkwithresidents about issuesonliveabilityofthe the Siroccovolunteerswould merelydealwithsmall,simplethings.Volunteerswould, onthebasisoftheirequal and reportanyaffairsconcerning started walkingthroughthe Subsequently, theparticipantsweregivenwalkie-talkies andredjacketswithaSiroccologotoberecognisable sters toworkongoodfutureperspectives”. increase socialcontrolinthearea,toformabridgebetween parentsand(their)youngsters,tomotivateyoung “To improvethequalityoflifeand lated asfollows: been formed,amoredetailedplanwasworkedout,together withtheparticipants.Officially,goalwasformu them werenativeresidents,butalsopeoplefromdiverse ethnicminorities.Oncethegroupofparticipantshad Although itwasnotanecessaryrequirementfor recruiting volunteersand,eventually,aroundfifteenpeoplejoinedtheSiroccoteam. of residentshadtoconsistatleasttenresidents.Hence,theMoroccanfoundersand to involvenotonlyMoroccanfathersbutmenandwomenfromdifferentbackgrounds;secondly,thegroup municipality, however,askedforseveralconditionstobemetbeforetheprojectcouldstart:firstly, had tention areas”,the much approvedofthisideaandgavepermissiontoworkoutaplan.BecauseHatertwasonthelistso-called “at the authoritytowarnyoungstersiftheywerecausingproblems.A“districtmanager”from if theyfrequentlywalkedaroundthearea.Theirseniorityandattachmentto their neighbourhood,Hatert,too-olderresidentsshouldbeabletogiveotherseniorafeelingof project inTheHaguetoseehowitwasorganised.fathersthought that suchaninitiativecould be carriedoutin in othercitiestheNetherlands.Togetherwitha building. After afewweeksoftraining,they hitthestreets. In 2009,threeMoroccanfathersin 41.1. Shortdescription Sirocco 41 Nijmegen NL municipality hadaccesstonationalfundsthroughwhichtheprojectcouldbesubsidised.The /77 neighbourhood inpairs.Theirtaskwastoengageconversation withotherresidents safety andpublicordertothe safety inHatert,toimprovethecommunicationwithand betweenresidents,to Nijmegen sawthatsuccessful“ Neighbourhood revitalization/Housing Categories participation, manyoftheparticipantswereunemployed.Among local welfareworkerfromTandemWelfaretheyvisitedsucha neighbourhood. etc neighbourhood policeofficer.Theideawasthat . Therewerealsomeetingsto encourageteam neighbourhood father”projectswererunning neighbourhood wouldgivethem welfare workerstarted municipality very safety - - - - 237

In the beginning, the project was considered very communicating, to get in contact with residents and successful. Residents as well as shop owners were youngsters, you have already won 80 percent” (for- positive about the Sirocco surveillance teams. Alder- mer project leader, Tandem). men, council members and political parties expressed For Tandem, it was about supporting and facilitating their appreciation for the initiative. Sirocco was even people who want to contribute to “neighbourhood awarded a price for best neighbourhood initiative society” by stimulating contact and communication from the local Socialist Party in 2010. There was also among residents. In the case of Sirocco, this hap- plenty of positive media coverage from the local pened to be in the field ofsafety, but it could be on newspaper and television. Nevertheless, at some any topic. Yet, the municipality might have had more point, the tone around the Sirocco project changed. concrete ideas about the merits of the project. As the For instance, some shop owners started complaining project leader of Tandem said: “A Department Safety that the volunteers were giving them instructions on or Surveillance will look at it from an entirely different what to do and what not. There were also incidents perspective. Contribution to safety, contribution to where some teenagers intimidated the volunteers. quality of life, the big words, contribution to decreas- Furthermore, cooperation within the group of partic- ing vandalism and things like that” (former project ipants did not always go smoothly. In short, positive leader, Tandem). comments turned negative. Hence, the initial goal of the project was lost over Two elements in particular seem to have contributed time and there was a process of goal displacement. to the escalation of problems. First, (partly) because The former district manager agrees that in the end, of all the positive attention, (some) volunteers slowly the activities of the volunteers did not match the shifted away from their original tasks and extended essence of the project anymore. For him, the essence their responsibilities to other issues. For example, was: “That people who live in the neighbourhood get Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities they were doing rounds inside shops instead of the feeling that there are people in the public space staying on the streets. Secondly, it was difficult for who have a personal empathy for the well-being of the professionals to explain to the volunteers that residents and have time for a little chit-chat about they had to stick to simple tasks, as well as signalling everything, but meanwhile looking out if everything problems that existed in the personal lives of partic- goes well” (former district manager). ipants. For instance, cliques were formed within the group which made it hard to make pairs. Also, some According to the district manager, similar projects volunteers had already experienced conflicts with elsewhere perform better because volunteers stay youngsters in the neighbourhood before they entered out of the picture. Residents should keep an eye on the Sirocco team. The project was finally stopped in the neighbourhood, but problems should be solved 2011, when one of the participants of the Sirocco pro- by experts. During the project, volunteers were some- ject received serious threats from young residents. times seen as “amateur substitutes” of police officers Although an attempt was made to restart the project or supervisors. Perhaps some of them indeed felt like later on with a new group of volunteers, this failed. semi-professionals.

41.2. Conceptions and ways of 41.3. Internal organisation and addressing users modes of working

The underlying assumption of the project was that The final responsibility for the project was laid at older residents have a certain amount of authority the former Alderman of Neighbourhood Issues. The that will allow them to adjust the behaviour of young- project was co-financed from the so-called “integral er citizens. In the official reaction of the mayor and safety budget”, which meant that mayor was partly the executive board it was stated that this “ideologi- responsible as well. The district manager of Hatert cal” framework appeared to be unachievable. For the was responsible for finances, support and communi- former project leader of Tandem, the actual goal of cation with other parties in the municipality. He had . Sirocco was broader than this: “Actually, our intention, a lot of meetings with the project leader of Tandem and also that of the people, was that if you are visible If requested, he was present at meetings with the pro- and you are interested [in other people] and you start ject leader and the volunteers. It was agreed that both 238 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities substantial proportions.Atleast inpartthiscouldbe tually, itwasimpossibletocreate anewgroupof did notwanttojoinunderthese newrules.Even were tightened.Thefirstthree initiators,especially, the project.Thistime,conditions of A similarproblemappearedintheattempttorestart of theproject: expectations conflictedwiththevoluntarycharacter too muchofaburdenontheparticipants. volunteers assubstitutesofqualifiedworkersplaced According totheprojectleaderofTandem, and/or whichshouldhavebeenlefttoprofessionals. started todothingstheywerenotsupposed what toexpectfromthevolunteers.Volunteers At thebeginningofproject,itwasnotdefined contributions andtheregularworkofprofessionals. Sirocco shed light on the relationship between citizens’ welfare system 41.4. Interaction withthe with thecoachingofothervolunteers. the volunteershadworkedasasupervisor,hehelped evening. Theyhadweeklymeetings.Becauseoneof hit thestreetseverydayfromafternoonuntil subdivision ofthepolice.Inpractice,volunteers bourhood) policeandtheSurveillanceDepartment,a 3 years.Otherorganisationsinvolvedwerethe( accounting andmakingthegroupindependentwithin communication withinthegroup,evaluation,financial ing tasks,education,workschedule,appointments, had tobringstructurethegroupconcerningdivid volunteers thanthefirstthreeinitiators.Theyalso They usedtheir Tandem wasresponsibleforsettinguptheproject. he andTandem Nijmegen NL (Former projectleader,Tandem) activating peoplewhowanttodosomething? accountability, accountability.Howdoesthatrelateto at thebeginning,givingmoney,[then]rules, we’ll hearfromyouhowitwent”.[…]Nowisright can’t say“that’saniceidea,here’sthemoneyand and theyareconfrontedwiththefunder.Thefunder people wanttodosomethinginthe things gowrong.Youseethatalotbytheway,if what areyoudoing?Yougethighexpectationsand there havetobeasignedcontract”,thenIthink, For example,[whenthe arrangedexternalcommunication. network andcontactstoinvolvemore municipality says]“doesn’t neighbourhood participation local Related toallpolicyfields Categories The high regarding neigh - - - argues. done byotherprofessionals, theprojectleader residents willtooeasilyconflict withworkalready neighbourhood. Whenitcomesto different rolestocontributetheliveabilityofa to abroadertopicofliveability.Residentscouldplay it mightbeastrategytoconnectthinglike criminality cannotbehandledbyvolunteers.Hence, the responsibilityofresidents.Forexample,heavy Safety isatopicwhichespeciallyhardtomake become associatedwithjustoneparticulartopic. participation willbedifficulttorealisewhenprojects For theformerprojectleaderofTandem,citizen each other: guidance andprofessionalsresidentsunderstand of projects,aslongthereisgoodprofessional The districtmanagerstillbelievesinthesekinds In theend,alothasbeenlearnedfromSirocco. may givetensions: down. Hence,makingregularpolicyofcivil explained bythehighexpectationsthatwerewritten (Former districtmanager) it runsverysmoothly. their expertiseonthatfield.Ifyoubindtogether, because theylivethereandfortheprofessionalsitis idents itiswhattheyknowabouttheneighbourhood out to each other from that specific angle – for the res- or anything.Ifprofessionalsandresidentscanreach the fieldofsafety,communication,workandincome to trusteachotherfor100percent,whetheritison developed now.[…]Professionalsandresidentshave officer forexample.Otherwiseitwilldevelopashas professional, asupervisororneighbourhoodpolice need tobeontopofit.Youcannotdoitwithouta especially whenitconcerns But Idoknowthatthemanagementhastobealot… (Former projectleader,Tandem) issues. take thatasyourstartingpositionyougetallkindof lives intheirstreetsor from themselves,howdotheywanttoshapetheir of forwhattheresidentswant,wheredotheybenefit regarded asaninstrumentforyourowngoals,instead lot ofresidents,youcanaskacitizens,butifitis If it’smadepolicy,knowwhatyouask.Youcanaska neighbourhood. Ifyoudon’t safety, thatyoureally safety, actionsof initiatives safety 239

To summarise, several lessons can be learned from One legacy of these projects seems to have been the Sirocco project: a shift towards the acceptance of a more active role of citizens. The idea is that co-production >> Tasks of volunteers should be clear. between citizens and local agents will increase >> The relationship of the task of volunteers and the effectiveness of services and simultaneously tasks of professional organisations should be improve social cohesion in neighbourhoods (see clear. Fledderus et al. forthcoming). This movement >> Media attention and high expectations can affect requires a cultural adjustment within professional the attitude of volunteers. organisations, which makes it even more evident that it is innovative indeed. For housing corporation >> Professionals should be able to steer volunteers in their tasks and group process. Portaal, the shift to more resident involvement was made very consciously. They agreed that their >> Motivations of volunteers can be ambiguous. traditional approach no longer fitted current times. However, Sirocco would not have existed if residents themselves did not express their wish for such a project. The alderman responsible was not in favour Conclusions of citizen participation in neighbourhood safety at Sustainability that time, but political support was given since the initiative came from residents. It might be for this Although all innovations were, at least at the start, reason too – i.e. the fact that it was not the choice dependent on public funding, an explicit wish exists of the police and municipality – that the project among members of all three projects to continue encountered problems. Upgrading the community even if financial resources dry up. However, this component in mixed welfare systems often ends Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities urge to be self-sufficient was driven by different up in failure because organisations “do not speak logic. Work corporations would prefer to earn people’s language ... or they put people under revenues of their own because the municipality pressure by demanding too much co-production and lacks financial resources to provide extensive compliance” (Evers and Ewert 2012: 18). In particular, re-employment instruments. To be self-sufficient the propensity of professionals and municipal as a work corporation is a necessity rather than a workers to pull welfare issues towards themselves choice. In the case of A Future for Everybody, it was seems to be tenacious. This may especially be the not only the uncertainty of receiving continuous case when it concerns areas where it is believed that funding that inspired the project management to citizens do not have sufficient skills or authority, such develop a self-sufficientneighbourhood “ factory”, but as safety: also reluctance to be dependent on a single funder. Yes because then people have to come up with things Hence, the independence of subsidies will safeguard and then eventually it turns into a administrative the sustainability of innovations on the one hand, idea, or a municipal idea and then there is of course while it may give more control for the initiators of an outburst when something happens and then it is innovations on the other. Nevertheless, these kinds left to the institutions. And safety, especially when you of projects may always require some professional look at it isolated, that is a terribly difficult thing to guidance at the front end, for instance, when it comes make it something that belongs to the neighbourhood, to knowledge about certain rules and regulations. The because there are so many catches involved. money needed for this kind of project management (Project leader, Tandem Welzijn) now comes partly from a housing corporation. Since housing corporations are suffering big losses due to a A Future for Everybody might perform better in housing market deadlock, lowered house prices and this respect because it shows characteristics such increased rental income levies (and sometimes risky as “learning, collective rethinking or behavioural investment strategies), it remains to be seen whether changes” (Evers and Ewert 2012: 18). While this they still find it valuable to invest in “social sub-goals”. project actually failed to reach some important targets concerning the development of real estate, it provided soil for new initiatives. Hence, at the end 240 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities of thenewpolicy: should beconsideredasthemostinnovativefeature to introduceanewwayofthinking–andthat that The AldermanofWorkandIncomeexplicitlysays issues: organisations andinstitutionscomeoversolve neighbourhood themselves,ratherthanhaving having residentstakecareofproblemsintheir In thecaseofSirocco,itwasaboutidea problems survive. wish thatfundamentalideasforsolutionssocietal not seemtheultimategoal.Rather,itisabout of theday, Nijmegen NL something, but alsotakehisresponsibility.But thatis taboo… everybodycanthinksomething ofitandsay everybody hasanactiverole. […] Wekindofbreakthe role andsomebodyelseapassive one.Inmyeyes in thefieldarole.Notlikesomebody hasanactive The innovativepartisthatyou giveallstakeholders (Former projectleader,Tandem) neighbourhood rangers. to dowithschools,youwantsomething to dosomethingwiththat,youwant will cleantheDar[wastecompany]ordoyouwant and litterrubbish,what...doyousayyesthat do withtheother.Thesameifitisamessonstreet you thenlike?Alsobecauseoftheideaonehasto see itmorelikeifyouwantsomething,whatwould then youapproachitfromawhole,also neighbourhood togiveformthat and therearepeoplewhoplayaroleinthe for examplepeoplecanliveintheneighbourhood and thatyoucandoallsortsofthingsthere,but matter thatyouidentifywith in theneighbourhood.Wellofcoursethatdoesnot You canapproachitlikehey,youaretheresident (Project leader,Portaal) And wealwayssaythatbutherearereallydoingit. really haveseentheimportanceofthatparticipation. are involvedinthisproject,thanbefore.Becausewe Their visionisalotdifferent,atleastbythepeoplewho partners inthishaveturnedtheirvisioncompletely. trust... Thatindicatesthatatleastthecooperating probably willstartwiththatsocialinnovationof follow-up projecttotheprocessmanager,andPortaal I think,thefactthatmunicipalityhasgivena work corporationsareusedasaninstrument sustainability oftheprojectsitselfdoes neighbourhood community. But They areinnovations because“theypresent This couldthreatenthe of gettingpeoplebacktowork)cannotbeproven. Alderman, itispoliticallysensitiveifsuccess(interms been promotedasapromisinginstrumentbythe as a“success”.Becauseworkcorporationshave whether theprojectscaneffectivelyberegarded failed project.Intheothercases,itisstillunknown fairly unpredictable:itisbothaprize-winningand the courseof represent “bestpractices”.Infact,Siroccoshowshow Finally, theselectionofinnovationsdoesnot regarded asinnovativetoo. safari” wasused,whilethe the unconventionalinstrumentofa“ in asocialcontext.WithinAFutureforEverybody seekers, andunorthodoxwaysofmakingrevenues connecting the includes newformsofeducation,innovativeways them maybetreatedasinnovationsthemselves.This corporations allhavedistinctfeaturesandsomeof approaches andinstruments.Theseveral Everybody) gohandinwithinnovations - innovations( was foundthatmorecomplex–or“ environment fornewideasonalowerlevel. ideas atahigherlevelprovideaninspiring Furthermore, theanalysissuggeststhat (Programme manager,Work andIncome) everything. Therehavetoberesults now. in Marchthereareelectionsagain, youfeelthatin very complicatedforpolitics.Because especiallynow, art tokeeppersisting,everytimeagain.Butthatis per cent,orwell,40cent.Soitisespeciallythe difficult toreachanoutflowrateofmorethan30 present situation,itisregardlessofwhichinstrument practice beforeyougetresults.Andmoreover,inthis development ofaninstrument,thelearningduring Yes thatissometimescontradictingwithyes,the because within4yearsithastobeasuccess. Politics isofcourse,yestheywanttoscorefast, (Alderman ofWorkandIncome) corporation isameans(todoso). to breakthroughthiswayofworking,andsuchawork “yeah Igetajobfromyou”.(…)Wellthatiswhattry responsibility ofthe society says:“jobseekersatsocialservices,thatisthe how itshouldgo.Otherwiseyougetasituationwhere development ofinnovationscanbe work corporationsandAFuturefor labour markettodisadvantagedjob municipality”. Jobseekerswhosay: sustainability ofthepolicy: Kuul contactweekcouldbe governance” neighbourhood innovative work It

accepted justlikethat. elsewhere, butthisdoesnot meantheseideasare for Everybody,ideashavebeen pickedupfrom then spurredtheproject.AlsowithinAFuture The availablefundsandgoalsofthewijkaanpak leader ofSiroccoexplainsthis“ideaphase”: of someresidentsin indeed aprojectinanothercitythatgottheattention Gruyter andPels2005).InthecaseofSirocco,itwas also beendocumentedrelativelywell(forexample,de projects havebeenspreadalloverEurope.They in 1999 fathers patrollingthroughthe father projects.ThefirstprojectwithMoroccan has beenprecededbymanyother social inclusion(Nyssens2006).AprojectlikeSirocco because theyalsocreateopportunitiesforworkand for (social)markets,yettheyare“social”enterprises enterprises becausetheydelivergoodsandservices belong, aredescribedintheliteratureas“real” integration enterprises,towhich proven towork(EversandEwert2012:6).Work in differentcountriesandcitieshavealready be seen as “prototypes”; models that have been found The examplesof Diffusion arrangements (EversandEwert2012:3). not justbecausetheywork“better”thanold hopes forbettercopingstrategiesandsolutions”, themselves aspromising,riseaspirationsandattract from Portaalin And thatsuchaninnovationor ideahappentocome the country. that isanargumentright?Thatitusedthroughout has notbeenprovenaccordingtome,atall.But acceptance oftheirauthority,apresumption.That relationship withtheyoungsters,thatthereis Moroccan fathers,ifyouletthemcarryitoutina neighbourhood fathers.Fromtheassumptionthat by theway,aboutcanwenotdosomethingwith the questionwasraised,inotherpartsofcity have alwaysdonethataswelfarework.Inthiscase, own environment,theliveability,wellactuallywe we werealsoalreadybusytoinvolvepeopleintheir that, ofneighbourhoodfathers.Withotherprojects the country. First ofall,youseethosethingsappearelsewherein Amsterdam. Sincethen,sametypesof Amsterdam isofcourseonexample work corporationsandSiroccocan Nijmegen, that that iswidelyaccepted Nijmegen. Theformerproject neighbourhood started work corporations neighbourhood

active citizenshipwithouttakingover. solutions forsocialproblemsandtofacilitatethis to provideopportunitiesforcitizensco-produce biggest challengefor initiators werenolongermotivatedtocontinue. people triedtogiveSirocco completely dependentonactiveresidents.When trust managedbyresidentsforresidents,isobviously The conceptofa“ find clientswhowanttoworkatacorporation. noted thatitisalreadybecomingmoredifficultto case ofworkcorporations,amunicipalpolicyadvisor responsibilities and be importantifthetrendtowardsindividual particular, thesupportofcitizenswillincreasingly are dependentonthesupportofstakeholders.In of whichactorinitiatedtheproject,inendthey housing corporationin revitalisation project,wasinitiatedbyPortaal,a Future forEverybody,acomplex example ofabottom-upinitiativeresidents.A the municipalityof The conceptof Interestingly, allthreeinnovationsdifferinorigin. making. room fortheseorganisationstosteerthedecision organisations. Theabsenceofaworked-outplangave involve somelocalfront-runnersandspecialised of workcorporations,the For example,tobeableassurethe The factorofsocietalsupportmightplayarolehere. build onprototypes,arerarelycopiedjustlikethat. This impliesthatinnovations,althoughtheycan use anyblueprinttomimicwhatisalreadyoutthere. What isstriking,however,that (Project leader,Portaal) for ourclientandustoointhatsense. very importanttousandthattheyhaveaclearvalue, organisation ofPortaal,thattheseinnovationsare Slowly therecognitionstartstogrow,inwhole for that,dowewantthatandshouldthat?”. then itwassaidhere“shouldwedothat,areready 2 yearsagotoseewhatisupwiththattrust,back in PortaalwhileacolleagueofminewenttoEngland work corporationswascoinedby neighbourhood factory”,akindof Nijmegen. Siroccoisaclear self-reliance continues.Inthe local welfarepoliciesmaybe Nijmegen. Yet,regardless municipality hadto asecondchance,the innovations donot neighbourhood development The 241 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 242 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities cross-country study”,paperpresentedatthe10 a social cohesion.Onconceptsandfirstfindingsof Evers, A.&Ewert,B.(2012)“Socialinnovationsfor Bibliography Table 1-Examplesof List of tables New York:Routledge. of Market,PublicPoliciesandCivilSociety. Nyssens, M.(2006) Zeggenschap. Utrecht:Verweij-JonkerInstituut. Buurtvaders. ProfessionaliseringmetBehoudvan Gruyter, M.de&Pels,T.(2005) (November 2012). QsReportAdvanced.aspx?report=swm_d eel_wijk HTTP: http://nijmegen.buurtmonitor.nl/quickstep/ Nijmegen: GemeenteNijmegen.Online.Available Statistiek (2012)S Gemeente Notitie_werkcorporaties 03-2011.pdf(24May2012). www2.nijmegen.nl/mmbase/attachments/1087383/ Gemeente Nijmegen.Online.AvailableHTTP:http:// integratiebeleid vandegemeente als leerwerkomgevingtenbehoevevanhetre- Werkcorporaties. Deontwikkelingvanwerkcorporaties Gemeente Nijmegen(2011) elaboration”, PublicManagementReview. co- productionofpublicservices:atheoretical (forthcoming) “Restoringtrustthroughthe Fledderus, J.,Brandsen,T.&Honingh,M. al ESPAnetconference,Edinburgh,6-8September2012. Nijmegen NL Nijmegen, afdeling Onderzoek & Nijmegen, afdelingOnderzoek& tads- enwijkmonitor,deelwijk, Social Enterprise.AttheCrossroads work corporationsin Nijmeegse DeToekomstvan Nijmegen, Nijmegen: Londonand Nijmegen

th annu- PL Poland Warsaw

Renata Siemieńska, Anna Domaradzka and Ilona Matysiak (Warsaw University) 244 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Social economy Participation Lone mothers Local government Labour market Grassroots initiative Citizenship Child care Keywords: Local background of thesocialinnovations Introduction Warsaw PL in accordance withthenewpolitical,social andeconomicplans.Newurban cree”) meant,infact,thatthey weretakenoverbythestateandmanaged buildings thatsurvivedthewar (onthebasisofso-called“Bierut’sDe on expropriation,liquidation ofprivatepropertyurbanareasandthe nist system.Thenewauthoritiesdecided torebuildthecityquickly.Theact result ofthewar.Reconstruction ofthecitytookplaceinnew,commu end ofWorldWarII.Thenumberinhabitantsdropped dramaticallyasa past. Seventy-fivepercentofthecity’sinfrastructurewas destroyedatthe The socialproblemsofmodernWarsawarestronglyassociated withits of Polandwithregardtopotentialandeconomic density is3,300peopleperkm2.Warsawoneofthelargest sub-regions ninth largestcityintheEuropeanUnion(EU)bypopulation. Thepopulation 517 km2,whilethecity’sagglomerationcovers6,100km2. Warsawisthe area hasapproximately2.6millioninhabitants.The ofthecitycovers ulation ofapproximately1.7million(2010),andtheWarsaw metropolitan land, inMazowieckieprovinceonthebankofVistulariver.Ithasapop Warsaw isthecapitalandlargestcityofPoland.ItsituatedincentralPo and implemented. proposed bydifferentstakeholdersandtheirchancesofbeingaccepted Sherraden etal.2002).Socialcapitalcaninfluencethetypesofinnovations defined astrust,normsand tions (TSOs))andindividualmembersoflocalcommunities.Socialcapitalis laborations ofgovernments,otherstakeholders(e.g.thirdsectororganiza He alsopointsouttheroleoffeatures can collaboratetomeettheirgoals: consideration instudyinghowinstitutionsandmembersofcommunities Putnam (1993)stressestwofundamentalpointsthathavetobetakeninto political context. different meaningsdependingonspecificsocial,economic,culturaland needs ofdifferentsegmentslocalcommunities.Theinnovationshave discussed andimplementedinnovations,whichareexpectedtomeetthe of interest.Inourcaseitissocialpolicyinlocalcommunities,including and Kuhn1998).Whatmeans“better,faster,cheaper”dependsonthearea systems thatalreadyexist,makingthembetter,fasterandcheaper(Iuri with businessortechnology.Shortlyspeaking,itisawaytoimprovethe Innovation isdefinedinmanywaysbysocialscientists,peopleconnected 2. 1. (Putnam 1993:8-9) (Warsaw University) Renata Siemieńska,AnnaDomaradzkaandIlonaMatysiak Authors form, institutionshaveinertiaand“robustness” Institutions areshapedbyhistory.Whateverotherfactorsmayaffecttheir shape actor’sidentities,powerandstrategies. turing politicalbehaviour….Institutionsinfluenceoutcomesbecausethey that makeupinstitutionsleavetheirimprintonpoliticaloutcomesbystruc Institutions shapepolitics.Therulesandstandardoperatingprocedures networks shapedovertime(Putnam1993:170; social capitalintheprocessofcol development. ------245

solutions often lacked any associations with the previ- them. A similar situation can be observed in the case ous urban design. New residential buildings were con- of people living in houses being returned to their structed by the state and settled according to various previous owners, when the tenants organise them- schemes: the users often paid nothing or little. selves to exert impact on the municipal authorities in After the political transformation in 1989, an attempt order to cause amendment of legal regulations and was made to restitute real estate property to the make sure their interests are protected. Therefore, new solutions are often initiated by the inhabitants, pre-war owners or their heirs, as well as at the priva- Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities tisation of new buildings. This resulted in numerous who express their needs and point to ways that could problems, which are now influencing the situation of satisfy them. Later on, these serve as a basis for the the city inhabitants and the perspectives for future establishment of partnerships between citizens, TSOs development of public and private infrastructure. and the municipal or district authorities. Sometimes, These factors led to the emergence of a particularly the scenario of innovation is different. The city shows vulnerable group of inhabitants of Warsaw – those initiative and searches for partners among the enti- living in tenement houses belonging to the munic- ties and organisations, mentioned above. ipal housing resources, which are currently being returned to the pre-war owners of these buildings. In fact, the inhabitants are in conflict with the tenement house owners, as the city, which illegally took over private property during communist times, is not a party to any disputes or conflicts that arise. The differences that exist in public discourse, as well as discrepancies between perceived needs and significance of problems encountered by different vulnerable groups, between their members and the municipal authorities, result in a certain degree of chaos in implementation of the social policy in the city and a situation, in which the inhabitants become animators of innovation. For instance, problems with the institutional infrastructure (e.g. related to child care) in Warsaw, particularly in the new parts of the city, constructed in the recent years, encourage the inhabitants to develop civic initiatives in order to engage the authorities in new investments and make sure that they will be available to those who need 246 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities politicians andtheCatholicChurch, formulatedinthepublicdiscourse,arenotconsistent withopinionsofthe they areexpectedtowork,and, inmanycases,theyalsowanttodeveloptheircareers. forces –theconservativediscourse, puttingemphasisonthesignificanceofamother’s care,whileatthesametime, WP3 reports). women rejectedtheopinion thatsmallchildrensufferwhentheir could beassatisfactoryforawomanprofessionalwork. Atthesametime,32percentofmenand41 through work.In2012,46percentofmenand56 ofwomendisagreedwiththeopinionthathousework to get a return of their expenditure on education. More often, they perceive the opportunity to attain self-fulfilment These processeshavebeenaccompaniedbysubstantial changesinlifeaspirations.Womenwanttoworknotonly cent in1995,74per1997,1999and 69percentin2002). children, andthemanistoprovidemaintenance,hasbeen decreasing(85percentofrespondentsin1992,79 been changingaswell.Thenumberofsupportersthe model,inwhichthewomanistotakecareofhomeand crisis ofmasculinity.Atthesametime,researchshowsthat, withinPolishsociety,theacceptedfamilymodelhas the emergingpartnershipfamilymodelisawayofelimination ofdifferencesbetweenthegenders,leadingtoa Conservative participantsofthedebatestressthatwomenfailtomeettheirtraditionallydefinedobligations,and culture, inwhichindividualsprefertosatisfytheirownneedsandnotperformtraditionalfamilyduties. employment ofwomenandculturalchanges,whicharebasedonashiftfromcollectivisttoanindividualised In contrast,atpresent,thepublicdebateinWarsawandPolandoftenmentions“socialdisadvantages”of the which isthelowestindicatorofpopularisationkindergarteneducationinEUmemberstates). provided forabout90percentofchildren,whichisaveryhighrateinPoland(thenationalaverage37cent, kindergarten educationatprivateandpublickindergartensdepartmentselementaryschool is those ofababyboom–itisestimatedthatin2013therewillbe40,000childrenatkindergartenage.InWarsaw, in thecapitalcity.Thenumberofchildrenatkindergartenageisgrowingconstantly.subsequentyearswill be to settle–migrationfactorswillbeincreasinglyimportantindeterminationofthedemandforeducationservices Wesoła, UrsynóworWilanów-thepopulationisgrowing.Warsawanditssurroundingareaareanattractiveregion itants movingoutsidethecity,leavingapartmentsoflowquality),whileinsuburbs-Białołęka,Ursus,Wawer, be observed.Insomedistricts(Mokotów,ŻoliborzandWola),thepopulationisdecreasing(asaresultofinhab dents hasbeenlow;thenumberofelderlyincreasedaswell.Inaddition,migrationbetweendistrictscan number ofchildrenatkindergartenagehasincreased,whilethethoseolderthangrammarschoolstu Child careisimportantinWarsawduetorecentdemographictrends.Asaresultofchanges,the MaMa Foundation 42 Warsaw PL In thissituation,thefemale inhabitants ofWarsawareexperiencingpressurefromtwo opposing /77 Child andfamilycare Categories mothers work(unpublished data,seeWP2and Thus,theopinionsofsome - - 247

majority of society and with changes in social roles of are linked to such concepts as social economy and women and men in Poland, visible particularly in large social cooperatives, grass-roots solidarity and mutual cities, such as Warsaw. Outside feminist circles, there help and feminism. It was established by mothers of are only rare voices stating that a lack of professional small children. activity of women and their contribution to household The crucial ways of addressing the foundation’s bene- work do not have to be defined in accordance with ficiaries include social campaigns, campaigns for em- the traditional category of a “housewife”, subordinat- ployees’ rights, workshops and training, legal, psycho- ed to her husband and children. logical and civil advice, artistic and educational projects for parents with children and publishing and research 42.1. Short description activities. For instance, since 2010, the foundation has MaMa Foundation is a non-governmental organisation been implementing the project “Warsaw Housevives’ Koło Gospodyń Miejskich (NGO) established in June 2006 in Warsaw. It works Club” ( ). In cooperation with a for mothers’ rights in Poland by organising social group of experts (such as sociologists dealing with gen- campaigns, such as “O Mamma Mia! I cannot drive my der studies), the organisation has formulated recom- pram in here!” – a campaign for adapting public space mendations for the Polish parliament on the economic for prams and wheelchairs; campaigns for employees’ value of work performed by women within the frame- rights, such as “Horror stories”, which lists examples work of fulfilment of their household duties: of dismissing mothers from their jobs; online help and We show and we calculate it precisely that housework workshops for refugee women and many more. Since performed by women, most often, in 95 per cent in October 2006, MaMa, together with Muranów cinema, Poland, is quantifiable and it is possible to calculate has been organising “Baby at the cinema” thanks to its precise value in money. At present, this is a salary which parents can watch films while their children of about PLN 2,800 – including the tasks that are per- Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities play with baby sitters. This project is currently being formed on behalf of the family. So, this has a market transferred to other cities in Poland. The foundation value. We are introducing a new way of thinking about also runs a mothers’ time bank, encouraging mothers this. It is not all about paying women for doing house- to share the time and exchange support, e.g. in child work, but about actually seeing this work, being able care. Since 2007 the foundation supports local moms’ to notice it. To show that this is a part of economy, clubs by providing workshops for mothers, local lead- because this money, although virtual, is earned thanks ers and representatives of local authorities. One such to the tasks that the woman performs local moms’ clubs is located in the Targówek district, (WP5.Care1) which is one of the most deprived areas in Warsaw. The activities of this club are financed by local author- “Warsaw Housewives’ Club” also includes workshops ities of the district and the public library of Targówek. for women who are not working professionally. These MaMa Foundation promotes also the economic values are aimed at increasing the awareness of women in of women’s housework. terms of partnership-based division of tasks at home and providing the participants with specific tools that 42.2. Conceptions of ways of will help them in negotiations with their husband or addressing users partner: ... the female inhabitants of Warsaw attend our work- The activities of the MaMa Foundation are based on shops, there have been five editions conducted so far, the concept that mothers with small children are citi- and the interest is really great. Perhaps it’s because zens with full rights like everybody else and that they we invite psychologists and mediators to teach women should not be excluded from participation in the local how to make their partners clean up their socks, public life due to cultural stereotypes (e.g. that moth- which, I think, is innovative. In fact, we are not afraid ers with small children should spend time mostly at of the very trivial subjects, we provide the tools – very home and its closest surroundings) or architectonic specific ones. These are not just the meetings to com- barriers (e.g. regarding the lack of public space for plain about how bad it is, but to learn certain things prams and places for changing diapers and breast- as well feeding). The ideas and projects of MaMa Foundation (WP5.Care1) 248 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Women, Little ceived bybothreadersand critics ( to Warsaw,whohaspublished severalbookswellper Sylwia Chutnik,afeminist,writer andcertifiedguide lems relatedtomotherhood inWarsaw so theyhavepersonallyexperienced variousprob work forMaMaFoundationarewomenand As mentionedbefore, modes of working 42.3. Internal organisation and young and art andpsychologicalmotivations.Currently,twelve self-employment, marketingandpromotion,folk workshops on Cooperative” includedfourtypesofeducational count. Thespecificactivitieswithintheproject“Moms’ violence andconflictswiththelawaretakenintoac care obligations).Also,theissuesofpossibledomestic unemployed (over2years,usuallybecauseofchild before theageof18yearsandwhoarelong-term mothers fromWarsaw,whogaveabirthtotheirchild The projectisaddressedtoabouttenyoungand to strengthentheoverallpotentialofitsrecipients. both vocationalandpsychologicaltraininginorder their futurechancesinthe terms ofeducation,integrationintothesocietyand women, whoarethreatenedwithsocialexclusion,in interesting. Themainaimoftheprojectistosupport exclusion from operative -thesocialprojectonpreventingwomen’s Also, wefoundthefoundation’sproject“Moms’Co tive ofthiskindinPoland. mothers fromWarsawisclaimedtobethefirstinitia social cooperativeofyoungandloneunemployed the OrbisHotelGroupandAccorFoundation.The between MaMaFoundationwithtwootherpartners: “Moms’ Cooperative”emergedfromthecooperation artistic skillsandcreativity.Theideaoftheproject of the Ethnographical MuseuminWarsaw.Themembers of productsissupervisedbyexpertsfromtheState frame oftheproject,design,creationandquality for agendasandbusinesscardsholders, ists andofficeaccessories–casesforlaptops,covers cases forcellphonesandiphones,souvenirstour folk art(toys,jewellery,accessoriessuchasbags, regional andlocalhandmadeproductsinspiredby cooperative, whichcreates,promotesanddistributes Warsaw PL cooperative werechosenonthebasisoftheir lone Girl social economy,cooperatives, labour marketandsociety”especially mothers fromWarsawmakeupthe and Women’s all thepeoplewhocurrently labour market.Itincludes Warsaw).MaMaFoun Pocket Calendarof . Itschairis etc.). Inthe Child andfamilycare Categories mothers, lone ------ticipates inseveral thirdsector politicians andtheWarsawLabour Office.Also,itpar local authoritiesatthelevel of Warsaw’sdistricts,local research organisation),theWarsaw MunicipalOffice, isations, theInstituteofPublic Affairs(athink-tank Intervention, ideologicallydiversified women’sorgan sations andpartnersastheAssociationforLegal MaMa Foundationcooperateswithsuchorgani case oftheproject“WarsawHousewives’Club”: different levelsofsocietyatthesametime,likein Usually, thefoundationtriestospreaditsmessagein described asfollows: basic modesofworkingMaMaFoundationare care duringaworkshop,trainingormeeting.The the participationofchildrenorprovidesfreechild is directedonlytoadults,MaMaFoundationallows It hastobeemphasisedthat,evenwhenaninitiative part initsactivitieswhenneeded. psychologists, trainers,scientistsandartists,whotake It isalsosupportedbyvariousexperts,e.g.lawyers, (WP5.Care1) with tenvolunteers: within theprojects)andonaregularbasiscooperates dation currentlyemploystwopeople(temporarily, > > > > (WP5.Care1) departments oroffices. ties, notonlypoliticians,butalsoofficersofspecific all optionsintheParliamentandlocalauthori- recommendations, aimedatpoliticiansrepresenting as awhole–someofthesocialcampaignsand The women–thisistheworkshoppart,society The initiativeis,infact,aimedatseveralsocialgroups. there arespecificactivities. ties andwork.Ofcourse,withintheframeworkofthis, competences –eachofushasaspecificscopedu projects, butwedoourbesttoactonthebasisof course, thisactivityisalsotask-based,forspecific … wehaveaconstantdivisionofthestructure, situations inprivateandprofessionallife. express inmediatheiropinionsonmothers’ participate inpublicdebatesandmeetings The membersofitsboard,employeesandexperts public spaces. order tobroadenmother-andchild-friendly with localauthoritiesinWarsaw’sdistricts The Foundationcooperatesonaregularbasis coalitions: the 8March - - - - 249

Women’s Agreement, the 11 November Agreement Cooperative”, the project addresses a specific sub- and the Coalition for Equal Opportunities. However, it group within long-term unemployed women – young has to be stressed that MaMa Foundation cooperates single mothers – by using innovative means based on not only with structures having liberal or left-wing the concepts of social economy. orientations: “We cooperate with various institutions; As for alternative ideas on child care, MaMa Founda- in many cases, these differ from us ideologically and tion challenges the common belief that women on politically, for instance, there are various Catholic maternal leave usually spend time with their children organisations that deal with family issues. We look at home. If they are not at home, mothers actually for coalitions whenever it seems that we can share an do not have much choice of where to go with a small objective with anyone” (WP5.Care1). child, except for the local shop, playground or rela- MaMa Foundation’s crucial projects are financed by tives. The social isolation of young mothers results the Accor Foundation (private sector), The Warsaw in the sense of loneliness and depression. Regarding Labour Office (public sector), Trust for Civil Society in these problems, MaMa Foundation leads several Central and Eastern Europe (a public charity incorpo- “local moms’ clubs” in different parts of Warsaw, rated under the laws of the USA), the European Social where mothers can come with their children, meet, Fund (ESF) (public sector; the MaMa Foundation takes exchange experiences and take part in workshops part in the projects coordinated by the Warsaw local and training sessions, which are offered by the club. authorities). Apart from that, MaMa Foundation has In this context, the activities of MaMa Foundation go a status of a public benefit organisation. According beyond the common public debates on child care, to Polish law on public good activity and volunteer- which are concentrated on fees and places available ing, such organisations are allowed to receive 1 per in nurseries and kindergartens in Warsaw. cent of income tax from individuals, so they are Also, it should be noted that the activities of MaMa Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities tax-deductible organisations. To receive such status, Foundation are perceived with interest by organisa- an organisation has to be an NGO (political parties tions and institutions in other cities of Poland: and trade unions do not qualify), involved in specific “Numerous similar organisations emerge, and we activities related to public good as described by the often share our experience, and some projects are law, and be sufficiently transparent in its activities, implemented in other cities, for instance, the project governance and finances. “To the Movies with Your Child”, but also the exhibi- 42.4. Interaction with the local tion “Art of Mothers”, well, things that can be shifted to other cities without us going there. welfare system (WP5.Care1) It seems that MaMa Foundation and its activities The project “Warsaw Housewives’ Club” is being affected the local public discourse onmothers with implemented in Berlin, and a female representative small children as a group of particular needs and of the Ukrainian parliament has also displayed some problems, especially regarding the participation in interest in it. public places and city space. The foundation contributed significantly to growing awareness of the importance of mother- and child-friendly architecture and local public infrastructure related to culture and leisure. These issues were not seriously discussed before as mothers with small children were associated mostly with the private sphere and child care facilities. MaMa Foundation stresses also the important issue of work and care reconciliation by emphasising that motherhood does not have to be an obstacle to women’s personal or/and professional development. Apart from that, it offers solutions in terms of employment and child care, which are alternative to those provided by public institutions. In the case of “Moms’ 250 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities by thegrowing demandonthesideofimmigrants andtheexperiencesoffounders ofthisorganisation. grants inWarsaw,especially fromEasternEurope(UkraineandBelarus).Thischangeofinterests wasforced from PolandandBelarus,but shortlytheorganisationchangeditsfocusandsetupactivities tosupportimmi- who hadrecentlygraduated fromtheuniversity.Themaingoalwastodevelopcooperationbetween activists The FoundationforDevelopment BeyondBorderswasestablishedin2006byagroupofPoles and Belarusians, 43.1. Shortdescription in termsofthe fered anysocialsupportbythestate.Suchimmigrantsare oneofthemostvulnerablegroupsincity,especially not refugees,whohavebeengrantedcomplementary protectionorpermanentresidencepermit,arenotof highly qualifiedspecialistsareaminority.Mostforeigners inWarsaw,thatiscitizensofnon-EUcountries,whoare branches inWarsaw(seeWP3cityreport).Atthesametime, immigrantslivinginWarsawwhoareEUcitizensor teachers, academiclecturers,doctorsandartists.Theyare alsotheemployeesofmanyforeigncompanieshaving and inmarkethalls.Someofthemfindjobsconstruction, gardeningandvariousservices.Conversely,othersare others studyatuniversitiesorsearchforajob.SomeofthemcouldbemetaroundthemainbazaarsWarsaw Americans andcitizensofmanyEUmemberstates.SomecometoWarsawforashorttime,businesspurposes; ulation ofthecity.ForeignerslivinginWarsawincludeRussians,Vietnamese,Africans,Hindus,Chinese,Ukrainians, mated thatthereareabout150,000foreignerslivinginWarsawrightnow,constituting9percentoftheentirepop Ukrainians). Asforotherformsofresidenceforeignersinthecity,wecanspeaktensthousands–itisesti are about5,600foreignersregisteredaspermanentresidentsofthecapitalcity(mostlyVietnamese,Russiansand namese, ChineseandAfricans–inflowofpeoplefrombeyondtheeasternbordersPoland.Atpresent,there very differentfromthatofthepre-warperiod–ithasbeenstrengthenedbyarrivalnewethnicgroups Viet discovery orsearchingfortheethnicidentityofindividualminorities.ThemulticulturalcharacterWarsawisnow the socialandpoliticaltransformationof1989influencedpossibilityarevaluationethnicassessment and been growing every year, and after Poland’s accession to the EU, the dynamics of this phenomenon increased. Only more than30percentofallforeignerswhohavebeenissuedaresidencepermitinourcountry. Warsaw andMazowieckieProvincearethemainareasofconcentrationsimmigrantsinPoland,assembling Warsaw, asthecapitalcityandametropolitanarea,isinwhichmanyforeignersstay,live,workstudy. Beyond Borders The FoundationforDevelopment 43 Warsaw PL labour marketand /77 housing. Related toallpolicyfields Categories Their numberhas - - - - integration ofimmigrantsin Poland”.Bothofthem mensional challenges:researching thepotentialof “Migration and Now, thefoundationimplements twomainprojects: riences ofmigrants–foundersthisorganisation: organisation areoftenstrictlyrelatedtopersonalexpe- Belarus. Theactivitiescurrentlyimplementedbythe established byagroupofPolesandimmigrantsfrom The FoundationforDevelopmentBeyondBorderswas addressing users 43.2. Conceptions andways of follows: The roleofthefoundationisbroadlydescribedas 1 www.frog.org.pl/en/about-the-foundation/goals.html (WP5.Migrants1) ence itandtransformsomehow.Onourown. over. Itislike,well,it’sbecauseweallhadtoexperi- that arerelatedtoexistenceofsuchpeople,whocome instance the the difficultiesexperiencedbyforeigners,entering,for perienced itverypersonallywhatSchengenwas,and for allofus,anewfield.Also,assomeushadex starting ournewcareers,andthiswassomething And therewasthistime,wewerefinishinguniversity, (Foundation forDevelopmentBeyondBorders) Europe andtheregionasawhole. to promotethecountriesofCentralandEastern lic orsocialservices.ItisalsotheFoundation’sgoal active socialpoliciesandspecialistswhoworkforpub- of authoritieswhoareresponsibleforimplementing and legalissues.Weaimtoraisetheprofessionallevel tities thatalsoworktosolvesocial,economic,cultural regional andinternationalcooperationamongtheen Foundation istodevelopmutualcontacts,aswell receiving country.Anotherimportantgoalofthe nations andsocietiesofthehomecountry of immigrants,whichhelpstofosterbondsbetween Foundation workstoimpactactivityandparticipation mon culturalbackgroundandcommoninterests.The sharing knowledgeandraisingawarenessaboutcom and statesofEasternCentralEuropethrough Foundation workstobringclosernations,societies Foundation forDevelopmentBeyondBorders.The same border,whichiswhywedecidedtoestablish From theEastandfromWest,wehadseen labour market....therearemanythings Integration inPractice”and“Multidi 1 - - - - the Polishjob market aspartofayearlycompetition. and theiremployerstodescribe theirexperienceson Another partoftheprojectis toencouragemigrants well, butwouldliketodevelop theirliteraryskills. on creativewritingforimmigrants whoknowPolish Poland. Also,thefoundationoffersuniqueworkshops future positionofimmigrantsinthe of itsservices.Thisisaimedatstrengtheningthe tion hasaddedEnglishlanguagecoursestothescope about 75eurosfor3months.Recently,thefounda Thanks tothesubsidy,priceofcourseisonly the EUandhavelivedinPolandforlessthan5years. primarily topeoplewhocomefromcountriesoutside Subsidised bytheEU,classesareaddressed classes coveralllevels,frombeginnerstoadvanced. of greatimportanceisPolishlanguageclasses social insurancesysteminPoland.Anotherservice functioning ofthe organises trainingforimmigrantsandworkshopson Apart fromindividualadvice, these areonlyavailableinPolish: documents andlegislativeacts,asagreatmajorityof often interestedingettingassistancetranslationof as searchingforapartmentsinWarsaw.Theyarevery relations betweenemployeesandemployers,aswell marriages, functioningofthe of legislationthatconcernslegalisationstay,mixed ten, theyneedlegaladviceintermsofinterpretation contact theoffice,makephonecallsandvisit.Mostof islation concerningimmigrants Poland, whichimpliesconstantmonitoringoftheleg cuses ontheissuesoflegalisingtheirstayandworkin for immigrantswhoarriveinWarsaw.Theadvicefo The aimofthefirstprojectistorun of non-EUImmigrantsandthestatebudget. are co-financedbytheEuropeanFundfor (WP5.Migrants1) licensed torenderlegalservices,thisisconsulting. are manypeople,whodothetranslations.Wenot there aremanyproblemsinthisregard,because specific legislationandtheyhavenoideahow.And these peoplecomeandtheyhavetocomplywith practice. Andwearedealingwithasituation,inwhich, is thisactonPolishlanguage,itnotappliedin speak Polish.Andthelegislation,eventhoughthere to informationassuch.Youcomehereandyoudon’t legal matters.Theproblemusuallyis,youhaveaccess These areinfact,startingwith,it’sanything,including labour market,healthcareandthe the foundationalso labour marketand . Theimmigrantsmay an advicecentre labour marketin Integration . The - - - - 251 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 252 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities advice activities wasissuesrelatedtoobtaining work salesmen inWolkaKosowska. Thekeyelementofthe of theGreek-Catholicchurch atMiodowaStreetor of immigrants–forexample totheparishioners services addressingspecific needsofcertaingroups of theproject,teamcontinued toofferadvice legal, jobandpsychologicaladvice.Moreover,aspart English offeredfreeservicestoforeigners,including of specialistsspeakingRussian,Ukrainian,Frenchand grants livinginWarsaw.StartingApril2009,ateam aimed atcreatingastableadvicecentreforimmi Social Diversityandthefoundation“OurChoice”,was for DevelopmentBeyondBorders,theFoundation was managedincooperationbetweentheFoundation this organisation.TheWelcomeCentreproject,which migrants, andthusbecameabasisforfunctioningof become amodelexampleofsupportonbehalfim “Welcome CentreinWarsaw”project,whichhas Foundation forDevelopmentBeyondBorders–the discussed isacontinuationofearlieractivitiesthe It shouldalsobeunderlinedherethattheproject their countriesoforiginvarygreatly: any supportfromthePolishstate.Atsametime, regulated. Thus,theseareforeignersnotentitledto dence permitinPolandorwhosestatushasnotbeen non-EU countries,whodonothaveapermanentresi of theseactivitiesaremostlyimmigrants–citizens that areofimportancetoimmigrants.Therecipients casual atmosphereforaconversationaboutissues and thewaystosolvethem.Theclubcreatesamore debate aboutproblemsexperiencedbymigrants of theproject,DiscussionClubseekstoinitiate in cooperationwiththePolishRadio“WNET”.Alsopart presented onabi-weeklyradioprogrammeproduced migrants functioninthecontextofPolishlegislationis Apart fromthat,themostrecentnewsabouthowim (WP5.Migrants1) and Japan,Australia. clients fromCanadaandtheStatesNewZealand, is anincreasinggroupfromLatinAmerica.Wehave clients fromIndia,Turkey,Nepal,Bangladesh...There are abitmorenumerousinWarsaw.Theremany have beenseveralpeople,althoughstatistically,they Asia, thereisthe statistically significantgroups.ThenwehaveAfrica, Moldova, Armenia,Georgia,Kazakhstan.Theseare the formerUSSRrepublics,includingBelarus,Russia, sure. Thenwehaveabroadselectionofmembers ... agreatmajorityarecitizensofUkraine,that’sfor Warsaw PL community ofChina,Vietnam-there Related toallpolicyfields Categories - - - - immigrants. social campaignstopropagate abolitionamongillegal foreigners stayinginPoland illegallyanditconducted actively engagedinlobbying onbehalfofabolitionfor on foreigners.In2012thefoundation hasalsobeen es introducedandpostulated inPolishlegislation administration level,itissuesopinionsonthechang Borders isengagedinlobbyingatthelocalandstate Moreover, theFoundationforDevelopmentBeyond largest groupofforeignerslivinginPoland. who, accordingtotheofficialstatistics,comprise on agroupofmigrantsfromformerSovietcountries the receivingsociety.Thisresearchwasconducted the countryoforiginandananalysisattitudesin includes thepre-emigrationphase,conditionsin as aprocessincomplex,inter-disciplinarymanner, research isthatittreatstheintegrationofforeigners eigners livinginPoland.Theinnovativepartofthis stakeholders whoinfluencetheintegrationoffor the problemsandneedsofmigrants,usedbykey which willserveasacompilationofknowledgeabout conditions ofthisprocessandeditingafinalreport, in Polandbyresearchingandanalysingthecurrent knowledge abouttheintegrationofforeignersliving research. Themaingoalofthisprojectistodeepen tion forDevelopmentBeyondBordersisfocusedon The secondofthecurrentprojectsFounda familiar andwellknowntothem: immigrants”, establishing contacts with them in places tered. Thiswassortofastrategy“reachingoutto locations inwhichmostimmigrantscouldbeencoun of severalconsultationandadvisoryunitsinthose office incentralWarsawwasprecededbyopening The launchofadvisoryservicesatthefoundation’s society andknowingPolishnormsorcustoms. and residencepermits,butalsofunctioninginPolish (WP5.Migrants1) tried withtheethniceateries. were dutyhoursthere,quiteoften,andlateronwealso Street, intheOrthodoxchurchatWileńskaStreet.There consulting outletsintheOrthodoxChurchatMiodowa things... and then there was the issue of establishing the tunity togoout,lookathowpeoplerespondthese asking abouttheirproblems.Thiswassortofanoppor- visory outlet.Wewouldwalkaroundandtalktopeople, was alsoWólkaKosowska,wherewegotthismobilead- The StadiumoftheDecadewasafacilitylikethat,there … westartedtogetduty-hours,sortof,likeinspections. - - - - and theWarsawparishof GreekCatholicchurch. such asthe“OurChoice”Association forUkrainians institutions actingonbehalf ofimmigrantsinWarsaw, Borders cooperateswithotherorganisationsand Diversity. TheFoundationforDevelopmentBeyond of LegalEducationandtheForumonBehalfSocial Competition andConsumers,thePolishAssociation the SecondHandBank,OfficeforProtectionof port offeredbyvariousentitiesofferingmaterialhelp: soft. Theorganisationalsotakesadvantageofsup sors includetheInstituteforPublicAffairsandMicro the StefanBatoryFoundation.Moreover,spon NGOs: Polish–AmericanFoundationforFreedomand budget ofthecapitalcityWarsawandother Integration ofnon-EUImmigrants(EIF),fundsthe ones) arefinancedmainlybytheEuropeanFundfor projects oftheorganisation(currentandcompleted Borders operatesmainlyonthebasisofprojects.The At present,theFoundationforDevelopmentBeyond (WP5.Migrants1). and itwentlikethis–wasverymuchhelp-oriented” you lookedforsomeone,whohadtheexperience, like this:somebodycalledelseandthen consultations weredifferent,notformalised.Itwas country andasafinaldestination:“...atfirst,these due toitsincreasingattractivenessbothasatransit who, atthesametime,startedtocomePoland of stayforeigners–citizensnon-EUcountries, complicated theproceduresoftravelandlegalisation when PolandwasincludedintheSchengenzone.This and advisoryservicesforforeignersemergedin2008, not veryformalised.Strongdemandforconsulting the beginning,activitiesoffoundationwere various publicofficesorhealthcareinstitutions.At can accompanytheimmigrants,e.g.duringvisitsto several volunteerswhooffertranslationservicesand foundation alsotakesadvantageoftheservices projects onthebasisoftemporarycontracts.The ees –atpresent,nineteenpersonsareengagedin sion clubmeetings.Therearenofull-timeemploy Polish andEnglishlanguageclassesthediscus space, theconsultationoutletandaroomusedfor saw. Theorganisationrentsthepremiseswithoffice The foundation’sofficeislocatedindowntownWar modes of working 43.3. Internal organisation and ------ing, whatarewe supposedtodo?”(WP5.Migrants1). from theconsulate:“ourcitizen hasfallenoffscaffold others, orpeopleinhospitals. Wegetaphonecall do notreportthemselves,but theyarereportedby pertaining toforeigners:“There are(also)people,who of thiskindarealsonotalways abletosolveproblems Warsaw. Asitturnsout,representativesofstructures of thecountriesoriginimmigrantslivingin the levelofstateinstitutionsanddiplomaticservices The activitiesofthefoundationarealsowellknownat obtained: place inWarsawwhereassistanceofthiskindcanbe dation, animmigrantfromUkraine,thisistheonly the opinionofonebeneficiariesfoun towns orvillages,ofamuchsmallerlocalscale.In grants fromnon-EUcountriesoftencomesmall specific matters.Inparticular,thisisbecauseimmi ate officesorinstitutionsandtoldhowtodealwith same time,theyneedtobedirectedtheappropri in gettingthroughthejungleoflegalprovisions;at forced tofacethePolishlegalsystem.Theyneedhelp are culturallyclosetous,feelconfusedwhenthey Immigrants comingtoPoland,includingthosewho ous groupofimmigrantsinWarsawandPoland. cannot countonstateassistance;themostnumer significant gap.Thisisaimedatthoseforeignerswho mit inPoland,theoperationoffoundationfillsa who havebeengrantedapermanentresidenceper granted subsidiaryprotection,aswellimmigrants persons withPolish ed onlytoselectedcategoriesofforeigners,thatis, In asituationinwhichstatesocialassistanceisgrant welfare system 43.4. Interaction withthe (WP5.Migrants2) not everyonehasalaptop. are peoplehere,whodon’tknowtheInternet.Well, people, whocomehere,arefromsmallvillages,there “Welcome Centre”istheonlyplaceinWarsaw.Many when youdon’tgetpaid,orneedadoctor...the papers, whattodo,simply,therecanbemanythings, information fromthelawyers,howtodealwith information onnormaljobs,apartments,andsimply are unabletospeakthelanguage,whenyouneed information, it’sdifficulttodoanything,whenyou less ofthecountry,theyneedinformation.Legal Mainly, theycomefromUkraineorBelarus.Regard- citizenship, refugeesandpersons local ------253 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 254 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities the citybudget. have apermanentlocation,owingtolackoffundsin will playaroleinintegration,asthecentredoesnot ticultural Centre.Itisdifficulttopredictwhatextentit working withimmigrants,launchedtheWarsawMul who, in2011,consultationwithmorethantenTSOs “noticed” onlyrecentlybyemployeesofthecityhall, from specificcountries.Lackofsuchspacehasbeen of aspecificethnicgroupusuallyuniteforeigners Church orarestaurantmanagedbyrepresentatives staying inWarsaw. experience withimmigrantsfromdifferentcountries for establishingcommunicationandexchanging social meetings,playsaverysignificantroleofspace organised thereinadditiontoPolishclassesand Development BeyondBorders,thediscussionclub, It isimportantthat Warsaw PL Such placesastheGreekCatholic the abodeofFoundationfor Related toallpolicyfields Categories - not meanthatittrulyhasasay inthecreationofpolicy. positively byallpartiestothe process,ourinterlocutorshavepointedoutthatthemere creationoftheteamdoes initiatives andprovidingadvisoryservices.Eventhough the factthatithasbeenestablishedreceived city ofWarsaw,withrepresentativestheandsocial groupsandNGOs. lems inHousing,Re- Within theframeworkofchangesin meetings, whichwerethensuspended,astherewasno one willingtoattend. to refertheproblemsreportedbythem.Asaresult,all tenantorganisationsdecidednottoparticipateinthe of viewanditfailedtotakeintoaccounttheopinionsor objectionsofthetenantorganisationrepresentativesor for discussionon the factthatin2010,MunicipalOfficeinitiated “Warsaw HousingMeetings”,whichweretoserveasaspace really interestedintenantsandtheirproblemstheydidnottreatthemseriously.Thismayalsobeprovenby there wasnoresponse.Intheopinionoftenantorganisations,thisprovesthatcityauthoritieswerenever clusion. Aprojectofthiskindwasbeenfiledatthecitycouncilbytenantorganisations2yearspreviously;however, the TeamforSolvingSocialProblemsinHousing,Re- between therepresentativesofcityandtenantsquatterorganisations,concerningappointment of The largest(andperhapstheonly)innovationin 44.1. Shortdescription municipal of aparticularlyvulnerablegroupinhabitantsWarsaw–thoselivingintenementhousesbelongingtothe problems, whicharenowinfluencingthesituationofinhabitantscity.Thesefactorsledtoemergence erty topre-warownersortheirsuccessors,aswellprivatisethenewbuildings.Thisresultedinnumerous As alreadymentioned, in theFieldofHousing Team forSolvingSocialProblems 44 Warsaw PL housing resources,whicharecurrentlybeingreturnedtothepre-warownersofthesebuildings. housing problemsandsolutionstothese;intheend, citywasonlywillingtopresentitspoint privatisation andCounteractingHomelessnessSocial Exclusionwasestablishedinthe /77 after thepoliticaltransformationin1989,anattemptwasmadetoreturnrealestateprop housing policyofthecity,inApril2012,TeamforSolving SocialProb Neighbourhood revitalization/Housing Categories housing policyofthecityisundertakingnegotiations privatisation andCounteractingHomelessnessSocialEx The team’saimisatproposingnew - - - 255 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 256 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities article 678oftheCivilCode. processes, concerningtheapartmentsinhabitedand tion, informingtenantsofthecurrentreprivatisation well asthecompensationagreements,reprivatisa- The issuesofvacantbuildingswerediscussed,as can becontinuedduringthesubsequentmeetings. social problemsandthepossiblesolutions,which ing, discoursewasinitiatedonthemostsignificant private buildingowners.Moreover,duringthemeet- management andrepresentativesoftenants cerned, thatis,thecityauthorities,realestate team istheretorepresentallofthepartiescon- city authoritiesinthefieldofhousingpolicy.The The aimoftheteamistoserveasanadvisor addressing users 44.2. Conceptions andways of dialogue. Sofar,ithasbeenattendedby: have givenexpressedtheirwillingnesstocontinuethe parties concernedbythe meetings aimedatbuildingdialoguebetweenthe The organisationoftheteamisbasedonaseries modes of working 44.3. Internal organisation and > > > > > > > > > > > > Warsaw PL NGO supportingtenants). Representative oftheOfficeforSocialJustice(an Przychodnia), Representatives ofsquattergroups( Representative oftheTenantDefenceCommittee, Associations, Representative oftheWarsawTenants Centre, Representative oftheSocialCommunication The vicepresidentoftheCapitalCityWarsaw, housing policy.Allparties Syrena, Neighbourhood revitalization/Housing Categories threatens thepublicinterest. as wellthecity,itdamagesurbantissueand results inverynegativeconsequencesforthetenants, has becomeaveryprofitablebusiness.Thissituation with strikingefficiency–regainingtenementhouses claims torealestateproperty,havebeenoperating law officesandfirms,whichbuyouttherights investment projects.Ontheotherhand,specialised and thelong-termproceedings.Theirclaimsblockcity unclear criteriaforreturnoftherealestateproperty successors, ontheotherhand,complainabout by threatormenace.Theformerownersandtheir es beingraisedwithoutanylimitations,sometimes are beingremovedunderthepressureofrentcharg legal successors.Tenants,havingnoprotection, houses inWarsawtotheirformerownersand negative consequencesofthereturntenement The teamhasbeenestablishedinresponsetothe welfare system 44.4. Interaction withthe 3-godziny 2 http://hoza27a.pl/content/warszawski-okragly-stol-mieszkaniowy-w- and theauthoritiesofcity. between thelocalcommunitiesincityofWarsaw and buildingdevelopingnewformsofdialogue ment ofvacantbuildingsinthecapitalcityWarsaw social exclusionduetolossofapartment,manage reprivatisation anditssocialeffects,counteracting city ofWarsaw,whichalsoincludessocialbuilding, ing themunicipal The teamdealswith housing resourcesofthecapital housing management,includ 2 local - - - 2012. Theparticipants, whoreceivefunds for the neurship andself-employment”. ThevalueoftheprojectisPLN1780441,anditsimplementation endedinApril funds, withintheframework oftheHumanCapitalOperationalProgramme,action6.2 “Promotionof of WarsawandtheCollege FinancesandManagementinWarsaw.Itreceivesadditional financingfromEuropean The project“BecomeYourOwn BossinPoland”isimplementedtogetherbytheMunicipal OfficeoftheCapitalCity of theproject.Itisalsonecessarytofilecopiestwodocuments, confirmingone’sstayabroad. In ordertoapply,itisnecessaryhaveagoodbusiness conceptandfillouttheformsavailableonwebpage the DirectorofOfficeforEuropeanFundscapital cityofWarsaw,whichimplementstheproject: have decidedtogetbackthecountryinorderregister theirownbusinessesinthecapitalcity. The project“BecomeYourOwnBossinPoland”istheonlysocialPolandaimeddirectlyatemigrants,who 45.1. Shortdescription often hesitatingastowhethertheyshouldcomebackPoland,infearof more innovativeapproach.Oneofthemaddressesdirectlytheissueyoungpeoplegoingabroadtoworkand However, thankstotheavailableEuropeanfundssomenewprojectshavebeenimplemented,whichallowsfora ticeship andinterventionworks,subsidiesforworkplacesorfundsinitiationofbusinessactivity. vocational consulting,trainingfortheunemployed,cooperationwithemployers,organisationoftraining,appren special initiativestoimprovethesituationonlocal of Warsaw,implementanumberstandardactivities(similartothoseinotherpartsthecountry),aswell of thiskindinWarsaw.The ple’s potential,andahighriskof One oftheproblemsthatWarsawfacesinterms in Poland” Project “BecomeyourownBoss 45 (Director, OfficeforEuropeanFunds,Warsaw) and atthesametimesupport business. ThankstosupportfromEuropeanfunds,weareable tohelpthesepeopleinmakingimportantlifedecisions This istheonlyprojectofthiskindinPoland,encouragingemigrants toreturnthecountryandestablishtheirown Warsaw PL /77 employment servicesofWarsaw,coordinatedbytheLabourOfficeCapitalCity unemployment amongthem.About50,000–60,000peopleencounterproblems labour marketinWarsaw. Employment Categories development of theirbusinesseswithinthe frameworkofthe labour marketpoliciesistheinsufficientuseofyoungpeo labour market.Thestandardactivitiesincludeajobagency, unemployment. Accordingto entrepre- - - 257 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 258 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities companies, ownedbyPolishre-emigrantsinWarsaw for establishmentandfunctioningofnew,innovative almost PLN1.8million,anditisdesignatedmainly László Andor.Thecostoffinancingthisprojectwas EU forEmployment,SocialAffairsand congratulated personallybythecommissionerof 2011, theauthorsofbestbusinessplanswere training andconsultingprogramme.InSeptember ipate inthesecondstageofproject,including the bestbusinessideasandtheycontinuedtopartic these, twenty-threereceivedadditionalfinancingfor training andconsultingduringthefirststage;outof of charge.Thirty-oneparticipantstookadvantage tober 2010,and Recruitment lastedfrom27Septemberuntil29Oc the dateofitscommencementforatleast12months. project, areobligedtomaintainbusinessactivityfrom their ownfault. grants whohavelosttheirjobsotherthanthrough giving birthtoandraisingachild,thoseemi- or enteringthelabourmarketforfirsttimeafter towards emigrantsagedover45years,returningto Warsaw. Theofferwasdirected,inthefirstplace, Province andwillingtoopentheirownbusinessin from economicemigration,residentsofMazowieckie the labourofficeasunemployed),whohadreturned professionally (notworkingandnotregisteredat The projectparticipantswereofage,notactive consulting forthefirstyearofoperation. lishing theircompany,theycouldtakeadvantageof getting readytostartbusinessactivity.Afterestab sional trainings,workshopsandindividualconsulting, business activity.Earlier,theywentthroughprofes able for6monthsafterthecommencementoftheir facility intheamountofPLN1,126permonth,pay Your OwnBossinPoland”weregrantedanadditional own company,participantsoftheproject“Become PLN 40,000fortheestablishmentandrunningoftheir Apart fromnon-returnablefinancialsupportofupto addressing users 45.2. Conceptions andways of 3 www.zostanszefem.vizja.pl/pl Warsaw PL participation intheprojectwasfree Integration, Mr Employment Categories - - - - - 3 . local market. diversified nature,fittingwellwithinthecontextof of twenty-threefirmsrenderingservicesavery individualised anditresultedintheestablishment each ofthetwenty-threeparticipantswasverymuch skills andindividualconsulting.Thus,thesupportfor ness operation,workshopstoshapeinterpersonal legal aspectsofestablishingandmaintainingabusi ing andconsultingprogrammeonadministrative The projectobjectiveswereimplementedbyatrain their return. and toprovidethemwithworkopportunitiesupon chance toencouragesomeofthosepeoplereturn, ed duetoeconomicreasons.Theprojectoffereda unable tofindagoodjobinPoland,hademigrat project isaninnovativesupporttoolforthosewho, skills necessarytolaunchandoperatetheirfirms. and raisingthelevelofknowledgeprofessional ready tostarttheirownbusinessactivitybyupdating Boss inPoland”wastogettheprojectparticipants The mainobjectiveoftheproject“BecomeYourOwn welfare system 45.4. Interaction withthe ing tasks. of implementationororderingtrainingconsult project andrecruitment,whiletheCollegetookcare responsible fortheformalandfinancialaspectsof Finances andManagementinWarsaw.Theofficewas for theCapitalCityofWarsawandCollege The projectwasimplementedtogetherbytheOffice modes of working 45.3. Internal organisation and solving particular problemsinsomeways; (4)citizens’ ment ofWarsawandgroups ofcitizensinterestedin in thecitycouncil;(3)conflicts between party andtheleftistDemocratic LeftAlliancepresent and partiesinopposition:the populistLawandJustice between thegoverningliberalpartyCivicPlatform period ofso-calledsocialistrule);(2)presentconflicts war andlegaldecisionsmadeduring1944-90(the include (1)historicalheritageofthesecondworld Factors thatinfluence Conclusions local welfarepolicyinWarsaw local govern- local - The - - - support ofany institution.Wemayassume thatthe charges. Theorganisations do nothavethefinancial houses, theownersofwhich hadraisedtherent result oftheprotests inhabitantsoftenement Warsaw TenantAssociation. Bothemergedasa – theCommitteeforProtection ofTenantsandthe established thatdealwithprotectionoftenantrights In thissituationinWarsaw,twoorganisationswere of the property, trytoexchangethelowrentpayingclients because someprivateowners,afterregainingtheir communal housinggeneratesthebiggestconflicts, ment houseowners.Reprivatisationofbuildingswith creates tensionsbetweentenantsandprivatetene to reprivatisation.Thereprivatisationprocessalso sources arelocatedinbuildingsthatmaybesubject because aroundaquarterofthecity the caseofcommunal The effectsoftheBierutDecreearealsovisiblein before BulgariaandRomania;Eurostat2012). sity of that Polishcitiesarecharacterisedbyaveryhighden to theexistingdeficit.Itisalsonecessarybeaware part ofcitybudgetisspentoncompensation,adding current valueofthebuilding.Thismeansthatabig to compensatepropertyownersaccordingthe well asthestatebudgethastoguaranteefunds or receivingcompensationfromthecity.Thecityas gained opportunitiesofgettingtheirpropertiesback the politicalchangesafter1989,formerownershave for determiningformerowners’rights.Astheresultof remained ineffect,continuingtoconstitutethebasis ers. TheBierutDecreewasissuedin1945andhas buildings toremaininthehandsoftheirexistingown taken overbythe within thecity’sadministrativelimitsof1939tobe legal actthatallowedfortheownershipofland in theaftermathofwar,authoritiesissueda its long-lastingeffects.ToefficientlyrebuildWarsaw housing policyinWarsawisthe“BierutDecree”and One ofthemajorimportantfactorsinfluencing during 1944-90 world war andlegaldecisionsmade The historical heritage of thesecond (5) externalfinancialsupportgivenbytheEU. young initiatives tohelppeoplehavingspecialneeds(e.g. welfare systemforincomegeneratingones. housing (thirdfromthebottominEurope;only mothers, immigrants)(grass-rootsinitiatives); municipality, withownershipofthe housing belongingtothecity, housing re - - - - advisory servicestothe at proposingnew city andsocialgroupsTSOs.Theteamisaimed capital cityofWarsaw,withrepresentativesthe lessness andSocialExclusionwasestablishedinthe Housing, ReprivatisationandCounteractingHome April 2012,theTeamforSolvingofSocialProblemsin protests onthe on thelocallevelinPoland.Oneofeffectstheir part ofprocessbuildingparticipatory factory solution.Theiractionscanbeconsideredas conflict andhavenotyetbeenabletogainasatis tenants’ associationsaretheweakersideof on thebasisofBierut’sDecree.Despitetheirefforts, of realestatepropertytakenawayfromtheowners the authoritiesofWarsawareblockingreturn Polish UnionofPropertyOwners,whicharguesthat The othersideoftheconflictisrepresentedby of theiractivities. length oftheirexistenceisdeterminedbytheresults vate partnerships. Bemowo. Anotherconceptistoimplementpublic–pri Such asolutionhasbeenappliedinthedistrictof of recruitmentandcharges)asthepublicfacilities. which theparentscanuseinsameway(interms “buy out”non-publicnurseryandkindergartenplaces, in Warsaw.Acheaperandmoreflexiblesolutionisto six newpublickindergartenshavebeenestablished lic–private partnerships.However,since2007,only vate entities;and(3)childcareimplementedbypub kindergartens; (2)entrustingchild in Warsawcanbesolvedby(1)buildingnewpublic council isoftheopinionthatchildcareproblems solving oftheproblemcarechildren.Thecity agreement, likeinthecaseofperceptionand ses show,insomecasesthepartiesdofinallyreach The conflicthaspurelypoliticalcharacter.Asanaly opposition governing liberalpartyandpartiesin Present conflictsbetween the housing policyofthecitywasthatin initiatives in local government. housing andproviding care servicestopri- democracy - - - - - 259 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 260 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities get somemodest financialsupportfrom stead ofstayinghome.MaMa Foundationwasableto to createapsychologicaleffect: readinesstoworkin giving themopportunitiesto makesomemoneyand creation ofsocialenterprises/cooperatives, whichare latter, thefoundationtriesto activatethembythe working andthosewhoarenot. is addressedto fill sometypeofvacuumin is nottoinfluenceasituationthroughprotest,but tive, liketheonesmentionedearlier. ation ofMaMaFoundation,alsoagrass-rootsinitia In theareaofchildcare,wehavetopointoutcre special needs. Citizens’ initiatives to help peoplewith financial resourcesorchangingtheeducationsystem. al orlocalgovernmentconcerningtheallocationof successfully, trytoinfluencethedecisionsofnation are typicalprotestorganisations,which,moreorless lic opinionisdividedontheissue.Bothassociations political supportasinthecasedescribedearlier.Pub not receivefinancialsupportofanykind;onlysome their headquartersinWarsaw.Theorganisationsdo around Poland(e.g.leadingsocialcampaigns)with in Warsaw,whiletheotherispresentvariouscities The association“VoiceoftheParents”isactivemainly ation alsocreatedtheFoundationforParents’Rights. for primaryeducation.Lateron,theleadersofassoci proposed bynationalgovernmentasastartingage age of7yearsinstead6years,whichwasrecently hoc bygroupofparentsadvocatingmaintainingthe “Ombudsman forParents’Rights”wascreated tion, anotherassociationisactive.The the ageatwhichchildrenshouldstartschooleduca problematic regulations.Inthedebateconsidering and wassuccessfulledtowithdrawingthemost support oftheoppositionpartiesincitycouncil gartens andcrèchesinWarsaw.Theactiongainedthe ents” associationdemandingloweringfeesinkinder small children,whoestablishedthe“VoiceofPar ganisations suchastheassociationofparents The thirdpartneroftheconflictaregrass-rootsor problems insomeways interested insolving particular of Warsaw andgroups of citizens Conflicts between thelocalgovernment Warsaw PL young mothers, boththosewhoare welfare policy.Itsactivity Inthecaseof However, itsgoal local govern- ad ------with anyindividualmattersto trainingonthefunc Warsaw: fromlegalassistance andsupportindealing a partoftheoverallsupport offeredtoimmigrantsin yond Borders,PolishandEnglish languageclassesare In thecaseofFoundation forDevelopmentBe are beginningtoofferlessonsintheEnglishlanguage. watching moviestogether, not onlyregularclasses,butalsodiscussionmeetings, build relationshipswithothers.Manycoursesinclude by TSOsprovideimmigrantswithopportunitiesto Apart fromlearningthelanguage,coursesoffered itarian Actionandthe“FuShenfu”immigrantcentre. for DevelopmentBeyondBorders,thePolishHuman pants. SuchcoursesareorganisedbytheFoundation adapted tothelevelofadvancementpartici charge ormuchcheaperthancommercialentities, this demandismetbyTSOs,offeringcoursesfreeof projects. Asfortheimmigrants’needtolearnPolish, to supportingthemwithintheframeworkoftheir of foreignersinWarsawmayonlycountonTSOs market. Theremaining,mostnumerous,groups Polish languageclassesandcounsellingonthe support inPoland,whichincludesfinancialsupport, the onlygroupsauthorisedtosystemicintegration have beengrantedcomplementaryprotection,are category of immigrants – refugees and foreigners who interest ofimmigrants(seereportsWP3). extent. Thesupportoflabourofficesgainsverylittle solve housingproblems,althoughtoaverylimited permit. Thecityauthoritieshelptheimmigrantsto ship andforeignerswhohaveapermanentresidence plementary protection,immigrantswithPolish to socialassistance:refugees,personssubjectcom some distinguishedgroupsofimmigrantshavearight grants. However,accordingtotheregulations,only often cooperatingwithTSOs,thatworkimmi integration ofimmigrantchildreninPolishschools, City ofWarsawimplementsprojectsinthefield institutions. TheOfficeforEducationoftheCapital ities undertakenbytheCityHallanditssubordinate grants. Immigrantsasagrouparerecipientsofactiv Another exampleisrelatedtothesituationofimmi their activitiesinlongerperiodoftime. foundation hasrathergoodperspectivetomaintain Polish cities.Wemayassumethattheexistenceof There areattemptstosetupsimilaractivitiesinother of supportandvisibilityinlocalnationalmedia. of the ment andthroughitaccesstothefinancialsupport ESF. Thefoundationalsoreceivedhighlevel etc. Atthesametime,TSOs A special citizen labour ------local welfareinstitutions (suchastheLabourOffice), the activitiesagainst in Warsaw,EUmoneysupports thegreatmajorityof in thestructureofEUfunds. Ontheotherhand, the EuropeanCommissionintroduces somechanges sustainability infutureprogramming periodswhen the initiativesbasedmostlyonthesefundsmaylose based on thanks totheprojectsrealisedbyLabourOfficeand one establishedbyMaMaFoundationispossible Similarly, thesupportforsocialcooperativeslike fund actuallyreplacedthestateactivityinthisregard. on socialassistanceavailableforimmigrants,the integration policyinPolandandexistingrestrictions activities aimedatintegration.Duetoalackofclear non-EU Immigrants(EIF)allowedforintensificationof Resources oftheEuropeanFundfor receive irregularandpartialsupportfromthecity. ing forEUfundsiscrucialtheirprojects,asthey case mentionedofTSOshelpingimmigrants,apply of thediscussed important factorinthecontextof the Integrationofnon-EUImmigrants(EIF)is in theframeof that thefinancialsupportgivenbyEU,especially areas supportedby lifelong learningactivitiesareoneoftheimportant nowadays. Active infrastructural andsocial European fundsareoneofthemajordriversboth the EU External financial support given by social insurancesystem, tioning ofthePolish welcomed byimmigrants from thecitygovernment.Thisinitiativewashighly Legal Intervention),gettingsomefinancialsupport and latertransformedintotheTSO(Associationfor started atthebeginningtoadviseandhelpinformally with legalissuesandlawregulations.Therefore,they immigrants, especiallyintermsofdealingspecifically by deprivedgroups,includingrefugeesandother and localagenciesdonotprovidethehelpneeded existing initiative ofagrouplawyerswhofoundthatthe grass-roots character.Theinterestingexampleisthe TSO tohelpimmigrantshave,alargeextent, It isnecessarytounderlinethat welfare systemworkingthroughnational ESF money.However,thereisariskthat local initiatives.Forexample,inthe labour marketpoliciesaswell ESF andtheEuropeanFundfor ESF. Therefore,itisnotsurprising labour market,healthcare,the unemployment implemented by etc . development inPoland . the activitiesof sustainability Integration of - WVS 2012. cy”, SocialWork novation insocialpolicy:collaborativepolicyadvoca that differentgroupshaveattheirdisposal. according toincomeandthetypeofsocial which maypolariselocalcommunities,dividingthem countries, commercialisationofservicestakeplace, racies (Kopmans,Rucht2002).Asinmanyother present inthesociallifeofcitiesstabledemoc policy, constitutetheimportantnew“partner”also which playasignificantroleinshaping At thesametime,protestgroupsandorganisations, city andmeettheneedsofdifferentsocialgroups. Commission) toidentifyimportantproblemsinthe understanding (withthesupportofEuropean cies responsibleforsocialpolicyarebecomingmore The lastdecadeshowsthatthegovernmentalagen described activitiesareconduciveto point outthatsensitivitytosocialproblemsandthe into theirownhands. citizens arethemostsuccessfuliftaketheirproblems unpublished) andhistoricallyprovenexperience,that mistrust ofgovernmentanditsagencies(WVS2012, are characteristicofPolandbecausesignificant often basedonindividualinitiative.Thisphenomenon tory democracyinWarsawandthecreationofTSOs In conclusion, real effectivenessandutilityofsuchservices. this field,butitisdifficulttodefineandevaluatethe people. TheconsumptionofEUfundsisenormousin and coursesforvariouscategoriesofunemployed TSOs andprivateentities,whichusuallyoffertraining Sherraden, M.S.,Slosar,B.&M(2002) ton: PrincetonUniversityPress. Putnam, R.D.(1993) “Methods ofsocialmovementresearch”,16,231-259. Koopmans, R&Rucht,D.(2002). tice, Pensacola:BallingerPublishing. and InnovativeManagement:BridgingTheoryPrac Iuri, Y.&Kuhn,R.L.(1998) Eurostat 2012.RegionalYearbook References uessurvey.org/. World ValuesSurvey,http://www.worldval we observethebuildingofaparticipa , 47,3,pp.209-21. Making DemocracyWork,Prince- Simultaneously,wehaveto New DirectionsinCreative Protesteventanalysis social cohesion. local welfare networks

- “In ------. 261 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities

PL Poland Plock

Renata Siemieńska, Anna Domaradzka and Ilona Matysiak (Warsaw University) 264 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Participation Local welfaresystem Local initiatives Local government Labour market Citizenship Child care Keywords: Local background of thesocialinnovations Introduction Plock PL tional Census of PopulationandHousing1988). Plockbecameasignificant while inthelate1980sitreached 122,660(CentralStatisticalOffice,Na to above,thepopulationofPlock amountedtoonly34,000inhabitants, prior tocommencementofthe industrialinvestmentprojectsreferred mainly ofyoungpeoplefrom thenearbyruralareas.Inearly1960s, tory andtheRiverDockyard).Thisresultedinmassivemigration toPlock, plants (suchastheHarvestingMachinesFactory,CotexKnitted GoodsFac chemical conglomeratewasestablishedinPlock,aswell asotherindustrial decisions ofcentralauthoritiesthePeople’sRepublic of Poland,apetro inhabitants wereobservedinthe1960sand1970s.Asa resultofpolitical The mostsubstantial National CensusofPopulationandHousing2011). Plock consistedof124,553permanentresidents(Central StatisticalOffice, the CentralStatisticalOffice,atendofMarch2012, thepopulationof NUTS-3 classification)approximately110kmfromWarsaw.Accordingto of Mazowieckieprovince(Ciechanowsko-Płockisub-regionaccordingto Plock isthehistoriccapitalofMazowsze,locatedinnorthwesternpart stakeholders andtheirchancestobeacceptedimplemented. Social capitalcaninfluencetypesofinnovationsproposedbydifferent and ual membersoflocalcommunities.Socialcapitalisdefinedastrust,norms collaborations ofgovernments,otherstakeholders(e.g.TSOs)andindivid He alsopointsouttheroleoffeatures munities cancollaboratetomeettheirgoals: into considerationwhenstudyinghowinstitutionsandmembersofcom Putnam stressestherearetwofundamentalpointsthathavetobetaken political context. ent meaningsdependingonthespecificsocial,economic,culturaland of differentsegmentslocalcommunities.Theinnovationshavediffer- cussed andimplementedinnovations,whichareexpectedtomeetneeds interest. Inourcaseitissocialpolicyinlocalcommunities,includingdis- 1998). Themeaningof“better,faster,cheaper”dependsonthearea that alreadyexist,makingthembetter,fasterandcheaper(IuriKuhn with businessortechnology.Inshort,itisawaytoimprovethesystems Innovation isdefinedinmanywaysbysocialscientists,peopleconnected 2. 1. Putnam 1993:8-9 (Warsaw University) Renata Siemieńska,AnnaDomaradzkaandIlonaMatysiak Authors form, institutionshaveinertiaand ‘robustness’ Institutions areshapedbyhistory.Whateverotherfactorsmayaffecttheir shape actoridentities,powerandstrategies. turing politicalbehaviour….Institutionsinfluenceoutcomesbecausethey that makeupinstitutionsleavetheirimprintonpoliticaloutcomesbystruc Institutions shapepolitics.Therulesandstandardoperatingprocedures networks shapedovertime(Putnam1993:170;Sherraden economic growthandincreaseinthenumberof social capitalintheprocessof et al.2002). ------265

industrial centre of the region of Mazowsze – mainly large, state-owned industrial plants shaped the local labour market. The economic crisis of the 1980s and system transformation slowed down the development of Plock. Restructuring and change of ownership of industrial plants took place. The petrochemical conglomerate was transformed into PKN Orlen SA (Polish Oil Company Orlen) and it has remained the dominant employer in the city. Other plants have been privatised and the employment rates have been significantly reduced. Some, like Cotex, employing mainly women, declared bankruptcy and discontinued operation. Nevertheless, the industrial sector is still of significance – in year 2010, those employed in industry and construction constituted 40 per cent of all employees in the city (Kansy, Sierandt 2010: 75).

New solutions are often initiated by the inhabitants, who express their needs and indicate ways in which they could be satisfied. Later on, these serve as a basis for establishment of a partnership between the citizens, TSOs and the municipal or district authorities. Sometimes, the scenario of innovation Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities is different. The city shows initiative and searches for partners among the entities and organisations, mentioned above. 266 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities cultural offeringsofuniversities ofthethirdage: ic needsoftheelderlyinterms ofhealthcareandthebroadlyunderstoodsocialsupport, beyondeducationand problem ofcaretheelderlywasalsovisible.Thispertains mainlytohealthcare,includingrecognitionofspecif At thesametime,ininterviewsconductedwithcouncillors, representativesofNGOsandjournalists,the The representativeoftheDepartmentEducationand Culture,CityHall this purposethantoopenacrèchefortheyoungestchildren: which child in thelightoflegalprovisionsthathadbeenforceuntilrecently(e.g.concerningstandardrooms, non-public crèches.Accordingtothecityofficials,smallnumberofcrèchesisduefactthat ficient supplyofcrèchecareisamoreseriousproblem–thereareonlythreepubliccrèchesinthecityandtwo is thelowestindicatorofpopularisationkindergarteneducationinEUmemberstates).Itseemsthatinsuf school isprovidedfor88percent,whichaveryhighrateinPoland(thenationalaverage37 In Plock,kindergarteneducationatprivateandpublickindergartensdepartmentselementary ter theproblem;mostolderchildreninPlockbenefitfromkindergarteneducation. institutions offerplacesfor190children(dataasofMarch2011).Secondly,mainlyparents3-year-oldsencoun dolszyce. InPodolszyce,thenumberofchildrenaged3-6yearsregisteredasresidentsis516;however,childcare away fromthecitycentre,whicharethepreferredplaceofresidenceforyoungfamilieswithchildren,e.g.Po but theirdistributioninthecity.Insufficienciesareobservedmostlydynamicallydevelopingdistrictsfurther and crèches.Inthecaseofkindergartens,asinWarsaw,thisisnotproblemkindergartenplacessuch, One ofthemostsignificantissuesassociatedwithchildcareinPlockisinsufficientnumberkindergartens The PlockCouncilofSeniors 46 engaging them ineducation.Therearefeworganisations thatdealwithhealthcare oftheelderly,theirproblems, and combatant organisationsand soon,which,forinstance,organisethesocialactivities theelderly,usingtheirskills, There arefeworganisationsthat dealwithhealthcareoftheelderly.ThereisUniversity oftheThirdAge.Thereare Focus interview,Plock, babysitting servicesormini-crèches. sufficient todoanything.Asaresult,non-publickindergartens andkindergartenfacilitiesemergedfasterthansome tens. Therewerenosuchprovisionsforthecrèches.Only budgetfunds,andeveryoneknowsthatthesearenot the factthattherewerefundsfirstforkindergartenfacilities, whichovertimearetransformedintofullkindergar First ofall,EUfundswereusedforthekindergartens.Itistruethatthisboomnon-publickindergartenswasdueto Plock PL care servicesareprovided),itusedtobemucheasieropenakindergartenandobtainEUfundsfor /77 Related toallpolicyfields Categories - - - - - There aretwocarehomesinPlock constant supervision ofprofessionalpersonnel. to theirhealth,disabilityandlackofability tofunctionathomerequire through theentireprocessofdiagnosis, surgery,who,nevertheless,due of persons,whonolongerrequirehospitalisation andwhohavebeen vide 24-hourhealthcare,consistingof treatment,careandrehabilitation 1 A carehomeisaformoflong-term stationarycare.Thehomespro their relativesinsomesituations: situation oftheelderly,whocanbetreatedpoorlyby illness andlimitationstopubliccontrolofthereal family exclusivelyresponsibleforcaremayresultin to theelderlybytheirfamilymembers.Making care shouldbecomplementarywithprovided of therespondents,diversifiedinstitutionalforms in Plockorthesurroundingarea.Accordingtoone The intervieweesdidnotmentionprivatecarehomes to ourrespondents,thewaitinglistsareverylong. towns, thenumberofplacesislimitedand,according homes inthedistrictaredispersedoversmaller care oftheelderly.Thesixpublicsocialassistance in thecity,whichwouldprovideconstantinstitutional tion. Moreover,therearenosocialassistancehomes cient becauseoftheincreaseinelderlypopula Social AssistanceCommittee Interview no.8,Plock,TherepresentativeofPolish only onestoprovidecare and theFoundationforElderly,weare Committee forSocialAssistance),thePolishRedCross are threeorganisationshere,inPlock.Us(thePolish organisations likethat.Asforcareofthelonely,there would atleastvisitandtalktothem.Thereareno whether theyneedadditionalcareorsomeonewho uation: wedon’tknowhowmanyofthemarelonely, their lives.Moreover,thereisnooverviewofthesit Social AssistanceCommittee Interview no.8,Plock.TherepresentativeofPolish know aboutthesituationofthesepeople goes thereforaninterview,but,ingeneral,wedon’t at thehomeofthiselderlylady,andsocialworker apartment buildingandsaysthisishappening ations, when,forinstance,somebodylivinginthesame times, thingsaredisclosed,buttheseunusualsitu- or disabilitypensionandtheyarebeingabused.Some- is thereonlybecausetheyreceivetheoldagepension whether thereareanyproblems,ortheelderlyperson important totheirrelatives,whetherthereisgoodcare, feel comfortablewiththefamily,whethertheyare family environment.Wedonotknowwhetherthey (…) Wedonotknowhowtheelderlyfunctionin 1 , whichisinsuffi - - - - encing affairsthatconcernallinhabitantsofPlock. and representationtheelderlycommunityinflu- of operationtheCouncilisintegration,supporting taining topersonsabove50yearsofage.Theobjective body of the President of the City of Plock on affairs per- The Councilisaconsultativeandinitiative-forming representing thePresidentofCityPlock. to providethemwithsupport;thetenthisacouncillor munity andrepresentthekeyinstitutionsestablished two men).Nineofthemareactiveintheelderlycom- Plock. TheCouncilhastenmembers(eightwomenand based ontheinstructionofPresidentcity 3 October2012.Itsmembershavebeenappointed The PlockCouncilofSeniorshasbeenoperatingsince 46.1. Shortdescription a moreseriousproblem. benefit, insufficienthealthcareandsocialsupportare sity oftheThirdAge),fromwhichonlycertaingroups seniors arebeingimplemented(suchastheUniver of thecity.Althoughtime-management situation andrequirementsoftheelderlyinhabitants nosis hasbeenprovidedforPlockwithregardtothe The abovestatementindicatesthatnocomplexdiag as follows: The detailedtasksofthePlockCouncilSeniorsare addressing users 46.2. Conceptions andways of > > > > > > > > > > of of thepotentialandtimeelderlyonbehalf engaging inactivitiesaimedattakingadvantage needs ofthissocialgroup; integration oftheelderlyandsatisfying initiation ofundertakingsaimedat Plock; tasks andactivitiesonbehalfoftheelderlyin presenting proposalstodefinetheprioritiesof healthcare, social assistanceandcare; in particular,withregardto social assurance, consulting onaffairsconcerning theelderly, President oftheCityPlock; to theCouncilforissueofopinions bythe the situationofelderlyandaffairspresented issuing opinionsonlocallegalactspertainingto culture, sportsandeducation; community initiatives, particularly in the field of social initiatives for - - 267 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 268 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities community ofPlock in thefuture;conceptsforactivationofsenior possibilities ofcreationageriatricclinicinthecity among theseniors,plannedforPlockyear2013; seniors intheautumnof2012);healthprevention results ofthequestionnaireconductedamong transport systeminPlock(onthebasisofanalysis to introducechangesinthefunctioningofpublic port andassistancefortheseniorsinPlock;ability social assistancewithparticularemphasisonsup- meetings, thefollowingtopicshavebeendiscussed: Council ofSeniorshavebeenheld.Duringthese Until today,intotal,eightmeetingsofthePlock institution applyingforthecertificate shouldmeetthe with aspecialgraphicinforming ofthereward.The Such facilitiesaregrantedthe certificateandmarked obtaining thecertificate“Friendlyplacesforseniors”. The actionisaddressedtoallinstitutionsinterestedin places, inwhichtheelderlyfeelcomfortableandwell. products, servicesanddiscountsforthisgroup, the elderlybyadaptingtheirarchitectureandoffering stitutions andotherfacilitiesthatsatisfytheneedsof ation institutions,cafes,shops,drugstores,publicin in Plock.Mostly,thesearecultural,education,recre and institutionsthatarefriendlytoseniors,operating The mainobjectiveofthisactionistopromoteplaces by theCouncilandPresidentofCityPlock. the action“Friendlyplacesforseniors”.Itisorganised The activitiesofthePlockCouncilSeniorsinclude for CivilRightsProtection. State HealthcareInstitutionsandtheCommissioner Plock, VicePresidentoftheManagementBoard tor oftheLocalOfficeNationalHealthFundin at theMunicipalCentreforSocialAssistance,Direc the DepartmentofSupportandSocialRehabilitation Municipal CentreforSocialAssistance,managerof the PublicTransportSysteminPlock,directorof Assistance, presidentoftheManagementBoard Polish RedCrossandtheCommitteeforSocial the MunicipalOfficeofPlock,representatives cil, includingtheOmbudsmanforDisabledat of significancefortheissuesdiscussedbyCoun by externalguests,representinginstitutionsthatare Meetings ofthePlockCouncilSeniorsareattended 3 http://www.plock.eu/pl/informacje_biezace.html. 2 http://www.plock.eu/pl/dzialania_rady.html. > > Plock PL between generations aiming torestoreandstrengthensocialbonds 3 . 2 . Related toallpolicyfields Categories - - - - versification ofchild experience, which,atthesametime,willallowfordi on theconceptofinter-generationalexchange programme forsocialactivationoftheelderlybased Plock CouncilofSeniorsinclude According tooneoftherespondents,plans resentatives ofthePlockCouncilSeniors with bythecontestcommission,consistingofrep to theplacesandverificationofapplicationsaredealt City ofPlockandtheCouncilSeniors.Visits is madebythejuryconsistingofPresident age groups.Thedecisionongrantingofthecertificate visited bytheelderly,whileprovidingaccessforall meet theirexpectations,becomeaplacethatisoften elderly, beopentowardstheneedsofelderlyand rior designandequipmentmatchtheneedsof seniors, makesurethatthearchitectureandinte as manyseniorspossible,providediscountsfor to theelderly,maintainanddevelopthisoffer,reach following criteria:haveanofferaddressedspecifically ku-jest-pietnascie-miejsc-przyjaznych-seniorom. 5 http://www.krpradio.pl/news/wiadomosci-lokalne/1350-w-ploc 4 http://www.plock.eu/pl/aktualnosci/details/article,2494,1,1.html. places forseniors”certificate fifteen institutionshavebeengrantedthe“Friendly Social AssistanceCommittee Interview no.8,Plock,therepresentativeofPolish things, whichwesometimesknownothingabout decorative papercut-outs.Theelderlycandomany for instance,arebeingforgotten,suchasknittingand teach thechildrensomeskillsthattheyhave,which, but theycanalsosharetheirknowledge,educate, these personswillnotonlytakecareofthechildren, because, forinstance,therearenovacantplaces.So, unable tosendthechildrenkindergarten, at home,inthosefamilies,which,forinstance,are who arehealthyandable,willtakecareofchildren (…) Theelderly,whoarelonelyandhavealotoftime, care servicesavailableinthecity: 5 . development ofa 4 . Sofar, - - - - the basisofaquestionnaireaddressedtoseniors. the publictransportsystemhavebeendevelopedon of theCouncilconcerningchangesinfunctioning elderly inhabitantsofthecity.Forinstance,proposals of Seniorsisreferringdirectlytotheopinions A significantaspectofoperationthePlockCouncil iorow_odwiedzila_Parlament_Europejski.html. 6 http://plock.gazeta.pl/plock/1,35710,13770856,Plocka_Rada_Sen uation oftheelderlyinhabitants ofPlock:“2012isthe tions andactivitiesaimedat improvementofthesit Council ofSeniorsisalsosupposed toinitiatesolu the statementofPresidentCity,Plock are familiarwiththeirvariousneeds. community –personsactingonbehalfoftheseniors the cityauthoritiesandrepresentativesofsenior City Hallasthespaceforcommunicationbetween The PlockCouncilofSeniorswasappointedbythe welfare system 46.4. Interaction withthe Commission forPublicHealthandFoodSafetyENVI sion forProtectionofNaturalEnvironmentandthe was dedicatedmainlytotheactivityofCommis ta Hübner, the Council visited the Parliament. The visit invitation bymemberofEuropeanParliament,Danu institutions atvariouslevels.InAprilofthisyear,upon invited tomeetingswithrepresentativesofpublic Members ofthePlockCouncilSeniorsarealso Proxy fortheAffairsofNGOs. representative ofthePresidentCityPlock– Polish Women.ThetenthmemberoftheCouncilisa the UniversityofThirdAgeinPlock,League Prisoners oftheRepublicPoland,Association the AssociationofCombatantsandFormerPolitical tance onBehalfofPersonswithAlzheimer’sDisease, Children ofWarinPoland,PlockAssociationforAssis- Sclerosis MultiplexAssociation,theAssociationof Association ofOldAgeandDisabilityPensioners,the of Plock,thePolishDiabeticsAssociation, entities: AssociationofCatholicFamiliestheDiocese Council ofSeniorsarerepresentativesthefollowing consulting functions.ThecouncillorsofthePlock of aself-governinglegislativebody,asitperforms The PlockCouncilofSeniorsdoesnothavethestatus modes of working 46.3. Internal organisation and In thelightof local - - - - 6 . - of asystemicstrategyimprovement. of elderlyinhabitantsinPlockandtothe may contributetotherecognitionofrealsituation atives oflocalcommunitiesattheauthoritylevel movement aroundthecity.Involvementofrepresent availability ofvariousplacestoseniorsandfacilitating Council ofSeniorsalsofocusedon“friendliness”and children. Duringthefirsttermofoffice, urban spacesthatarefriendlyforparentswithsmall dation inWarsaw,whichhastheaimofproviding us, tosomeextent,oftheprojectsMaMaFoun the elderly.TheactivitiesofCouncilsofarremind tiatives, whicharemainlyaimedatsocial living inPlock.Itdiffersfromtheformerdispersed with insufficientsupplyofhealthcarefortheseniors with theproblemslistedabove,whichareassociated The PlockCouncilofSeniorsdoesnotdealdirectly but alsoproposespecificsolutions” a Council,whichwillnotonlyspeakoftheproblems, erational Solidarity.Itisagreatmomenttoappoint European YearofActivitytheElderlyandInter-Gen html. 7 http://portal.plocman.pl/aktualnosci/powstanie-rada-seniorow,25879. 7 . development activation of Plock ini- - - - 269 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 270 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities partition period(19 specific grouparethePolesofRussianorigin,livinginPlock –childrenofRussianswhosettledinPlockduringthe not constituteacompactimmigrant some ofthemattendtheprayersandmeetingsorganisedbyOrthodoxChurchinPlock.However,theydo work asrepresentativesofthePetrochemicalConglomerate.Thesewomenhavelivedincityformanyyears; tries, whocametoPlockinthe1970stogetherwiththeirPolishhusbands–mostlyengineers,sentUSSR A specificphenomenoninPlockisthewaveoffemaleimmigrants-womencomingfromformerUSSRcoun it seemsthatlocalimmigrantsaredoingtheirbestto“remainunnoticed” in Plockmaybeatleastthree-timeshigher.DuetothelackofformallyregisteredimmigrantorganisationsPlock; citizens ofUkraine,Russia,Belarus,ArmeniaandMongolia. residents. Inthisgroup,110personswerecitizensofcountriesoutsidetheEuropeanUnion.Thesemainly in 2010,131foreignerswerepermanentresidentsofPlock,representingabout0.1percentall out of128,361intotalindicatedthattheirnationalitywasnotPolish.AccordingtotheMunicipalOfficePlock, 8 In Plock,wearedealing witharelativelysignificantpopulation ofRomanipeople,aswell somerepresentativesoftheJewish minority. The Associationwasestablished byoneofthePolesRussianorigin,descendant Russians,whocametothe few. Mostofthemhaveregistered becausetheirspousewasanimmigrant. Warsaw. Themembersinclude mainlyRussians,BelarusiansandUkrainians,aswell assomePoles,althoughonlya The Associationwasofficiallyregisteredin2007asabranch ofthe“RussianCommunity”associationestablishedin 47.1. Shortdescription being Polishorother,whichprobablyincludesbothimmigrantsandminorityrepresentatives National Censusof2002onlyforpresentsthediversityPlockinhabitantsaccordingtodeclarednationality The scaleofforeignmigrationsinPlockissignificantlysmallerthanWarsaw.availablestatisticsfromthe Association The RussianCommunity 47 Poles toacceptthem. encountered byimmigrantsinPlockincludethelanguage barrier,difficultiesinfindingjobsandreluctanceofthe In thelightofinterviewswithtwofemalemigrants–aRussian andaUkrainian-themostsignificantproblems Plock PL th century). /77 community –mostofthemhavebeengranted Related toallpolicyfields Categories Based oninterviews,theactualnumberofimmigrants (see WP3ReportforPlock). citizenship ofPoland.Another 8 : 309individuals - 271

city during the partition period. The initiative, as it Plock branch of the Russian Community Association turned out, has met the expectations of modern im- covers its current expenses mainly via member pre- migrants from the East, in particular, female citizens miums. These funds are designated for organisation of the former USSR, who came to Plock in the 1970s: of meetings for the members; buying coffee, tea, I had been thinking about an association like this for cookies; and covering travel costs of guests invited a very long time. My grandma often told me how dif- to meetings and trips associated with participation ficult the situation for Russians was at the time, how in meetings organised in Warsaw. The Association lost they felt. They only met at the Orthodox Church. may not collect funds for its operation (e.g. from I remember this from my childhood. This is why I the Municipal Office), since, as a Plock branch of an wanted to create a group of people, who could meet, organisation with the central office in Warsaw, it does talk in their mother tongue, exchange experiences and not have legal standing. Therefore, the funds for or- remarks, and celebrate together.9 ganising large undertakings come from Warsaw, they are booked and settled there: “(...) the association in The future of this initiative remains unclear. The lead- Warsaw, they engaged in some projects, financed by er – a female immigrant from Russia – has moved to Moscow or the Russian consulate. And we got some another city and there is no candidate to replace her little bits out of these. But the money, they got it, in the position. they made the settlements” (Interview no.9, Plock, the leader of the Russian Community Association). 47.2. Conceptions and ways of Members of the Association used to meet in the addressing users private apartment of the president or at local cafes, The organisation performs many functions that are while the large cultural events, such as the Russian Days, were organised at the Municipal Office of of significance for immigrants: it organises cultural Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities events, preserves the cultural traditions, builds the Plock. The members use their own resources to deal image of the immigrants from the East and communi- with organisational affairs – their own cars, comput- cation with the Poles and other immigrants in Plock, ers and phones. as well as helping newcomers find jobs or apartments. Members of the association have also participated in 47.4. Interaction with the local trips to Russia and Belarus, organised by the central welfare system office in Warsaw. The cultural events organised include the “Russian Days” and evenings dedicated to Russian The Association has been considered to be innovative writers: “(...) we have organised so many meetings, and as it is the only initiative, so far, aimed at immigrants the “Russian Days” 2 years ago, and an evening dedi- living in Plock and implemented by them. Activities cated to Tolstoy. Everyone prepared something, some of the organisation are aimed at a specific group articles to be read, and we presented a film about the of immigrants – those from the East (Russians and writer, and it all worked beautifully” [interview P.9]. Ukrainians). At the same time, the Association works Information on the Association was distributed mainly on behalf of the Russian minority of Plock, that is, the by the local press – the organisation members have descendants of Russians, who came to the city in the th century. published articles in Tygodnik Plocki and in the local 19 edition of Gazeta Wyborcza. According to the president, cultural and assistance events are particularly needed by immigrants, who, to 47.3. Internal organisation and a certain extent, feel torn between Poland and their modes of working country of origin, who have not been able to find a place for themselves in Polish society and who still do The “Community” consists mainly of the elderly, not want to return to their homeland as, in their opin- old-age pensioners; the number of young people is ion, they have not succeeded as immigrants. Such very small. In year 2012, there were 25 members, persons particularly need the support and the space, including approximately 10 active members. The in which they could feel more comfortable. The activities of the Association, however, has not 9 http://plock.gazeta.pl/plock/1,35681,6969289,Kawalek_Rosji_w_Plocku. attracted substantial interest of immigrants living in html. 272 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities cultural andnationaltraitstotheirchildren: much aspossibleandtheyprefernottotransfertheir marriages, trytoassimilateinthePolishmajorityas Other persons,particularlythose,whoareinmixed want to provide financial support for the organisation. in theworksofAssociationeither.Theydonot material status,arenotinterestedingettinginvolved and thesurroundingarea,whohaveattainedahigher Immigrants fromRussiaandUkraine,livinginPlock provide assistanceintheirlifeproblems: themselves andpersonsofRussianorigin,whocould fact thatitismanagedbyimmigrantsfromtheEast Plock. Theirreluctanceisnotovercomeevenbythe Community Association Interview no.9.Plock,TheleaderoftheRussian ‘my daughterisnotRussian,youbetterrememberthis’ loudly, sothateveryoneinthestorecouldhearher, mixed families.’Andshesaid,‘Getawayfromme!’, to Moscow for Russian language courses, for kids from daughter wouldliketocomeus;weorganisetrips ‘What doyouwantfromme?’Isaid,‘Perhapsyour I hadthisencounterayearago,lady,Wiera,said: Community Association Interview no.9.Plock,TheleaderoftheRussian they blamemeforcallingthemanddisturbingthem. and theycould.No,willnotcome.Andlateron, them involvedinsometasksforwhichIhavenotime, ployed foryears,theyhavethetime.Iwantedtoget they prefertostayathome.Iknowthey’vebeenunem- us. Eventhoughtheyhaveproblems,nojobs; tried toforce,theyaretheoneswhorefusecome The oneswhohaveproblems,thewhomIalmost Plock PL Related toallpolicyfields Categories in termsofsocialsupport. one ofthegroupsinhabitantshavingspecificneeds authorities, couldmaketheimmigrantsnoticeableas various initiatives,withmoreactivesupportofthecity in Plock.Quitetheopposite,agreaternumberof initiatives onbehalfofimmigrantsarenotneeded Polish majority.Thisdoesnotmean,however,that believe ittobeagoodstrategybecomepartofthe ing toPlockfromtheEastin1970sandatpresent other hand,immigrants–particularlyfemalescom afraid togetinvolvedinanysocial Due totheirunregulatedstatus,illegalimmigrantsare ers thatcametothecityduringvarioustimeperiods. migration andthediversityofgroupsforeign scale migrationingeneral,thephenomenonofillegal due tothespecificlocaltraitsassociatedwithsmall- Activity onbehalfofimmigrantsinPlockisnoteasy Community Association). it” (Interviewno.9,Plock,theleaderofTheRussian were someotherstrangephonecallsandthatwas they cameherelookingforwives,thePoles,andthere phone calls,inquiries,severalpersonscameover, ested intheAssociationeither:“(...)wereceivedsome At thesametime,PoleslivinginPlockarenotinter initiatives. Onthe - - - 273 PL Categories Plock Neighbourhood revitalization / Housing

48/77 City Social Housing Society

Housing is one of the important social policy issues in Plock and a topic of numerous newspaper articles as well as city council debates. The scope of the problem is much too big for the city budget to be solved easily, and many critics say that the housing policy of the city is chaotic and neglected, without clear vision or direction. As former vice president said at one of the council meetings: “… 2,000 families face this problem, often having no permanent Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities residence address. So, today, an attempt to provide 100,000, 500,000, 1 million zlotys will not bring any effect at all.” A representative of the local press stated that this problem is encountered by even more people than shown by official statistics: “Officially, there are 7,000 families waiting for apartments in Plock. In fact, nobody really knows how many people are waiting” (Interview no. 2, Plock, journalist of the local newspaper). These statements illustrate the scale of problems associated with housing in Plock and lack of perspectives for solving them. The tenement houses in the Old Town are particularly problematic; they are in very bad condition and are inhabited by poor and marginalised persons. These are areas in which various problems and social pathologies concentrate, resulting in the creation of a kind of ghetto. In this context, it is particularly significant to introduce innovative solutions, giving a chance for improvement of the housing conditions of Plock inhabitants.

48.1. Short description

The Social Housing Societies are social developers appointed by the commune, whose work is focused mainly on construction and renting houses for the purpose of implementation of the housing policy of the commune. The CSHS of Plock is the largest company of this kind in Mazowsze region and one of the largest in the country. CSHS, apart from construction of rental flats for persons of low income, try to build apartments for sale on the basis of commercial credits. In 2013, CSHS offered ten apartments at 3,900 to 4,200 PLN per square metre. After calculation of total costs (instalment, service charges, etc.), these prices were comparable to those on the market.

48.2. Conceptions and ways of addressing users

The CSHS offer is addressed to less affluent inhabitants, who cannot afford to purchase or rent an apartment on the free market. Before construction starts, the Society establishes a list of potential inhabitants. Prior to com- mencement of the investment project, the so-called “participation” fee is collected as participation in costs of construction. When the flats are ready, they are rented to those who participated in the costs of construction.As they remain the property of the city, those flats cannot be purchased, but the tenancy rights can be inherited. The 274 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities the late2013/early 2014,thepresidentwill disposeof land plotsbelongingtotheCSHS. Itisplannedthatin council flatsarecurrentlybeing constructedonthe for otherprogrammestobe launched.Severaldozen the activityofthistype.Therefore, CSHSiswaiting operation becauseofEUprovisions, whichprohibit At present,theNationalHousingFundisnolongerin number ofpotentialpurchasersislow. way arecharacterisedbyhighpricespermetreandthe been successful–theapartmentsconstructedinthis are additionalactivitiesanduptonow,theyhavenot several facilitiestobesoldonthefreemarket.These of theparticipationformula,CSHShasconstructed Apart fromthe2,000apartmentsprovidedonbasis itants repaytheseformanyyearsintheirrentalfees. Housing Societiesforconstructionpurposes;inhab- a target fund of the state, designated for loans to Social odarstwa Krajowego(NationalEconomicBank).Thisis sistance oftheNationalHousingFundBankGosp- The 2,000apartmentswereconstructedwiththeas- in; alsothisrightcanbetransferredtosomeoneelse. pation fee.Onthisbasis,theybecomeentitledtomove designated forrental,andthetenantprovidesapartici- built almost2,000apartmentsofthistype.Theseare task isconstructionofapartmentsforrent.CHSHhas ants –oneofthemethodsimplementationthis commune mustprovideaplacetostayforitsinhabit- According totheactonlocalself-government, age citizen,oracitizenwhoisunabletomakeliving. ments atpricesthatwouldbeaffordableforanaver- The activitiesofCSHSarearesponsetolackapart- modes of working 48.3. Internal organisation and do nichdopłacać?“GazetaWyborcza”,30April2013). (Marek Wielgo, apartments arenotasattractivetheycouldbe not muchlowerthanina ment. ConsideringthefactthatrentatCSHSis about 30percentofthemarketvalueapart regain theircontribution,which,infact,constitutes not possible–thetenantleavingSocietymayonly the apartments.Buyingapartmentoccupiedis the loanincurredbySocietyforconstructionof The rentalfeealsocontainstheservicechargeand the orderof20-25percentvalueflat. current councilflatsorpaythe future tenantsofCSHSbuildingsmustreturntheir Plock PL Czynszówki natrudneczasy-czywarto housing participation fee,in cooperative, these Neighbourhood revitalization/Housing Categories - for additionalsourcesofincome. thousand zlotysperyear.ThisiswhyCSHSlooking jowego forthem,whichamountsinseveralhundred CSHS mustpayinteresttoBankGospodarstwaKra cooperatives). Whenoneofthetenantsfailstopay, rent isrelativelyhigh(eventwiceasin incurred forconstructionintheirrents,themonthly the factthat,asinhabitantshavetorepayloan A problemassociatedwithoperationoftheCSHSis ants tomovein. more than60newcouncilflatsreadyfortheinhabit ments istobe introduced:thepurchaserwill pay30 2013, theopportunitytobuy theapartmentsininstal In responsetolackofinterest innewapartments market, andthequalityofconstruction isratherlow. ny donotdiffermuchfrom thoseavailableonthe current pricesofapartments offeredbythecompa in Plockaredivided.Ithasbeenpointedoutthatthe In general,opinionsconcerningtheactivityofCSHS ments aretoohigh. expected resultsbecausethepricesofapart apartments onthefreemarkethavenotbrought CSHS toobtainmeansfromthesaleof of subsequentapartments. ated withlackofthesufficientfundsforconstruction This, however,doesnotmitigatetheproblemassoci vestments. AsdescribedbythePresidentofCSHS: City andconstitutesoneoftheprioritiescity’sin is underthedirectsupervisionofPresident housing policy,includingtheoperationofCSHS, to activitiesbeundertakenbythecompany.The shareholders ofCSHS,makingdecisionswithregard Council playstheroleofgeneralassembly well embeddedinthe commune treasury,establishedbytheCity,andis CSHS asacompanyowned100percentbythe welfare system 48.4. Interaction withthe Social HousingSociety Interview no.5,Plock.Thevice-directorofCity easier tomanage council ofPlock.Sowhatifit’sacompany?Itmakesit the policydevelopedbypresidentofPlockand the presidentofcityPlockandweimplement structure, weareanextension,executivearmof CSHS isacompany,butitnotlikeweareseparate local welfaresystem.TheCity Attempts madebythe development local housing ------275

per cent of the value of the apartment, while the rest of the amount payable is to be distributed over the period of 5-20 years, depending on the ability of the purchaser to make payments. It is significant that the first instalment, as well as the interest rates, can be negotiated, and in the case of any further problems with repayment – it is possible to reach agreement with regard to temporary suspension of payments. Unlike banks, the CSHS does not require any property documentation and those who have their own funds (not from a bank loan) for the first payment qualify for purchasing an apartment. CSHS has operated in Plock for a long period; the first apartments were offered in 1998, and the last 3 years ago, as an apartment for rent. Afterwards, the operation of the National Housing Fund was discontinued. Thanks to the act of 2010, which allows for sale of these apartments to inhabitants at market prices, CSHS plans to regain some of the invested money. The funds remaining after repayment of the loan can be spent only on housing construction; thus, if any interesting central or municipal programmes Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities emerge, CSHS will contribute to these, building new apartments and the associated infrastructure. 276 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities were designedbyyoungpeopleparticipatingintheprogramme. dancing), makingofafilmontheparticipantsandpainting ofmuralsonoldtenementbuildings–somethese professional courses,whiletheICISwasresponsiblefor activities fortheyouth(sports,arts,photo,filmmakingand es fortheyouthcouldbeorganised.Thesecondpartner –theProfessionalDevelopmentInstitutionorganised workshops andsexualeducation/familyplanningcourses, aswella the SocialAssistanceCentreprovidedtrainingsonsocial competencesandskills,includingpsychologicaleducation Institution andtheAssociation“InnovationCentreforInformation Society”.Withintheframeworkofthesefunds, partners selectedbytheCitySocialAssistanceCentreon thebasisofacontest:ProfessionalDevelopment The entireprogrammehadabudgetofmorethan1.6million zlotys,divided,moreorlessequallyamongthetwo people, halfoftheseaged15-25years. but also“bringingbacktolife”the addiction, The projectwasfocusedoninhabitantsoftheOldTown:poorandmarginalisedduetoloweducationlevels, 49.2. Conceptions andways of addressingusers ed itsownrevitalisationprogrammewithsomesocialpartners. Plock couldparticipateinthecontestforfunds,becauseitmetkeyprerequisite–since2005,hasimplement The aimofthepilotprojectwastodevelopageneralmodelbeimplementedbyothercitiesandcommunes. Centre. Asithasbeenunderlined,wasapilotproject–oneof20thiskind,implementedinthecountry. the OldTownofPlock.Theproject,fundedmostlyfromEUfunds,hasbeenmanagedbyCitySocialAssistance The project“Togetherforrevitalisation”lastedalmost15months,encompassingmorethan100inhabitants of 49.1. Shortdescription Project “TogetherforRevitalisation” 49 Plock PL unemployment, crime,etc.Revitalisationwastoincluderenovationofoldbuildings,squaresandstreets, /77 local community,whowereoftenmarginalised. Neighbourhood revitalization/Housing Categories community centre,whereintegrationclass The projectencompassed100 - - 277

49.3. Internal organisation and 49.4. Interaction with the local modes of working welfare system

The City Social Assistance Centre in partnership with As a result of this project, several backyards have the Professional Development Institution and the As- been renovated; small gardens have been estab- sociation “Innovation Centre for Information Society” lished, with sandpits for the children, etc. The inhabit- has been implementing the programme “TOGETHER ants themselves care about their new backyards and FOR REVITALISATION – pilot programme for social re- add some new features such as swings, flowerbeds, vitalisation of the Old Town of Plock”, co-financed by fencing, etc. Moreover, several participants found jobs the European Social Fund. The main purpose of the after the professional courses that were organised in project is social revitalisation of the Old Town in Plock the project. Now the CSAC is searching for money to by providing support to at least 100 persons threat- continue these activities. ened by social exclusion and engaging in activities to Owing to the fact that the project was based on the animate the local community. partnership of three local institutions, it offered a The target group of the Project was defined as 100 wide choice of services, matching the needs of the persons threatened by social exclusion, living in the inhabitants of areas that were most threatened by Old Town of Plock, beneficiaries of social assistance exclusion. The project leader was the CSAC, which is provided by the CSAC in Plock, at least 50 per cent of the major institution responsible for social assistance, all participants were young people aged 15-25 years. implementing several projects financed from the EU Within the framework of participation in the pro- funds. The joining of efforts of the CSAC and the Pro- gramme, various forms of activity have been planned, fessional Development Institution allowed the project such as: to provide participants with assistance and education Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities as two complementary fields. social reintegration (workshop); >> However, the most significant effects were of the ICIS >> social reintegration – animation (sports, film and association work, which introduced real changes in dancing classes); the community of the Old Town based on participation. Working together on the establishment of local >> social and professional reintegration (courses and trainings); and green areas, the inhabitants started to feel responsible for the appearance of their community, they organisation and maintenance of the community >> started to protect it actively and add new components centre; to it (such as swings for the children, made by one of The classes offered to the youth included sports, such the inhabitants). The backyards, which were formerly as kickboxing, filmmaking, dancing, art, e.g. graffiti, uncared for, became the spaces in which children and photography. Professional courses were also and adults could spend time and relax in much better offered in areas such as artistic make-up, animation, conditions than before. flower arranging, cosmetology, haircutting, construction, engine-driven forklift truck driving, catering, cash register management and computer skills. 278 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities According totheVicePresidentofCityPlock: inhabitants ofPlock. social businessresponsibility.Themainobjectiveofthe Foundation istoworkimprovethequalityoflife PKN ORLENS.A.and The “GrantFundforPlock”isaninitiativeoftheMunicipal OfficeofPlockandtwocorporationsoperatinglocally- 50.1. Shortdescription positive lished bythecorporationincooperationwithCitytosupport In thecontextofsignificancePKNOrlenforlocal inflow ofexternalinhabitants,whoarenotinterestedinthefuturePlock.Accordingtooneinterviewees: PKN OrlenCorporation–withthelocal A problem,whichhasbeenmentionedinmanyinterviews,istheweakconnectionoflargestlocalemployer – the skillstheyaresearchingfor;however,thisisnotsystemiccooperation. ipants, aswellthemarketdemands.Someattemptshavebeenmadetocooperatewithemployersidentify or noresults.Trainingactivitiesareorganisedinareasthatoftenfailtomatchtheskillsinterestsofpartic training andconsultingfortheunemployed.Unfortunately,manyofsolutionsintroducedbringonlytemporary activities, implementedbythe The situationonthe Foundation “GrantFundforPlock” 50 ment. Successof theGrantFunddependson peoplewhoarewillingtowork, whoactonbehalfoftheinhabitants of focused onsuchareasasculture, sportsoreducation,aswellthedifficultissuesofsocial assistanceor been verywide.Theactivityof theFoundationisallmorevaluableasitallowsforrewarding asm andideastoactonbehalf ofthelocalcommunity.Thescopeprojects implementedowingtothegrantshas The ‘GrantFundforPlock’Foundation combinesthepotentialofpublicandprivatesector whohavetheenthusi Interview no.2,Plock.Journalistofthelocalnewspaper bond witheachother,theyareunabletouniteordefendthelocal mostly people,whocouldachievenothingathome,hadnoeducationorskillsabilities.Thelocalpeoplefeel Thanks toconstructionofPetrochemia,itbecamealargecity,andwhathappened?TheentireSteelworkscamethe Plock PL development. labour markethasbeenoneofthemainproblemsencounteredbycityauthorities.Most Basell OrlenPolyolefins-establishedin2003. /77 labour marketinstitution,arebasedonspendingofEUfundsforprofessional labour market.Theestablishmentofthecorporationresultedinsubstantial Neighbourhood revitalization/Housing Categories development, the“GrantFundforPlock”Foundationestab community. They do not treat Plock as their own. community. TheydonottreatPlockastheirown. Cooperation withtwolargefoundersisbasedon local initiativesthroughgrantcontestsisa initiatives thatare unemploy- - - - 279

our city. We have learned many times we have many 50.3. Internal organisation and people like this in Plock. It should be kept in mind, too, that the initiative has been successful thanks to modes of working companies engaged in social issues – PKN Orlen and The “Grant Fund for Plock” Foundation is an initia- Basell Orlen Polyolefins. The Foundation is for people tive of the Municipal Office of Plock, PKN ORLEN S.A. with ideas. and Basell Orlen Polyolefins Sp. z o.o. and is a nation- So far, five contests have been held; on 20 February al-scale innovation. The initiative was undertaken 2013, another was announced, in which organisations within the framework of social business responsibility could compete for grants of up to 25,000 zlotys; the and care of the local government for development of total amount of funds is 300,000 zlotys. All organ- the local NGOs. isations that have their headquarters or branches The legal deed establishing the foundation was signed in Plock may apply. What is important is that all the by representatives of the Founders – the Municipal projects must be focused on the city and its inhab- Office, PKN ORLEN S.A. andBasell Orlen Polyolefins itants. The projects may be related to various fields, Sp. z o.o. - on 15 December 2005. The initial capital including social and educational work, sports, and of the “Grant Fund for Plock” Foundation amounted environmental protection. Every potential beneficiary to PLN 1 million. The city provided PLN 600,000, PKN may file an unlimited number of projects. ORLEN S.A. – 300,000, Basell Orlen Polyolefins Sp. z o.o. – 100,000. The Foundation took over the name and 50.2. Conceptions and ways of tasks of the Grant Fund for Plock. On 24 March 2006, addressing users the Foundation was granted legal standing and was entered in the National Court Register – Register of The Foundation announces cyclical contests for NGOs Associations, other Social and Professional Organisa- Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities of Plock. According to the statute, it provides financial tions and Public Healthcare Institutions. support for projects on behalf of: a) raising of the level of education of the inhabitants of Plock, b) coun- Owing to the systematic support of their Founders, teracting social and economic exclusion of persons the Foundation has conducted five grant contests, threatened by such exclusion, c) increasing public se- supporting the NGOs of Plock in implementing 130 curity, d) preservation of the historic heritage and de- projects comprising in total more than PLN 1.7 million. velopment of culture and art, e) increasing the quality of social assistance, f) improvement of the condition 50.4. Interaction with the local of the natural environment and raising awareness of welfare system the inhabitants of Plock in this regard, g) increasing the attractiveness of Plock in terms of tourism, social The history of the Foundation goes back to 14 Octo- relations and economy, h) popularisation of recrea- ber 2002, when representatives of the city authori- tion and sports, i) supporting the economic commu- ties, PKN ORLEN S.A. and the United Nations signed nity and undertakings aimed at economic growth of the letter of intent concerning establishment of the Plock, j) strengthening of European integration and “Forum for Plock”. The project was aimed at inclusion international cooperation and j) acting on behalf of of local businesses and social organisations in cooper- healthcare and promotion of healthcare. ation with the local government on assessment and updating of the “Strategy for Development of the The Foundation supports the organisation of work- City of Plock until 2012”. For 6 months, almost 50 shops, training, lectures, seminars, exhibitions, local organisations, representing businesses of Plock, reviews, trade fairs, concerts, meetings, contests, NGOs, the inhabitants and the local government creation and operation of community centres, clubs, cooperated to create and define thedevelopment locations for meeting of local groups, publication of priorities for the city. The works were concluded in information materials, including audio-visual mate- June 2003 by approval of the “Strategy for Sustainable rials, archiving of knowledge, creation of databases Development of the City of Plock” and signing of the and other innovative activities aimed to integrate and declaration for cooperation on behalf of achievement develop the local community. of objectives of the strategy. 280 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities participation insuchauniqueproject: cal community,aswelltheprestigeassociatedwith initiative isduetotheirwillingnesssupportthe for Plockhaveunderlinedthattheirsupportthis Both companiesengagedinactivityoftheGrantFund Poland withdrewasaFounderduetoformalreasons. the developmentof the activitiesofGrantFundforPlockandsupport worked tocreateafoundationthatcouldtakeover Orlen PolyolefinsSp.zo.o.-andUNDPrepresentatives of Plock,PKNOrlenS.A)andthenewpartner– local community.Therefore,theFounders(thecity and theFundwasreadytobehandedover that itsroleastheprojectadministratorwasover After threeeditionsofthecontest,UNdecided for thetotalamountofalmostPLN2.1million. of grantcontests,inwhich121grantswereawarded by allthreeentities,theFunddevelopededitions Strauss Poland.Thankstofinancialsupportprovided another businesspartnerjoinedtheproject-Levi provided consulting.Astheworkswereinprogress, They alsosupervisedtheactivityofFundand munication betweentheprivateandpublicsector. vised byUNDP.TheroleofUNDPwastofacilitatecom- S.A. and600,000bythecity.Theprojectwassuper- to PLN1.1million–500,000providedbyPKNORLEN Sustainable Development.Theinitialcapitalamounted for NGOsofPlockworkingtosupporttheStrategy The Fundwassupposedtoprovidethefinancialbasis of theMunicipalOfficePlockandPKNORLENS.A. the GrantFundforPlockinMay2003,oninitiative the worksofForumforPlock,wasestablishment Another innovativeinitiative,whichemergedduring Plock PL Plock, andapart fromitsbusinessoperation, itstrives Basell OrlenPolyolefinsSp.z o.o. isacompanyof Representative ofPKNORLEN beneficiaries. cooperate, themorebenefits there areinitforall I believethatthemorepeoplearewillingto ment ofthelivingstandards active participationinprojectsisaimedatimprove is notonlyprestigious,butalsoaresponsibility,and on behalfoftheinhabitantsPlock.Beingafounder monitor thedevelopmentofverysignificantprojects initiative allowsthepartnerstosupport,planand Eastern Europe.Participationinsuchanexceptional ample ofapublic-privatepartnershipinCentraland The GrantFundforPlockFoundationisauniqueex local community.LeviStrauss local community. Neighbourhood revitalization/Housing Categories Basell lo- - - welfare policyandsocialinnovationsinPlock: There areanumberoffactorsthatinfluence Conclusions public sistance (maintainingofcare centresandinstitutions), water supply,sewageandsanitary systems,socialas include maintenanceofthe road infrastructure,the tance Centre).Ontheother hand, thetasksofcity well asassistingthedisabled(DistrictFamilyAssis tutions, implementationofafamilysupportpolicy,as Płock includemaintenanceofpubliceducationinsti Due toitsstatusasatownship,thetasksofcity scope ofitstasksdiffersfromthatthecommunes. with countyrights(NUTS-4),whichmeansthatthe is countedamongmedium-sizedcities.Płockacity Local DataBank).Intermsofpopulationsize,Płock constituted 52.4percent(CentralStatisticalOffice, 124,727 permanentresidents;amongthese,women of December2010,thepopulationPłockcomprised According totheCentralStatisticalOffice,atend classification) approximately110kmfromWarsaw. (Ciechanowsko-Płocki sub-regionaccordingtoNUTS-3 in thenorth-westernpartofMazowieckieprovince Płock isthehistoriccapitalofMazowsze,located its legaldecisionsandreponsibilities. Characteristic of thecityandscopeof > > > > > > Representative ofBasellOrlenPolyolefinsSp.zo.o. participation intheFund,ofwhichweareproud. for theaffairsofPlock,ashasbeenprovenbyour Company assumessocialandbusinessresponsibility ties intheregionformanyinteresting a platformforexchangeofinformationonopportuni culture, educationandmanyothers.TheFundisalso offers manyopportunitiesinsuchfieldsassports, jects. OneoftheseistheGrantFundforPlock,which operates through to supportthe initiating innovations. types oflocalandexternal“stakeholders” Plock; and recent economicandsocialdevelopmentsin decisions andresponsibilities; characteristic ofthecityandscopeitslegal housing, maintenance ofelementaryschools, development oftheregioninwhichit participation inmanysocialpro- initiatives. The local - - - - 281

kindergartens (nursery schools) and other education In years 2000-9, the percentage share of the unem- and care institutions, social, medical and legal assis- ployed among the professionally active population tance for pregnant women. decreased substantially in Płock. Reduction of unem- As a township, Płock is responsible for independent ployment after the accession of Poland to the EU was financial management within the scope of its budget. caused by migration abroad to search for jobs. At the The main sources of income for the city are taxes, time, the local press of Płock reported “insufficient charges and other receipts, income from the city number of employees”, particularly in professions property, a general subsidy from the state budget, as requiring low qualifications and/or manual labour. well as special purpose donations for implementation In 2010, the registered unemployment rate in Płock of ordered tasks and for additional financing of own amounted to 10.9 per cent, and in the case of the tasks (Statutes of the City of Płock 2008). In the case Ciechanowsko-Płocki sub-region and on the national of the city of Płock, in year 2010, 65 per cent of its in- level it was equal to 15.6 per cent and 12.3 per cent, come consisted of internal income. At the same time, respectively. The available statistical data show that the share of own income of Płock in overall income is social groups that are more threatened by unemploy- similar to the average for all cities in Poland (Central ment in Płock are women, young people, the elderly – persons aged 55 years and above - and persons Statistical Office, Local Data Bank).10 In Płock, there are several universities and colleges, including the with lower education. The same tendencies can be branches of The University of Warsaw and Warsaw observed at the national level, as well as in the Ciech- anowsko–Płocki sub-region. University of Technology11. Companies play important role in the city, being providers of workplaces and Over the last 10 years, Płock has been characterised helping solve different problems related to the city. by a substantially higher share of women among The companies cooperate with local authorities and the registered unemployed in comparison with the Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities other local stakeholders to solve some of the most sub-region or the entire country. The problem of important problems of the city. unemployment pertains mainly to women who had been employed before (Mackiewicz 2009). The closing Recent developments in Plock: of some factories in the last few years where women transformations of the local labour have been employed caused the increase in their unemployment. Nevertheless, due to fluctuations market in the economic conditions, the number of women professionally out of work grew systematically in the The local labour market and economy in Płock, years 2000-9. like the national level and economy of the Ciech- anowsko-Płocki (Ciechanów-Płock) sub-region, reflects the growth and slowdown trends associated mainly Outflow and inflow of population from with accession of Poland to the EU in 2004 and the and to Plock (migration) global economic crisis of 2008-9. Positive impact of Despite of relative attractiveness of Plock in the con- membership of Poland in the EU is indicated, among text of the Ciechanowsko-Płocki sub-region, the city other things, by the GDP values per inhabitant. Płock is unable to stop the outflow of the population, which can be referred to as a city of industry and services, mainly migrates to Warsaw or abroad. In Płock, in the while the role of the agricultural sector is small. The years 2005-9, the balance of migration abroad for highest investment expenditures of Płock companies permanent residence was usually negative, and the in 2009 were observed in the industrial sector. In balance of temporary migration abroad was positive. 2009, in Płock, 69 per cent of all employed inhabitants The immigration from abroad, earlier mainly from the worked in the private sector, and 31 per cent in the Soviet Union, after 1990 from Ukraine, Belorussia and public sector (Central Statistical Office 2010). the Far East (Vietnam, China), is small. These immi- 10 Among other companies, Polski Koncern Naftowy Orlen SA has its grants do not have very active organisations and their headquarters in Płock; the city is also home to production plants of the American company Levi Strauss, as well as many other companies with own centres. a share of foreign capital: Hoppenstedt Bonnier Information, Bildau & Bussmann, Adler Poland, A. Schulman, Dr Oetker Dekor.

11 (www.ump.pl) 282 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities mental organizations. Theassociations whoseactivities Grass-root initiativesarebasisofactivities ofnongovern of theircommunity. ants startedtofeelresponsible fortheappearance the establishmentoflocalgreen areas,theinhabit- Town basedonparticipation.Workingtogether introduced realchangesinthecommunityofOld were theeffectsofICISassociationwork,which European SocialFund.However,themostsignificant isation oftheOldTownPlock”,co-financedby VITALISATION –apilotprogrammeforsocialrevital- implementing theprogramme“TOGETHERFORRE- “Innovation CentreforInformationSociety”hasbeen sional DevelopmentInstitutionandtheAssociation Assistance CentreinpartnershipwiththeProfes- institutions, NGOsandinhabitants.TheCitySocial exclusion isanexampleofcooperationamongcity inhabited bypopulationsendangeredsocial project ofsocialrevitalisationthepartPlock itants (withsupportoftheEuropeanSocialFund).The Cooperation amongcityinstitutions,NGOsandinhab- gy forSustainableDevelopment. basis for NGOs of Plock working to support the Strate- S.A. TheFundwassupposedtoprovidethefinancial ative oftheMunicipalOfficePlockandPKNORLEN of theGrantFundforPlockinMay2003,oniniti the worksofForumforPlock,wasestablishment Another innovativeinitiative,whichemergedduring is toimprovethequalityoflifeinhabitantsPlock. responsibility. ThemainobjectiveoftheFoundation with twolargefoundersisbasedonsocialbusiness Orlen Polyolefins-establishedin2003.Cooperation tions operatinglocally-PKNORLENS.A.andBasell of theMunicipalOfficePlockandtwocorpora enterprises Cooperation betweenthecityauthoritiesandlocal unemployed. funds forprofessionaltrainingsandconsultingthe market institution,arebasedonspendingofEU ities. Mostactivities,implementedbythe the mainproblemsencounteredbycityauthor The situationonthe City authorities usingEUfunds examples) innovations inPlock(andtheir Typology of initiators of social Plock PL . The“GrantFundforPlock”isaninitiative labour markethasbeenoneof labour - - - - Active labourmarket policiesaswelllifelonglearn tural andsocial Funds areoneofthemajor drivers ofbothinfrastruc External financialsupportgiven bytheEU. purchased, butthetenancyrights canbeinherited. As theyremainthepropertyofcity,cannotbe to thosewhoparticipatedinthecostsofconstruction. an apartmentonthefreemarket.Theflatsarerented ent inhabitants,whocannotaffordtopurchaseorrent country. TheCSHSofferisaddressedtothelessafflu- of thiskindinMazowszeandonethelargest commune. TheCSHSofPlockisthelargestcompany renting housestoimplementthehousingpolicyof Their workisfocusedmainlyonconstructionand social developersappointedbythelocalauthorities. communities. TheCitySocialHousingSocietiesare Spreading socialinnovationsbroughtfromotherlocal developmental needsofthechild. rary careandalsosecuresthenecessarylivelihood, children withround-the-clockpermanentortempo responsibilities forchildren.Thecentreprovides to supportfamiliesintheproperdischargeoftheir developing Consequently, government policies are geared toward element ofthenewchildandfamilycaresystem. Policy istosecurethepositionofNGOsasanintegral aim oftheMinistryEconomy,LabourandSocial Support ofthenationalinstitutionsforPlockNGOs. terms ofsocialsupport. of thegroupsinhabitantshavingspecificneedsin ities couldmaketheimmigrantsnoticeableasone initiatives withmoreactivesupportofthecityauthor various timeperiods.However,agreaternumberof of thegroupsforeigners,whocametocityover migration (immigrantsaresuspicious)anddiversity easy duetosmall-scalemigrationthecity,illegal and personsofRussianorigin.ActivityinPlockisnot managed byimmigrantsfromtheEastthemselves country oforigin.TheactivitiestheAssociationis a certainextent,feeltornbetweenPolandandtheir events areparticularlyneededbyimmigrants,who,to ry. Accordingtothepresident,culturalandassistance Russians, whocametothecityduring19 Russian minorityofPlock,thatis,thedescendants same time,theAssociationworksonbehalfof activities ofnongovernmentalorganisations.Atthe strate thatgrassrootsinitiativesformthebasisof from theEast(RussiansandUkrainians)-demon are aimedataspecificgroupofimmigrants–those local community-basedinfrastructure development inPolandnowadays. European th centu The ------283

ing activities are important areas supported by the Bibliography European Social Fund. Therefore, it is not surprising that the financial support given by the EU, especially Central Statistical Office (2009, 2010) Wojewodztwo in the frame of the ESF and the European Fund for In- Mazowieckie. Podregiony, powiaty, gminy [The Ma- tegration of non-EU Immigrants (EIF), is the important zowieckie Province. Sub-regions, districts, communes factor in the context of sustainability of the discussed and municipalities], Warsaw: Central Statistical Office local initiatives. For example, in case of mentioned in Warsaw. TSOs helping immigrants, applying for EU funds is Central Statistical Office (2010)Cities in numbers crucial for their projects, as they receive irregular 2007-2008, Warsaw: Central Statistical Office, Statisti- and partial support from the city. Resources of the cal Office in Poznan. European Fund for Integration of non-EU Immigrants New Directions in Creative (EIF) allowed for intensification of activities aimed at Iuri, Y. & Kuhn R. L. (1998). and Innovative Management: Bridging Theory and Prac- integration. tice. Cambridge: Ballinger Publishing. Due to lack of a clear integration policy in Poland and existing restrictions on social assistance available Kansy, M., Sierandt M. (2010). Miejski zeszyt staty- for immigrants, the Fund actually replaced the state styczny nr 18 [City statistical bulletin no. 18], Plock: activity in this regard. Similarly, the support for social Urząd Miasta Płocka, Wydział Strategii Rozwoju Mias- cooperatives is possible owing to the projects realised ta, Urbanistyki i Architektury. by the Labour Office and based onESF money. How- Putnam, R.D. (1993). Making Democracy Work. Prince- ever, there is a risk that the initiatives based mostly ton: Princeton University Press. on these funds may lose sustainability in future pro- Mackiewicz, M. (2009) Kobiety na rynku pracy wo- gramming periods when the European Commission jew.dztwa Mazowieckiego. Prognozy opracowane Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities introduces changes in the structure of the EU funds. w ramach projektu „Rownościowa polityka zatrud- On the other hand, in Plock, the EU money supports nienia szansą kobiet na rynku pracy wojew.dztwa the great majority of the activities against unem- Mazowieckiego” [Women at the labour market in The ployment implemented by local welfare institutions Mazowieckie Province. Prognosis prepared in the (such as The Labour Office), TSOs and private entities, frame of the project “Equality policy of employment which usually offer training and courses for various as a chance of women at the labour market in the Ma- categories of unemployed. zowieckie Province”], Warsaw: CBOS (Public Opinion In conclusion, building participatory democracy in Research Centre Foundation). Plock takes place even it faces problems. Creation of Sherraden, M.S., Slosar B., & Sherraden M. (2002). third sector organisations often based on individual “Innovation in social policy: collaborative policy advo- initiative as well as building cooperation among dif- cacy”, Social Work, 47, 3, pp. 209-221. ferent local stakeholders facilitates social cohesion of Czynszówki na trudne czasy - czy war- the local community. These types of activities are sig- Wielgo, M. (2013) to do nich dopłacać? nificant because of low trust of the government and “Gazeta Wyborcza”, 30 April 2013. its agencies in Poland (WVS 2012 unpublished) and World Values Survey 2012 (unpublished). the historically proven belief that citizens are most successful if they take their problems into their own hands. The last decade shows that the governmental agencies responsible for social policy increasingly understand (with a support of European Commission) the importance of identifying important problems in the city and ways to meet the needs of different social groups. Similar to many other countries, commer- cialisation of services takes place, which may polarise local communities, dividing them according to income and types of social networks that different groups have at their disposal.

ES Spain Barcelona

Teresa Montagut, Gemma Vilà, Marta Llobet and Sebastià Riutort (Universitat de Barcelona) 286 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Social Inclusion Participation Local welfaresystem Labour marketintegration Governance Family caregivers Development Democracy Community Civil society Keywords: Local background of thesocialinnovations Introduction Barcelona ES later createdinthegovernment ofSpainandaregionalministryintheAu the term“socialwelfare”todefineanareaof politicalaction.Aministrywas nificant thatthiswasthefirst timeanygovernmentbodyinSpainhadused Welfare Departmenthad been set up by the municipal government. Itissig- cial welfaremodelwasconsolidated. Someyearsearlier,in1987,aSocial was probablynotuntilthe1990sthatitcouldbesaid thecity’s and, attheregionallevel,passingoffirstSocial Services Act,butit The firstdecade,the1980s,sawcreationofsocial services to someextent. as didotherpoliticalstakeholders(theoppositionparties and most ofthispotentialwhenitcametosettingupthe involved inpoliticalaction,toparticipate.Municipalpolicymakers madethe and (3)citizenswho–afterthelongperiodofdictatorship –wantedtobe time, (2)startingfromzero, therefore, are:(1)continuityinthegovernmentteamoveralongperiodof parties). Themaincharacteristicsofthe Party wontheelectionsandgovernedincoalitionwithtwootherleft-wing the citycouncilofBarcelonawasinhandsLeft(theSocialist From thesefirstlocalelections,anduntil2010,aperiodofover30years, (b) Thespecificcity government must designtheirownservicesinthisarea. on and benefitsaimedatmeetingthepopulation’sneeds.Thestatelegislation the autonomouscommunitieshavecompetencyovera ued duringthedictatorship.TheSpanishconstitutionnowestablishesthat education weretheonlyareasofsocialpolicythathadnotbeendiscontin 1979, therewasnoorganised At thetimeoffirstlocalelectionsafterrestoration (a) Thepolitical/administrative structure dynamics of trative structureofthecountry;(b)specificcitygovernment;and(c) Barcelona todayarerelatedtothreebasicfactors:(a)thepolitical/adminis happened overthelastfewdecades.Thesocialinnovationsthatwefindin oped atalocallevel.Inordertounderstandit,weneedanalysewhathas that havemarkedthewayinwhich case ofthecityBarcelonaisagoodexampleforstudyingmainforces leeway toeachterritoryinthedesignoftheirsocialprotectionsystems.The et al.2011).Thisdecentralisationofcompetencieshasgivenconsiderable which, inthecaseof regional andlocalcouncilsasetoflegislativeexecutivecompetencies The administrativedecentralisationofthepoliticalstructureinSpaingrants (Universitat deBarcelona) and SebastiàRiutort Teresa Montagut,GemmaVilà,MartaLlobet Authors local governmentalsoestablishesthatcitiesofover200,000inhabitants civil society. social welfareservices,areveryfar-reaching(Aguilar i.e. theyhadtobuildthesystemfromscratch, social welfaresysteminSpain.Healthand social welfaresystemhasdevel social welfaresystemofthecity, local welfaresystem, network ofservices democracy in civil society) network so- - - - - 287

tonomous Community of Catalonia. For over 10 years the nineteenth century. Another example reflecting the department was run by the same politicians, a the dynamism of citizen participation is found in the situation which has had an impact on its development “neighbourhood associations” established in different right up until today. neighbourhoods of Barcelona at the end of the dic- In more general terms, in Barcelona we find an objec- tatorship in the 1970s to influence municipal politics. tive that cuts across all areas of political action: the These associations, organised citywide as the Feder- “modernisation” of the city. This is a manifestation of ation of Neighbourhood Associations of Barcelona Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Federación de Asociaciones de Vecinos de Barcelona the desire to recover the spirit of enterprise that the ( , or city once had, to recover its own brand of economic FAVB), continue to be political stakeholders working and cultural dynamism that was forbidden during on behalf of citizens’ interests (in some cases with ties the years of the dictatorship. It finds its expression in to certain left-wing parties through leaders active in e.g. the construction of the “Barcelona model”, a mod- both). In certain actions ( urban projects to rejuve- el that can be seen clearly in the changes in urban nate neighbourhoods) some associations have played development as a result of the 1992 Olympic Games, a role resembling that of speculators more than ad- the success of which was to a large extent due to the vocates for the interests of neighbourhood residents, involvement of civil society (a kind of ritual act of “civil which has resulted in conflicts between a particular religion” as one author described it), although it also neighbourhood association and the FAVB. There have affected other areas of society. also been some conflicts within certain neighbourhoods, which have led to the rise of new associations Policymakers in the Social Welfare Department set that aim to more closely represent citizens’ interests, themselves a basic goal of building a social services but even so, these different associations have man- model that was participative. As no welfare services aged to work together, creating strong participation system yet existed, there was no widespread culture networks. of commitment to, or participation in, the city’s social welfare. The structures used to encourage and enable The search for a “Barcelona model”has meanwhile people to commit themselves to collective responsi- continued ever more seriously in various political bilities would also have to be created (see Montagut arenas, and collaboration with civil society in social et al., 2012). welfare matters has also increased significantly, representing a force for social innovation in the city. (c) The dynamics of civil society In the following sections we present three innovative projects in the area of social welfare at the local level. Civil society in the Autonomous Community of These three distinct approaches – all taking place in Catalonia has traditionally been participative and the same period – reveal the search among the differ- enterprising, as demonstrated by the large number of ent stakeholders involved to construct or transform cooperatives that existed in Barcelona at the end of the local social welfare system. 288 Social Innovations in European Cities: A Reader from the WILCO Project social andurbanproblems.Administratively,itispartofthe vices andfacilities.Ithasalsobeenoneofthemostmarginalisedstigmatisedareascity,facingserious shantytowns inBarcelona.Historically,the city, wasdesignedtohouseapopulationwithminimalresourcesthathadbeenlivinginvarioussettlementsof “La Mina”,aneighbourhoodbuiltontheoutskirtsofBarcelonain1970sandsegregatedfromrest 51.1. Shortdescription La MinaTransformationPlan 51 that hadbeentakenpreviously comprehensive characteroftheinterventionplanned,which wasinnovativeincomparisontootherapproaches The planhasvariouscharacteristicsthatexplainitsinclusion asacasestudyintheWILCOproject,particular, European SocialFunds. Development Fund(ERDF).LaMinawasalsopartofapilot projectoftheLocalSocialCapitalprogramme (PTBM inSpanish)waslaunched,financedthroughtheURBANIIprogrammewithfundingfromEuropeanRegional Barcelona InnovationDistrict,amongothers.In2000the“TransformationPlanforNeighbourhoodoflaMina” form inareasaroundlaMinathroughmajorprojectssuchasthe2004UniversalForumofCulturesand22@ diverse fields(architects,economists,educatorsandsocial workers). tion wassomethingcompletelynewinlocalplanningand basedonthejoint normality...” (LaMinaConsortium11,2008).Theessential linkbetweenurbantransformationandsocialinterven prehensive interventionaimedatstrengtheningthe linked withthepresenceofveryactive neighbourhood: anawarenessofthepressingneedtointerveneinsocialsituation At theendof1990saseriesfactorsconverged,bringingaboutfavourableconditionsforimproving both achallengeandaninnovation. Barcelona; however,the Barcelona ES /77 neighbourhood isadministeredbythegovernmentsofbothmunicipalities,representing . “Theobjectiveistotransformthe neighbourhood associationsandthepressureresultingfromurbanre Neighbourhood revitalization/Housing Categories neighbourhood hassufferedfromsignificantshortagesintermsofser community inthemediumandlong-term,leadingtocomplete municipality of neighbourhood throughanintegratedandcom Sant AdriàdelBesòs participation ofprofessionalsfrom neighbourhood, , whichborders - - - - 289

51.2. Types of services and ways 51.3. Internal organisation and of addressing users modes of working

The La Mina Transformation Plan has included a The PTBM is characterised by a complex structure in whole set of social inclusion activities that have been which wide networks of social agents participate. The aimed at improving the economic and social condi- plan is managed by the La Mina Neighbourhood Con- tions of a very deprived population. Most of these ac- sortium, which includes representatives from differ- tivities have been classical labour market integration ent levels of government: the two local governments, programmes, but some social micro-management as well as the regional government. From the begin- interventions have been developed as well. ning, a network of citizens’ organisations has also Labour market integration programmes have been been involved in different phases of the process and boosted in the neighbourhood, and have included has played an active role in different areas. Regarding some innovations, specially linking more closely citizen participation, there is the La Mina Platform of training schemes and real job opportunities, follow- Neighbours and Neighbourhood Organisations, which ing training for specific jobs on the job model. The currently includes twelve organisations (although at increase and reorientation of training activities seems one time it included twenty-four organisations) and to have had quite a positive impact as long as the eco- the Neighbourhood Association of La Mina. nomic boom in the 2000s increased the demand for The participatory structure of the plan is organised labour. The employment crisis since 2008 has dras- around four broad areas, which has led to the estab- tically reduced employment opportunities for a very lishment of ongoing work among different agents: underprivileged population. But, however successful >> The plan for community development: and to some extent innovative these programmes neighbourhood residents, experts, politicians Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities may have been, there has been no significant change and representatives of organisations participate. in the way users have been conceived and addressed. It is structured through different administrative The main field in which “users” have been treated and participatory instruments. The transversal differently from the traditional approach to theneigh - nature of the work stands out, as do the debate bourhood has been the participation process affect- roundtables, sectorial work and technical support ing the urban transformation programme. The PTBM provided for neighbourhood participants. A participatory approach has led to changes in the way model of participatory urbanism, which aims at users are addressed, but has had different stages. encouraging the participation of neighbourhood In the beginning (2001), there was a willingness on residents in the design of projects through debate the part of different stakeholders (social andneigh - and proposals. What stands out in this model is bourhood organisations and governments) to make the participatory instruments used (participatory participation a central axis of the whole process. At workshops, sectorial meetings) as well as the this time, it was developed as a proposal of a partici- technical support and information on projects patory and community project which considered the provided to residents. interests and decisions of neighbours in the transfor- >> Technical support provided by two experts mation of their neighbourhood. In the second stage, at the service of the Platform of Neighbours the project moved from looking for direct involve- and Neighbourhood Organisations and the ment of neighbours and sharing the projects with Neighbourhood Association. them through assemblies, to creating joint working groups (entities and technical representatives) and >> An information and communication plan holding regular meetings and informative sessions. designed to provide information on the project In a third step, which coincided with the change of and to improve the image of the neighbourhood. regional government, this model of participation was There are various communication channels, weakened when the PTMB chose for hiring entities among them, a space on the local broadcaster out of town for the management of labour and social Radio La Mina. services, instead of enhancing the associative link to neighbourhood. 290 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities of theplanthatshouldbementioned: bourhood isstillrequired.Therearediverseaspects city. Asetofactionsaimedexclusivelyatthis bourhood thanwiththe The impactoftheplanhasmoretodowith project inthelocal 51.4. Theembeddednessof the was aproposalforincreasingliteracy. improve the and protestsmadeprogrammeproposalsto association. Theassociationhadorganiseddebates neighbourhood organisationsandthe stems fromtheparticipatoryandcivictraditionof the effortsofmunicipalgovernment,butalso of the who areplayinganactiveroleinthetransformation is thechangeinroleof change. Whathasbeenfundamentalinthisprocess on problemsinthe All thesestructureshaveledtoanewwayofworking > > > > > > > > Barcelona ES during theproject.Themembersofthis network priortotheplan,whichwasmaintained The existenceofa comprehensive effort. stages andhasledtoamoretransversal between thedifferentagentsduringits plan hasstrengthenedcommunicationchannels neighbourhood andcivicagentshashad.The fundamental rolethatthe articulated throughtheconsortiumand The organisationalstructureofthePTBM schools for residents. Inthissense,they haveactedlike integration and democracy througheducating andfosteringthe played arolebeyondthePTBM, strengthening and inits proposals, criticisingandcontrollingpolicies) of theplan(byencouragingdebate,developing have playedafundamentalroleintheelaboration cohesion. relationship betweenurbanconditionsand The comprehensivecharacteroftheplanand greater transversality. administrations onalocalprojectthathasledto The participationandcollectiveeffortofdifferent neighbourhood. Thisisnotonlytheresultof neighbourhood inthepast.Oneofthese development. Inaddition,theyhave citizenship. neighbourhood andapproaching participation of neighbourhood andcivic local welfaresystemofthe neighbourhood residents, welfare system participation of neighbourhood neighbourhood Neighbourhood revitalization/Housing Categories network neigh neigh social - - > > > > > > > > the neighbourhoodwiththesetwomunicipalities. facilities along which a tram would run connecting of a“rambla”surroundedby elimination ofthesebarriersandtheconstruction PTBM incorporatedasapriorityprojectthe certain urbanbarriershadgenerated.The in the Adrià delBesòs).Oneoftheproblematicissues adjacent municipalities(BarcelonaandSant neighbourhood andconnectitwiththetwo The projecthasmanagedtoopenupthe the organisationofhousehold and informationactivitiesonissuesconcerning educational actionintherelocation,withtraining and peri-domesticspaces.Specificsocio- needed groups,withinterventionsinthehome Community attentiontofamiliesandmore teenagers directedbyanOlympicmedallist, as aspaceforeducationanddebate,gym grandchildren andgrandparents,localradio educational support(likeliteracyprojectswith local economicdevelopmentandsocial insertion, reconcilingworkandfamilylife, associations inthefieldoftrainingandlabour activities initiatedbyorganisationsand The emergenceandpromotionofinnovative and have takenintoaccounttheneedsofsectors services inthe intervention ofthetechnicalandprofessional The involvementandthepowerof neighbourhood groups neighbourhood wasthe“ghetto”that neighbourhood, withactionsthat housing andother etc.). 291 ES Categories Barcelona Related to all policy fields

52/77 Joves amb futur - Young People with a Future Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 52.1. Short description

An increasingly serious social problem in recent years has been the growth in the number of young people drop- ping out of school but remaining outside of the labour market, and who, for various reasons, lack work habits, discipline and responsibility. This population has been dubbed “the NEET generation” (not in education, employment or training) by the media. The programme is innovative both for its organisation (a new form of joint implementation of policy between government, business and the third sector) and because it is a response to a new social problem. We could call it a new way of bridging the gap between the administrative world and the “real world”. It was necessary to break the cycle and encourage companies to hire these young people through internship programmes. However, the onset of the economic crisis has made it increasingly difficult to get companies to accept young trainees following the regulations established for this. It is in this context that in 2007, the city council proposed a new model for intervention that aimed to incorporate these young people into programmes to train them and to develop work habits and responsibility. This meant getting companies involved. Young People with a Future is a programme of the Barcelona City Council, which, along with the regional government, has competency over this area, and is run through the city agency Barcelona Activa. The idea was to have a programme that would guide and mentor young people throughout the process and whose final goal would be job placement. In other words, there was the need for specialised job training as well as training in basic competencies and good work habits. The target population was young people between the ages of 16 and 25 years who had not finished basic education and were unemployed. 292 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities hired theseyoungpeopleduring their“employment”. established forthosecompanieswhosubsequently internship contract.Aseriesofsubsidieswerealso company wouldprovided,himorher,a6-monthwork completed therequiredtrainingprogrammeand young personarrivedatthecompanyhavingalready the establishedregulations.Theresultwasthat training thatemployersweremeanttoprovideunder This priortrainingwasrecognisedastheequivalent companies througha“workinternshipcontract”. ed, theywereassistedinfindingjobplacements school diploma.Oncethisprocesswascomplet young peopletobeableobtaintheirsecondary the OpenInstituteofCatalonia(IOC).Itsgoalwasfor Training wasprovidedbydistancelearningthrough the requirements. tracted withacompanytoparticipantswhofulfilled training incompetenciesaswellaninternshipcon gramme offeredvocationaltrainingtogetherwith set torunforthe2-yearperiod2010-12.Thepro Once theprojectwasplanned,programme of addressingusers andways52.2. Typesof services Barcelona ES Related toallpolicyfields Categories - - - also involved. for theprogramme.Theyouth councilofthecitywas young peopleandselectedthose whowereeligible organised informationalsessions forunemployed ment officesofthe through third-sectororganisationsandtheemploy The participantsintheprogrammewererecruited for jobplacementwithintheregionalgovernment. businesses and(c)thegovernmentbodiesresponsible of organisations:(a)third-sectororganisations,(b)local cal level.Theprogrammebroughttogetherthreetypes and organisations within society and business at the lo- public–private partnershipsamongdifferententities ising organisationsandcreatingadiverserangeof The projectworkedininnovativeways,institutional- modes of working 52.3. Internal organisation and serious difficultiesfindingwork. who, duetotheeconomicsituation,werealsohaving young peoplewitheducation,degreesandtraining lems integratingintothe group ofyoungpeopleappearedwhoalsohadprob place afteritsinitiation.Startingin2012,adifferent to adapttheeconomicand The programmehadtwophasesasaresultofhaving regional government,which labour market;thesewere political changestaking - - 293

Eight third-sector organisations that worked with the Citizens’ Agreement (see the next section). young people in the city participated in the pro- A political decision was made to strengthen gramme, providing guidance and tutoring for the par- businesses and promote self-employment due ticipants. Each organisation provided a professional to “structural needs”. It could be said that the to be in charge of selecting the young people to par- active policies designed by the government in ticipate in the programme, who would also accompa- recent months have “taken businesses more into ny them throughout the duration of the programme. account than individuals” (I-5). They were to be their tutors during the training and the work internship. 52.4. The embeddedness of In addition to the staff provided by the organisations, the project in the local welfare there were also other staff and tutors from Barcelona system Activa. All of them were trained by the IOC to monitor the online training of these young people. Exams took Both phases of the programme were embedded in place in the offices of Barcelona Activa. the local social welfare system, even though they Different training programmes were designed based were two somewhat different processes. In the first on the participants’ interests and the job resources phase the programme served as an axis to involve available. During the first year, 582 young people organisations and companies in helping unemployed began their training, and 472 of them passed their young people to get training and jobs. In contrast, in exams. Of these, 264 were contracted by companies this second phase it is the Social Economy network of to do internships. Barcelona. Among other objectives, it is trying to find solutions to the exclusion of young people from the Due to political changes the programme was altered, labour market. which affected the continuity of the programme as Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities designed: In both phases this issue has been able to unite a range of social and political stakeholders. Diverse >> The first change was related to Barcelona’s new stakeholders involved in local social welfare have municipal government, which is now led by the joined forces to establish innovative forms of action. nationalist/conservative party, after more than One of the important lessons to be drawn from this 30 years of socialist party-led governments. is that local social welfare systems are influenced The new phase of the programme contained an and may be affected - as in this case - by higher level important variation: the programme no longer regulations, and this may impede their development. only targeted young people who had dropped Although a specific local dynamic may promote social out of school but was extended to a broader innovation, its success is tied to decisions made at oth- population due to the critical economic situation, er levels of government in cases where policies depend targeting all unemployed young people between on public administration at another territorial level. the ages of 16 and 25 years, whether they had finished school (including university) or not. The programme, therefore, now had two branches: one targeting young people who had dropped out of school, which maintained the same design as before (training in the areas of hotel and catering, tourism, administration and personal services), and the other offering specialised training for placement in jobs requiring degrees (family mediation, social communication, project management, etc.).

>> The second and final change came with the closing of the programme by regional government (Generalitat of Catalonia) and its assignment to the “social economy” network of 294 Social Innovations in European Cities: A Reader from the WILCO Project 1 See www.bcn.cat/barcelonainclusiva/es/que_es.html Citizens’ Agreement. social welfareinthecity.Thisprocesshasgonethroughdifferent phasesandatpresenthastakentheformof It istheresultofaprocessthatbegan20yearsagowith thegoalofgeneratinggreater of participantsin5years),andbytheend2012there were 500entities. were atotalof467participatingorganisations,institutions andbusinesses(representingadoublingofthenumber tions andorganisationsinvolvedattachedtotheAgreement hasgrowneachyear.InDecember2011,there to theincorporationofnewentitiesandsocialorganisations. Sinceitspublicpresentation,thenumberofinstitu the municipalgovernmentandamongthemselves.Itwas establishedwiththeintentionthatitwouldremainopen the aimofestablishingalliances,generatingsynergies,coordinating activitiesandfindingsharedobjectiveswith A totalof235entitiesadiversenature(organisations,businessesanduniversities)signedtheAgreementwith combining efforts. ent socialstakeholders.Noonelosestheirspaceforaction;onthecontrary,itispossibletoimproveresultsby single frameworkorjointstrategy.Itisbasedonapolicydecisiontocoordinatethediverseactivitiesofdiffer a newphilosophy,whichintegratesthediversityofactivitiescarriedoutinlocal agents inthesector.Theintentionistocreateastrategicframeworksharedbyallparticipatingentities.This in the ment (CA)wasestablishedinApril2005.Theultimategoaloftheprogrammeisaredistributionresponsibilities preventing thesocialexclusionofindividualsandgroupspromotion that wasapprovedinBarcelonaMarch2005.Thisplanprovidedtheframeworkformunicipalpoliciesaimedat The Citizens’AgreementforanInclusiveBarcelona 53.1. Shortdescription Inclusive Barcelona Citizens’ Agreementforan 53 Barcelona ES social welfaresectorinBarcelonathroughabroadagreementamongrepresentativesofthemain /77 Neighbourhood revitalization/Housing Categories istheresultof2005-10MunicipalPlanfor 1 participation. TheCitizens’Agree social welfaresystemintoa participation intheareaof Social Inclusion - - - 295

53.2. Types of services and ways The organisations and city institutions in these networks share concrete methodologies and goals; of addressing users they cooperate and direct their shared work toward The Agreement has been promoted and is coordinat- common strategic and operational objectives. The net- ed by the municipal government. Currently, the more works begin with a desire to work together on a par- than 500 participating entities work in such distinct ticular issue or matter and to achieve improvements in spheres as the economy, culture, education, social the respective fields of the participants. Each network action, housing, health and labour. The values that is independent and has, based on its objectives, its the Citizens’ Agreement promotes are identified in own dynamics and work plan. At the time of this study the strategic framework that defines the programme: (summer 2012), ten networks had been formed: co-existence, cooperation, social cohesion, creativity >> Network for the Reception and Support of and community. As stated in a Citizens’ Agreement Immigrants in Barcelona. document: “these values emphasise the need to >> Network for Assistance to the Homeless. improve dialogue within a framework of diversity, increase interactions between individuals and organisa- >> Network of Businesses with Social Responsibility Projects. tions, social ties in the community, solidarity, trans- formative action and social innovation”. In addition, >> Network for Social and Labour Market Integration from the perspective of the internal administration of (now: for “Social Economy”). the agreement, the desire is for “the values that pre- >> Network of Centres for Children and Teens. side to be closely related to democratic governance, networking and quality of work” (I-12). >> Support Network for Family Caregivers. >> Inclusion Housing Network. Signing the Agreement means joining a network that Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities provides opportunities for access to and exchange of >> Cultural Network for Social Inclusion. information, resources and knowledge. It also pro- >> Network for Children’s Rights. motes projects in which cooperation between diverse entities and organisations in the city are key. >> Network for Co-existence and Prevention.

53.3. Internal organisation and 53.4. The embeddedness of modes of working the project in the local welfare system The Citizens’ Agreement is organised on different levels: The Citizens’ Agreement has had an interesting impact on social welfare policy in the city. Not only has >> There is an annual meeting of all the signatories to the agreement, in which participants provide it allowed the sharing of resources and information, an account of the work they have carried out but it has also changed forms of governance. The during the year and agree on the direction of the entities involved feel themselves to be stakeholders work for the following year. who have influence onsocial welfare. It has led to the participation of citizens and social organisations >> There is a governing council, which is a deliberative in welfare policies through different forms of delib- and decision-making body that shapes the eration and action. The programme has changed the development of the agreement and its actions. social welfare system in the city in various ways. For >> There are work commissions, formed by organi- example, the structures of the Citizens’ Agreement sations that temporarily work on concrete issues. represent a new form of governance, in particular the dynamic in the executive commission, which allows >> There are action networks formed by organisations, institutions and other bodies that work in and promotes pro-activeness with a very high level of specific sectors, which establish common objec- reflection and production of documents (I-6). There tives to improve the work they do. The develop- is participation in the overall welfare system that also ment of their work has the support of a Technical improves or facilitates the activities carried out by Secretariat. each of the participating entities. 296 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities the “SocialEconomy Network”.Thisnewfocus means objectives andevenchanged itsname.Itisnowcalled financial crisis-the change incitygovernmentand theeconomicand Two yearsago,andasaresult oftwofactors-the competencies overemploymentpolicies. point thatlocalgovernmentsinSpainhavenodirect entities involved.Itisimportanttorememberatthis tool orinstrumentthatcanimprovetheworkof intervene inthe subsidies. Inthissense,the ing tobreakwiththeirdependencyongovernment enterprises thatcanfindtheirownsourcesoffund a “school”,helpingitsmembersconsolidateassocial tions by combining efforts. The voice toitsmembersandenablesthemfindsolu strengthened the end of2007,therecessionandeconomiccrisishave for personsinsituationsofvulnerability.Sincethe and othersocialagentsthatworktofindemployment tive istocoordinatetheeffortofpublicauthorities 2006. Itismadeupof49organisationsanditsobjec (now SocialEconomyNetwork)wascreatedinApril The NetworkforSocialandLabourMarket networks 53.5. Descriptionof three forming partoftheCitizens’Agreement. lowing sectionwewillanalysethreeofthe common citywideprojectsorprogrammes.Inthefol than others,andsomehavemanagedtoagreeon istics. Someofthe Each ofthemhastheirowndynamicandcharacter In addition,directactiondependsonthe plan promotedbythecitygovernment. the civilsocietycontributingtosocialinclusion sented on4April2013andreferstotheactivitiesof The document“SharedStrategy2012-17 whether publicorprivate,commercialnon-profit. the inclusionofallsocialstakeholdersincity, document, the“sharedstrategy”isitselfaplanfor in thesetimesofcrisis.Asstatedthepresentation in ordertorespondmoreeffectivelysocialneeds resources andwithsocialvoluntary goal istocoordinatepublicresourceswithprivate with thesignatoriestoCitizens’Agreement.Its strategic lineofactionpromotesa“sharedstrategy” The municipal Barcelona ES Social InclusionPlaninitsfourth social welfaremodelbutisrathera network asaresourcethatgives networks haveprogressedmore network begantorethinkits network doesnotdirectly network has also been initiatives, ” waspre- networks. networks Integration - - - - - people forallthecentresin the city,albeitmanaged on developingacommonmodel ofcareforyoung the networkmemberorganisations wouldwork recognition fortheworkthey weredoing.Through school hours),theaimofwhich wastogaingreater age orruncentresforchildrenandteens(outside It wasaninitiativeoftheorganisationsthatman social risk. siveness tochildrenandadolescentsinsituationsof in April2006.Itsaimistoimprovethecity’srespon up ofseventeenorganisationsandwasestablished Network ofCentresforChildrenandTeensismade in thisarea. made itpossibletocreateanewformof tally withthird-sectororganisations.This area haveembracedthisnewwayofworkinghorizon politicians andprofessionalswithresponsibilityinthis local and has representationanddialoguewithofficialsof through governmentandotherentities.The catalogue ofalltheresourcesandservicesavailable ing informationanddata;creatinganopenonline coming toagreementonproposalsforactions;shar als onhowtoimprovehealthcareforthementallyill; in Barcelona;preparationofadocumentwithpropos following: acountofthenumberhomelesspersons er theyhavecarriedoutdiverseactions,suchasthe Various workinggroupswereestablishedandtogeth the twosectors. the thirdsector,overcomingalackoftrustbetween government weredifferentfromthosecarriedoutby break withthestereotypethatactionstakenby and planactionstogether.Theyespeciallywantedto initially aroseinorderforitsmemberstosetgoals regain autonomyandsocialrelations.The mitted toworkingtogetherhelphomelesspersons tions thatareparticipantsinthis organisations andfederations.Thesocialorganisa ated inNovember2005andconstitutedoftwenty-six The NetworkforAssistancetotheHomelesswascre grammes intothe corporate socialresponsibilitypoliciesandpro in theworkplace,incorporatingcompaniesthathave promote “entrepreneurship”and individuals andgroupswithdifficulties,itseeksto economy ofthecity.Alongwithmeasurestoassist groups butthatitalsoattemptstopromotethe that itnolongeronlytargetsthemostvulnerable regional government.Theadministration, network. network arecom- social innovation governance network has network network - social ------297

by different entities. Each year the different centres term unemployed) increased. “The issue of labour work on a theme that is chosen by all the partici- market integration has been important. Training and pants in the network – both public authorities and insertion have been high. Many people have had the social organisations. The organisations and the local opportunity to access work, to have the experience of administration recognise that they share a discourse. employment, in many cases quality employment, with Moreover, this discourse has become a reference for important companies” (I-19). City policy managed to other municipalities in the region. It is the network reduce the number of recipients of the minimum in- in the Citizens’ Agreement that has had the greatest come allowance from 150 to sixty during this period. impact on the city’s social welfare system. However, beginning in 2008 with the destruction of Today there is one model for the centres agreed upon employment caused by the financial crisis, this trend by all. During the work carried out new centres have could not be maintained. been established, and today there are centres that The neighbourhood has worked too to end its stig- depend on the city and centres that depend on the matisation through a communication plan to open social organisations, all with the same programme for the neighbourhood to the rest of the city. In addition, teens and children. they have worked toward promoting a greater social mix through the construction of public and private housing on the new rambla. The commitment to Conclusions increase security and contribute to a more civic use of public space by residents has also led to a relative Each of the projects presented has certain specific improvement in the image of the neighbourhood. characteristics. For this reason, we will look at impact, The impact of the action plan has been positive from sustainability and the possibility of diffusion in each the perspective of public authorities and neighbour- Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities of the projects individually. hood residents. However, the neighbourhood still suffers diverse problems, some of them stemming from Impact situations that have not yet been resolved, others from the way the action plan has been implemented Case 1: Urban revitalisation: the La and others aggravated by the current crisis (such as Mina Transformation Plan the delay in finishing thesocial housing which has delayed the occupation of the rambla). The PTBM has had a significant impact on neighbour- The impact has been less than expected in terms hood revitalisation, in terms of both urban and social of the eradication of anti-social behaviour on the reform. Regarding urban transformation, what stands part of certain segments of the neighbourhood out first of all is that the isolation and segregation population. Despite interventions on the common of the neighbourhood has been overcome. Second- staircases shared by neighbours and in public spac- ly, public housing and facilities have increased. The es, the programme has only had limited impact in PTMB planned for many residents to move into new terms of improving relations among neighbours. To housing, sub-standard housing has been rehabilitated transform attitudes and improve co-existence in the and lifts installed in many buildings. Finally, the PTBM community, the educative aspect of the programme has contributed to the improvement of the overall should have been more central than it was. These conditions of the neighbourhood, having an impact on types of changes happen over the long term and etc cleanliness and on the creation of public spaces, . require a social and educational intervention lasting On a social level, using the strategy of social respon- over several generations. sibility, companies from the hotel/restaurant sector I act on the population without autonomy and which and the textile sector were involved in the pro- has certain needs and needs us to provide them grammes for social and labour market insertion and with educational tools, job placement, training tools sheltered employment. For some years the rate of and starting from there they reach a level of greater incorporation into the labour market among groups autonomy, and then they are able to respond to other with particular difficulties (young people with low issues such as civic behaviour, personal responsibility levels of education or training, women and the long- 298 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities tion ofstructures urban Finally, theplanhasalsohadanimportantimpacton and monitoringdecisions. new patternsoforganisationandwaysmaking neighbourhood residents,whichinturnhasmeant to alargenumberofinnovativesocialactivitiesledby project wasaconditionforitsestablishmenthasled residents. Thefactthatcitizen nated amongexperts,politiciansand addition, there wastheproblemoffinding companies family homeandweretherefore hardtoidentify.In the targetpopulation,asmany werestilllivinginthe ship contracts(I-5).Therewere difficultiesinreaching certain levelofsuccessinreaching 562workintern given thecurrenteconomicdifficulties,therewasa while theperspectiveofadministrationisthat those inchargeoftheprogrammeexpected(I-7); organisations isthattheimpactwaslessthanwhat this programme.Theperspectiveoftheparticipating We findtwodifferentassessmentsoftheimpact higher levelsofgovernment. when tryingtobeinnovativeinareasthatdependon of theobstaclesthatlocalwelfaresystemsmayface ultimately blockaproject.Thisisjustoneexample lack offormalcompetencies–andfundingcan address them,asinthisspecificcase;however,the ness totheseproblemsmaypermititsuccessfully higher levelofgovernment.Thelocallevel’sclose- local levelaresubjecttolawsorregulationsfroma obstacles thatarisewheninitiativesstartedatthe effect becauseitcanhelpusunderstandsomeofthe gramme isinterestingeventhoughitnolongerin es inpublicpolicies.Wethinkthisinnovativepro- led tobothdeepcutsinpublicspendingandchang- crisis, whichishavingamajorimpactonSpain,has certain specificdifficulties.Thecurrentfinancial but itisinterestingtoanalysebecauseillustrates This programmewasonlyinexistencefor4years, Future young people:Young Peoplewitha Case 2:Labourmarket integration for (I-18) invested. munity ofneighbours.Thistakestimethatwehaven’t you havetowardyourneighbourhood,with Barcelona ES governance. Ithasdonesothroughthepromo participation andworkcoordi participation inthe neighbourhood com- - - - Agreement for aninclusive Barcelona Case 3:New localgovernance: Citizens’ internship atthetimeofinterview(I-5). of these,only40hadnotyetbeencontractedforan 199 withqualificationswhoenteredtheprogramme; qualifications whopassedthetrainingperiodand entered theprogramme,therewere168without the programme,whenyoungpeoplewithdegrees an internshipinacompany.Inthesecondphaseof training was472,andofthese264wereabletodo of youngpeoplewhopassedthefirstphase Government officialsreportthatthetotalnumber previous government. ties fortheprogrammesthatweredesignedby vicissitudes ofrecentyearshaveraisednewdifficul doing thetraining.Finally,politicalandeconomic ed withtheinterests“awakened”inparticipants willing toparticipateintheprogrammethatcoincid sources andinformation. has createdasolidnetworkfortheexchangeofre- the NetworkforAssistancetoHomeless,which assistance forchildrenandteensatrisk.Theotheris the city’scentres,bothpublicandprivate,providing and Teens, results: oneistheNetworkofCentresforChildren networks inparticularthathaveachievedsignificant on socialwelfarepolicies,therehavebeentwo In termsoftheCitizens’Agreement’sdirectimpact on municipalauthorities(I-8). influence theCitizens’Agreementhasattimeshad effects oftheiractionsmultiplies.Theyalsovaluethe appreciate thefactthatbeingfocusedonaction, are essentiallyworkinginanetwork.Buttheyalso that areformedbetweentheparticipants,who programme’s successisaresultoftherelationships city’s socialwelfaresystem.Toagreatextent,the to beableparticipateinthegovernanceof addition, theorganisationsinvolvedareverypleased that havenotyetbecomepartoftheAgreement.In broad consensus,whichisattractingotherentities which continuestogrow.Itisprovinghavea This programmehashadamajorimpactandone which hasagreedononemodelforall - - 299

Sustainability Case 2: Labour market integration for young people: Young People with a Case 1: Urban revitalisation: the La Future Mina Transformation Plan As was pointed out previously, the programme Young As regards the sustainability of the urban transforma- People with a Future was discontinued. The serious tion process, some achievements seem to be quite financial crisis in the Spanish government had a major well established and are likely to go on, but others are impact on the programme and on other policies and facing important challenges. Labour market integra- programmes that depend on funding from the central tion programmes seemed to be quite successful dur- and autonomous regional governments. The finances ing the economic boom, helping effectively part of the of the municipal government were sound and showed population to find jobs despite their disadvantage. no deficits or debt. However, the dramatic change in the employment It is not possible to know whether the changes in the situation has had very negative effects in this field, leadership of the municipal government would have heavily affecting a population whoselabour market affected the approach of the programme if there integration was fragile. had not been budgetary problems. The change in Schools in the neighbourhood have had some suc- the focus of the programme, although said to be the cess, but dropout rates and absenteeism are still high. result of a lack of funding, could also have occurred According to some local leaders, schools would need – although perhaps not with the same force – in a a much wider autonomy to select their staff to be moment of economic stability, since the new, more able to cope effectively with a young population that centrist government might have been expected to has to live with the attraction that drug dealing has focus more on self-employment and the development Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities by offering a quick and easy way of making money. In of the social economy as a way to help young people this case, both the rigidities of the educational system rather than on providing subsidies. and the drug business are strong limits to the success of the process. Case 3: New local governance: Citizens’ Social mixture has also been a key element in the Agreement for an Inclusive Barcelona programme, and freeing land for private homes was not only a way of achieving it, but also of financing the Everything seems to point to the consolidation of the whole plan. Here results are less encouraging. While Citizens’ Agreement programme. The new city govern- some people have come to live to the neighbourhood, ment has made a commitment to its continuity and a large number of private apartments are still vacant seems determined to expand its impact. The partici- and for sale. The few people who have moved into pating organisations believe that “it is not possible to the neighbourhood often live most of the time in turn back” (I-6). One factor that appears to confirm downtown Barcelona. this is the appearance of “the shared strategy”, a step further in the direction of joint work between govern- This also raises the question of the sustainability of ment and the third sector, differentiating the particu- the model of financing many public actions in Spain lar spaces of each sector and the common areas of during the last two decades. The model used for governance in local social welfare. many large infrastructures (like train stations) but also for the La Mina plan is based on rezoning that allows land to be sold for a high profit, which is used to fund public action. This allows developing public projects without making taxpayers pay more, albeit with some negative effects on the land market. Whatever the negative effects, the burst of the real estate bubble has put a drastic end to this model, at least for the time being. 300 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities projects inCatalonia,among whichwefindprojectsto in 2003,andwhichhastaken onmorethan100 urban areasinneedofspecial attention”,established government’s “Programmefor neighbourhoodsand The PTBMhasbeenareference forthe ment firms. outside the negative responsetothearrivalofcompaniesfrom addition, the related tothelackoftrustininstitutionalpolitics.In that havebeenobstaclesintheprocess,whichare It isalsoimportanttotakeintoaccountthefactors The aspectsconsideredrelevantare: the planaswelloninitialstart-upconditions. on thedesign,managementandimplementationof to implementinotherareas.Theseaspectsdepend The PTBMcontainscertainaspectsthatmaybeuseful Mina Transformation Plan Case 1:Urban revitalisation: theLa Diffusion > > > > > > > > > > > > Barcelona ES specific problemsinthe population thathaslaunchedprojectstosolve The neighbourhoodalsohasastrongactive demands forreforminthe already playinganactiveroleindebatesand and the The fundamentalroleofsocialorganisations market. groups withspecialdifficultiesintothe The programmesthatmanagedtoincorporate to promoteparticipation. The importanceoftrainingandtechnicalsupport better suitedtotheneedsof agents havemadeitpossibletocarryoutreforms that havepromotedmeetingsanddebateamong integrating citizen The managementoftheprojectinrelationto as awaytoimprovethe using bothurbanreformandsocialintervention The comprehensiveapproachofthereform, administrations formingtheconsortium. Joint workamongthedifferentgovernment and basedontheopinionsofresidents. living conditionsofitsresidents. neighbourhood suchasservicemanage neighbourhood associationsthatwere neighbourhood residentshavehada participation. Thestructures neighbourhood. neighbourhood andthe neighbourhood. neighbourhood regional labour - all thestakeholdersinvolved. Andperhapsnotonly lished, abroadconsensusis requiredonthepartof hoods withcharacteristicssimilartoLaMina. intervene inthesocialfabricresidentialneighbour to carryitout. stakeholders wasthere,butnotthefundingneeded sponsibilities. Thatwillingnessonthepartofdifferent and otherentitieswillingtoassumepartofthesere jobs. Buttodothisrequireda or trainingforyoungpeoplewithoutqualifications assuming thecostsinvolvedinprovidinginternships to have having difficultiesitseemedtobeaninterestingidea begins. Preciselyatatimewhencompanieswere is toconsiderthesituationinwhichaprogramme The lessontobelearnedfromthis“failedinnovation” economic resourcesneededtocarryitout. fore actuallyblockinnovationbynotprovidingthe realities thatexistonthelocallevelandmaythere country, whichcannottakeintoaccountthedifferent but dependentontheadministrativestructureof affected bythespecificcharacteristicsoflocality, is foundinjobplacementforyoungpeople,which ministration responsibleforpolicy.Anexampleofthis local levelthatconflictwiththedynamicsinad ideas, ties,relationshipsorsocialconditionsonthe implementing and opportunitiesonthelocallevelindesigning Future providesagoodexampleofboththeobstacles of innovation,theprogrammeYoungPeoplewitha In thinkingaboutthepossibilitiesfordiffusion Future young people:Young Peoplewitha Case 2:Labourmarket integration for For aninnovationin charge oftheprojectandadynamic without theinteractionbetweenclearleadershipin way socialprocess.Itwouldnothavebeenpossible as well.However,thisisaprojectthatrequirestwo- other municipalitiesinSpainandcountries, a projectthathasbeensparkinglotofinterestin It ispossibletospreadthisinnovation.Infact,it Agreement for anInclusive Barcelona Case 3:New localgovernance: Citizens’ local governmentcomplementtheirroleby social welfareservices.Theremaybe governance tobecomeestab network ofcompanies civil society. - - - - - 301

a consensus on the idea, but also regarding capacity; Annex in other words, on the one hand, a clear idea and the real possibility of designing a new model by the gov- People interviewed: ernment leaders responsible, and on the other hand, the existence of a network of entities that want to be >> I-1 Former manager of the Social Welfare Area in involved and participate in designing and managing the City Council Barcelona the social services of the city. >> I-2 Former manager of Housing Area in the City Council Barcelona

>> I-3 President of Teacher’s Association Rosa Sensat Bibliography >> I-4 Former manager of Education in the Regional Aguilar, Manuel, Escobedo, Anna, and Montagut, Government Teresa (2011) “Local welfare policies in Spain: employ- >> I-5 Person in charge of the programme “Joves amb ment, housing and childcare”, WILCO Work Package 2. futur” – Barcelona Activa Barcelona City Council (2005) “Barcelona Inclusive >> I-6 Member of Social Educators Association and 2005-2010”. Barcelona, Social Welfare programme Acord Ciutadà Barcelona City Council (2007) “Network for social and >> I-7 Member of third-sector organisation and labour market integration of Barcelona”. Barcelona, programme Joves amb futur Barcelona Activa. >> I-8 Member of third-sector organisation and Acord Barcelona City Council (2009) “Barcelona dealing with Ciutadà the crisis and exclusion”. Barcelona

>> I-9 Former manager of Housing of Regional Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Barcelona City Council (2010) “Master Plan for Citi- Government zen’s Agreement”, Barcelona. >> I-10 Member of Entities Platform of La Mina Barcelona City Council (2011) “Five years of the Agree- ment. Annual Report”, Barcelona. >> I-11 Former manager of Welfare and Participation of City Council Barcelona Barcelona City Council (2012) “Barcelona Social Inclu- Acord Ciutadà sion Plan”, Barcelona. >> I-12 Head of Technical Secretary of Barcelona City Council (2012) “Shared Strategy 2012- >> I-13 Member of the Quality of Life Area of the City 2017”, Barcelona. Council Barcelona Capel, H (2005) The Barcelona model. A critical review. >> I-14 Person in charge of Social Innovation of City Barcelona, Edicions del Serbal Council La Mina Consortium (2008) “La Mina Transformation >> I-15 Former manager of Social Welfare of City Plan. Memory of actions”, Sant Adrià del Besos. Council Barcelona Montagut, Teresa, Vilà, Gemma, Chamorro, Carolina >> I-16 Head of the Barcelona Activa Agency and Riutort, Sebastià (2012) “The Local welfare system >> I-17 High technical (civil servant) of City Council in Barcelona: Core ideas”, WILCO Work Package 4. Barcelona

>> I-18 Councillor of Education of the City of Sant Adria de Besos

>> I-19 Head of the Social Area of the Consortium of La Mina 302 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Barcelona ES ES Spain Pamplona

Manuel Aguilar Hendrickson (Universitat de Barcelona) 304 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Social housing Regional government Participation Labour marketintegration Child care Keywords: Local background of thesocialinnovations Introduction Pamplona ES mainstream. innovative spread discourseon“bestpractices” hasencouragedthe (something it becamecompulsory)haseased the action plansforsocialinclusion (Navarrasetupitsownplanlongbefore and thecentralgovernmenthaveplayedarole.Thepressure toestablish TSOs todeveloptheir Aside fromTSO narratives helpstoestablishconsensusinmanycases. of integratingthe may nottranslateintotheideabecominganactualpriority. Thepossibility provision). Inmanycasesawidespreadpoliticalconsensus onaninitiative comfortable whenexpandingtheroleofTSOsandcontaining directpublic it directly by means of public programmes) and the “right” (which feels quite by the“left”(asawayofexpandingsocialactionwhenit’snotpossibletodo which TSOsseemtobetheperfectsolution.Thismaywidelyaccepted mainstream programmesandrequireacarefulpersonalisedtreatment,for they maybeseenaslimitedactionsforsomespecialcasesthatfalloutof There areseveralwaysinwhichtheymaybeintegrated.Insomecases, even whentheychallengethedominantviewsinpoliticalsphere. priority, new weakest. Although as theyrepresentthespiritof generally verymuchrespectedbymostofthepoliticalandsocialspectrum, Third sectororganisations(TSOs)emergingfromtheseprocessesare and right,betweenBasquenationalismNavarreseregionalism. capital, Pamplona,andopenedupdramaticpoliticalcleavagesbetweenleft trial andservicebasedone,concentratedmuchofitspopulationinthe beginning inthe1960stransformedaruralagrarianregionintoanindus these traditionssincethe1960s.TheradicalchangesundergoneinNavarra church anditsorganisationsofthecomplexpolitical Carlist traditionalismofthenineteenthcentury,strengthCatholic a strongconservativetraditionoflocalself–government,goingbacktothe Civil society organisations have a long tradition in Navarra. This is a result of unknown intheregion. 1980s andearly1990s,thismeanttheintroductionofservicespreviously stronger developmentofservices.Insomecases,especiallyduringthe in asmall,comparativelywealthyandlessunequalregionhasallowed services. Afinanciallyandpoliticallystrongregional the Spanishaverageandofbeingapioneerin frequently boastedofhavingalevelsocialserviceprovisionclearlyabove certain degreeofambivalence.Theregionalandlocalgovernmentshave The historyofsocialpoliciesinNavarraduringthelast30yearsshowsa (Universitat deBarcelona) Manuel AguilarHendrickson Authors initiatives, althoughtheydon’t alwaysmaketheirwayintothe has tobedoneinaspecificfield). Ontheotherhand,wide initiatives comingfromTSOstendtobeseenwithsympathy, initiatives andgovernmentpredispositiontowardsallowing initiatives intotwodifferent(andsometimesopposed) social innovationdoesn’tseemtobeanexplicitpolitical initiatives, pressurefromtheEuropeanUnion(EU) solidarity ofNavarraanditsconcernforthe development ofsome development ofsocial local government development of development of initiatives - - 305 ES Categories Pamplona Employment

54/77 Social integration enterprises and social clauses Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 54.1. Short description

Employment policies in Spain have long included temporary employment schemes for the unemployed, usually run by local authorities. The idea that offering a chance of working for some time is better than just claiming benefits has a long tradition, based on the idea that it is better for the dignity of those involved, and that being active should help people to keep both their work habits and work ethic. While most temporary employment programmes are aimed at the registered unemployed, some of them have been targeted at people with a high risk of social exclusion and claimants of minimum income (social assistance) benefits. Such is the case of the so-called empleo social protegido (protected social employment) in Navarra since the 1980s. The usefulness of the scheme for participants has been questioned for some time now (Laparra et al. 1989; Pérez Eransus, 2005) for while it offers the chance of receiving a higher income and of being active, the content of the work itself (usually menial tasks in local public works) does not seem to offer much in the field of personal and professionaldevelopment for people with serious social problems. Since the 1980s the idea has developed that it would be possible to set up adapted enterprises that could combine being competitive in the market and being able to employ people with lower productivity due to different causes (disabilities, social or health problems). One strand of such development was aimed at people with disabilities, and it got legal recognition in the mid-1980s, under the concept of special employment centres (centros especiales de empleo, or CEEs), market oriented enterprises that obtain public subsidies (on wages, social security contributions and some other costs) to compensate the lower productivity of workers with disabilities. The development of the other strand was much slower, as it tried to extend a similar model to people with social (exclusion) problems. In Navarra there were two pioneers in this field.Traperos de Emaús, a group linked to the Emmaüs international movement that has become a foundation, and Gaztelan, a youth employment project that evolved into a foundation that develops programmes to help labour market integration. The legal status and public support of these initiatives has gone through three main phases:

a. Prior to 1999, these projects had no specific legal status (other than being private associations or foundations) and received limited public support, basically to help with investments or to compensate for losses. In the two 306 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities dignity ofusers. bilities. Thisalsohaseffects ontheself-esteemand that isintendedtohelpthem developtheircapa work”) inawaythattheyare abletocomplywithand directly anexplicitdemandof mostusers(“wewantto they mayhavetodoitefficiently.Thisaddresses job, income)butforwhattheydo,whateverthelimits “workers”. Peoplegetpaidnotforwhattheylack(a in theCISsliesfactthat“users”areactually The maindifferenceinthewaysofaddressingusers addressing users 54.2. Conceptions andways of c. b. Pamplona ES The thirdphaseshouldseethesecentresin 400–600 employees). birth ofseveralothers(someelevenby2010with the consolidationofexistingprojectsand the CEEsforpeoplewithdisabilities.Thisallowed such centres,generallybasedonthemodelof CISs) andestablishesasystemofsubsidiesfor centres (centrosdeincorporaciónsociolaboral register ofsocialand In 1999/2000the key toaccesssuchcontracts. specialisation andharshcostcontainmentwere no socialclausesinthetenderingprocess,niche es) didhaveasignificantrole.Sincetherewere (selective wastecollectionandhomehelpservic de Emaús main cases,butespeciallyinthecaseof ment pressures. regional government,understrongcostcontain are indicationsofastrongercommitmentthe Although theeffecthasbeenlimitedsofar,there of includingsocialcriteriatodecideintenders. into anobligation,andincludesthepossibility per centof turned thepossibilityofreservingaminimum6 the unanimousvoteofregionalparliament.It the requestof grammes”. In2009theactwasamendedtwiceat es “participatingin public contractstoCEEs,CISsandotherenterpris of reservinguptoamaximum20percent Public ContractsActestablishedthepossibility need fordirectsubsidising.The2006Navarra contracts and,possiblyasaresult,decreasetheir crease theirchancesofobtainingpublicservice , publiccontractstoprovideservices public contractsfortheseenterprises social enterpriseassociationsand regional governmentcreateda labour marketintegrationpro labour marketintegration Employment Categories Traperos - - or - - - - with theideaof “dependingonourownef ort”. to providepublicservicesor public worksisconsistent for theproductsoftheirwork andobtainingcontracts sidy modeltowardsonebased onopeningupamarket Emaús, the process of moving from a discretionary sub- Although this discourse might be specific to others ratherthanhelpingourparticipants”. elements, thatofactingasanorganisationforhelping us astrongroot,thatmaybeoneofourinnovative the trendofsimplyrespondingtoproblemshasgiven uting toprojectsindevelopingcountries.“Breaking (rather thandependingonsubsidies)orbycontrib a handtootherprojects,byprovidingpublicservice what othersdiscardandhelpingothers,beitbygiving enterprise hasalwaysthoughtintermsoflivingon “helped” usersseemstobeimportant.The idea ofparticipantsbeing“helpers”ratherthan At leastinoneofthecases( with users. some oftheCISs,alessformalisedapproachtowork This positionofusershelpstodevelop,atleastin (José MaríaGarcía,TraperosdeEmaús) horizontally… and wecanstarttowork,notinahierarchicwaybut then thetroublesandhardshipsofpeopleshowup you feelcomfortableexpressyourselffreelyand wish, tohavethemfeelcomfortable,becausewhen we preferpeopletoexpressthemselvesthewaythey you comefrom,sothere’saspacethatopensitselfup we ask“what’syourname”,butdon’twheredo by asking“whowasyourfather”,andsoon.Ofcourse person hastofeelcomfortable,thatis,wedon’tstart somebody in,confidenceandtrustplayakeyrole;the by-side” methodofworking.First,whenwetake of “accompaniment”.We’vealwaysdefineda“side- Then comethewaysofdoingsocialwork,work ways ofunderstanding. a cleardifferenceintheflexibilityoflanguageand have littletodowithwhatweactuallydo.Iseethere’s to reportonourwork,becausethedatatheyaskfor than anyinterview.It’sabitdifficultwhenwehave together onthetruckgivesyoumoreinformation information aboutthem,becauseamorningworking maps”. Ofcoursewetakeinpeopleandhave We don’tspeakthatwayandwehave“road- “integrations”, “roadmaps”andsoonforth… become verytechnicalandpractitionerstalkabout I believethattodayeverything[insocialwork]has Traperos deEmaús Traperos de Traperos de social ) the - 307

54.3. Internal organisation and nor clear rules of assignment of public subsidies, so they rely heavily in the interest that a specific activity modes of working may arise in a certain government body. Modes of organisation differ amongst these enter- The setting up of the CIS system meant that at least prises. Some stick to a rather conventional form of there are clear rules as to which projects get an organisation (adapted in some respects). But at the accreditation as a CIS, and what kind and amount of other end, Traperos de Emaús has tried to innovate its subsidies may be expected (directly related to wage internal organisation, to be able to manage a medium costs, social security contributions and investments). sized enterprise (over 200 employees) in a way that They are still discretionary (there’s no entitlement is both efficient and democratic andenabling for its to get those subsidies just because you develop the members. activity) but rules are much clearer and the yearly In 2005–6 we open a debate to rethink our organisa- agreement process allows for reasonable expecta- tion: what organisation do we want and is possible. tions (at least to keep activity levels). Out of that debate we designed the “mandala trape- The new model of relying more on public contracts ro”. All work areas have a coordinator who belongs (which Traperos de Emaús has had for three decades to what we call the central coordination group, that now) moves the relationship one step further, since elects the trustees of the foundation (for two years) funding is obtained for providing a service or a prod- and the director (every year). So we have a group of uct, giving the enterprise more independence and about fourteen people who coordinate the process, making it more accountable as well. and a second group we call the creation and evalu- The government of Navarra wants to reduce the role ation group. This group is made up of about fifteen of subsidies to the CISs and enhancing reliance on people with a certain degree of homogeneity in their their own activity, and I think that’s great for us. (…) Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities understanding and their ways of expression who eval- We get paid for what we do, for our work… uate the main decisions we make and how our work is consistent with our principles, such as solidarity, for We’ve always told the government (at least I can speak instance. There are some transversal elements, such for us): we don’t want property, we don’t want to as the right to information and to participation for accumulate assets, we want a right of usage. We want everybody, and the quest for consensus in a hierarchi- things to be owned by the government, because they cal structure. have the duty to control social organisations. Over the years, we’ve actually built up assets for about four (J.M. García) million euros, and it comes mostly from public money. What if we go crazy? We’ve told them that. So we want This organisational innovation effort is connected to to have a correct relationship with the government, the idea of building a sort of working community that but not more intense than necessary. We want to be helps the development of its members and is efficient free to say our word, but without unnecessary aggres- (gets the job done) at the same time. Gaztelan has set siveness. That’s another key element of our style. up different kinds of structures in its projects, some of which have become cooperatives, some associa- (J.M. García) tions and some ordinary enterprises.

54.4. Interaction with the local welfare system

Both the development of the CISs as such and the establishment of the social clauses for public contracts set up a kind of relationship between TSOs and government that differs from the usual one. The usual relationship is based on applying for specific subsidising for activities from different government bodies (local, regional, etc.). There is neither an organised system 308 Social Innovations in European Cities: A Reader from the WILCO Project and itsrental.Thisextension oftheVISsystemisknownas market levels,butwithafull guaranteethattheywillgettheirmoneyandwithouthaving tomanagetheapartment ments maydosobyhandingthemovertoapublicagency, fromwhichtheyobtainarentpaymentslightlybelow apartments managed by the public rental system in the programme. Private landlords who wish to rent their apart- In 2009the smaller townsandvillagesitwasstillpossible. initially, butrapidlyincreasing problems ofsomespecificcasesamongsttheirusers.The programmewaswellacceptedandquitesuccessful of socialexclusion.Somehavedonesopermanently,some haveonlyparticipatedoccasionally,tosolve A dozenTSOshaveparticipatedintheprogramme,working withimmigrants,gypsiesorotherpeopleatrisk the mostcomplexsocialcasesindifferentareas,instead ofpackingthemalltogetherin developers willingtobuildlow-costsubsidisedapartments,andtheprogrammeseemedallowforaspreadof housing wasveryattractedtotheidea.Their that thegovernmentsupportedprogrammeandopenedituptootherTSOs.Theregionaldepartmentof In thelate1990s,duringdebateonregionalplantocombatsocialexclusion,TSOsandexpertsproposed social integration. adapted totheirsituationandunderastrongsupervisionoftheworkingsthefamily,aspartprocess Caritas startedofferingtheapartmentstotheirserviceusers,eitherrentthemorbuyunderterms sation) developedinthe1980s.Caritasgotholdoccasionallyofapartments,oftenbequeathedbytheirowners. The originsoftheVISsmaybefoundinaprogrammethatCaritas(themainCatholicsocialassistanceorgani- nary publiclysubsidised work process.Itallowsamoreflexibleapproachtoaccess second–hand homesthatmayberesoldorrentedtolow-incomepeoplewithwhomtheyareengagedinasocial per year(mostly outsidePamplona)andmanaging therentalofnearly fiftyapartments. also easierforusers.TheTSOs participatingintheprogrammehavebeenbuyingbetween tenandthirtyhomes integración social The socialintegration 55.1. Shortdescription Social integration 55 Pamplona ES regional governmentagreedtoopenupthepossibilityof usingeitherpubliclyownedhomesorprivate , orVAIS)andhasreopened the possibilityofusinghomesinPamplona.Economicconditions are housing /77 housing programmes. (viviendasdeintegraciónsocial housing pricesallbutblockedthechancesoffindinghomes tobuyinPamplona.In Neighbourhood revitalization/Housing Categories social housingtargetswerehardtomeetduethelackofprivate social integration housing , orVIS)programmeallowsanumberofTSOstobuy housing forspecificpersonsorfamiliesthantheordi social housing( social housingblocks. viviendas dealquiler housing - 309

55.2. Conceptions and ways of somebody is directly responsible and has to act if conflicts or other problems arise. addressing users

For the TSOs participating in the programme the VIS What does the regional government get from this pro- offered the opportunity of helping their users access gramme? Putting it harshly, they dump their responsi- a home in a very customised way (housing market bility on us. Being a bit kinder, they offer (through us) permitting, of course). This allowed, for instance, find- an intensive social work with the families, and that’s ing (outside Pamplona) old, large, reasonably priced why they pay us to do it. The housing department, I village houses for gypsy families who needed a lot of believe, they wished to give a hand in the anti-exclu- space, which would have been completely out of the sion plan, so they wanted to show they were doing question in a public housing project. something, plus that helped to promote a bit actions Sometimes social workers complain saying “that with used homes. family you’ve brought to us…” Well excuse me, we (I. García) haven’t brought anything, they’re people so they’ve come here. That’s the advantage of our programme, In fact, one of the TSOs got a specific agreement to in the end, people choose where they want to live, act as the housing social integration team (Equipo de even if the choice is limited. And the same way you will Incorporación Social en Vivienda, or EISOVI). Initially it probably like to live near your relatives, they like it as was a sort of overarching support team for the whole well, and if they’re gypsies they may want to live close of the TSOs involved, but that role didn’t make much to relatives that are gypsies as well. sense, so it has become in fact a sort of social work (Inés García, FSSG) team for a large part of the public rental houses in

Navarra, a social work role that the public housing Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities At the same time, offering access tohousing gave company was reluctant to play by itself, but saw as the TSOs leverage in their social work process with increasingly necessary. the families. The fact that they become the means of In this sense, the role of TSOs in the programme has access to a very basic need - housing - and that that made it possible to develop (within its obvious size access is conditional to a social work process enables limits) a kind of action that both the government and the organisations to set clearer limits and conditions the TSOs saw as necessary. The government was un- in their work. willing to take up as a direct responsibility and TSOs accepted to take it if that allowed them to act more 55.3. Internal organisation and effectively. modes of working 55.4. Interaction with the local Setting up the programme seems to have reorganised responsibility for the social management of very welfare system poor families as regards housing. Before the pro- This kind of win-win agreement may explain the pos- gramme, they might, if lucky, get access to a public itive opinion on the governance of the programme. rental apartment (in some cases even they might Both the government and the TSOs seem to be be able to buy a publicly built home). Chances were reasonably happy with the permanent negotiations low, but if they got it, the housing department did and collaboration in the development of the pro- not take any further action, unless payments ceased, gramme. This means that the TSOs and the regional and in that case it would be legal action or at most government sit down regularly to discuss how many asking local social services to look into the problem. and what kind of homes will there be available for the With the VIS programme, not only are people be next year, how to improve the programme, and even housed in a much more flexible way, but the TSOs if the results are not always the ones some of the become responsible for following up and acting to stakeholders might wish, they speak positively of the ensure an as-smooth-as-possible process in the new process. What might have been lost is the fact that home, by means of a “social accompaniment”: work. the size and scope doesn’t need to meet the social The regional government will pay for it, but now demand (as it happens when entitlements are estab- 310 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities enabling somebodyelsetoworkonthejointissue). way ofstartingtoworkjointlyontheissue(infact, financing TSOstodoitdoesseembealessrisky tion. Thepossibilityofassumingindirectlythejobby more complexissueof them) savedthemfromhavingtodealwiththemuch viding socialworkservicesforcitizenswhoasked responsibilities (producingandrentinghomes,pro each partnermighthavefeltthatstickingtoitsown of thereasonsnottocollaborateinpast,since Social Welfare.Blameavoidancemayhavebeenone regional governmentdepartments,Housingand It hasalsohelpedtoestablishabridgebetweentwo willing tospendandwhatTSOsaredo. lished) butcanbeadjustedtowhatthegovernmentis Pamplona ES housing and social integra- Neighbourhood revitalization/Housing Categories - 311 ES Categories Pamplona Child and family care

56/77 Casas Amigas

56.1. Short description

Casas Amigas (friendly homes) is a child care service for children under the age of three that is provided at the Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities carer’s own home. Two associations (one in Pamplona, one in rural areas in Navarra) provide the service, which is regulated and subsidised by the regional government. It is officially considered as a care service, as opposed to an infant school. Regulations set a minimum of space that must be available at the home, some requirements as to the training and experience of carers and a maximum ratio of four children per carer. Casas Amigas has its origins in a 2003 (EU) EQUAL project run jointly by several regional and local government agencies, several employer’s associations and three foundations, Gaztelan amongst them. It included several actions aimed at favouring the labour market integration of women. Gaztelan (a foundation that had been working since the 1980s in the field oflabour market integration of underprivileged groups) had the idea of setting up the care service. The idea was to kill several birds with a single stone. Access to training activities for women with children usually required some kind of child minding service, some of the participant women had training and experience in child care and had a home (the needed infrastructure) and it was an opportunity to create jobs for them. The idea of a home child care service was taken from a previous experience in rural areas in Catalonia. The service was created inside the project and funded with EU and regional government funds. Once it showed its potential, an association was created that took over the service. It started with six homes, and by 2010 it had fifteen homes and 50-60 children. Theregional government subsidises half the cost. The project was controversial from the beginning. Inside the organisations that promoted the project, there was a debate between those who saw some clear advantages and opportunities in the idea and those who thought it might reinforce stereotypes about the role of women as carers at home and the ways children should be cared for. There was a public controversy as well. The Plataforma del Ciclo Educativo 0–3, a coalition of associations and practitioners who defend a public and free universal infant education service for children aged under 3 years was very vocal against the project. They argued that all services for children aged under 3 years should be conceived as educational services (not as care services), and be run by the government. They believe that these kind of “soft” services are unable to guarantee acceptable quality standards. On the other hand, the regional government and part of the media felt much more comfortable with the idea that parents should be able to choose whether they want to take their very young children to services or care for them at home themselves, and if they choose to use services, they should be able to decide what kind of services (care or educational, etc.) they prefer. In fact, services 312 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities second vision. the CasasAmigashasbeenconceivedaccordingto Whatever themeritsofeachposition,itisclearthat actually looklittledifferentfromaprivatehome. that wouldhaveasoftspotforservices (more orlesseducational,moreformal)and vision thatwouldthinkinadiversityofserviceoptions alism andaninstitutionalenvironment,a“soft” of childcare,thatinsistsineducationalprofession to beacleardifferencebetween“hard”conception college graduatesininfanteducation.Thereseems “carers” shouldbeinfacteducators,andpreferably should beeducationalandthatforthisreason Critics oftheserviceinsistthatallchildservices the privatehomewouldhavehadinanycase. and basicutilitycostsaremoreorlessthesameas need forastronginvestmenttobuildthepremises, affordable duetomuchlowerfixedcosts.Thereisno (four, exceptionallyfiveperhomeandcarer).Thisis be muchcloserinasmallergroupofchildren The otherspecificelementisthefactthatcarecan caring forchildren. usually acceptedthatthereisaneducationalsideto which, althoughthecareroleismainone,it quite similartoother and someeducationaltrainingofthecarers.Itisthus but asa“care”service,thereisaneducationalproject Although theserviceisnotclassifiedas“educational” disrupt theservice. more flexible,andpickingupthechildearlierdoesn’t carer’s hometheavailabilityofserviceismuch flexibility. Sinceparentstaketheirchildrentothe as regardstherelationshipwithusersistime elements withbasicpersonalcare.Thekeydifference of thesameage,anditcombinessomeeducational too differentfromother The natureofthecareoffereddoesn’tseemtobe addressing users 56.2. Conceptions andways of ground betweeninstitutionalandfamilycare. like CasasAmigaswereseenassomekindofmiddle Pamplona ES care servicesforchildren,in care servicesforchildren Child andfamilycare Categories - that wasbeingcreated. for, andtrainingcouldbetailored totheveryservice very peopletheywerehelpingtotrainandfindjobs project itself.Soithelpedcreatejobsforsomeofthe or, atleast,suchtrainingcouldbeprovidedbythe worked in have experience(being people involved(clientsandpotentialproviders) Of course,theymustbefitforthejob.Someof tial usersarepotentialprovidersaswell. providing theservice.So,afterall,someofpoten or low-incomepeoplewhohaveanadequatehome inexpensive. Soitispossibletothinkofunemployed apartment, andtoysothertoolsarerelatively than standardservices.Carersprovidespaceattheir other careservices,itismuchlesscapital-intensive Secondly, whilecareissimilartothatofferedby jobseekers. flexible careserviceisthusespeciallyadequatefor the gap,whichisnotalwayscase.Amuchmore is noeasytask.Usually,whenavailable,familyfillsin care arrangementswithshortnoticeforafewdays Availability forsuchjobsisexpected,andmaking until theygetanafternoonjobforanotherfewdays. ing oneweekend,thenwithoutworkforafewdays, of serviceslike are muchmoredifficulttoforesee.Theusualclients know, andthatmaybeashort-termjob,schedules when youarelookingforajobthatstilldon’t known workingtimestotheavailabilityofcare.But complicated, tobuildupaschedulethatadjustsyour training. Ifyouhaveastablejobitispossible,ifoften and toimprovetheirchancesoffindingitthrough cially obviousinthecaseofpeopletryingtofindjobs and It ismoreflexiblethantraditionalinfants’schools specific componentoftheproject. in thiscombinationthantheradicalnewnessofany Innovation inthemodeofworkingseemstobemore obtaining severalresultsfromonesingleaction. from itsapparentabilitytobuildupsynergiesand Casas Amigashasdrawnmuchofitsattractiveness modes of working 56.3. Internal organisation and care services.Theneedforflexibilitywasespe care services)andhavesometraining, Gaztelan mayfindthemselveswork mothers themselves,having - - - 313

56.4. Interaction with the local welfare system

Casas Amigas doesn’t show much difference from the usual governance patters for services run by private providers regulated and sometimes subsidised by the regional government. There doesn’t seem to be much innovation in this field. It may be perhaps more interesting to look at the origins of the project itself. Gaztelan, the TSO) had the idea, but it was made possible in the setting of an EU EQUAL project involving local and regional government agencies, employer’s associations and other stakeholders. This involvement helped the TSO to think in larger terms, to dare into more complicated fields of job creation, to get support from experts in fields quite different from social work. At the same time, the TSO offered ideas in the field oflabour market integration that were much more original, creative and adapted to specific needs of certain users than those envisaged by other stakeholders. This process is not specific toCasas Amigas, but it certainly tells Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities something of the factors that help social innovations. 314 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities so bybeingless hierarchicandformalintheir relationshipwiththe years. TheexistingTSOsare muchmoreflexible,theyareabletomobilisemany localresources,buttheydo the TSOshavebeenableto win in2013thetenderthatmayallowthemtorunprogramme foruptoeight neurial model,withwhomthey agreespecificoutcomesandtargetsinamuchmore managerialway.Nevertheless, ended in2012.Sincethelate 1990sthe The futureoftheprogrammehasbeenunclearforseveral monthsnow.Theagreementsestablishedin1995–7 meant notencouragingbutsupportingandaccompanying actionslikethesquattingofanabandonedfactory. for theyoungest,summercamps,neighbourhoodfestivalsand networking amongstteenagers.Insomecasesithas of suchaprogrammeareleisureactivitiesfordifferentgroups ofchildren,includingactivitygroupsandplaygrounds Community PreventiveActionService,apartofthelocalFamily andChildrenWelfareProgramme.Thetypicalactivities Since 1995inoneneighbourhoodandsince1997anotherthree,theseassociatio ns areresponsiblefortheso-called work fineandthey’remuchlessexpensivethanotherproviders”. and theassociations.Althoughtherewasastrongpoliticised debate,intheendcouncillorsaidthat“they was acentre-rightregionalistcouncillorwhodecidedto establish along–termagreementbetweenthe Basque nationalismandNavarreseregionalism,certainlyhasn’tmaderelationshipseasy.Somewhatsurprisingly, it radical Basquenationalism,which,inthecontextofpoliticalviolenceandaseriouscleavagebetween The neighbourhoodassociationshavebeensuspectedofpossiblesympathieswithradicalleft-wingpartiesand programmes, whichmanypeopleintheneighbourhoodsthoughtquiteuseless. services begantoseethattheseassociationsweremoresuccessfulinthisfieldthantheirownpublicprevention several neighbourhoodgroups.Theseprojectsbecamequitesuccessful.By1995somepeopleinthelocalsocial providers. Theytriedtocreatesocialandculturalprojects,mostlyaimedatchildren,poolingtheresourcesof traditional politicalroleofclaimingformoreandbetterservicesintheir The firstoftheseassociations, of socialservices,whileretainingapeculiarwayworking. associations thatdevelopedleisureactivitiesforchildrenandofitsintegrationintothe tivities aimedatthepreventionofsocialproblemsamongstchildren.Itisresultamovement The fourthcaseweareanalysinginPamplonaisagroupof 57.1. Shortdescription Neighbourhood children’s services 57 Pamplona ES /77 Umetxea, wascreatedin1990. local councilhasfavouredprivate providersthatfitbetterintoanentrepre Child andfamilycare Categories neighbourhood associationsthatcarryoutsocialac Umetxea triedtokeepabalancebetweentheir local government. neighbourhood andanewroleasservice local governmentstructure community municipality - - 315

57.2. Conceptions and ways of well. Our space should be a space to look ahead, and theirs as a space of protection if the children’s rights addressing users are being violated” (A. Jaúregui). The traditional boundaries between practitioners and service users are somewhat blurred in these projects. 57.3. Internal organisation and There are certainly practitioners who are paid for modes of working their job and are bound by a contract with the local council, but they are neighbours as well, and they are The concept of working to promote the rights of hired by a local neighbourhood association. Since they children appears to be connected to the concept of organise activities for the young and for children, a autonomy of the projects, even if they belong to the large part of the actual implementation of the project local government. The projects consider themselves is done by volunteer neighbours who take part in the accountable first to the children and the neighbours. activities (thus they are service users and producers [In our case] either the project is based on the con- at the same time). And although some specific work cept of rights or we don’t do it. The question of our is done to integrate children with special difficulties autonomy is basic, because without it we can’t carry in the activities, there’s no visible difference between them out, and our autonomy has practical effects, them and other participants. for it allows us a margin of flexibility and of method In our projects volunteers are as important as pro- innovation that other projects don’t have. In our team fessional practitioners. Volunteers are not of the kind sometimes each [of the three formally hired educa- that show up for an hour, but people who live here. tors/social workers] takes responsibility for an area, (…) We promote the rights of the kids, so the kids are but sometimes a few youngsters join us and its five or six of us managing the project. We can do that, but our bosses. They [the local government managers] Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities don’t think in terms of rights, they told us “don’t talk public employees can’t, and private providers can only about rights, talk about problems and needs”. do it at the expense of their workers

(Alberto Jauregui, Equipos comunitarios de infancia) (A. Jauregui)

The concept of neighbourhood is central to the work 57.4. Interaction with the local of these projects. Even if neighbourhoods are relatively small, the feeling of belonging may be very strong, and welfare system it is very significant for newcomers (migrants) as well. The triangle made up by the local council (responsible In Pamplona the question of locality is very important. for the service as a whole), the associations (who have Whoever hasn’t experienced it and doesn’t know a a legal agreement with the local council to carry it neighbourhood has a citywide outlook. That’s what out) and the practitioners (who are employees of the happens to local councillors, (…) who don’t know association but are, in practice, integrated in the local about it and don’t understand it. If you take away the social services organisation) allows for the aforemen- idea of neighbourhood from these kids you’ll kill them. tioned autonomy of the projects. Practitioners tend to For migrants, their only identity here is that of the speak the same language (with some nuances) as the neighbourhood. They’re neither from Pamplona nor local social services staff, but the leaders of the asso- from Spain, but they’re certainly from San Jorge [the ciations are local neighbours with a strong commit- name of one of the neighbourhoods]. ment to their neighbours and tend to be much more (A. Jauregui) “straight to the point”. The kind of associations we work in is special, and our The project works specifically with children with bosses are our fellows in all its complexity. (…) There special needs both integrating them into activities and was one of those meetings with the local council after offering personal support and “accompaniment”. This a cutback of 50 per cent of our activity budget. We role is different from the one played by ordinary child were very angry, and we as a team wrote down a doc- support services, which should be seen as different ument against the cutback, and the director of social and separated. “[Control and support] should be services said she had nothing to talk with us and that separated, not only conceptually but in practice as she’d only talk to the leaders of the association, to our 316 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities commissioned bythe a closerrelationshipasdirectprovidersofservices the previousthree,inspiteof,ormaybebecause council ismoreconflictiveinthislastcasethan The relationshipbetweentheTSOsand very different tothedominantviewsinpublic ser In somecasesthesealternative waysofworkingare be betterandmoreadapted toserviceusers’needs. TSOs to“workdifferently”in waystheyconsiderto On theonehand,thereisa clear “political”aimbythe There isadegreeofpolitical ambivalenceinallcases. system. of discretion,butitconstrainsintoamoreobjective This hasnoteliminatedcompletelyacertaindegree setting goalsandoverallcriteriafortheprogrammes. with whichcriteriaand(b)anegotiatedprocedurefor definition ofwhatactivitiesmaybesubsidisedand 1 and2showamovetowardssystemof(a)clearer cretionary supporttotheactivitiesofeachTSO.Cases tradition ofparticularistic,case-by-caseselectivedis gional government.Theserelationshipshavealong ance andtherelationshipbetweenTSOslocal/ Most casesshowsomedegreeofchangesin users (case1). a moreprofoundredefinitionofthenatureservice tioners, beitbyblurringthedistinction(case4)or redefine theboundariesbetweenusersandpracti two cases(1and4)thisadaptationgoesfurtherto needs orpreferencesofserviceusersispresent.In of customisingorpersonalisingservicestospecific working andaddressingusers.Inallcases,theidea All fourcasesshowanattempttochangethewaysof expanding itbeyonditsinitialscope. supporting andsustainingtheinitiative,insomecases tration (localorregional)hashadasignificantrolein the project(case3).Inallthreecases, 2 and4),orhaveconvincedpublicpartnerstostart then foundthewaytoobtainpublicsupport(cases1, way thathaveeitherstartedtodoitontheirownand TSOs thatwishedtodosomethinginaspecificnew of TSOs.Inallcasestherehasbeenone(orseveral) All fouranalysedinnovationswerebornas Conclusions (A. Jauregui) bosses. OK,goahead!Nowshepreferstotalkus Pamplona ES local council. public adminis initiatives local govern- - - re- - - stand afterwards). thanks totheonlypoliticalpartythathashadacritical been contradictory(theprojectgotitspublicsupport crucial inthiscase,andsomepoliticalpositionshave radical groupsandwithBasquenationalism)maybe although externalpoliticalreasons(connectionswith what atypical,sinceithasseenstrongercontroversy, and 2)oraverylimitedone(case3).Case4issome lack ofpoliticalcontroversyinsomecases(cases1 have strongerroles.Thismayexplainthe(apparent) view ofamorecomplex are notbeingverysuccessful)ortheyenhancethe a limitedexceptionforsomeusers(withwhomthey challenging approachesbecausetheyhelptooffer hand, governmentsmayacceptsuchdifferentor from themainstreamprogrammes.Onother vices (cases1and4),inotherstheyarejustdifferent services Mínimas, Madrid:FundaciónFOESSA-Cáritas. Pérez Eransus,B.(2005) Popular. drickson, M.(1989) Laparra, M.,Corera,C.,Gaviria,M.&AguilarHen Bibliography ElSalarioSocialSudado,Madrid: PolíticasdeActivaciónyRentas welfare mixinwhichTSOs Care - - SE Sweden Stockholm

Marie Nordfeldt and Anna Carrigan (Ersta Sköndal University College) 318 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Youth User choice Single Segregation Privatisation Partnerships Participation Neighbourhood revitalisation Deregulation Civil society Child care Keywords: Local background of thesocialinnovations Introduction Stockholm SE unemployment mothers rates forthefirst twocategorieshavebeen somewhatreducedduring the the Nordiccountries,EU/EFTA andoutsideoftheseregions.Unemployment difference inthe entering the ment isinthegroupofyoung adults.Oneobviousbarriertoyoungpeople higher thanfortheoldergroups.Thefastestgrowthintemporary employ population. The in Overall, theemploymentrateishigherin should beachieved. local governmentbetweenthemajorityandopposition onhowthis up theconstructionofnew local politicians,thereisaconsensusthatanurgent needtospeed against transformationandthesellingofmunicipal networks ofcitizens.Thelatterpleadformorerentalunitsandprotest debated, inthemassmedia,atlocalpolicylevel,andbyorganisations/ In recentyears,theproblemof these alsoreportanoverall Stockholm regionindicatealackof first time(Nordfeldt2012).Twenty-threeoutof26municipalitiesinthe of income,makeitdifficultforthoseenteringthe housing market.Landlorddemands,suchasreferencesandacertainlevel people andrecentlyimmigratedpersonsareespeciallyvulnerableonthe an apartmentisconstantlyincreasing(NordfeldtandWiklund2013).Young years thatoneneedstoberegisteredinthequeuebeforebeingallocated has anorganised whole pace withthisdemand,whichhasledtoasevere on the 30,000 to40,000newinhabitantseveryyear.Thisputsenormouspressure persons peryearandthecountyof The populationofthecity that hasfailedtokeeppacewithgrowthintheregion”(OECD2006). the integrationofimmigrants, novation system,challengesinthe factors suchas“lackofnewhigh-growthfirmstostimulatetheregionalin that couldunderminetheregion’scompetitivenessinlongrun,were and communicationstechnology(ICT).Weaknessesthatwerenotedasrisks and specialisationinhigh-growth,high-techsectors,notablyinformation ment, concentrationofadvancedbusiness,logisticalandfinancialservices, Stockholm thatwerehighlightedinthereportresearchand the mostsuccessfulmetropolitanregionsinOECD”.Thestrengthsof an OECDterritorialreviewfrom2006, Stockholm isamongthefastestgrowingmetropolitanareasinEurope.In Sweden, (Ersta SköndalUniversityCollege) Marie NordfeldtandAnnaCarrigan Authors Stockholm region(Länsstyrelsen2012;Boverket2012a). housing market,andtheconstructionofnew buttherearesubstantialdifferencesbetweengroupsin the labour marketislowlevelsof education.Anotherstriking unemployment ratesforyoungpeoplearesubstantially unemployment figuresisbetween peoplebornin housing queueforrentalapartments,butthenumberof housing, buttherearedifferentviewswithin housing shortage(Boverket2012a,2012b). Stockholm isgrowingbyaround17,000 housing shortagesandatransport labour marketespeciallywithregardto housing shortagehasbeenheavily housing foryoungpeople,and21of Stockholm isgrowingbybetween Stockholm wasstatedtobe“oneof Stockholm thanonaverage housing shortageinthe housing marketforthe housing stock.Among housing hasnotkept Stockholm develop- network Sweden, - - 319

2000, while for the latter two groups, there has been and the Christian Democratic Party – has pursued a a limited increase. However, for people born outside strong policy of marketing and privatisation. This has of EU/EFTA, the unemployment rates are substantially been implemented within the field of health care and higher than for the other groups. Young people and social services (primarily within elderly care) and the recently immigrated persons are also more likely to housing market. find temporary employment in the so-called “grey” Deregulation and legislation on competitive pro- labour market than other employees (Nordfeldt 2012, curement (LOU), ideas of “user choice” and a new WP3 report). legislation – the Law on Freedom of Choice” (Lagen Central issues in the local policy debate are how om valfrihet, LOV) has made it possible for munic- to find new jobs in areas ofStockholm with high ipalities to engage alternative service providers in unemployment, in order to counteract the mismatch social welfare. In Stockholm, the law (LOV) is applied between existing jobs and the unemployed. Solutions in various fields, e.g. in home-care services for the that are put forward in the political debate are elderly, in daily activities and assistance for disabled different forms of support for new start-up enterpris- persons, and regarding residential homes (vård- och es. This has been highlighted as a way to create new omsorgsboende). jobs in the outer suburbs where the unemployment Another policy implemented is the privatisation of rates are high. Unemployment among young people the housing market. In Stockholm, this has been is also an issue on the political agenda, but there have manifested by transformation of rental apartments to been few suggestions for realistic solutions. (Segnes- owner-occupied apartments, especially in the centre tam-Larsson & Carrigan 2013, WP4 report) of the city and the inner suburbs. Tenants living in more distant suburbs have been less interested in

Segregation and segmentation in buying their rented apartments. Some real estate Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Stockholm has instead been sold off to private landlords. This transformation peaked in early 2000 and then again In Stockholm there is clear ethnic segregation as well in the late 2000s (Nordfeldt & Wiklund 2013). as segmentation. This is especially pronounced between city districts but also between neighbourhoods Stockholm administration within the same district, consisting of both affluent residential areas and “Million Homes Programme” Stockholm is organised into 17 field-specific depart- areas (Bråmå et al. 2006). Some suburbs in Stockholm ments, 14 district administrations and 16 municipal metropolitan areas with a large immigrant population companies owned by the Stockholm City Hall AB. The are areas that can be defined as resource poor. These district administrations are responsible for municipal areas mainly consist of large housing estates that services and care for those who live in the district: were built during the “Million Homes Programme” preschool, elderly care, support and services to peo- when a million dwellings were built during a period ple with disabilities, social psychiatry, social care for of 10 years from the mid-1960s to the mid-1970s. individuals and families, consumer advice and leisure These large housing estates are today associated and cultural activities. with segregation and social problems. Refugees and immigrants, primarily from outside the OECD region, Social innovations in Stockholm – have been directed towards these so-called “un- three examples der-privileged” suburbs (Nordfeldt 2012, WP3 report) In the following section, we will describe the three Diversity and choice – catchwords social innovations that have been the focus of our in local political debate in research in Stockholm. These are the (1) “Filur project” within the local labour market; (2) “Children of Single Stockholm. (Lone) Mothers Project” targeting single mothers with Miljardprogrammet In the field ofsocial welfare, the ruling coalition within low income, and (3) The “ ” (“the bil- the local government – since 2006 consisting of the lion project”) which is a citizen/activist-driven project Conservative Party, the Liberal Party, the Centre Party related to housing. 320 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities the textbelow. including interviewsthatarenotdirectlyreferredtoin the descriptionsofrespectiveinnovations,also projects. Theinterviewsformtheprimarybasisfor through interviewswithstaffandusersofthestudied lected fromwebsites,variousofficialdocumentsand The empiricalmaterialforthisreporthasbeencol highlighted bytheWILCOprojectindifferentways. vations combinethepolicyfieldsandtargetgroups implemented inpracticetosomedegree.Theinno- or approachesthatarenewinaparticularcontext,but according toabroaddefinitionofinnovations,asideas The casestudiesinStockholmhavebeenchosen Stockholm SE (Ersta SköndalUniversityCollege) Marie NordfeldtandAnnaCarrigan Authors - 321 SE Categories Stockholm Employment

58/77 The Filur Project

58.1.Short description

The European Social Fund and the Stockholm City administration finance theFilur project, which has been running Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities since 2010. The target group of the project is young persons facing difficulties entering thelabour market. Par- ticipants are enrolled in Filur through the so-called “Jobbtorg” (job centres) or via the special responsibility of the labour market administrations concerning young people. Persons can also be recruited from local employment centres or from the social insurance office. Young people enrolled fromJobbtorg are, however, the dominant group. An interviewed job coach at the Filur project estimated that 90 per cent of the participants were enrolled from Jobbtorg (interview 1). As Filur has cut ties with the Jobbtorg organisation, it is appropriate to give a short description of this organisation in order to clarify the context within which Filur is working. Jobbtorg is an initiative introduced by the right wing majority in the city of Stockholm in 2006. The decision to implement Jobbtorg was taken in 2007 along with a modified set ofguidelines for the administration of social welfare benefits (utl. 2007: 117 and utl. 2007: 116).Jobbtorg was initially referred to as a “special project designed to help people from Stockholm to move from social welfare benefits to work” (utl. 2007: 117), which was in line with the dominating activation policy within the Swedish labour market policy (Johansson 2009; Thorén 2008). This project had a clear two-headed goal: to help people to help themselves in finding employment, and to reduce costs for the city district administration by reducing the number of people dependent on social welfare benefits (utl. 2007: 117). The term “welfare dependency” with the obvious connotation (in Swedish) of “welfare addiction” (bidragsberoende) was used frequently in the debate to describe the problem that Jobbtorg was intended to address (utl. 2007: 117). The idea of Jobbtorg was to standardise the municipal efforts and resources available to assist unemployed people dependent on social welfare benefits, which meant centralising the organisation within the city ofStockholm. Prior to Jobbtorg, there had been a number of different projects and organisations cooperating with city district administrations to support people on social welfare benefits to find employment. Initiatives for different projects are also taken at Jobbtorg as part of their method of working. The objective of these projects is to develop regular activities at Jobbtorg as these projects are designed to try out new methods and ways of working (interview 2). The successful methods are supposed to be singled out and then adopted as regular Jobbtorg activities. Filur is an example of such a project (interview 3). With the help of personal job coaches, a staff member interviewed stated thatJobbtorg is supposed to establish an individual planning document, a “work-plan”, for each “candidate” to sign (the unemployed person is called an “as- pirant” or candidate at Jobbtorg). This work-plan can include short work-related courses, learning Swedish, intern- 322 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities for eachparticipant.Thisisthe thirdelement.Atthe pant totryassessandmap theneedsofsupport job coachesalsoworkindividually witheachpartici that theparticipantsfollow 7-twentymethod,the logical consequence(interview 3).Duringthe8weeks the “Try-out-a-job”schemeissupposedtofollowasa a youngperson’smotivationfor8weeksandthen says thatthe7-twentymethodworksonmobilising to theirwishes.Theinterviewedheadoftheproject the youngpersonto The jobcoachesatFilurtrytheirverybesttomatch them, andthentryitfora4-weekperiod(interview3). make adecisionaboutlineofworkthatappealsto it shouldbeanopportunityfortheyoungpersonto son isforcedtotakewhateverjoboffered.Instead, supposed tobeaninternship,wheretheyoungper element isreferredtoas“Try-out-a-job”,whichnot agogic andself-strengtheningmethod.Thesecond 2013). The7-twentymethodisdescribedasaped “Arbetslinjen Klippan”(ArbetslinjenKlippan24January cooperative intheSwedishcityofBorlänge,called which isaconceptadoptedfromanemployee-owned the so-called“7-twenty”method(7-tjugo-metoden), project isbuiltonfourelements.Thefirstelement different fieldsandorganisations.Today,the of inspirationandcamebackwithelementsfrom market (interview3).Thestaffgroupwentonatour special difficultyingettingafootholdthe unemployed peoplewhoseemedtoexperience vestigate thepossibilityforanewprojectyoung at Jobbtorg.Thisgroupwascommissionedtoin people whoreceive social welfarebenefits,thereisastrongincentivefor modified setof rently running,forexample,atFilur.Becauseofthe also include job-searching activitiesatthe ship, aswellrequirementsofdailyattendanceand professionals specialisingin Filur wasinitiatedonpoliticalrequestbyagroupof tendance usuallydeprivesapersonofthatright. fare benefitstobequestioned.Unexplainednon-at “late arrivals”cancauseaperson’srightto (interview 2).Thismeans,forinstance,thattoomany welfare benefitsatthecitydistrictadministration reported directlytotheadministratorsof as anorm,andattendanceevenlatearrivalis work-plan at erate withthejobcoachesandfollowtheirindividual Stockholm SE participation inoneoftheprojectscur Jobbtorg. Dailyattendanceisrequired guidelines fortheadministrationof social welfarebenefitstocoop labour marketaccording youth Jobbtorg offices.Itcan unemployment Employment Categories social wel- labour Filur social ------a youngperson’slife(interview3). after theendofprojectwithsomuchchangingin maintaining theinterestofyoungpersonsolong and matching,aswellwithrecruitingmentors explains thattherehasbeenaproblemwithtiming that hasnotbeenworkingsowell.Theprojectleader the mentorprogrammeispartof once amonthfor2hours”(interview3).However, should beavailablefortheyoungpersonatleast person haddecidedtoaimfor,andthatmentor professionally withinthefieldofworkthatyoung have amentor,someonewhowasalreadyworking the Filurproject,eachparticipantshouldbeableto “Our thoughtwasthatafterthe8plus4weeksof as wellitsintensityandlength,wereadopted. for life).Thestructureofthismentorprogramme, from MentorSverigeandSkandiaIdéerförlivet(ideas tor programme.Heretheoriginalideawasinspired element thatconstitutesthe individual talkseveryweek(interview3).Thefourth and individualapproach,meetingeachparticipantfor at Filur.Instead,thejobcoacheshaveacontinuous longer themethodusedformappingparticipants comparable inthe that theoriginalideawastogetresultscouldbe with youngdrugabusers.Theprojectleaderstates within thesocialadministrationofficeintheirwork nosis), whichisastandardisedquestionnaireused was ADAD(shortforAdolescentDrugAbuseDiag beginning oftheproject,mappingmethodused written aboutthetargetgroupof In theprojectapplicationto addressing users 58.2. Concepts andways of they areatriskofpermanent welfare dependency. which getting stuckin means that the supportsystems, them inmeetingswithvarious authorities.Manyrisk understand andtoliveupthe demandsplacedon to thenreappear(…)Someyoungfinditdifficult Jobbtorg ordisappearforshortperiodsoftimeonly represents theproject’stargetgroup.Theygetstuckin interventions thatareavailabletothem.Thisgroup fail tocontinuetheirstudiesdespitethesupportand to establishthemselvesinthe growing groupofyoungpeople,aged16-24,whofail At Jobbtorgandwithinthe municipality. However,ADADisno community thereisa Filur projectisthemen labour marketorwho ESF, thefollowingis Filur project: Filur project - - 323

Further, build self-confidence around who they are, what they Our target group often lack fundamental social and want and are able to do (interview 3). practical skills required to be deemed employable by employers. It is a sprawling group of diffuse problems. 58.3 Internal organisation and Some young people are immature, others experience modes of working mental or emotional problems, they are on sick leave; they return and become sick again. It is likely that The Filur project is an ESF-funded project run by the some young people carry undiagnosed disabilities. Stockholm municipality, administered by their organi- Common to the group is low self-esteem and lack of sation, Jobbtorg, which is organised within the labour confidence in their own potential. Many young people market administration. The project is controlled by lack education; others have completed high school but a board. The chairperson of the board is also the have missing grades in one or more subjects coordinator of the youth activities at Jobbtorg. The rest of the board consists of representatives from Svenska ESF Rådet, 7 February 2013 (authors’ the employment office, social insurance office and translation) the employment department, the city district admin- The target group has broadened since the start of the istration, and Jobbtorg. Initially, there was also one project, and today most young unemployed people representative from Stockholm City Mission, but not that wish to participate can do so (interview 3). The any longer. The project leader says that a decision participants that we interviewed came from Jobbtorg was made to have only civil servants on the board, and had been offered a place in theFilur project based on arguments of efficiency (interview 3). after a few weeks and up until a couple of months The venue of the Filur project, with its address after enrolling with Jobbtorg (interviews 4 and 5). The in central Stockholm, has an obvious advantage. Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities project leader points out that the sooner a young The project leader works here alongside three job person joins the project the better, and she says that coaches and one career and education counsellor. sometimes the regulations of the national employ- In addition, they have one administrator and one ment office can be ineffective as it only allows a economist working part-time in the project. They young person to enter the Filur project after 3 months also have one informant employed through a special of unemployment when the young person is listed in youth employment programme run by the munic- the so-called “youth guarantee” (ungdomsgarantin) ipality. The idea of that the programme enables (interview 3). young people to gain employment in the municipal From our interviews, it has been suggested that organisation, or in one of its many companies, for a Jobbtorg can have a deterrent effect on the partici- limited period of time during which Jobbtorg financ- pants, and it remains unclear how much the fear of es the young person’s salary (interview 3). The ad- having to return to Jobbtorg is a motivating factor to vantage of the venue of Filur is that it is shared with continue Filur. Both interviewees said that they found the youth employment programme, which means Jobbtorg ineffective, unnecessary and unhelpful. They that the matchers working in the youth employment agreed that sitting at Jobbtorg was like being pulled programme, along with their contacts in different ad- downwards to a place where people were “just sad ministrations and companies, can meet directly with and only doing things because they had to”. Both of the young participants in the Filur project and help the interviewed participants described incompre- them to find interesting jobs in the municipality. hensible rules at Jobbtorg, and they both said that the offer to start at theFilur project seemed like a good option. They stated that the individual mapping showed them their capabilities and increased their self-confidence and pride in themselves (interviews 4 and 5). The project leader confirmed that the project provides better chances compared with Jobbtorg and is an opportunity for the young participants to get the time to examine their own motivations and start to 324 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities ployed inthenearfuture. continuously directedtowardstheyoungandunem with pedagogicalself-strengtheningmethodswillbe activities basedonanindividualapproachworking June 2013.However,onecanprobablysaythatmore termination datehasrecentlybeenprolongeduntil after theprojecthasended(interview3).Theproject’s will beimplementedintheregularactivityat cording totheprojectleader,partsof become self-supporting(Stockholmsstad2013).Ac during 2010,2011andthefirst6monthsof2012,had that hadparticipatedintheprojectandfinished ed inJanuary2013,78.5percentoftheyoungpeople ferred topoliticallyassuccessful.Inasurveyconduct be seen.Atthetimeofcasestudy,itwasoftenre The impactthatthe local welfare systems 58.4 Impact onthe Stockholm SE Filur projectwillhaveremainsto governance of Filur project Employment Categories Jobbtorg - - - - 325 SE Categories Stockholm Child and family care

59/77 Barn till ensamma mammor - Children of single (lone) mothers, Fryshuset Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities

59.1. Short description

Fryshuset is a foundation headed by the YMCA. When it started in Stockholm in 1984 it was located in a former cold-storage building (hence the name – Fryshuset, meaning “cold storage” in Swedish). The creation of the organisation can be seen as a response to young people’s needs. During its lifetime, Fryshuset has become a well-known and entrepreneurial organisation with a wide range of different activities. Today, Fryshuset runs schools and social programmes as well as vocational training, seminars and conferences, courses in theatre, music, and sport, as well as hosting events, concerts, parties and discotheques. Public funding covers around 5 per cent of the activities, and the rest is financed by a mixture of grants, endowments and fees for services such as educational and social programmes (fees that are not paid by young people or individual clients but by co-operational partners and government agencies). Fryshuset also runs activities in Malmö and Gothenburg. Throughout its lifetime, Fryshuset has worked to find new and innovative solutions to social youth issues and problems. Within the organisation, new projects have constantly been started. Fryshuset also cooperates with a range of public and private stakeholders. Since 2007, Fryshuset has run a project addressed at children of single mothers in Stockholm, and since 2010, this has also run in Malmö. The focus for this activity is on the children but indirectly the activity also affects themoth - ers, and as a part of this activity, Fryshuset offers parent education and different kinds of lectures for themoth - ers. The aim is to support and strengthen children that are living with a single mother in economically vulnerable circumstances. Fryshuset describes the support as being provided from a health perspective with focus on the children’s and the mothers’ everyday situation. 326 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities and mentions thatsixpackedbusesleft have becomeexpertsatarranging events”shestates, from Stockholm.Thattriptookalot toorganise:“We group wastakentoalargezoo about3hoursaway summer, theprojectleader told usthatthewhole pool, visitingafunparkor zoo.Forinstance,last visiting amuseum,orgoingtothepublicswimming together, todosomethingextraordinary.Itcanbe that theytakethewholegroup, call “activities”.Duringthese“activities”theideais The secondactivityofferedbytheprojectiswhatthey having agreattimeintheotherroom(interview6). just sitandrelaxforawhile,knowingthatthechildis for themthisisamuch-appreciated“break”ortimeto come hereareresponsiblefortheirchildren24/7and works theotherwayaroundaswell.The allow themselvestofeelhappy.Attheproject,it according tohowsadtheir experience alot.”Accordingtoher,childrenbehave while they’rehere,whichissomethingthatthestaff know thattheydon’thavetolookaftertheir hood memories.“Thechildrencancomehereand project wantstogivethesechildrenpositivechild joy” (interview6).Shecontinuesbyexplainingthatthe project leaderwhoweinterviewed,“wearegoodat The ideaoftheprojectistoencouragejoy,says and takeresponsibilityforamotherfeelingbad. themselves andlaugh,withouthavingtothinkabout one windowofopportunitywheretheycanenjoy ered associallyvulnerable,needtohaveatleast ings isthatchildrenof The fundamentalideabehindthesemonthlymeet teers -“amigos”intheproject(interview6). sports, artsormusicworkshopstogetherwithvolun children aredividedaccordingtoageandtakepartin and supportoneanother.Meanwhile,thegroupof during whichtheywillalsohavetimeto participate inlecturesconcerningaspectsofhealth, rate groups.Thegroupof monthly meetings, the participationinvolvesaround100persons.At the Stockholmproject.Onmorenormaloccasions, children -havebeenattendingamonthlymeetingin monthly meetings.Upto500people- (lone) The projectoffersthreetypesofactivitiesforsingle addressing users 59.2 Concept andways of Stockholm SE mothers andtheirchildren.Thefirstisthe mothers andchildrenformsepa mothers whocanbeconsid mothers can,forexample, mothers are,anddonot mothers andchildren mothers and network Fryshuset at mothers that Child andfamilycare Categories mothers - - - - - project leader states(interview6).Thespecial meth people recognisetheproblems ofthesechildren”,the of lone to representandmakevisible thegroupofchildren work “behindthescenes”.They givelecturesandtry Beside theseactivities,theprojectleadersdoalotof meetings (interview6). and theyaretheretosupportthe volunteers arecalled“fellowhumans”intheproject and answerallthequestionsofparticipants.The two colleaguescouldnotpossiblymeetalltheneeds unteers. Theprojectleaderexplainsthatsheandher During theseandallmeetings,theprojectinvitesvol ing arelationshipwiththeappropriateinstitution. mothers, thismeetingcanbeafirststeptoestablish personal counsellingtothe different fieldsandinstitutionstocomegive a fairtwiceyearwheretheyinvitedexpertsfrom tence toanswer.Thisresultedinanideaarrange the threeprojectleadersdidnothavecompe function andact,oftenthesewerequestionsthat or health,questionsabouthowthesocialservices could berelatedtolegalissuesofcustodymatters, from mothershavingallkindsofproblems.These beginning oftheproject,staffreceivedmanycalls that theprojectstaffwereverypleasedwith.At es and,atthetimeofstudy,hadreachedaform the projectthathasbeengoingthroughmanychang is calledthe“boomerangmeetings”.Thisapartof The thirdactivityat company (Interview6). hopefully howtheyhavealsocreatedvalueforthe will experiencehowthefundshavebeenused,and these eventswiththem.Inthatway,thecompanies companies andinvitethemtocomeinco-organise special wayoffundraising.Theytrytogivelectures people employedintheprojecthaveworkedouta child. Thispartoftheprojectiscostlyandthree build uptheroleofmotherineyes having tothinkaboutthecost,andthisisaway are thingstheir She arguesthatinthechild’sview,theseactivities to seetheir child. Theprojectleadersaysthatthechildrenneed up andsupporttherelationshipbetweenmother 6). Themainideabehindtheseactivitiesistobuild number ofpeoplethatthisprojectinvolved(interview other colleaguesinthehousewhentheysaw that timeandtheyreceivedmuchrecognitionfrom mothers. “Thereismuchtobe donetomake mothers laughandhaveagoodtime. mothers takethemtodo,without Children ofSingle(Lone)Mothers mothers. Formanyofthe mothers during - - - - - 327

od of fundraising, mentioned above, is also a way to 59.4 Impact on the governance of make more stakeholders recognise this group. The project has also recently initiated cooperation with local welfare systems Södertörns högskola, a university college in Stock- Making the group of children of economically vulner- holm, where they give lectures to university students able mothers visible to politicians, who, according to who are studying to become teachers. Here the pro- the project leader, hold a lot of prejudiced thinking ject leader sees a good opportunity for influencing the against this group, could have an impact on political general view of this group of children (interview 6). decisions about, for example, the availability of child care outside business hours and child care at night, 59.3 Internal organisation and which has been debated locally at different periods of modes of working time. Another field where advocacy of this group can have an impact is in the discussion about the national There are three persons working in the project. They norm of social welfare benefits, which today does have become “event experts” and organise most of not include leisure time activities for children (for the target group’s activities. They also raise funds example, fees for sport or music lessons), or monthly and apply for allowances. Volunteers are engaged in internet costs. This could mean that some children do the projects as “amigos” who are there to attend to not receive information sent out from their schools or the children, and “fellow humans” who support the from other organisations that communicate mostly mothers. Fundraising and advocacy are important via the internet. These are questions that the project responsibilities taken on by the project staff, and both at Fryshuset is advocating, and where it might have responsibilities seem to encourage the other, giving an impact on the welfare system (interview 6). An- them the same purpose. other aspect that is important is the way that they try Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities to bring the help closer to the mothers by arranging the boomerang meetings; thus, working to empower the mothers to start their individual processes for a better situation. 328 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities the MillionProgramme areasthemselves, and therefore,theyareeasily manipulatedbythenegative picturethey mostly unemployedpeople without opportunities(interview7).Theinitiatorsaysthat thepoliticiansrarelylivein the MillionHomesProgrammeareas aredepictedinthemedia:asrundown,deprived areas whoseresidentsare state levels.Accordingtothe initiatorof core ofthe strives forcommunicationacross themorethan100orsodifferentmillionprogramme areasin supposed tofunctionasaplatformfornegotiationswith relevantpoliticiansandcivilservants.Itisaninitiativethat it functionsbothasameetingplaceandthink-tank for ideasandinnovativeprocesses.However,itisalso million programmeareasinthedirectionofwhatcitizens want( gramme areasinSwedentotakeactionandstartpositiveprocesses,orinnovations, inorderthechange The ideaof 1990s andearly2000s(USK2006;Nordfeldt2012). 1980s andaconclusioninthereportwasthattherehave beennosignificantchangesin socially vulnerable”.Manyoftheareasthatareclassified associallyvulnerablewereidentifiedattheendof 8 percentofneighbourhoodscanbedefinedas“socially vulnerabletoahighdegree”,and19percentas“partly mary offourfactors:rateincome,education,immigrationandemployment.Theconclusionfromthiswasthat In areportpublishedin2006,measurementsof from outsidetheOECDregion,havebeendirectedtowardstheseso-called“under-privileged”suburbs. ies duringthistimearetodayassociatedwith were builtoveraperiodof10years.Manythelarge The MillionHomesProgrammewaslaunchedinthemid-1960stocombat tions thatmanyoftheseareasarebesetwith. terms ofthephysicalbuildingsandenvironment,rangeservices,butalsodealingwithnegativeconnota Programme” (“Miljonprogrammet”)andthepoliticalconsensusaboutneedtoupgradetheseareasbothin The backgroundto“ 60.1 Shortdescription Programme) Miljardprogrammet (TheBillion 60 Stockholm SE Miljardprogrammet liesasharp critiqueofhowdecisionsabouttheareasaretaken atmunicipaland Miljardprogrammet istouniteandinspirethepeopleliving acrossthedifferentMillionHomespro Miljardprogrammet” (TheBillionProgramme)canbetracedtothesocalled“ /77 Miljardprogrammet, political decisionsaremostlybasedonthewaythat Neighbourhood revitalization/Housing Categories segregation andsocialproblems.Refugeesimmigrants,primarily segregation andsocialexclusionweredescribedbasedonasum housing estatesthatwerebuiltinthesuburbsofbigcit Miljardprogrammet 2012).Onecouldsaythat housing shortage.Amilliondwellings segregation inthelate Sweden. Atthe Million Homes - - - - 329

get from the media. However, for the citizens this that we deserve, a lot of other things will change too picture can become absurd when they cannot identify – our chances of getting a job or something as central with what is said about them and about the places as our self-confidence. where they live. He argues further that decisions Miljardprogrammet, 2012 (authors’ translation) based on the negative media picture, becomes an obstacle to entrepreneurial ideas and engagement that The document also gives very firm practical advice, exists among the citizens in these areas (Interview 7). such as how to organise a start-up meeting (“you will need a flipchart”, “papers to distribute for people to 60.2 Concept and ways of write their ideas” and “you will need to take people’s addressing users email addresses” etc.), how to see possibilities rather than problems, and how talk to the media with a The project started in 2011 after the initiator had smile (sic) without confirming their negative view of made a survey on the types of changes required by the Million Programme areas. There are also rec- citizens in the Million Homes Programme areas. This ommendations about which other organisations to survey was in itself a response to the many political approach, for example, to hire a venue for meetings, discussions about different ways to change the sta- and thorough advice is given on how to draw the tus of the Million Programme areas, from costly ren- attention of the local media to the start-up of Miljard- ovations to special job projects aimed at providing programmet in each area (Miljardprogrammet, 2012). more job opportunities in the areas. According to his Miljardprogrammet uses the networking ability that survey, the main change requested by the citizens is provided by Facebook to communicate. Miljard- was better service in the centre. (The Million Homes programmet is a programme without any leader or Programme areas, as well as most suburbs, are built board; however, the inspirational role of the person Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities around a centre with shops and municipal facilities that initiated it is important when it comes to under- that can include libraries, public swimming pools and standing the attention that the Miljardprogrammet sports facilities as well as health care-centres.) The has been getting (for example in DN, 18 October citizens also requested enhanced security and better 2011, etc.). The initiator is well known for his engage- housing standards and public environments, as well ment in the suburbs and clearly his personal position as better police, education and health care (interview is an advantage. It is, however, uncertain as to how 7). In 2012 the ideas of Miljardprogrammet was put many communities have actually been adopting the into print: programme since the start of 2012. In time of writing The core aspect of Miljardprogrammet is that we there are three groups registered on Facebook, from who want to change things are often stopped by different Million Programme areas, and these are others, who do not want the same things as us. The Vårby, Alby and Jordbro. Around 1,300 people have way things normally work is that you get an idea of “liked” the page. It is of course uncertain whether this something that you want to do. You apply for money is a real count of how many people and communities to do it from the municipality or somewhere else. are engaged. Miljardprogrammet is supposed to be If you get the money you move to action but if you running from 2012-2020 (interview 7). don’t you don’t and that is where things go wrong.(…) Miljardprogrammet addresses users (or “citizens” as No matter if you get the money or not you will take we should say in the case of Miljardprogrammet) in action; you will just have to figure out a different way. an empowering way, focusing on their possibilities Almost everything is possible and what it depends on to change things in a desired direction rather than is whether or not people are doing things; if they put on problems or political hindrance. It is a project that their time into it (..) Those who have the power over seeks to be a platform for all residents that want to money or allowances are very seldom people from be engaged in positive change in the Million Pro- the Million Programme areas (…) In the end, the result gramme areas across Sweden. It can be seen as an will be that the status of the Million Programme areas attempt to create a positive identity for the people in will be viewed with respect, and we who live here will the areas, enhancing the sense of community so that be viewed as resources and people that are needed it can become strong enough to change the negative in society. And when we and our areas get the respect media picture to a more positive one. The way to do 330 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities from abottom-upperspective. it stressestheideasshouldbeengagementledand Programme areasareinneedof(social)change,but isation. TheprogrammerecognisesthattheMillion suggestions andexpertisein behind by thenegativeassumptionsofmedia.Theideas is understoodtobetoopaternalisticandmanipulated of the seen. Atthecoreof governance on What impact local welfare systems 60.4 Impact onthe than othersthatareengagedinit. about notwantingtorepresenttheprogrammemore sociate with initiator andalsoentrepreneur,isthefacepeopleas no formalorganisationorrepresentationatall.The project”, whichseemstoreflectthefactthatthereis website theprojectisdescribedasa“truedemocratic on civicengagementand Miljardprogrammet hasanadhocorganisationbased modes of working 60.3 Internal organisation and bours andfriendsthatcansupportthem. and togetthemintouchwithotherpeople,neigh with andbeinspiredbytheirowninnovativeideas, that istoletthepeoplelivingintheseareascomeup Stockholm SE governance ofthe Miljardprogrammet couldencouragecitizens’ Miljardprogrammet, althoughheisclear Miljardprogrammet willhaveonthe local welfaresystemsremainstobe Miljardprogrammet liesacritique local welfaresystem,which participation. Ontheir neighbourhood revital governance of Neighbourhood revitalization/Housing Categories - - - receive social welfare allowances. ket policy.ParticipatinginFilur isarequirementto has beentheprevailingapproach for line” withinthe are thuslimitedtofitinwith thedominant“working dividually adaptedmeasures.Theinnovativestrands with thetargetgroupandahigherdegreeofin ployed persons.Thismodelworksmoreintensely a modelthatisespeciallyadaptedtoyoungunem methods, whicharecombinedand“translated”into a “mosaic”thatcomprisescollectionofideasand The modelthatisusedinthe the publicsector,andmadepossiblebyEUfunding. system. Filurisdevelopedandinstitutionalisedwithin a newwaytodeliverservice,butwithinthedominant “young outside”.The system. Theseyoungpeoplearesometimeslabelled lation tothe unemployed personsinamarginalisedpositionre develop amodelthatistargetedtowardsyoung – youth The Filurprojectisbasedonahighlytopicalissue scaling up,andfinally, discussed withafocusonpartnership,diffusionand sion onsomecommontraits.Commonalitieswillbe on theinnovationsseparately,withafinaldiscus the localgovernment.Thediscussionbelowwillfocus ers. Theseexamplesalsorelate,indifferentways,to kinds ofideasandapproaches,aswellstakehold spring fromdifferentneedsandexemplify to studyin The threeinnovativeactivitiesthatwehavechosen tive ornewtypesofservices. field, buttheseprocurementsdonotrequireinnova- means thattherearenewproviderswithinthewelfare filled byprivatefor-profithealthcarecompanies.This producers. Sofar,thesewindowshavemainlybeen opened windowsofopportunityforalternativeservice procurement (LOU)andfreedomofchoice(LOV)have choice. Deregulationandlegislationoncompetitive the ing thestrongemphasisthatsteeringmajorityof social innovationmayappearcontradictory,consider- policy discourseinStockholm.Thelackofinterest and Nordfeldt2013).Innovationisnotpartofthe in oursecondcasestudy-thecityofMalmö(Carrigan In Stockholm,socialinnovationisalessusedtermthan Conclusions local government places on diversity and consumer local government places on diversity and consumer unemployment –andaperceivedneedto Stockholm, andthataredescribedabove, labour market,andalsototheeducation activation policythatsincethe 1990s Filur projectcanbedescribedas sustainability. Filur projectisinitself labour mar------331

The second innovation, Children of Single (Lone) it has so far been put into practice only to a limited Mothers, is an example of an innovation initiated degree. It has a clear policy orientation and is spread within the civil society and by an organisation known via social media. for its entrepreneurial ways of working. Fryshuset is a The discourses and development lines that have Stockholm-based organisation but with networks and constituted the basis for Miljardprogrammet reflect contacts in municipalities in different parts ofSwe - a political consensus about the need to improve the den. As described above, the Swedish welfare system living conditions in the outer suburbs. The political has opened up to alternative producers of welfare standpoints on how to do this are thus different. One services. A parallel development is that during the last comprehensive proposal is to promote the building of few decades civil society organisations have attract- mixed dwellings both in terms of the physical build- ed growing interest and have been granted greater ings and of types of ownership. Another suggestion legitimacy from local governments. However, this has is to move workplaces, such as local administrations, resulted in a growing rate of social services produced from central districts to outer areas. The problem by CSOs but only to a limited degree. However, there areas that are pointed out are especially the so-called are expectations that CSOs can deliver new solutions “Million Homes programme” areas. There is a need for unsolved social problems and help to strengthen for long-term development in these areas. Problems the welfare system by filling gaps. here are often related to the population, for example, One might argue that the project Children of Single lack of language skills and high rates of unemploy- (Lone) Mothers is more in line with the traditional ment. These areas are often defined as “immigrant role of civil society organisations, namely to focus areas”. At the core of Miljardprogrammet lies a sharp attention on new needs and new groups with needs criticism of how decisions about the areas are taken that are not covered in other ways. A traditional role at municipal and state levels. Miljardprogrammet Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities of these organisations is to be pioneers and to offer aims to engage people in these areas so they can services that are not covered by the public sector. influence political decisions and their own living con- Since the start of the organisation, Fryshuset has ditions. Within this programme, citizen initiatives are worked as a pioneer and entrepreneur within the encouraged to participate in entrepreneurial activities field of youth policy. and co-production. In this way, Miljardprogrammet There are elements of advocacy in this innovation. could lay the groundwork for local innovation, but to There is a will from workers in the project, from what extent and in what ways still remains to see. Fryshuset, to raise attention about the issue of child poverty and the situation for unemployed or low-in- Partnerships come single mothers. The staff from Fryshuset imple- Partnerships are a feature of all the innovations, but ments this by cooperation with a university college vary in design and extent. The three cases feature in Stockholm and by giving lectures and seminars to both intra- and inter-organisational cooperation. Filur different stakeholders, including politicians. In this is mainly based on intra-organisational cooperation way, there is an ambition to contribute to long-term between units in public administration, but reaches changes for the target group, both concerning the out to employers in different sectors.Fryshuset’s children and the mothers. The project might also funding builds on a mix of grants, endowments, shed light on local needs for child care at “uncomfort- and fees for services that are paid by government able” times – for example, night-time child care. This agencies but also by co-operational partners, such could be an important basis for single mothers to as private for-profit businesses.Fryshuset works get a job, although many jobs in occupations that are with platforms and networks for youth activities and still female-dominated, within health and social care, advocacy. Miljardprogrammet is a platform for citizen have “uncomfortable” working hours. Child care in the motivation, which builds on networking and contacts evenings and at night is currently on the local political between citizens, politicians and different stakehold- agenda in Stockholm. ers involved in neighbourhood revitalisation. The third innovation – Miljardprogrammet - is a citizen initiative started by a local entrepreneur. Miljardpro- grammet can be defined as a policy innovation, but 332 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities maintenance. Therefore, thelong-termoutcome and is heavilydependentoncitizen engagementforits involvement and,therefore, asdescribedabove, Miljardprogrammet isaplatform forcitizens’ with thepublicandprivate sector. through inter-sectoralandmulti-sectoral One wayfor will probablyfindwaystofinancethemandcontinue. which arenotcoveredbyotherorganisations,they isation believesthereisaneedfortheseactivities, activities basedonneeds,soaslongtheorgan Fryshuset isastableorganisationwithrangeof ordinary activitiesof The workmodelwillthereforebeimplementedinthe confirmed inanevaluation(Stockholmsstad2013). the 3-yeardurationofproject.Thishasalsobeen is describedasasuccessinreportsummarising predict andstillremainstobeseen The sustainabilityofthestudiedprojectsishardto Sustainability individual engagementanddrivingforces. time, thismeansthattheprogrammeisdependenton using socialmediasuchasFacebook.Atthesame To spreadideasandinspirationtheprogrammeis positive processesintheirrespectiveneighbourhoods. Programme areasinSwedentotakeactionandstart and inspirepeoplelivingacrossthedifferentMillion core aspects.Theideaisdescribedasacalltounite In Miljardprogrammet,scalingupanddiffusionare (Engel 2014). with localentrepreneurialstakeholdersand the problemofdiffusionhasbeentobuild other placesandstakeholders. hindrances tospreadinglocallyinitiatedactivities partly succeeded,buttherehavealsobeenmany how andmethodstoothermunicipalities.Thishas organisation hashadambitionstospreaditsknow- During “sell” aninnovationtootherstakeholders/places. the publicsectortherearenoincentives,ortime,to concept. Apossibleexplanationforthisisthat no indicationsofadesiretospreadorscaleupthis used inothercontexts. different inspirationsandtangibleworkmethods Filur isinitselfaresultofdiffusion,i.e.mosaic Scaling upanddiffusion Stockholm SE Fryshuset’s nearly30-yearlifetime,the Fryshuset toachieve Jobbtorg In ourcasestudy,wefound Stockholm. Fryshuset’s answerto sustainability is . TheFilurproject partnerships networks initiatives within - remain mattersforpublicdebatethenearfuture. that Miljardprogrammetisaddressingwillprobably sustainability remaintobeseen.However,theissues state. level studyofsocialassistance intheSwedish Thorén, K(2008) att sökajobb.Stockholm:Stockholmsstad 2013. Stockholms stad(2013) wilcoproject.eu Nijmegen/Liege: WILCOproject.Availableatwww. Policy OrientationsinLocalWelfare,Stockholm,Sweden. Segnestam Larsson,OandCarrigan,A(2013) Policy Brief,May2006,OECDObserver. OECD (2006) Stockholm: Stockholmsstad. framtagande avhemlöshetsstrategiförStockholmsstad. Nordfeldt, M.andWiklund,J(2013) Nordfeldt, M(2012)CityReportStockholm,WP3,WILCO. 2012, p.16. Bostadsmarknaden iStockholmslän2011.Rapport Länsstyrelsen iStockholmslän(2012) Malmö: Liber,pp.55-85. arbetsmarknadspolitik ochsocialtarbeteiförändring. H. andHornemannMøller(eds) och EU:ssysselsättningsstrategi”,inJohansson, Johansson, H(2009) civila samhället.Tyresö:Sivartförlag.Inpreparation. fokus: Socialtentreprenörskapinomochbortomdet sociala entreprenörskapetsgränser.In Engel, C(2014) Malmö, WP5, Carrigan andNordfeldt(2013) Uppsala, Norrköping:Integrationsverket. etniskt segmenteradestaden–exemplen Bostadsmarknadens institutionerochgrindvakteriden Bråmå, Å.,Andersson,R.&Solid,D(2006) 2012. Boverket (2012b) Boverket. slutsatser frånbostadsmarknadsenkäten Boverket (2012a) References: Bibliography Växjö:VäxjöUniversity Press. Karlskrona:Boverket. Stockholm: Länsstyrelseni OECD TerritorialReviews:Stockholm, Sweden. Fryshuset frånnorrtillsöder?Det “Activation policyinaction”:a street- Bostadsmarknaden 2012-2013-med Ungdomars boende–lägesrapport “Densvenskaarbetslinjen Projekt Filurgerungdomarmod Socialinnovationsin Aktivering – Underlag inför Läget ilänet. . Karlskrona: Stockholm och Stockholm län. Fryshuset i welfare Urban

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Documents:

>> Utl. 2007:116, Dnr 325-113/2007. Riktlinjer för handläggning av ekonomiskt bistånd.

>> Utl. 2007:117, Dnr 331-1800/2007. Jobbtorg – från bidrag till arbete.

>> Arbetslinjen Klippan, 2013.01.24, www.arbetslinjen-klippan.se

>> Svenska ESF rådet, FILUR fördjupade insatser leder unga rätt, 07.02.2013, www.esf.se

>> Miljardprogrammet, 2012, www.miljardprogrammet.se

>> DN 18.10.2011, Sluta sprida lögner om Miljardprogrammet, www.dn.se/debatt

Interviews:

>> Interview 1 – Job coach at the Filur project (10.05.12)

>> Interview 2 - Head of the labour-market administration (11.05.12) Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities >> Interview 3 – Project leader at Filur (19.09.12) >> Interview 4 – Participant at Filur (young woman) (19.09.12)

>> Interview 5 – Participant at Filur (young man) (19.09.12)

>> Interview 6 - Project leader at Children of Single (Lone) Mothers (22.10.12)

>> Interview 7 – Initiator of Miljardprogrammet (19.10.12)

>> Interview 8 – Participant/fellow entrepreneur at Miljardprogrammet (07.06.12)

SE Sweden Malmö

Anna Carrigan and Marie Nordfeldt (Ersta Sköndal University College) 336 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Social enterprise Segregation Partnerships Participation Neighbourhood revitalization Integration Incubator Entrepreneurship Empowerment Collaboration Child care Keywords: Local background of thesocialinnovations Introduction Malmö SE and itisagrowingcity. Malmö isthethirdlargestcityin entrepreneurial initiatives. looking tothefor-profitandnon-profitsectorsforinnovations budgets andunsolvedsocialproblems,localcentralgovernmentsare nities foralternativeproducersof in termsofderegulationand there havebeenstructuralchangestakingplacewithinthefieldof However, duringthelatestdecades,andstillcontinuingtopresentday, in the developmentof novations andsocialinvestments,atboththenationallocallevel.Since for-profit -sector.However,thereisawakeningpoliticalinterestinsocial ning development has,bytradition,notbeenconsideredasinnovative(Røn launching ofnewproducts,inventionsandtechnical in theSwedishcontext.Innovationsarestillverymuchrelatedto It cannotbeclaimedthat system includelocalcompanies, suchasthelocal local cultureandthecitydistrict libraries.Furthermore,the disabled, socialservicesand This includechildcare,elementary schools,careoftheelderly, administrations areresponsible forprovidingservicesinparticularareas. In July2013,theterritorialdistrictsweremergedtofive. Thecitydistrict administrations and10territoriallyorganisedcitydistrict administrations. case study,thelocalauthorityin alliance withtheLeftWingPartyandGreenParty.At thetimeof ment. Duringthepresentterm,SocialDemocratsare governingin Malmö hasalongandstrongtraditionofsocialdemocratic social benefits,andgrowing with severesocialproblemssuchashigh Larsson 2012).Atthesametimecityhasstruggledfor severaldecades corporate servicesandfinancehealthcare tre Academy.Thelargestsectorsin University CollegeofFineArts, ty, educationalinstitutionsincludetheWorldMaritimeUniversity,Royal rently 25,000universitystudentsinthecity.Inadditionto Malmö Universitywasestablishedin1998,andthereare,forexample,cur made attemptstotransformfromanindustrialcitya“knowledge”city. affected thelocaleconomyof commuting withintheregion.Anumberofchangeshavetakenplacethat since theyear2000byabridgeforcarsandtrains.Thishasincreased ing thecapital,Copenhagen. gion, whichcoverstheverysouthof Sweden hasbeendominatedbyservicesproducedthepublicsector. (Ersta SköndalUniversityCollege) Anna CarriganandMarieNordfeldt Authors et al.2013).Innovationhasalsomainlybeenrelatedtotheprivate– Malmö isacentralpartoftheso-calledÖresundre welfare stateinthemid-1900sfieldof social innovationisawidespreadnotionorterm segregation. social welfarebenefits,localleisure activities, Malmö andCopenhagenhavebeenconnected privatisation. Thesehaveopenedupopportu Malmö. Onamoregenerallevel, Malmö AcademyofMusicand Sweden, witharound300,000inhabitants, Malmö wasorganisedinto12field-specific welfare services.Moreover,withstrained Malmö aretradeandcommunications, Sweden andpartsofDenmark,includ unemployment, thehighcostsof housing company(MKB), welfare. (Segnestam development. Welfare Malmö Universi- local welfare local govern- Malmö Thea- Malmö has welfare welfare ------337

the Malmö Incubator (MINC) and other service and age problem and to modernise the housing stock. In industrial companies that require more business-like most cities, this resulted in new housing estates being organisation (Malmö Stad 2012; Segnestam Larsson built in the urban periphery. In the city of Malmö, 2013). Malmö can be described as a city of many pro- these areas are located both in the central city and jects within the field ofwelfare. suburban areas. Some of the areas built during the The city of Malmö has a long history of engagement Million Homes Programme, especially those that were with civil society, with traditionally strong associations of large-scale and high-rise character, have been in the fields of sports, culture, and leisure, organised subject to criticism. Problems that have been pointed under the umbrella organisation MIP (Malmö ideella out concerned both the areas’ physical appearance föreningars paraplyorganisation) (ibid 2013). and the lack of social and sometimes also commercial facilities (Andersson et al., 2010). Today, the large Social Innovation in Malmö housing estates in the city suburbs are associated with segregation and social problems. In these neigh- In the city of Malmö the term “social innovation” bourhoods, there are close connections between is present in the dominant policy debates on local segregation, social welfare dependence and poverty welfare. There seems to be a struggle among stake- (Schierup 2006). holders within the welfare field to find new and more The innovations studied have been chosen accord- innovative ways to handle social problems such as ing to a broad definition of innovations, as ideas youth unemployment and segregation. Another or approaches that are new in a particular context, term used at the policy level is “social sustainability”. but implemented in practice to some degree. The Malmö has launched a “Commission for a Socially innovations combine in different manners the policy Sustainable Malmö”, and one of its main tasks is to fields and target groups that are pointed out in the Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities propose strategies for reducing health inequalities, WILCO project. The innovations are of different scales and improve the long-term living conditions for the and complexity, including a broad neighbourhood citizens of Malmö. (Segnestam Larsson 2013). programme, consisting of different projects Om( - The innovations that we have studied in Malmö have rådesprogrammet), via the Coompanion Incubator, the developed in the context of the restructured Swed- aim of which is to provide inspiration and a support ish welfare state, a local government searching for structure for innovations, to a defined project, i.e.Yal - new solutions for social problems, and a growing la Trappan. The empirical material for this report has interest in social enterprises, social entrepreneurship been collected from websites, various official docu- and innovations. The link with opportunities of EU ments and through interviews with staff and users at funding is clearly present in the innovations that we the studied projects. The interviews form the primary describe below. The Coompanion Incubator and Yalla basis for the descriptions of the respective innova- Trappan are examples of projects that aim to create tions, also including interviews that are not directly work opportunities through the development of new referred to in the text below. co-operative businesses and through labour-integrated social enterprises. The Area Programme (Områdesprogrammet) has a somewhat different background. The ideas this programme is based on can be traced back to ideas of neighbourhood revitalisation of run-down “segregated” areas, suffering from socio-economic stagnation. Områdesprogrammet seeks citizen engagement and the involvement of civil society stakeholders in new types of cooperation. Områdesprogrammet is conducted in neighbourhoods that were built during the so-called Million Homes Programme that existed between the mid-1960s and the mid-1970s. The aim of this programme was to combat the housing short- 338 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities JobbMalmö (themunicipalemployment office)orthemunicipal and stakeholders,i.e.different departmentswithinthecitydistrictorganisation(for exampletheschools,libraries, Områdesprogrammet grammet inHolma-Kroksbäckisinvestigating, alongwith (interview 1).Possiblylinked tothe“transitarea”islackofasensesecurity,which isanissuethat as transitareaforimmigrants,whotendtoleavesoon astheycangetemploymentand/or clude around 5,000people(outof32,000inthetotaldistrict Hyllie).Problemsthatarementionedintheinterviews, problems thattheytrytofindsolutionsto.The when thatmotoracceleratesandchargesoff(interview 1). gine”, andtheywanttomakesurethatthepeoplein making itmoreattractivetoitsinhabitantsandothersTheintervieweesspeakofthesenewplansasapossible “en According totheheadofprogramme,theseprojectscouldhelpgraduallychangeidentityarea, skating rinkinHolmaandthereisalreadyanewpopular“theme”parkforchildren. the MillionHomesProgrammeareainHolma-Kroksbäck.Therearealsoplansforanewswimmingpoolandice district ofHyllie.Theseplanscontainnew the “MillionHomesProgrammeareas”.Currentlytherearefarreachingpoliticalplansforanewareawithin met inHolma-KroksbäckisnotdirectedatthewholeofHolma-Kroksbäck;insteaditfocusesonacertainarea,i.e. together withasecretaryandbusinessconsultant,employedtoworkon tainable Development,isresponsiblefortheprogramme,togetherwithprogrammecoordinator.Theyare, One wayofdescribingtheconceptions 61.2. Conception andways of addressing users We visitedHolma-Kroksbäck,inthedistrictofHyllie,whereHeadDepartment 61.1. Shortdescription Kroksbäck Områdesprogrammet 61 Malmö SE unemployment, povertyandlowlevelsofeducation.The programmecoordinatorfurtherdescribesthearea inHolma-Kroksbäckaimsto seeknewwaysofcooperationbetweendifferentadministrations /77 housing, asportsarenaandshoppingmalljustaroundthecornerfrom Områdesprogrammet Related toallpolicyfields Categories Million HomesProgrammeareainHolma-Kroksbäckisinhabited by Malmö University. Million HomesProgrammeareaalsogainfromtheride inHolma-Kroksbäckistolookatthearea-specific housing company,aswell thedifferentservice inHolma- Områdesprogrammet Integration andSus housing elsewhere . Områdesprogram Områdespro - - - - - 339

centres organised regionally and nationally, for exam- initiative to support, and that the recently opened ple the local health care centres and the governmen- office instead would be closed. One of the women – a tal employment office (AF).Områdesprogrammet also long-term unemployed woman - from the association seeks cross-sectorial cooperation with private stake- was employed in the office. After 3 weeks the new holders as well as with different localcivil society or- Info Centre had served 30 clients, which was 300 per ganisations, such as the Afghan Association (Afganska cent more than what had been accomplished by the föreningen) and Active women in Hyllie (Aktiva kvinnor “civil servant project” in 1 year (interview 1). i Hyllie Röda Korset ), Red Cross ( ) and Save the Children The Info centre was strategically placed within the Rädda Barnen ( ). Malmö University is also involved in library administration, to make sure that it would Områdesprogrammet and cooperating specifically with remain in municipal administration even after 2015 in Holma-Kroksbäck, for example, by conducting the when Områdesprogrammet will end. The head of survey mentioned above. Malmö University is also the programme states that this is the way they will Områdesprogrammet assisting in identifying possible generally try to work, i.e. not making projects depend- social innovations or innovative processes within the ent on the Områdesprogrammet, but independent programme itself, which may strengthen the pro- and sustainable over time. The idea now is that the gramme’s legitimacy at the policy level in Malmö. person who is employed in the Info Centre is sup- Områdesprogrammet is seeking to address its “us- posed to give local service to the citizens there. In ers”, i.e. the inhabitants of the Million Homes area in practice, this could mean answering questions about Holma-Kroksbäck, as partners and co-producers. One education, giving information on making applications good example of this is a proposition from a local, and filling in the right kind of forms, translating letters young unemployed person who wanted to become and information from different institutions, or helping a link between families and teachers in the school. people surf the internet for information regarding, for Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities This person wanted to set up homework classes after example, their rights or institutional procedures. The school for the students. He and two other persons Info Centre can also help to direct people’s questions from Holma were employed to conduct the suggest- to the right institution, be it the job centre or the tax ed homework classes. The head of the programme administration office or something else. Both the believes that if they had employed ordinary teachers municipal and the national employment offices have without the local connection, those homework classes representatives at the Info Centre a few hours a week. would not have been as popular (interview 1). At the time of the study, there were far-reaching plans Another example of the idea of reaching out to the to open another Info Centre in Kroksbäck and this people living in the area and to the local civil society one will be organised by Afghanska föreningen (the is the process behind the Holma Info Centre. The ad- Afghan Association) with the support of Områdespro- ministration of Områdesprogrammet in Holma-Kroks- grammet, which will provide education and start-up bäck had planned to open a new “citizen office” where advice. Here, however, the aim is not to “take over” locals could get information and citizens’ advice. Two the business and to employ somebody under the mu- civil servants were employed to serve in the office, nicipal administration, but to let the association take which was located in the library in one of the schools; full responsibility for the centre. “we thought of having representatives there from for example the different administrations, as well as politicians that could come to meet and talk to the people. It was a great idea and we opened with a nice ceremony, but no one came. After a year we had had 10 visitors in total” (interview 1). During the same period, a civil society organisation called Active Women in Hyllie (Aktiva kvinnor i Hyllie) planned to start an activity similar to a “citizen office”, in a venue that had already been arranged by them, through the local public housing company MKB. Aktiva kvinnor asked for support and it was decided that this was a good 340 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities force statisticsand give adoublepositiveoutcomeofincreasingthework employ personsfromthe example throughtheRedCross. is alsoatendencytowelcomevoluntarywork,for themselves orbythe ready existinginfrastructuresprovidedbythecitizens seeking localanswerstoproblems,andusesal the localcommunity. person asaresourcewhenitcomestoconnections ployed, aswellacknowledgingonelocallysituated scale by nies. However,thisstrategyisalreadyusedonasmall the municipalityisclosingdealswithbuildingcompa considerations inprocurements,whenforexample bäck isarguingforpoliticalreformconcerningsocial in find andsupport in across-sectorialmanner,whenitreachesoutto Holma-Kroksbäck, theprogrammealsoaimstowork work. Clearly,ontheverylocallevel,asforexamplein each otherforthebenefitofareaswherethey in across-administrationalwaycooperationwith lenge themunicipaladministrationstothinkandwork The generalideaof local welfare systems 61.4. Impact onthe in school.Generallyspeaking, Centre andintheinitiativewithhomeworkclasses long-term unemployedpeopleasintheHolmaInfo other cases,itco-producestheseideasandemploys ongoing processwiththeInfoCentreinKroksbäck.In ing start-upeducation,materialandcontactsasinthe it canactasasupportstructurefornewideas,provid reach outandsupport Områdesprogrammet modes of working 61.3. Internal organisation and civil society. Malmö SE Områdesprogrammet Områdesprogrammet local initiativesamongcitizensand enabling oneindividualtobeem Områdesprogrammet inHolma-Kroksbäcktendsto civil societyorganisations.There local initiatives.Insomecases, neighbourhood. Thiscan themselveswhenthey Områdesprogrammet governance of inHolma-Kroks istochal Related toallpolicyfields Categories - is - - - - - (interview 2). cations whenitcomestoservingvulnerablegroups asked aboutresponsibilityandprofessionalqualifi- resulting innewandchallengingquestionsbeing aspect ofthelibraryserviceinitselfistakingplace, more generaldiscussionaboutthecitizenservice is alsoworking1dayaweekatthelibrary),and with theInfoCentre(theemployeeat introduced tothelibrary,becauseoftheircontact the libraryaswell.Newgroupsofvisitorshavebeen sustainability. Thatmovehashadspinoff-effects on passed tothelibraryadministration,forsakeof interesting inthewaythatitsorganisationhasbeen The exampleoftheInfoCentreinHolmaisalso called C-Företaget al problemsatthebeginning(interview3). a personcantryouthisorherbusinessideawithoutbeing caughtupinmanyheavytechnicalandadministration company canactasanemployerandtakeoveradministrational responsibilities,forexampleinvoicing,sothat prolonged foranother12weekperiod(interview3). his orherofficerforthedurationof determining who decideswhetherornotayoungunemployedpersonappliesiseligibletoparticipate.Thesedecisions Main cooperationpartnerofthe up theirownbusiness,beitprivateororganisedasa office Arbetsförmedlingen are offeringthe ion Skåneiscurrentlyrunningthe unemployed people,andthatideawasmadepossiblethroughfinancingfromthe tor (MINC).Inthatenvironment,theheadof (Skåne beingacountyinthesouthof have ideas,athirdmight aspecialskill(interview4).Thelogicisthatwhenthey cometogether,newand spirits”) aresupposedtotravel fastwithinthe equals andindividualswith an idea,andasentrepreneurs(interview3).Ideasadvice (and“entrepreneurial a playfulapproachtowards 29 yearsoldtoparticipate.The aimistobreakdownthesometimesover-dramatised barriersandlearntohave The CoompanionInkubatorisaimedatyoungunemployedpeoplethatareregistered withAF.Onecanbeupto 62.2. Conceptions andways of addressingusers relatively independentregionalorganisations(interview3).Beforethe business. Coompanion isanorganisationprovidingadviceandeducationtopeopleintheprocessofstartingtheirown 62.1. Shortdescription Coompanion Inkubatorn 62 Malmö SE Coompanion isanationalorganisation.However,theofficemoreofservicefor participation arevalidfor12weeks,whichmeansthataparticipantneedstostayincontactwith Incubator toyoungunemployedwhoareregisteredwithanddirectedbythenationalemployment (theC-enterprise),anoffspringenterpriseto /77 (AF).Theusersaresupposedtobechallenged,inspired,educatedandmotivatedset entrepreneurship. Atthe Incubator isthenationalemploymentoffice,AF.TheofficeratAFperson Coompanion Inkubator Sweden) officewaslocatedinoneofthespaces participation. Aftercompletingthe12weeks, Employment Categories Coompanion Skånecameupwiththeideaofanincubatorforyoung Incubator. Oneparticipanthas therightcontacts,anothermight Coompanion andits Coompanion Inkubator cooperative. (incubator)atanewvenueincentral Coompanion. Theideabehind Incubator initiativethe Incubator isalsocooperatingwiththeso- , thestaffseektotreatparticipants as European SocialFund. participation canbe C-Företaget Coompanion Skåne Malmö, wherethey Malmö Incuba isthatthe Coompan- - - 341 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 342 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities the CoompanionInkubator on theproject’sbudgetaswell,withaninitiallossfor social securitybenefits.Thiscametohaveanimpact (so-called expected. TheyhadalowerlevelofbenefitsfromAF were inamuchmoredifficulteconomicsituationthan insurance funds,whichmeantthattheparticipants of theparticipantswereentitledto career. Anothersurprisingthingwasthatonlyafew not usedtotakingpersonalresponsibilityfortheir directly fromsecondaryschoolandwerenaturally bator wouldbeasyoungtheywere.Manycame Uppstart Malmöandsoon.This as Nyföretagarcentrum composed ofentrepreneurial newenterprises,such around recruitingparticipants. Theother This network,amongotherthings, dealswithissues atives, ESFrepresentativesandAF-representatives. official steeringgroupwith tor atCoompanionispartoftwo had beeninitsincethestartJanuary.The neurs wereattendingthe At thetimeofstudy,39participantsorentrepre modes of working 62.3. Internal organisation and did notrealisethatthepeopleattending organisers weresurprisedatafewthings.Firstly,they to the when theprojectmetitsfirstusersanddoors ployed whohada“latent”businessidea.However, with the According tooneofthekeypromoters,initialidea answer to(interview3). in the“rightdirection”,onceonehasthatstructureto personal resistanceandhelponetotakesmallsteps according toaninterviewee.Thegroupcaneliminate ing questions.Mostpeopleneeda“boss”toimpress, group tomakepromisesandthewillstartask “little boss”tonewentrepreneurs;onecanusethe ideas (interview3).Thegroupcanalsofunctionasa diately begintosharetheirknowledge,contactsand When peoplestarttotrustoneanothertheyimme a reference.Trustismentionedanimportantissue. here, bothforinspirationandcreativenessas and simplified.Thegroupdynamicsareimportant action (startingupanewbusiness)arespeeded positive thingscanhappen,andtheprocessesbehind Malmö SE Incubator wereopenedinJanuary2012the Incubator wastoencourageyoungunem activation support)and/orwithadditional (NewBusinessCentre),MINC, Incubator andabout100 (interview3). Coompanion represent- network servesprac- networks; oneisan unemployment network is Employment Categories Incuba Incu - - - - -

- meet theparticipantsat tical andinspirationalneeds,theycancomein social securitybenefits,which ismuchlessmoney. but onlyfor are notyeteligibleforemployment insurancefunds, Coompanion Inkubator for thosewhoare.Thelarger participantgroupatthe eligible for this systemgrantslessforparticipantswhoarenot based onmorefundsforparticipants.However, want emptyprojectsandvenuesthesystemis harder tofindmoreparticipants.The an incentivetogettheprojectmanagementwork Coompanion Inkubator caused problemsinbudgetcalculationsforthe The ESFhasamodelforco-financing,which local welfare systems 62.4. Impact onthe work. Itisenergygivingenergy”(interview3). the morepeoplewanttoparticipate,that’showwe inspires thecoregroup.Thelargergroup, model inthisgroup.Thatinspirestheperson,which mind-set, wewouldlikeyoutobecomemoreofarole to someonethatyouhaveexactlytherightkindof encourage therightkindof“mind-set”.“Wecansay nor decidethattheybeengaged.Whatitcandoisto “grow”. TheIncubatorcannotchoosetheparticipants, bator hasbeendescribedasachanceforpeopleto a customerifyouarrivelate’”(interview3).The ‘it isnotOKtoarrivelate;youwillbeablekeep became afosteringoneandwehadtosaythingslike a classanditwasquitefrustratingbecauseourrole according toaninterview.“Thegroupbecamelike at thesametimebutthatbecametooschool-like, planned for.Inthebeginning,30participantsstarted led toarollingscheduleofcourses,whichwasnot get the“thumbsup”fromtheirofficeronAF.Thishas participants “dropin”totheprojectwheneverthey One peculiarcircumstanceforthe pects ofemployingmanypeople. However, theymostlysupportbusinesseswithpros panion Inkubatortolookforbusinessessupport. credit, hasalsovisitedtheparticipantsat Malmö, whichisacompanyofferingmicro-loansand on thelevelofprojectmanagement. up anewbusiness.Italsoservesinspirationalneeds and sharetheirexperienceknowledgeofstarting unemployment insurancefundsandmore activation supportincombination with comprisesyoungpeoplewho . Themodelissupposedtobe Coompanion Inkubator governance of Incubator isthat ESF doesnot Uppstart Coom- Incu

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This creates a problem within the system, according to an interview. The Incubator is forced to try to attract more people who are in the unemployment insurance system, who are mostly older and more experienced, and more likely to find a job by themselves. This side effect is described as quite “absurd”. “We are more dependent on the participants then they are on us. It could be that they are already in the process of heading out to start their own business but our feeling is that we would like them to stay longer so that we can get the funds” (interview 3). Another condition that has made things difficult for the participants in the Incubator is that the C-Företaget is not compatible with the labour market programme Ungdomsgarantin (Youth Guarantee) (AF), through which young unemployed people can get certain benefits during the period ofunemployment (if they are not entitled to unemployment insurance benefit). These benefits are called “activity support” and they are granted when you are activating yourself in order to eventually enter the labour market. However, to be eligible for “activity support” you must prove you are Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities available full-time for the labour market, which means that you cannot be formally employed by the C-före- taget, even though that “employment” is supposed to help you start up your new business. Participants risk losing their benefits by taking a step towards actually starting their own businesses. Coompanion would like to see their participants get some kind of exemption from this rule (interview 3). During the projected time up until 2014, Coompanion Skåne will run the Incubator and try to come up with more permanent solutions for continuing the project, even after the ESF funding has ended. The key promoter says that this now is a good time for trial and error and finding the best solutions. “We are learning as we go” (interview 3). 344 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities empowers the individual. organise orjoinalreadyexisting organisationsin with anassociationcalled meeting centre,YallaTrappan strivestoworkwithotherassociations. Forexample,theypermanentlycooperate (courses). YallaTrappanalsoprovidesSwedishtuition, healthcare,andemploymenttrainingprogrammes. As a and conferenceservices.The usersat services. Theyrunastudiofordesignandcraftsmanship, mostlyconcernedwithsewing.Theyalsooffercleaning cial sideof bine socialandeducationalactivitieswithworkencouraging Yalla Trappanwantstoprovidethe enterprise. Trappan association.Accordingtothechairpersonandfounder, the womenin Rosengård toenterthe ity. Theseprojectswereclearly started intheprojects,andwithcommitment, “a totalwasteofresources”(interview5). sidered as“un-hireable”byemployersandthe The Trappanprojectsfocusedonwomen’s programmes –ABF(TheWorkers’EducationalAssociation)andABL(providingjob-coaches)forexample. by the staff fromtheso-called 50 differentlanguagesarespoken.The is aso-called members oftheassociation.The vices administration.YallaTrappanisorganisedasa integrating permanentlyemployedworkerswithwhoarethereonaninternship,throughthesocialser women whowouldotherwisehaveseveredifficultiesenteringthe Yalla Trappanisalabour-integrated 63.1. Shortdescription Yalla Trappan,Rosengård 63 Malmö SE European SocialFund,thecityof Yalla Trappantheyrunacoffeeshopandlunchrestaurant,offering affordablelunchesandcatering Million HomesProgrammearea.PeoplelivinginRosengårdoriginatefrom111countries,andupto /77 labour market.InMay2010,the Trappan projectsthatwererunninginRosengårdfrom2006-2010,initiatedandfinanced Tjejer iFörening(GirlsInAssociation),which triestoinspireyounggirlsandwomen labour market-orientedandthusaimedatenhancingpossibilitiesforwomenin Yalla TrappanassociationwasfoundedandisbasedinRosengård, local communitywithameetingandbusinesscentre,wherethey wishtocom social enterprise.Thegeneralaimof Yalla Trappanareofferedworkandboth theoretical andpracticaleducation Yalla TrappanassociationwasformedinApril2009withinspirationand Malmö andotherassociationsrelatedtoeducationlabour-market Yalla Trappan Employment Categories entrepreneurship, integration, participation anddemocraticroutinestheystartedthenew municipality seemedtosharethatview,whichher like civil society,allbasedonthe ideathat cooperative enterprise,whichmeansthatitsworkersarealso wanted tomakeuseofthesuccessful Trappan projectsweremadepermanentinthenew entrepreneurship. Aspartofthemorecommer labour market.YallaTrappanisorganisedby Yalla Trappanistoprovideworkfor empowerment, educationandequal Trappan projectswerecon participation enrichesand initiatives thathad Malmö, which social Yalla - - - - - 345

Yalla Trappan is a membership-based association, and the time of the study, there were 22 women working both men and women who accept the principles of in total and 12 were permanently employed; the rest Yalla Trappan can become members and thus have were on internships. The interviewed founder says a vote at the annual association meeting. However, that all women working on an internship basis at Yalla only women can become participants/workers within Trappan wish to be permanently employed, and she Yalla Trappan. Participants work at the café and lunch explains that they do not have the capacity to em- restaurant, in the cleaning service or in the handi- ploy more people than they currently do. However, crafts studio. The cleaning and conference service of she continues, their first priority when the business Yalla Trappan is mainly aimed at offices and shops. is profitable is to employ the participants for longer The cleaning services are an expanding part of the working hours; the second priority is to employ more association, and the interviewed founder regards it as people; and the third is to invest in new equipment a area with great potential (interview 5). Yalla Trap- (interview 5). Most users work part-time at Yalla pan has received much attention, not only from the Trappan, which is also in line with the original idea media but also from other stakeholders in the private of the Trappan projects. The word “trappan” means market, like IKEA or small-scale clothes designers who “steps” and the name is used to describe a progres- wish to cooperate with Yalla Trappan. In 2 years Yalla sion where users are encouraged, step by step, to Trappan has become an attractive trademark that take more and more responsibility in the company stands for social values and that has become more depending on their own recovery or growing ability. and more important on the commercial market. The founder says that their growing popularity can be 63.4. Impact on the governance of explained by the fact that “We are for real, we are local welfare systems plurality in practice” (interview 5). Yalla Trappan represents an example of recent trends Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 63.2. Conceptions and ways of of development in Swedish society. The co-operative addressing users movement has a long tradition in Sweden, but this activity represents a new discourse and a new field The target group for Yalla Trappan is unemployed, for organising co-operatives. Social enterprises, as immigrant women with little or no education, who are well as social entrepreneurship and social economy, experiencing severe difficulties entering thelabour are concepts that have been upcoming quite recently market, and who often have poor knowledge of Swed- and are closely linked with notions of innovation. ish. They are offered employment with a contractual They have also gained attention on both local and salary or internship, education and Swedish tuition, central governmental levels as means to find new a social arena and an empowering and democratic solutions to complex social problems. For example, environment, where they are part of a creative atmos- the central government has decided on an action plan phere and make decisions concerning matters such for social enterprises (N2010/1894/ENT). as working schedules, lunch menus and new propos- Yalla Trappan has been receiving a lot of attention. als from different customers (interview 5). The founder says that the positive attention sometimes masks the problems that Yalla Trappan is ex- 63.3. Internal organisation and periencing, for example, scarce economic resources. modes of working They do not get any extra benefits from themunici - pality (although they benefit from a tax-reform called Users enter Yalla Trappan in different ways. One can nystartsjobb which lowers the employment tax when say that there are two types of user, not counting they hire a person who has been unemployed for a the members of the association or the people on the long time), even though they are showing positive board or the customers or partners. One group of results and are highly requested by the municipality users at Yalla Trappan is permanently employed and for internships for women who otherwise would need another arrives on internships through the social social support (interview 5). services administration. The first group was recruited either from the early Trappan project or from the second group of users, i.e. the group on internship. At 346 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities elements thatareinlinewith theactivitypolicyand The MalmöIncubatorand both an of the embedded withinthelegaland administrativeframes developed in line with broader political trends and are local context.Atthesametime,theseactivitieshave they representnewideasandwaysofworkinginthe problems andtrytofindlocalsolutions.Inthisway, integration. Thedifferentprojectsaddresstheselocal Malmö” (ibid). or aTrojanhorseforliberalisationofthe should perhapsberegardedasanideologicalproxy conclusion ofthisreportstates:“ service providerswithinthefieldof holders arenotpositiveaboutincludingalternative and instrumentstobeimplemented.Somestake stakeholders and seems tobesomedisagreementamongthedifferent that, arguably,preventinnovation.Forexample,there At thesametime,thisreportpointsatlocalelements be an“innovativesoil”in promote socialinnovation.Inthiswaythereseemsto on and employment.Aconclusionisthatthediscourse well asacrossthethreesectorsofchildcare, problems needtobeaddressedin welfare. Thereisalsoasharedviewofwhatsocial stakeholders, ontheneedfornewsolutionsin in thereport,amongvarious promotion ofinnovation.Anagreementisdescribed that thereseemstobeapoliticalconsensusinthe WP4-report on to socialinnovation.ItwasstatedintheWILCO Malmö indicatesafavourable vation. Thecasestudyofthelocalpolicycontextin youth social problemsthatarehighonthepoliticalagenda: in differentways,andonscales,addressing The innovationsthatwehavestudiedin Common traits system wouldopenopportunitiesfor degree ofself- political interestinalternativeproviders,andahigh Deregulation withinthefieldof Conclusions Malmö SE local welfareseemstoincludedimensionsthat unemployment, welfare system.Thisembeddedness servesas enabling andanobstructive feature. governance intheSwedish Malmö (SegnestamLarsson2013) coalitions regardingthemethods segregation andlackof Malmö (ibid). Yalla Trappancontain coalitions andpolitical local contextinrelation social welfare,a social innovation local welfareas welfare. Thefinal social inno Malmö occur welfare welfare in housing local - - tween differentunitswithinthepublicsector. hand, theyareintra-sectorialcollaborations–be and stakeholderswithinthe between thecityadministration, the onehand,theseareinter-sectorial are basedon capabilities. Afurthercommonalityisthatinnovations the projects’aimsininvestingtheirusers’personal becoming entrepreneurs.Anothercommontraitis training, membershipinsocialcooperativesor they containdifferentelementssuchasemployment, are thattheyalltakeakindof Common featuresamongthestudiedinnovations an cities. stagnation, whichisimplementedindifferentEurope “segregated” areassufferingfromsocio-economic ideas of of Områdesprogrammet to receivebenefitswhileparticipating.Thefoundation for theprojectsandpossibilityindividualusers unemployment servicesasregardsthetargetgroups are closelyconnectedtothe the structuralfunds,e.g.Equal.Boththeseprojects linked topossibilitiesforreceivingEUfundingthrough cohesion and qualities suchasinvolvementofemployees, Social enterprisesarefurtherdefinedwithpositive marginal positioninrelationtothe (Tillväxtverket) asaimingtointegratepersonswitha Swedish AgencyforEconomicandRegionalGrowth from work.Socialenterprisesaredescribedbythe go fromwelfaredependencytoreceivingasalary enterprises arehighlightedasapossiblewayto “work line”in start-up education,material andcontactsasinthe act asasupportstructurefor newideas,providing to andsupports Områdesprogrammet i.e. promotingbottom-upactivities. projects aimtoinitiateandsupport important enablingfactor.Atthesametime,allthree initiation processes. The possibility of EU funding is an administration of by politicalorprofessional bottom-up elements.Theyareinitiatedtop-down The studiedinnovationscontainbothtop-downand andbottom-up Both top-down neighbourhood revitalisationofrun-down collaboration and labour marketpolicy,wheresocial empowerment. Theyarealsoclosely local initiatives.Insomecases,itcan Malmö isakeystakeholderinthe inHolma-Kroksbäckreaches out caninturnbetracedto initiatives, andthecity civil society;ontheother public administrationof holistic approach,and partnerships. On Malmö University labour market. local initiatives, partnerships social - - 347

ongoing process with the Info Centre in Kroksbäck. In Bibliography other cases, it co-produces these ideas. The Malmö Incubator is all about supporting and promoting the Andersson, R., Bråmå, Å. & Holmquist, E. (2010) participants’ entrepreneurial ideas. Yalla Trappan fo- “Counteracting segregation: Swedish policies and cuses on women’s entrepreneurship, and workers in experiences”, Housing Studies, 24, 2, pp. 237-256. the project can become members. Through operating N2010/1894/ENT Handlingsplan för arbetsintegrerade the project as a co-operative, it enables the users to sociala företag. Näringsdepartementet, 22 April 2010. have a degree of influence on the concrete activities. Rønning, R., Knutagård, M., Heule, C. & Swärd, H. Sustainability and the mismatch (2013) Innovationer i välfärden – möjligheter och be- gränsningar. Stockholm: Liber. between public systems and Schierup, C-U. (2006) “Den sociala exkluderingen i innovations Sverige. Migration, arbetsmarknad och välfärdsstat i Arbetslivets (o)synliga mu- Incorporating a project within the public administra- förändring”, in Reyes, P. (ed.) rar. Rapport av Utredningen om makt, integration och tive system can facilitate sustainability and counteract strukturell diskriminering, SOU 2006, 59. Stockholm: the risks of “project economy” - that good initiatives and projects end when the funding period of a Fritzes. project is over. Possible knowledge and competence Segnestam Larsson, O. (2012) City Report: Malmö, gained in a project risk being lost when former staff Sweden, WILCO members move to other tasks or projects. On the Segnestam Larsson, O. (2013) WP4: Urban Policy Orien- other hand, the public administrative system can tations In Local Welfare, Malmö, Sweden, Wilco counteract and put obstacles in the way of innovation Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities and entrepreneurship. The rules and regulations www.malmo.se/omradesprogram for different types of employment benefits are not ad- Interviews: justed to self-employment and social enterprises. This is described as an obstacle in the Malmö Incubator. >> Interview 1: Head of and project coordinator of Områdesprogrammet As mentioned above, the studied projects/ Holma-Kroksbäck innovations are investing in their users’ personal >> Interview 2: Librarian and employed at Holma capabilities, with the goal of helping them become Infocenter, Områdesprogrammet employable and improving their living situation. >> Interview 3: Employed at The Coompanion Områdesprogrammet In the case of , the aim is to Inkubatorn (key promoter) improve the living conditions of people living in the neighbourhood. At the same time, the innovations >> Interview 4: Experienced user at the Coompanion consist of small-scale projects, and it is therefore Inkubatorn hard to draw conclusions on their impact on local >> Interview 5: Founder and chairperson of Yalla government and local development. Trappan

>> Interview 6: Spokesperson for Yalla Trappan >> Interview 7: Experienced user, Yalla Trappan

CH Switzerland Bern

Maxime Felder with the collaboration of Sandro Cattacin and Patricia Naegeli (University of Geneva) 350 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Young Workfare Unemployment Social investment Preschool education Participation Lone mothers Empowerment Child care Case management Activation policies Keywords: Local background of thesocialinnovations Introduction Bern CH mothers project addressingunemployed grant populations.Thethird andmostrecentisa a conceptof project isacompensatory ciency aswellitsacceptanceandtopreventpoliticalcriticism. Thefirst communication andtransparencyismeanttoincreasethe project’seffi addressing alargepublic.Evaluationsarealsomade Thiseffortof Resources andinformationareavailableonpaper theinternet, munication. Scientificdocumentsprecededandaccompanied theprojects. jects ofthegoverning(left)coalition.Allthreeoccasioned extensivecom The threeinnovationstobepresentedinthisdocument areflagshippro city, aworldopensocialcity”. have usedthisheadline:“Bernisagrowingcity,creativeecologic elites. Asagoalandasslogan,somerecentadministrativedocuments ute tothefulfilmentofanimagecityasitisthoughtbylocal alisation ofarchitecturalflagshipprojects,innovativesocialpoliciescontrib well astolerancetowardthealternativeculturalcentre“Reithalle”,orre city. Inthisway,innovativepoliciesareafeatureofanAs the urban level. A analysis addressedthenationallevel,butitcouldapplytoasub-national argue thaturban If weconsidersocialrightsasanessentialpartof ment, butthroughacoordinationbetweenterritorialunits. the country,notbybeingscaledupandtakenoverfederalgovern in thefieldofaddictionforexample–weresometimesspreadthroughout which wouldhavehadnochanceonthenationallevel.Theseinnovations– some communesorcantonstoimplementveryinnovativesocialpolicies, fare policies.Cattacin(1996)showedhowthisroomformanoeuvreallowed communes enjoyconsiderablelatitudeinexperimentingnewformsof country.” try novelsocialandeconomicexperimentswithoutrisktotherestof gle courageousstatemay,ifitscitizenschoose,serveasalaboratoryand stated: “Itisoneofthehappyincidentsfederalsystemthatasin In afamousquoteof1932,theAmericanjudge,Brandeis,enthusiastically close linkswithneighbouringcountries. pharmaceutical industry.Thethreeofthemhaveaninternationalairportand and itsnumerousinternationalorganisation,Basel,withitsdynamic Zurich, oftenidentifiedasthefinancialcapital,Genevaknownforitsbanks the capital,BernisonlyfourthlargestcityinSwitzerland.Theheadtrio Bern istryingtoidentityitselfasasocialandinnovativecity.Althoughit 1 Brandeis, J.,“New State IceCo.v. Liebmann”,UnitedStates SupremeCourt,1932. (University ofGeneva) of SandroCattacinandPatriciaNaegeli Maxime Felderwiththe Authors local welfaresystemcouldcontributetoafeelingofbelonging 1 Beinginchargeof community, andherebyinfluencetheperceivedidentityof guidelines andrecommendationsregardingintegration of mi welfare contributestobuildurban collaboration preschool educationprogramme.Thesecondis welfare, Switzerland’s26cantons and2,495 young mothers facingeconomicdifficulties. professional integration citizenship, wecould citizenship. Marshall’s - wel------351 CH Categories Bern Child and family care

64/77 Primano

64.1. Short description

Primano is a pre-school education programme targeting disadvantaged children and their families in selected Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities districts. It started in 2007 with a home-visit programme. Bern was the first commune to implement a Dutch programme named Opstapje. The idea of a pre-school programme arose as school nurses noticed that some children had difficulties in the very first year of school. In addition, these children showed speech difficulties, and social interaction and psychomotor problems that could be linked with the family structure and social environment. The Director of the Health, Education and Welfare2 Department was encouraging multidisciplinary work and tasked the health unit to implement a home-visit programme. The result is a pilot project in the stream of social investment, which includes, besides home visits, educations modules for child-care facilities, playgroups, and a coordination structure inside the districts. The programme aims to build a chain of support that accompanies children until kindergarten. The following steps constitute the chain.

Admission in one of the Home visits and Playgroups Kindergarden and network institutions groups offers and creches school day care

Continuous supports- and parents- work

2 Bern has the particularity to gather in the same department health, education and welfare. 352 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities German class,ifnecessary.The pilotphaseaddressed playgroup oracrèche,andeven“motherchild” a continuationofthesupport,childrenshouldjoin as answeringparents’questions.After18months, depth issuesofeducationand to thevisits,groupmeetingsaimdiscussinmore Play materialisbroughtbythevisitor.Inaddition duced toeducativeplayandactivitiesforchildren. scheduled. During of 30minuteseachandfifteengroup-meetingsare group meetings.Duringthenext9months,tenvisits 30 visitsofminutesandparticipatesinten2-hour programme. During9months,thefamilyreceives Two periodsconstitutethe18-monthhome-visit should beexperiencedmothersthemselves. have noschoolinginpedagogy.Instead,thesepersons charge ofhomevisitsarefromtheneighbourhoodand non-professionals arehiredforhomevisits.Workersin rial. Professionalsareinvolvedascoordinatorsand and theproductionofinformationplaymate- in chargeofthecoordination,trainingpersonal tions. a:primohasacontractwiththecityofBernandis the conceptaswellworkingpapersanduserinstruc- Institute. Thelicenceincludestherighttoimplement a:primo boughtalicencefromtheNetherlandsYouth of theDutchprogrammeOpstapje.Theassociation by step”. 4 The nameoftheprogramme, Konzept_primano_ab2013_web.pdf 3 http://www.primano.ch/fileadmin/user_upload/PDF/BSS_GSD_ Schritt:weise Part 1:Homevisits. modes of working 64.2. Internal organisation and from 2013” “pre-school educationconcept based oninterviewsanddocumentssuchasthe district coordinationoffice.Ourdescriptionismostly visits, educativemodulesandplaygroups,the will nowdetailthethreeelementsof gramme willbefinancedbythecityfrom2013.We by privatefoundations.Asaregularoffer,thepro offer bythecity.Thepilotprojecthasbeenfinanced has nowbeenadaptedandextendedasaregular An evaluationhasbeenconductedandtheproject Primano wasinitiallya5-yearpilotproject(2007-12). Bern CH 3 4 . is the result of the implementation in Bern istheresultofimplementationinBern home visits,parentsareintro Schrittweise development, aswell primano –regularoffer , means“gradually”or“step primano: home Child andfamilycare Categories - - Some families movefrequently,othershave noper mistrust. Anotherissueisrelated toresidencestatus. same mothertonguedoesnot completelyreducethe living inthesame the State.Hiringnon-professional people,eventually iting personnelexperienced somemistrusttoward One problemisaccesstotargetgroups.Home-vis build trustwiththepotentialusers. bourhood house.Theideaistogainvisibilityand target parents interested in educative coaching. target parentsinterestedineducativecoaching. sion andsubventionsprocedures.Playgroupsalso education offers.Italsohelpsparentsduringadmis- office linksplaygroupstotheotherexistingpre-school in searchofaplace.Theprimanodistrictcoordination to-date listandoffersinformationtoinformparents They areorganisedinanassociationthatholdsup- quality-tested playgroupscanclaimforsubventions. receive subventionsfortwohalf-days(2×2.5h).Only and 6.50eurosperhour(withnosubventions).Parents fiscal declaration–parentspaybetween0.80euros tions decidedbythecanton–whichisbasedon health care.Accordingtotheamountofsubven- the subventionsparentsreceivefromcantonfor it accessibletoeveryone.Themeanstestisbasedon but means-testedsubventionsaresupposedtomake half-days (2.5hours)perweek.Participationisnotfree managers andthroughaminimalparticipationoftwo should beachievedthroughsufficientlytrainedgroup They aremeanttoofferqualityeducativework.Quality Playgroups areseenasacomplementtochildcare. playgroups. Part 2:educative modulesand programme totheordinarybudget. capital. Oneofthem(Ostermundigen)evenaddedthe In thecantonofBern,othercommunesfollowed Winterthur, Basel,StGallen,Solothurn,Grenchen,etc. After Bern,othercitiesimplementedtheprogramme: 40 families;thisnumberhasdoubledsince2013. child-care facilities,parentalcounsellingorina possible, inthesameplaceasotheractivities,such in the admission procedures.Theprogrammetakesplace stakeholders, toprovideinformationandhelpwith ing district.Itsroleistocoordinatetheworkofall A coordinationpointislocatedineveryparticipat Part 3:Districtcoordination. neighbourhood oftargetedfamilies,andif neighbourhood andspeaking the neigh - - - - 353

studied, investments in pre-school education are mul- tiplied by 2.5 to 166 for the most optimistic previsions.

64.3. Target groups

In the regular offer of 2013, the number of target areas is extended compared to the pilot project. Target areas are districts with high unemployment and social-assistance rates, with a median income lower than average, and with a high proportion of migrants. Target groups are usually addressed as “disadvantaged families”. Primano addresses children © Johann Dréo and parents in situations of poverty or close to the limit. Other factors are situations of unemployment manent residence authorisation and will one day be or of a precarious job (working poor), parents with asked or forced to leave Switzerland. This uncertainty little formal education, lone-parent families, diffi- does not favour participation in such programmes. cult migration situations (unstable resident status), The programme is justified by two types of argumen- trauma from the country of origin, difficulties with the tations. The first emphasises two values: equality of local language, little knowledge about offers address- opportunities and distributive justice. Children do not ing children and families. House visits also occur in have the same conditions and opportunities at the families with little contact with other families, little start of their life. It becomes visible and public as soon support from friends and family and little access to in- as they enter school. The State has the role of reducing formation. The need strengthens if these families live Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities these differences and ensuring a good start. It seems in small apartments and in children-unfriendly areas to be a well-accepted role of the State: it is legitimate (with no playgrounds, lots of traffic). Poverty here is to ensure equality of opportunities (but not equality of considered as a multidimensional concept. outcomes). The second argument is related to a social investment perspective and is two-sided. On the one 64.4. Conclusion hand, social investment aims to reduce inequalities Two innovative aspects of the project should be and break the intergenerational transmission of pover- highlighted. The first is the strong emphasis onac - ty. Equality of opportunities is a goal, but one expects cessibility. “No access, no effect” says the creators of some outcomes in terms of reduction of inequalities. primano. Non-take-up of public services is an issue for Social investment thus supports social cohesion. the contemporary welfare state (Hernanz et al. 2004). On the other hand, some arguments insist on the effi- Recommendations to prevent non-take-up often ciency of the method (rather than on its fairness). It is state the importance of evaluation of the needs and efficient in achieving its goals (reducing inequalities), of the policies efficiency. Bern pre-school education but also financially, in the global budget. As social programme arose from a need observed by school problems partly redound to the commune, the latter nurses. Regular evaluations of the needs and of the has an interest in preventing them from happening. efficiency of the programme are led by independent Primano is thus presented as “A paying investment stakeholders. However, being close to the needs and for the future”5. Efficiency arguments are based on -re being efficient is not enough to prevent non-take-up. ports of scientific studies. An intermediate evaluation Problems of lack of information, administrative run by the Psychology Department of the University complexity, mistrust, shame, and financial obstacles of Bern argues that children do produce better school have to be tackled. Statistics of the school nursery performance when they have attended pre-school would show that 40 per cent of families with a difficult education. Documents and interviews recount studies socio-economic situation do not have or do not find showing that, depending on the length of the period information on pre-school offers in Bern. Issues of

5 “Frühförderungskonzept Primano - Regelangebot Ab 2013.” Stadt 6 Fritschi, T.& Oesch T., Volkswirtschaftlicher Nutzen Von Frühkindlicher Bern, July 2012. Bildung in Deutschland, Büro Bass, 2008. 354 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities education programme namedOpstapjewas bornin widely spread.IntheNetherlands, apre-school Australia –amongothercountries –whereitisnow This projectwasthenexported totheUSAand for PreschoolYoungsters(HIPPY) (Bakeretal.1999). programme calledtheHomeInstructionProgramme to startkindergarten.In1969,Israelimplementeda was meanttopreparechildrenoflow-incomefamilies poverty” (CurrieandThomas1993).Asummerschool start”. Thisfederalprogrammewaspartofa“waron launched in1964theUSAundername“Head in countriesallacrosstheworld.Oneoffirstwas education programmeshaveexistedforalongtime However, outsideoftheSwisscontext,pre-school suddenly seenaspotentialtargetsofsocialpolicies. to socialinvestmentperspectivesaschildrenare a publicresponsibility.Thisrecognitioncanbelinked It alsorecognisesthatchildrenarebothaprivateand the Stateshouldnotinterveneinprivatesphere. path-breaking measureina holder, theprivateassociation partnership asithasbeendevelopedbythelicence bourhood”. Theprojectisakindofpublic-private “state agents”butby“ in symbolic)and voluntary andpaying(insomecasesthecontribution land. Precautionshavebeentaken; school educationissomehowinnovativeinSwitzer this stanceislesslikelytoappearinbigcities,pre- bring childrenunderthecontrolofstate.Evenif the populationconsidersuchmeasuresanattemptto for 4-year-oldsshowedthataconsiderablepartof votes onchildcareandmakingschoolcompulsory conservative onchildren-orientedpolicies.Recent ness of The secondaspectisrelatedtothechild-centred- proach. Thisisthusaninnovativeaspectof over accessibilityisclosetoSen’scapabilitiesap same resourcesintovaluableactivities,thisconcern individual differencesintheabilitytoconvert formal trainingfor Proximity isalsoreinforcedbyhiring with thepopulationarelationshipbasedontrust. These centresshouldinform,orientate,andbuild fers fromplacesalreadyvisitedbythetargetgroups. districts and,ifpossible,arecombinedwithotherof Coordination centresaredistributedinthetargeted families. Primanodeveloperscountoncoordination. trust arepointedout,particularlyregardingmigrant Bern CH primano asapolicy.Switzerlandisrather primano isruninthefieldnotby home visits.Becauseitrecognises mothers fromtheneigh welfare systemwhere a:primo. Primanoisa participation is mothers withno Child andfamilycare Categories primano. - - - - considered aprivateresponsibility pre-school ageandthefamily,ingeneral,arelargely no “bad”schools.Asecondreasonisthatchildrenof as egalitarian,thereareno“good”schoolsand public educationisaSwissprideandconsidered that povertydoesexistinSwitzerland.Besidethat, such asCaritas,regularlyfighttopublicisethefact considered asacentralissueinSwitzerland.NGOs, not (andhasneverbeensincetheGloriousThirties) reason couldbethattheneedwasnotfelt.Povertyis take solongtobedevelopedinSwitzerland?One Switzerland isone.Whydid and nowexistsintwenty-fivecountries,amongwhich developed inAustralia30yearsago(Sanders2008) “Triple P”forPositiveParentingProgramme.Itwas a well-knownexampleisthesuccessfulprogramme other Europeancountries,suchasGermany.Finally, “SureStart”. Thisprogrammehasbeenexportedin compensatory education programme under the name 2000s. In1999,TonyBlair’sNewLabourlauncheda the 1990sandwasexportedtoGermanyinearly 8 “Enfants étatisés? Nonàl’articlesurlafamille”,UDCSuisse, 2013. rejected inpopularvote(in1974,1984, 1987and1999). after itwasplannedinanconstitutional article.Everyprojecthadbeen 7 A example,paidmaternityleaveonly existedfrom2004,60years control andtheiregalitariantendencies attempts ofthelefttobringchildrenunderState largest politicalpartyregularlycondemnsthe compensatory education 7 . Switzerland’s 8 . 355 CH Categories Bern Related to all policy fields

65/77 Integration guidelines

65.1. Short description

In the second half of the 1990s, Swiss cities started taking charge of the challenges of migrant integration. Until Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities then, right populist parties were alone on this ground. Schonenberger and D’Amato (2009) attribute this change first to the growing heterogenisation and fragmentation of the social and urban structure, and to the arrival of new lifestyles (of nationals as well as of migrants). The specific urban context allowed the cities to take over this theme, which was ignored by the Confederation and the Cantons. Debates rose in the cities. One of the problems was the implementation of the ageing Foreigners Law (of 1931). It had become necessary to adapt the policies to the context and to more actual concerns. However, the authorities of the different levels barely cooperated, as they had different understandings of the procedures. Establishing guidelines was thought of as a way to define specific needs. In 1999, after years of discussion, Bern was one of the first Swiss cities to establish guidelines for the integration of migrants. It resulted in a document that was heavily publicised. It is not a law, but recommendations were addressed to everyone, particularly to institutional stakeholders. It is mandatory for public stakeholders – as a work instruction – but has the status of a recommendation regarding private stakeholders. The document is also meant to inform the population about the position and aims of the city council regarding integration. The project is coordinated by a competence centre for integration.

65.2. Internal organisation and modes of working

The city council first demanded a study about facts and potential issues linked to theintegration of migrants. The report of the University of Bern highlighted the need for a coordinated and needs-related integration policy. A working group dedicated to the redaction of the guidelines gathered representatives of the foreigners’ police of Bern, of diverse departments such as welfare, education, equality between men and women, of the Federal For- eigners’ Commission, together with an anthropologist. Some non-governmental organisations were represented, among other Caritas (charity), the information point for foreigners and the Forum for migrants. It is noteworthy that representatives of migrant populations among others were not invited. The guidelines set milestones. They include ten principles that should constitute a new understanding of integration in political discourses. It should “open the way” to the implementation of lasting integration measures9. As an

9 Claudia Omar-Amberg, preface to “Leitbild zur Integrationspolitik der Stadt Bern”, Stadt Bern, 1999. 356 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities for Integrationtowriteareportonthequestion lation studywasaskedbytheCompetenceCentre In 2009,theSwissForumforMigrationandPopu was required:theyhadtobemodernised. the publicationoffirst The situationkeptchanginginthe10yearsfollowing lenges facedbymigrants. the “declining” economic situation intensified the chal- never beenanactiveintegrationpolicyinSwitzerland, and D’Amato(2009)statedthatalthoughtherehas that threatenedBern’sprosperity.Schonenberger sign ofaneconomic,socialandculturaldisintegration paying jobs or are unemployed. This fact would be the country, adisproportionallyhighnumberhavelow some wereamongthemostsuccessfulpeopleof by migrantstoSwitzerland.Followingher,although underlined theimportanceofcontributionsmade the first ment. Furthermore,withadecadeofexperience workers tofreelychoosetheircountryofemploy the FreeMovementofPersons(FMP)allowsEuropean were signedwiththeEU.TheBilateralAgreementon initiatives. Inthesameyears,bilateralagreements Party SVPpresentedseveralxenophobicpopular debates onthemigrantpopulation.TherightPopulist eigners’ lawwasvotedin2006aclimateofheavy got guidelinesyouhavetoimplement.” come withthese ask questions.Itwouldhavebeenunimaginableto for adayofdiscussion.Theycouldmakeproposals, a civilservantexplained,“Weinvitedlotofpeople with representativesofthemigrantpopulation.As In addition,newhearingswereorganised,thistime challenges, possibleperspectivesandpropositions. included anoverviewabouttheactualdebatesand tences belowaredetailedinthreeorfoursub-points. The documentfirstdetailsthefiveguidelines.sen- derat derStadtBern. 13 “Leitbild ZurIntegrationspolitikDer StadtBern2010.”2010.Gemein 12 Interview 19withaPublicadministrator inthefieldofintegration. tions etdelapopulation,2009. Der StadtBernNeuÜberdacht.Forum suissepourl’étudedesmigra 11 Schönenberger, Silvia,andGianni D’Amato.DasIntegrationsleitbild ment ofeducation,healthand 10 The social-democratClaudiaOmar-Amberg,inchargeoftheDepart introduction, theexecutivecouncilloroftime document wasapprovedin2010 > > Bern CH difference asastrengthofoursociety. The cityofBernrecognisesdiversityand guidelines, anadaptationofthe guidelines andsay‘hereyouhave welfare. guidelines. Anewfor 13 . 12 Thenew guidelines Related toallpolicyfields Categories - 11 10 - - . It

- - - guidelines were a political As acivilservant said,“Theguidelineswere apolitical The thirdroleislessexplicitand ispoliticandstrategic. stakeholders, clarifyingallthese aspectsiscrucial. plishing theaimsneedscoordinated workofmany is important,andwhoresponsible forit.Asaccom- specify whatexactlyismeantwithintegration,whyit that thecityofBernwantstopromoteintegration,and plicitly whatisoftenimplicit.Itstatesinblackandwhite on thedefinitionofconcepts.Thedocumentsaysex- idea isthatactionneedsaconsensusontheaimsand role astheyserveabasisfortangiblemeasures.The Secondly, theguidelineshaveaverypracticeoriented and institution. a challengeconcerningpracticallyeverystakeholder should influenceeverydaywork. munity work or religious communities – the associations (sport,forexample),institutionsof administration offices,aswellforsocial-partners, guidelines haveainstructionalrole.Fortheusers– respective tasksanduserswereidentified.First,the many differentusers.Threemainrolesandtheir The guidelineshavemanygoalsandsothey 65.3. Target groups diversity managementforexample). address workersincontactwithmigrants(trainings port forGermancoursesexample),whileothers ures addressthemigrantpopulation(financialsup finances themintheglobalcitybudget.Somemeas itself, butinsteadcoordinatesandinforms.Thecity Competence Centredoesnotprovidethemeasures 2012 shouldtransposetheideasintoreality.The A catalogueof37measuresplannedfor2011and 2010 islistoftangiblemeasures. guidelines. However,themostimportantnoveltyof and theirspecificroleintheimplementationof Finally, thelistdocumentedinvolvedstakeholders social participation,informationandlivingarea. market, hobbies,cultureandsport,health,civic fields ofactionsuchastrainingandeducation, More specifically,theaimsaredetailedinseveral > > > > > > opportunities and The cityofBernsupportsequality discrimination. The cityofBerncommitsitselfinthefightagainst migrants. The cityofBernsupportsthepotential participation ofmigrants. Integration isseenas guidelines labour com- - - 357

project. The idea was to show that they handled it [in- of such guidelines is thus the low level of application. tegration]”14. The guidelines are used as a political tool, Such a consensus can hardly exist at a higher level to legitimate measures of integration. Integration is a than the one of the city. hot topic for debate. As Vogel stated in a another Swiss The concept of integration and the advancement of it city, establishing guidelines on this topic puts an end are also innovative. Similar to social cohesion, integra- to endless discussions in the city council (Vogel 2006). tion cannot only rely on the State and its administrative Thus, it can be seen as a way of imposing a political agencies. In addition, it cannot be reached through programme. As everybody agreed on the principle of big projects or campaigns, or on quotas and compul- promoting integration, the left managed to establish sory measures heading toward civil society. Inclusion, a model that bound the principle to the measures, in equality of opportunities and non-discrimination (also) order to make them harder to contest. takes place everywhere and every day. Like a civil servant explained, “People often think that there is no 65.4. Conclusion: collectively will to implement these guidelines. What we see is a lot defining integration of motivation and perhaps a lack of know-how. People expect big projects. But integration is also a matter of Even if concepts vary on how to balance rights and du- small things we do not necessarily see.”19 ties or how to share responsibilities between migrants and settled citizens15, all political forces agree on a con- The way of discussing, negotiating and finally writing cept of integration as a reciprocal duty, based on the down guidelines is an innovative way of building so- principle of “encouraging and demanding”16. Migrants cial policies. It supports participation and acceptance are expected to exercise their own responsibility and through consultation and involvement of stakehold- provide an active contribution to their integration, but ers. It acknowledges the limits of enforceable rules also the settled population has to be open and toler- in a field such as integration. Definitions and -re Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities ant, and offer a support to the integration process17. sponsibilities first have to be collectively defined and endorsed. The coordinating and informing role of the A condition of appearance and success of such a pro- Competence Centre illustrates the innovative (in this ject on a such controversial theme is a certain political context) role of the State as an encouraging and ena- consensus. “The guidelines have to be endorsed by bling stakeholder. However, here lies the limit of this parliament. Some small points were disputed, but in way of governing. The city can somehow enforce its general, everybody is in favour of integration. There guidelines in its own administration and institutions. is neither discussion on the need to intervene, nor on However, there is no legal basis to enforce them in the definition of integration. It is now clear that we associations and private companies. Even if it there do not speak of assimilation. Integration can only be is no need to enforce it (it is not the idea), the imple- 18 reciprocal.” mentation of the guidelines is highly dependent on The consensus is based on a rather liberal conception the cooperation of third parties. of integration, seen as a reciprocal and never-ending Another limit is related to the competences attribut- process. However, on the national level, a much more ed to the Confederation. As an example, a journalist conservative idea of integration prevails. The recent explains that if a migrant comes with an academic tightening of the conditions required to obtain Swiss degree that is not recognised by Swiss authorities, the citizenship is a clear example. Naturalisation is the end city has no leeway to offer him better job opportuni- point of the integration process, which requires, for ties. The same problem weighs upon the naturalisa- many politicians, assimilation. A condition for success tion process and the requirements. If Bern – its government and its population – predominantly think that 14 Interview 18 with a civil servant in the field of integration. naturalisation can be a tool to support integration, 15 “Vernehmlassung Zum Gesetz Über Die Integration Der Auslän- the city has no authority to reduce the requirements dischen Bevölkerung.” Schweizerische Volkspartei Kanton Bern, 7 September 2010. of the procedure; those are defined by the Confeder- ation and at a national level. Naturalisation is mostly 16 The german expression is “Fördern und fordern”. seen as the reward for “completed” integration. 17 “Leitbild Zur Integrationspolitik Der Stadt Bern 2010.” Gemeinderat der Stadt Bern, 7 May 2010.

18 Interview 18 with a civil servant in the field of integration. 19 Ibid. 358 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities sation andtheimplementationofprogramme.Letuslookfirstatcontextinwhichthisprojectappeared. to anew–withrespectthecontext of amanagementprogrammeaimingtomotivate,thisprojecthassomeinnovativefeatures.Thesearefirstlinked years withyoungchildren,noprofessionaltraininganddependentonsocialassistance.Althoughitisatypicalcase into positiveoutcomes.Education institutionsandthe underlying ideaisthatpeople differgreatlyintheircapabilities,otherwords abilitytoconvertopportunities Bern’s basicstrategyagainst for Labourconsequentlydevelopedapilotprojectaddressing thisparticulargroup. market bytheirparentalduties,resultinginalifetimedependency onsocialassistance.TheCompetenceCentre the participantsnevercompletedanyprofessionaltraining. Thesewomenareseenasisolatedfromthe and 25yearswasnoted.Theyidentifiedmotherhood(particularly successivemotherhoods)asarisksomeof Over thelastfewyears,agrowingproportionofyoungbeneficiaries thatbecome with thesocialservices. different territorial level).www.iiz.ch 20 Inter-institutional It collaborateswiththecantonandencouragesinter-institutional provides professionaland for Labour(KompetenzzentrumArbeit)wascreated,which starteditsactivitiesin2005.TheCompetenceCentre with anassociationnamed“Jobsinsteadofassistance”(ArbeitstattFürsorge).Asaresult,theCompetenceCentre against unemploymentisprimarilyacantonalresponsibility).In2004,conceptwasimplementedin In 2001,thecitycouncil,withitsleftmajority,decidedthat 66.2. Internal organisation andmodesof working The projectfor 66.1. Shortdescription education for Professional integrationand 66 Bern CH young collaboration isaconceptpromotedby theConfederationtocoordinateworkofinstitutions(sometimesindifferent fieldsor mothers isapilotprojectaimingtoimprovetheemployabilityofwomenbetween16and25 /77 social integration.Oneofitsmainfocusesisthestruggle against unemployment consistsoffour points.Thefirstistoprovidelowthresholdoffers. The social investmentperspective.Second,innovationisevidentintheorgani Employment Child andfamilycare Categories young labour marketwouldbetoo demandingforsomepeople unemployment shouldbetackledbythecity(fight collaboration mothers 20 ; collaborationisparticularlyclose mothers betweentheageof16 youth unemployment. collaboration labour - 359

who can neither complete professional training nor and consequently social – integration and as a tool to step into the working world. Welfare programmes fight againstwelfare fraud (Cattacin et al. 2002). It also against unemployment should note the capabilities sorts the willing from the unwilling (or undeserving) and improve accessibility to education and jobs. This welfare beneficiaries. perspective is based on an individual and structural This workfare approach is mixed with a social invest- explanation of unemployment. The labour market is ment perspective: “measures are not free, but the very demanding, and some people, no matter how money is well spent. The city of Bern invests for the they try, cannot meet these expectations. future, in order to avoid more ‘fixing’ costs”21, says the A second point is the principle of “supporting and de- director of the welfare, education and health depart- manding” (fordern und fördern). It is close to Giddens ment. As we will see, the investment component is and New Labour’s “no rights without responsibilities” the main justification brought to convince of the pro- (Giddens 1998). Support depends on cooperation. ject necessity and the legitimacy. It is neither justified The collaboration with social services establishes a by the extent of the need, nor because it is a public system of carrot and stick. Non-cooperating bene- problem22, but because it is economically efficient. ficiaries receive deductions of their allowances. An- Therefore, the project is cheap and should, at the other example is the implementation of “test jobs”. If same time, enable savings. civil servants have doubts regarding the motivation of social assistance beneficiaries to get a job, the latter 66.3. Target group are hired as road-mender, for example, where their “real” motivation to work can be tested. If they do not The Competence Centre for Labour has three target come to work or do not cooperate, allowances can be groups: (1) people dealing with lack of training, (2) cut. Those are typical features of activation policies unemployed people and (3) people facing long-term Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities of an “enabling state” (Gilbert and Gilbert 1989) that unemployment. The project for young mothers takes requires cooperating citizens. place in the first field. The cause ofunemployment is here supposedly the lack of training and the aban- The third point is the orientation toward empower- donment of any professional project in order to con- ment and employability. The aim of the Competence centrate (willingly or by necessity) on parental duties. Centre is to improve people’s capacities and employability, including skills and knowledge, but also The project addresses mothers between 16 and 25 attitudes and behaviours. Some programmes focus years old, who meet the social assistance criteria and on getting people (or maintaining them) used to the with no professional training. Following social servic- working world. The part-wage jobs and the “social es, around seventy people actually (in March 2013) firms” are examples. meet these criteria in Bern. For now, ten women are involved in the programme23. They are volunteers and The fourth and last point is multidisciplinary work and should be involved for the long-term until they reach partnerships. Inter-institutional collaboration should their aim. Objectives are set considering their double bring together efforts of the different public stake- role, mother and worker. Their personal situation holders in welfare, amongst others, the social insur- must allow them to dedicate themselves to a profes- ances and social services. It should also define the re- sional activity. Even if it is no criterion, participants sponsibilities and coordinate actions of cantonal and often are lone mothers (nine out ten24). Thus, the first communal stakeholders. Furthermore, public-private task will often be to find day-care for their children. partnerships (PPP) are encouraged. Networking is seen as essential as there is a consensus over the fact 21 “Diese Massnahmen sind nicht gratis zu haben. Das notwendige Geld that the State alone cannot tackle unemployment. ist aber gut angelegt. Die Stadt Bern investiert damit in die Zukunft und vermeidet gesellschaftliche „Reparaturkosten“. Mittel- und langfristig These guidelines in the fight againstunemployment führen diese Investitionen zu Minderausgaben”. Edith Olibet, “Strategien und Massnahmen. Förderung der beruflichen und sozialenIntegration are part of a whole workfare programme. It is a cen- in der Stadt Bern 2010-2013”, Stadt Bern, 2010. tral point of Bern welfare strategy as a job is seen – in 22 Juvenile delinquency, for example, is a public problem in the sense the discourses and the documents – as the best way that people (and the media) worry about it (and often overstate its extent). to ensure social integration and avoid dependency on social assistance. Forcing beneficiaries to work is seen 23 Hearing “Projekt Junge Mütter”, Bern, 7 March 2013. at the same time as a tool to promote professional – 24 Ibid. 360 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities www.ch-semo.ch agers andyoungadultswithnocompleted professionaltraining.http:// 25 Motivation Semester(SeMo)isaprogramme forunemployedteen take partinworkshops(oftheMotivationSemester we teachhere,”acivilservantstated.Participantscan “Punctuality isoneofthesimplebutessentialskills taught therealityof The thirdfieldisrelatedtowork.Participantsare to writearésumé,howmanagejobinterview). health issues),andadviseonjobapplications(how and tomanagetheeverydaylifewithchildren,or as wellparentaladvise(onhowtoraisechildren The secondiscoaching.Individualadviseprovided, (in German or mathematics, depending on the needs). individual supporttofillthegapinschoolknowledge fields. Thefirstiseducation.Ateacherprovides others areoutsourced.Offerscanbedividedinthree offers areprovidedbytheCompetenceCentre,but programme inseveralexternalinstitutions.Some of coordinatingthedifferentpartsdefined charge ofdefiningtheneedsparticipantsand The programmemainlyconsistsofacoordinatorin by motherhood. at leastdistancingfromthe that thereisanalternativetopotentialisolation–or defining theirroleasamother.Theaimistoshow experience andprofessionalperspectives,aswell Participants havethepossibilitytodeveloptheirwork coaching andworkmodules.Coordinationiscentral. time oftheyear.Theprogrammeincludeseducation, care. Asitisveryindividual,womencanstartatany mostly dependsonthearrangementregardingchild gramme, othersjustcomeforonedayperweek.It in termsofduration.Someattendafull-timepro be eitherajobortraining.Theprogrammeisflexible capabilities andemployability.Theoutcomeshould tailored programmesseekingtoimproveparticipants’ In a of companiesthatcouldpotentiallyhireparticipants. the coordinatorofprojectistodevelopa or internships(intheregular Bern CH case managementapproach,theprojectprovides labour market,forexample, labour market–caused labour market).Ataskof Employment Child andfamilycare Categories network - 25 - ) understand andsupporttheproject,aswellsee cooperation. Inourcase,allstakeholdershaveto budget, recognition and expertise are likely to restrain Verdière 1999).Conflictregardingpower,territories, tion ina Yet, asithasbeenpointedout,obstaclestocoopera high degreeofcooperationfromallinvolvedpartners. having itsownpremisesandemployeesrequiresa tions for success for such pilot projects. Of course, not servants, aflexiblestructureandlowcostsarecondi parental advising,etc.).Accordingtointerviewedcivil Motivation Semester,oftheYouthDepartment, (infrastructures oftheCompetenceCentre, euros. Theprojectusesexistinginfrastructuresonly pilot-phase lastedfor18monthatacostof170,000 of theproject.Itisaveryflexiblestructure.The The secondinnovativeaspectresidesintheconcept more liberalone). coalitions (themoresocial-democraticoneandthe to abroadconsensusbetweenthetwoleading perspective basedonacost-benefitsanalysisleads in german)andefficiency(Wirkung).Thisinvestment levels: profitability(orcost-effectiveness,Rentabilität of theproject assistance themselves of participantsoftenare,orwere,dependentonsocial the intergenerationaltransmissionofpoverty.Mothers Primano, theprojectforyoungmothersaimstobreak people. Theprojectisaboutsavingmoney.Similarto it isnotaboutmoralisinganddiscipliningunemployed is notwhetherorsocialassistancemustbeearned, perspective addedtoaworkfareapproach.Thematter The firstinnovativeaspectisthesocialinvestment 66.4. Conclusion 2013. bildungslose jungeMütter”,Hochschule LuzernSozialeArbeit,January 28 “Evaluationsbericht zumAngebot für Sozialhilfebeziehende,aus mental andeconomiccostsbenefits. See(Scholten2006). and accountingabroadconceptofvalue. Itestimatessocial,environ 27 Social Return on Investment is an analytic tool created for measuring 26 Hearing “ProjektJungeMütter”,Bern, 7March2013. (SROI use ofatoolnamedSocialReturnOnInvestment analysis. Theevaluationledafterthepilot-phase the mostprominentargumentisacosts-benefits In presentationsandassessmentsabouttheproject, their childrenwouldfollowthispath. allowances. Furthermore,itwouldbequitelikelythat young mothersspendtheirentirelivesreceiving 27 ) toestimatethepotentialfinancialbenefits welfare systemarenumerous(Demaillyand 28 . Theassessmentsconsistsoftwo 26 . There is a high risk that these . Thereisahighriskthatthese - - - -

361

their own interest in participating. Regular hearings present, as well as other city representatives interest- were organised with partners and stakeholders, from ed in implementing a similar project. If the “federal the conception phase to the evaluation phase. states as laboratories” idea existed, it is through this Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities However, success not only depends on partners, but method sharing of ideas and information. Over the also on the city council, which has to endorse the coming years, the project could appear in other cities, concept and the strategy against unemployment. but it could also by scaled up at a regional level in Scientific evaluation was often mentioned in inter- Bern. A discussion in scheduled. views as a key element of acceptance in the political Some limitations of this innovation can be highlight- field. The risk and efficacy of the measure have to ed. First, the model of the working lone mother ad- be well documented. For example, the presentation vocated as the only way out of poverty by the unem- document states that having basic training reduces ployment strategy can be critically addressed. Even the risk of being unemployed by a factor of three with full-time child care, working full-time turns out to and the risk of being poor by a factor of 2.5 (based be impossible for the mother, for example if the work on Strahm 2010). The assessment report undertaken place is distant from home. Furthermore, participants’ by an academic institution provides “evidence” of chances to get a skilled and well paid job are thin. efficacy. It highlights the effects of the measure on This means that these lone mothers, even following the participants as well as the effects on the global the Competence Centre programme, are condemned welfare budget. The estimated return on investment to become and probably stay working poor. Indeed, is certainly of primary concern for many politicians. statistics show that lone parent families are highly 29. In addition, with a high A last factor for the appearance and the success of exposed to a risk of poverty activity rate, the mother and her child spent less time such a project is an existing, similar project else- together. This contradicts recommendations of edu- where. To sum up, it is good if it is innovative, but it is cational programmes such as primano. reassuring if it is not the first experience of this kind. Programmes for young unemployed mothers exist Another critical view could highlight that the chang- in Zürich and Luzern. Bern had the opportunity to ing role of women in society corresponds mainly learn from their experiences. It also helps to convince to aspirations of women from higher social layers of the merits of the project. If it exists and works in (Esping-Andersen 2009). The working mother as a Zürich, why not try it in Bern? In a hearing where model of emancipation and equality of men and assessments of the pilot-phase were presented, representatives of the cities of Zürich and Luzern were 29 “Les familles en Suisse: pauvreté et aide sociale”, Office fédéral de la statistique, Neuchâtel, 2013. 362 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities inspired byalreadyexisting projects. Italldependson implemented byadministrative agencies,whichwere innovations are“real”innovations, astheyare An objectioncouldbewhether theseso-called patory logicandfroma innovation doesnotnecessarilyarisefromanemanci private stakeholders.ThecaseofBernillustratesthat opment anditsoperationalisationincludesmany for example,wascreatedbytheStatebutits case ofBern.Theprogrammefor 30 Hearing “Projekt JungeMütter”,Bern,7March2013. and 2010, forexample)betweenstate-ledprogrammes private. Therecurrentopposition(inMoulaert from differentlevelsandfields,public result isawide interest incooperatingwithotherstakeholders.The Welfare). Second,theseagenciesdemonstratedan and supportfromthehierarchy(theDepartmentof administrative agenciesenjoyingbothautonomy to arise?First,theselectedinnovationsarosefrom vations. Whataretheconditionsforsuchasituation testify thattheStateitselfcanproducesocialinno as aproductofthethirdsector,butourcasestudies innovative ideas.Socialinnovationisoftenconsidered of Bernshowsafourthoption:theStatecancreate play aregulatoryrole(Chambon innovation orbeafacilitatorforpublicdebate, roles regardinginnovation.Itcanbeabarrierto For Chambonandhisteam,theStatecanhavethree Characteristics of innovations inBern: success ofinnovationsinBern. conditions andchallengesfortheappearance the selectedinnovations.Thenwewillreviewsome To conclude,wewillhighlightsomecharacteristicsof Conclusions start oftheprogramme none oftheparticipantshadmorechildrenafter been mentionedbyamanageroftheprogramme: for thosewhocanaffordit.Apreoccupyingfacthas unintentionally) theideathathavingchildrenonlyis graphic) reasons,theStateshouldnotspread(even every participant.Forethicalandeconomical(demo women probablydoesnotmatchthesituationof Bern CH civil societysocial network composedbystakeholders initiatives isnotrelevantinthe 30 community dynamic. . etal.1982).Thecase young mothers, devel- et al. social - - - for young problems. Twoinnovations–Primanoandtheproject One oftheseargumentsisaglobalapproachtosocial value. innovation aremuchmorepowerfulandadd this aspect.Aswehaveshown,otherargumentsthan a reasonwhyadministrativeagentsdonotinsiston tion is mostly a buzzword (“Schlagwort”). This could be In thefocusgroup,participantsagreedthatinnova not considerthe implementation ofthe civil servantsinchargeofthe the selectedprojectsasinnovative.Forexample, Stakeholders themselvesdonotalwaysconsider ers –evaluatetheinnovativecharacterofaproject. initiated elsewhere.Afirstpointisthatwe–research cities andinGermany)wereinspiredbyexperiences replication evenifsomeweretoexistinotherSwiss maybe the projects. Wesawthatthethreeprojects(except innovations canbeareplicationofalreadyexisting projects asinnovativeregardingaspecificcontext, our definitionofinnovation.SinceWILCOconsiders as atoolforgaining financialindependence andasa but notleast,the aims toimprovebeneficiaries’ employability.Last, being unemployed.Theproject for they willbewelltrainedand thushavelessriskof learning andsocialskills,inorderthatthefuture, innovations. back towork.Workisthusthefocalpointofour A worthytargetgroupincludespeoplelikelytoget socially tooweakforrealistic least, postulatesthatsomepeoplearecognitivelyand The dominantdiscourse,intheadministrativefieldat obvious (Palier2005),butwhataboutgrown-ups? target ofthepolicies.Investinginchildrenappears for theinvestmentperspectiveisselectionof novations includesuchacombination.Akeyelement perspective witha programmes isacombinationofaninvestment A secondargumentaddingvaluetosocialpolicy and integrationprocesses. support andassourceofpotentialobstaclestosocial consider theimportanceoffamily,bothasasource aim of “supporting families to help themselves” and to emphasise thesuccessofsuchapproacheswith Morris etal.(2008)andClarkeHughes(2010) cy to build a “whole family approach” in social policies. mothers –particularlyillustratethetenden guidelines wherethereisnoevidenceof Primano aimstoimprovechildren’s guidelines themselvesasinnovative. guidelines convergetoward work workfare approach.Ourthreein guidelines forintegrationdo professional integration. development andthe young mothers - - - - 363

tool for social integration. In the preface to the 1999 solidarity - equality of opportunities. The consensus edition, executive councillor Claudia Omar mainly also involves the role of the State. Both leading talks about professional integration. She highlights coalitions agree on an enabling State providing public the contribution of migrants who “build houses and support for private responsibility. roads”, are “top-managers” and “sports champions”. Second, as we have shown, there is no overly domi- Then, her (only) argument about the need for action nant regime. A configuration where a growth coalition is that migrants are too often unemployed. and an integration coalition are overlapping facilitates Some innovations in other cities studies highlighted innovations, as they are more likely to find converging by WILCO feature work integration in social enter- interests. In the case of Bern, workfare and social prises (“work corporations” in Nijmegen and “Yalla investment are considered as win-win policies for Trappan” in Malmö, for example). In Bern, owing both coalitions. They emphasise different arguments to a very favourable employment situation, work (or have a different arguments hierarchy), but they integration can be done in regular firms. Civil servants support the same policy. in charge of the project for young mothers stated Third, a basic condition for the appearance and that internships in regular firms were much more success of an innovation is surely its cost. The lower appreciated by beneficiaries than temporary jobs in it is, the bigger the chance of success. Almost all the Competence Centre workshops. The above-men- interviewed stakeholders mentioned the low cost (for tioned “part-wage jobs” project follows the same path. the community at least) of their project as a key-ele- There is a will to orientate work integration toward ment. In order words, good innovation would be an the “real” labour market. It is seen as more efficient answer to the question “how to make better or more (and bringing more recognition) and it does not efficient use of existing (infra)structures?” The three imply the creation of new structures. Such practices innovations do not imply the creation of new big Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities can only occur with cooperation between public and infrastructures. It was regarded as a factor of success private stakeholders. Again, the innovation starts with (and acceptance). a public initiative and then needs the support of the private sector. Fourth, as Evers and Guillemard (2012) showed, the landscape of social policy is changing. The process of Conditions for appearance and success transition from one paradigm (the remains of post-war welfare state) to another (activating social investment of innovations: state) offers conditions for innovations. There is a shift between the existing structures that still correspond to The report on values (WP4) helps to understand the a rather classic providing state and the values in which context in which these innovations appeared. The the population and the leaders believe. Innovations context analysis allows us to draw some hypothesis can be seen as adaptation of an old system to new about the conditions that could favour the appear- values, new understandings of social-problems and ance of social innovations. Of course, as our innova- new ideas of what solutions could be. tions arose from the public sector, our hypotheses only concern the appearance of innovations in the Fifth, the relative independence of a territorial unit in public sector. Conditions of success are even harder a federalist system probably favours innovations. In to establish, as the “success” is hard to define. We will the introduction, we emphasised the idea of federal- consider that the three innovations are successful, as ism as a laboratory to try new solutions at a reduced they have lasted for several years and have not been scale. As we argued, some values are widely shared contested. in a city such as Bern, but heavily disputed in the rural areas. It is the case for child care and primano. First, we stated that in Bern, the leading coalitions The innovations could only appear in the territorial have a consensus on core values and on a certain unit where they fit values and representations. part of policy core. The centre-left coalition (“RGM”) Furthermore, it is (or it looks) less risky to try new and the right coalition (“Die Bürgerlichen”) agree ideas in a relatively small area. Small size also facil- on basic values. For example, the project for young itates cooperation when needed. Stakeholders are mothers fits some values shared by both coalition: more likely to know each other personally. As many self-determination - individual responsibility and interviewees said, the innovations studied were quite 364 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities University Press. Citizenship Evers, A. &Guillemard A.M. (2012) Malden, MA:PolityPress. tion: AdaptingtoWomen’sNew Roles. Esping-Andersen, G.(2009) Ecole, Intégration. Coopération DansLesPartenariatsEnZEP.” Demailly, L.&VerdièreJ.(1999) w4406. of EconomicResearch.http://www.nber.org/papers/ a Difference?”WorkingPaper4406.NationalBureau Currie, J.&Thomas,D.(1993) Society, 9,4,3September3,pp.527–531. ing aCriticalResearchFramework.”SocialPolicyand Minded PolicyandWholeFamilyPractice–Develop Clarke, H.&Hughes,N.(2010) France. innovations sociales Chambon, J.-L.,David,A.&Devevey,J.M.(1982) Fribourg. réforme. EditionsUniversitairesFribourg.ResSocialis. Retour autravail!:le Cattacin, S.,Gianni,M.,Mänz,&TattiniV.(2002) slogik.” SwissPoliticalScienceReview,2,1,1–14. Sozialstaates. ÜberlegungenZuSeinerEntwicklung Cattacin, S.(1996) 1 April1,pp.116–133. school Youngsters(HIPPY).” (1999) Baker, A.J.L.,Piotrkowski,C.S.&Brooks-Gunn, Bibliography leaders andthebaseofalltheseorganisations. and stakeholdersofthe unit andthe ment andthelegislativecouncil,betweenyouth between thehealth,educationand an certainconsensusovervaluesandpolicycore, in the and notonlyleaders)isnecessary.Theinnovation consensus betweenstakeholders(notonly cannot supportandleadaprojectalone.Acertain advocated byoneortwopeople.Onepeople person-centred. Eachinnovationwassupportedand Bern CH “TheHomeInstructionProgrammeforPre unemployment sectorcouldonlyrisewith . New . Landscape the Changing : York: Oxford welfare unit,betweentheadministration “DieTransformationDesSchweizer . 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- ert.” TerraCognita,10,September,pp.82–85. Vogel, H.(2006) Bern: hep,derBildungsverlag. Wirtschaftsbuch Schweiz. Strahm, R.H.(2010) suisse pourl’etudedesmigrationsetdelapopulation. tionsleitbild DerStadtBernNeuUberdacht”.Forum Schonenberger, S.,&D’Amato,G.(2009) to SROIAnalysis.Amsterdam:Lenthe. Scholten, P.(2006) pp. 506–517. Psychological Association(Division43),22,4,August, of theDivisionFamilyPsychologyAmerican ing Parenting.” gramme asaPublicHealthApproachtoStrengthen (2004) Hernanz M.,,FranckMalherbetV.&Pellizzari,M. University Press. ern WelfareCapitalisminAmerica.NewYork:Oxford Gilbert, N.&GilbertB.(1989) Democracy. Malden,Cambridge,MA:PolityPress. Giddens, A.(1998) Sanders, M.R.(2008) 128. Informations sociales Palier, B.(2005) & Francis. Community DevelopmentandSocialInnovation zalez, S.(2010) Moulaert, F.,Swyngedouw,E.,Martinelli,F.&Gon Approaches. (2008) Morris, K.,Hughes,N.,Clarke,H.,Tew,J.&Mason,P. dataoecd/60/30/30901173.pdf. tries: aReviewoftheEvidence.”http://www.oecd.org/ “Take-upofWelfareBenefitsinOECDCoun ThinkFamilyaLiteratureReviewofWhole London:SocialExclusionTaskForce. CanNeighbourhoodsSavetheCity? Journal ofFamilyPsychology:JFP: “GutVernetzt,AberSchwachVerank “Vers unÉtatd’investissementsocial.” TheThirdWay:theRenewalofSocial SocialReturnonInvestment:aGuide WarumWirsoReichSind: , 128,8,1December,pp.118– “Triple P-PositiveParentingPro 2.,erw.undaktualisierteAufl. TheEnablingStateMod “DasIntegra- . Taylor ------Interviews (undertaken between the31July andthe13December2012inBern) 10 3 7 19 18 11 2 7 14 Nb 20 12.10.12 21.09.12 08.10.12 13.12.12 13.12.12 16.10.12 11.09.12 08.10.12 05.11.12 Date 02.11.12 young Programme for integration Guidelines for Primano Field Focus groupinBern mothers Civil servantinthefieldof Bern, J.F. Public administratoroftheemploymentdepartment-city Party, E.O. Executive councilrepresentativeoftheSocial-Democratic Civil servantinthefieldofintegration,M.H. Public administratorinthefieldofintegration,U.H. Civil servantinthefieldofchildhood,M.S. Public administratorofyouthdepartment-cityBern Party, E.O. Executive councilrepresentativeoftheSocial-Democratic Position Civil servantinthefieldof unemployment, A.K. unemployment, Y.P. 365

Giddens, A. (1998) The Third Way: the Renewal of Social Interviews (undertaken between the 31 July and the 13 December 2012 in Bern) Democracy. Malden, Cambridge, MA: Polity Press. Gilbert, N. & Gilbert B. (1989) The Enabling State Mod- Nb Date Field Position ern Welfare Capitalism in America. New York: Oxford Executive council representative of the Social-Democratic University Press. 7 08.10.12 Party, E.O. Hernanz M., , Franck Malherbet V. & Pellizzari, M. Primano (2004) “Take-up of Welfare Benefits in OECD Coun- 2 11.09.12 Public administrator of youth department - city of Bern tries: a Review of the Evidence.” http://www.oecd.org/ 11 16.10.12 Civil servant in the field of childhood, M.S. dataoecd/60/30/30901173.pdf. Morris, K., Hughes, N., Clarke, H., Tew, J. & Mason, P. 18 13.12.12 Public administrator in the field of integration, U.H. (2008) Think Family a Literature Review of Whole Family 19 13.12.12 Guidelines for Civil servant in the field of integration, M.H. Approaches. London: Social Exclusion Task Force. integration Moulaert, F., Swyngedouw, E., Martinelli, F. & Gon- 7 08.10.12 Executive council representative of the Social-Democratic zalez, S. (2010) Can Neighbourhoods Save the City? Party, E.O. Community Development and Social Innovation. Taylor Public administrator of the employment department - city of & Francis. 3 21.09.12 Bern, J.F. Palier, B. (2005) “Vers un État d’investissement social.” Programme for Informations sociales, 128, 8, 1 December, pp. 118– 10 12.10.12 young mothers Civil servant in the field ofunemployment, A.K. 128. 14 05.11.12 Civil servant in the field ofunemployment, Y.P. Sanders, M. R. (2008) “Triple P-Positive Parenting Pro- gramme as a Public Health Approach to Strengthen- 20 02.11.12 Focus group in Bern Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities ing Parenting.” Journal of Family Psychology: JFP: Journal of the Division of Family Psychology of the American Psychological Association (Division 43), 22, 4, August, pp. 506–517. Scholten, P. (2006) Social Return on Investment: a Guide to SROI Analysis. Amsterdam: Lenthe. Schonenberger, S., & D’Amato, G. (2009) “Das Integra- tionsleitbild Der Stadt Bern Neu Uberdacht”. Forum suisse pour l’etude des migrations et de la population. Strahm, R. H. (2010) Warum Wir so Reich Sind: Wirtschaftsbuch Schweiz. 2., erw. und aktualisierte Aufl. Bern: hep, der Bildungsverlag. Vogel, H. (2006) “Gut Vernetzt, Aber Schwach Verank- ert.” Terra Cognita, 10, September, pp. 82–85.

CH Switzerland Geneva

Nathalie Kapko and Sandro Cattacin (University of Geneva) 368 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Welfare innovations inthethreepolicyfields Unemployment Subsidiarity Participation Housing policy Empowerment Disability Child care Activation Keywords: Local background of thesocialinnovations Introduction Geneva CH inclusion inthe targeted populationgroups. as publicadministrationunits,andtoworkonthespecific needsoftheir in thelogicofserviceproductionforandnon-profitorganisations aswell three examplesarecharacterisedbyaspecific in finding crimination (theORIFproject)andfinallyservicesforpeople withdifficulties city levelofGeneva–the is particularlyconsideredinnovative: The threeservicespresentedherearerelatedtothefieldsinwhichGeneva four monththeperiodofhomestay. obligatory maternityleaveinsurancethatpermittedtoextendfromtwo services. Forinstance,itwasthefirstcantoninSwitzerlandtointroducean in Switzerland.Inmanyfields,Genevaispioneeringthe most developedandgeneroussystemsofsocialhealth Together withthecityofGeneva,cantonGenevacreatedone the cantonalworkingforce). canton thatisoneofthehighestcountry(withtodayaround5% imum d’insertionorRMI),asananswertothe which wasinspiredbytheFrenchminimumincomesupport( the cantonofGenevaputinplaceaMinimumCantonalIncome1994, assistance, thisdimensionbeingabsentatthefederallevel.Inparticular, Switzerland andseveralcantonsimplementedprogramsof Since thefirsthalfof1990s,forinstance, people atthemarginsofsociety. cantons, forexampletoface benefits. Also,specificpoliciesareoftendevelopedbythecitiesand it andalsohavethechoicetofixtypesofprogrammeslevel imposed bytheConfederation,butcantonsandcommunesfulfill policies inmanyareas.Forinstance,socialassistanceisacompulsorytask, (and inparticularcitygovernments)andcantonsdeveloptheirownsocial the communal,cantonalandfederallevels,butalsolocalauthorities In Switzerland,thereisnotonlyalargesharingofcompetenciesbetween (University ofGeneva) Nathalie KapkoandSandroCattacin Authors housing opportunities(the labour marketofpeoplewithimpairmentsandrisksdis Unités d’ActionCommunautaire unemployment andfavorreintegrationof Unit forTemporaryHousing).The community orientedservices(atthe unemployment rateofthe unemployment increasedin welfare mixtryingtoinclude ), servicesforthe development of unemployment care services Revenu min- - 369 CH Categories Geneva Related to all policy fields

67/77 The Unités d’Action Communautaire

67.1. Short description

The Unités d’Action Communautaire are structures created by the Municipality of Geneva and they were implement- Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities ed 10 years ago. Located in four neighbourhoods, they are managed by the social services of the city of Geneva. Their goals are diverse:

>> UAC are in charge of collecting information about the four areas where they are located. Proximity is a keyword of their action. They map resident’s needs, urban problems in safety, housing or public facilities. Diagnoses are made through everyday observation, involvement with residents and local statistics. This expertise aims to support the shaping of social policy and public decision at the end.

>> UAC are in charge of giving residents information about city services and opportunities they offer. UAC are rooted in the making of a new conception of social services in which social workers try to reach out to people in the areas where they live.

>> UAC are in charge of facilitating contacts between the associations/participants involved in the neighbourhood. They aim to reinforce the collective action in the area through a better coordination between participants.

>> UAC try to improve the density and quality of neighbourly relationships through coordination and networking (directly related to the above goals).

67.2. Conception and ways of addressing users

The UAC target individuals and NGOs involved in the area (in solidarity, in organisation of cultural activities, etc.) and does not directly work with vulnerable populations: in the UAC perspective, users are members of civil society and the latter is a welfare producer. The UAC aims to support the making and the organisation of this civil society through a better coordination of participants. Building a greater consistency of the diverse programmes, encouraging meetings and common projects and making the spreading of information easier are the main tasks of the UAC. Moreover, this project is based on the idea that community work has to be based on a great knowledge of urban areas. Each UAC has a specific approach to theneighbourhood according to its characteristics. The UAC of Cham- pel, a wealthy neighbourhood located outside the city centre, has developed a different approach to that used in the Jonction area. In doing so, the UAC acknowledge the diversity of the population’s needs and communities located in the neighbourhood. 370 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities the ULTproject. idea ofstabilisingcommunitiesthatwehighlightedin dense ties thatfavourtheembeddednessofindividualsinto emphasises thatcollectiveactioncreatescommuni of vulnerablepopulations.Thepolicyframework create apolicywiththeaimoffightingsocialisolation neighbourhoods inamatterofcollectiveactionand The UACfocusonthestrengthsandweaknessesof changes. information abouthowresidentsperceivethese gentrification inthenorthofarea:theyalsogive the neighbourhoodandespeciallyprogressive neighbourhood the managersofsocialservices,UAC helpful inthemakingofsocialpolicy.Inareportfor expertise in The UACparticipantsthusdevelopsignificant facilities, safetyproblemsandevolution ofthelocal public spaces, of the A firstmodeofworkingisthe makingofdiagnoses hours. and theyfollowedaspecificcertifiedtrainingof300 the UACworkerspreviouslyworkedinanothersector comprises fourcommunityworkers.Finally,mostof regarding theworkofUAC.InJonction,team the cityofGenevafoundedimportantresearch taxes included).Moreover,between2004and2007, 120,000 Swissfrancsperyear(roughly98,000euros the salaryofanemployeeUACrepresents greatly supportedbythecityofGeneva.Forinstance, UAC isquiteimportantshowingthattheyhavebeen UAC hasaspecificbudget.Theglobalbudgetofthe comprise 40workersinthecityasawholeandeach Cohesion andSolidarityofthecityGeneva.They The UACismanagedbytheDepartmentforSocial modes of working 67.3. Internal organisation and Social ServicesinthecityofGeneva). UAC isthattheylookatthemicrolevel(V.S.,Headof case inotherareas.Oneofthemainstrengths ers forinstancedofantasticworkwhileitislessthe hoods. Insomeofthem,individualssuchascaretak collective actionvariesaccordingtotheneighbour Intensity oftheNGOs’andindividuals’involvementin Geneva CH neighbourhood dynamics networks. Tosomeextent,weagainfindthe neighbourhood dynamicsandthisis housing maintenance,child care, public Jonction mentionsthechangesin such astheuseof Related toallpolicyfields Categories - - - in which are embeddedintheGenevatraditionof At thesametime,modesofworkingUAC context. ground -wasdefinitelyinnovativeinthe were created,thisapproach-stateworkersonthe in touchwithhard-to-reachgroups.WhentheUAC The UACtriestodevelopnewmethodsinorderbe of SocialServicesargues: is akeywordintheUACworkingcultureasHead in meetingpopulationsneedingassistance.Proximity UAC isthatsocialworkersshouldbemoreproactive A thirdbasicprincipleoftheworkingculturein quality ofrelationshipsintheirbuilding. support agroupofinhabitantswishingtoimprovethe uals) involvedinthearea.Forinstance,UACmay contacts betweenallparticipants(NGOsandindivid emerging projects,theymeetpeopleandfavour about collectiveactioninthearea,studydiverse area. Indoingso,theUACworkerscollectinformation pants andNGOsinvolvedin ment ofcoordinationbetweenthediversepartici A secondmodeofworkingisrelatedtotheimprove residents, localstatistics. of theUAC),conversationwithNGOs’participantsand questionnaires, everydayobservation(astrongside bourhood. UACparticipantsuseddiversemethods: a reportbeforemeetingorganisedinthe Thus, in2010,theUACwaschargeofpreparing ships betweenpoliticians/policymakersandresidents. expertise maysupportpublicdecisionsandrelation population regardingsocio-economicstatus.This realisation ofthisprinciple The UACappearasatool makers supportthemshapingabottom-upprocess. couraged. Civilsocietyputideasforwardandpolicy making ofsocialinterrelations. people theinformationtheyneedandfavour key-points ofaneighbourhood.Andthen,theygive professionals walkaroundtomaptheissuesand people whoneedtheirhelp.ThemainideaisthatUAC social workersworkingintheirofficesandwaitingfor People workingintheUACareverydifferentfrom initiatives from civil societyarelargelyen enabling community actioninthe subsidiarity. development and local welfare subsidiarity neigh ------371

Another interaction with the local welfare system is also one of the limits of the UAC. Through this project, the city of Geneva encourages civil society self-organisation and offers significant subsidies to the NGOs. Thus, the UAC action significantly contributes to the proliferation of organisations in a specific field – isolation of elderly, assistance to migrants, etc. As the numbers of participants increase, they get into trouble coordinating and working together. According to the Head of Social Services, this is one the limits of the Geneva welfare system: We have a very important number of participants in social policies. For instance, in a matter of assistance to the elderly, we roughly have 250 participants in © Maxime Felder Geneva – state workers, NGOs and so on. This is one of the features of the Geneva welfare. And it’s difficult because people do not always know each other… This 67.4. Interaction with the local situation is clearly linked to a large amount of money welfare system offered to the diverse organisations. When one of them needed money, the state supported it and we The UAC are directly related to a 2002 law on the built a kind of “yarrow” with multiple layers. We forgot reorganisation of social policy in the canton of to develop a global vision of the whole. Geneva. According to this law, the canton is in charge Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities On the one hand, the UAC works to improve the level of individual measures (benefits, individualised of coordination and has helped the city of Geneva support, home care, etc.) while the cities have to to get a clearer perception of what the NGOs do and develop a community social policy. Following the law, how they work together. The state of Geneva thus the city of Geneva implemented the UAC, an original tries to get out from a single logic of welfare benefits approach, which contrasts with the dominant individ- provider based on an instrumental rationality. Like- ualised support of people and families. The UAC look wise, they also contribute to the proliferation of NGOs at individuals in the urban environment and networks and their dependence towards the local government. and clearly favour the shaping of stabilising communities able to improve social integration of individuals, which contrasts with the view of communities in some other welfare states: their significance is underesti- mated, they are associated with social segregation and they withdraw to their own small circle. Nevertheless, implementation of the UAC in the local welfare state was quite difficult in the beginning. Although they have been clearly supported by the higher city management, local participants in the neighbourhoods were sometimes destabilised by the implementation of the UAC: some social workers were reluctant with respect to interventions differing from an individualised approach and some NGOs defending similar community values perceived the UAC as an attempt of policymakers to make their work more bureaucratic (Rossiaud 2007). Consequently, the UAC both have to prove their value added and make their goals clearer. 372 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities that theydevelop theirabilitiesandenter the “these youngpeoplehavefailed andtheyarenotself-confident.Ourroleis into accounthealthstatusand itsevolutionaswelldiverseproblemsofsocialisation. TheheadofORIFsays: The firstinnovativedimension oftheORIFprogrammesisglobalapproachindividuals: assessmenttakes for DisabilityInsurancefundsand followstheseyoungpeople. programmes enablingthemtointegrateintojobswhiletakingaccount theirindividualdifficulties.TheOffice disabilities. Traditionallearningprocesseswerechallenging forthemandtheORIFisinchargeofimplementing Many youngadultswelcomeattheORIFhavelearningdifficulties relatedtointellectual,motorandbehavioural 68.2. Conception andways of addressing users social opportunitiesforrecipients. interactive employabilityframe(BonvinandFarvaque2007) inwhichdevelopingself-responsibilitygoeswithreal ORIF wishestodevelopemployabilityofpeoplebutdiffering fromotherstructures,wehavebeenobservingan the ORIFfacilities,peopleareinvolvedintocommunitythroughactivitiesandexchangeswithother people. period oftrainingiscompleted.Ontheotherhand,ORIFhelpstodevelopautonomyandself-responsibility.In of integrationintoemploymentdevelopasignificantnetworkcompanieslikelytohireyoungadultsonce hand, ORIFoffersprofessionaltrainingthattakesintoaccountpeople’shealthproblems;servicesincharge employment withlessattentiontothemultipledimensionsofsocialtrajectoriesandvulnerability.Onone The ORIFmarksacontrastwithotherprogrammesthatfocusonthe(re)integrationofyoungpeopleinto distance fromthe vulnerability –notonlyhealthbutalsolackofqualifications,marginalisation,absenceprofessionalprojects and what theycando,withrespecttothetypesofjobsandtasks.Finally,ORIFtacklesdiversedimensionssocial ket. Trainingincompaniesandvariousshadowingmodulesareorganisedtoenableindividualsbeawareof they previouslyhad,whileothersexperiencedifficultiesattheearlystageoftheirentranceinto of thetargetgroup:duetomedicalconditions,somethemcannotgetback the reintegrationintoemploymentofpeoplesufferingfrom The ORIF(non-profitprivateorganisationforintegrationintoemploymentandprofessionaltraining) 68.1. Shortdescription The ORIFproject 68 Geneva CH labour market. /77 Employment Categories labour market”. Toperformtheglobalapproach, amultidisciplinary health problems.Marginalisedyoungadultsarepart enabling themtobeself-confident so labour marketwiththejob labour mar- addresses 373

team, comprising a psychologist, experts in special 68.3. Internal organisation and education and teachers, supports people. “Each individual is supported by two people: the first one is an modes of working expert in training while the second one is a social ad- The ORIF is a Swiss NGO with nine offices/training viser in charge of working on social skills in relation to centres among which one is located in the canton of the young person’s family environment.” Conception Geneva. The ORIF as a whole has 400 workers. Each of users considers social trajectory (learning difficul- ORIF centres has its own director and team. The milieu ties, school paths) but also the type of social in Geneva ORIF may welcome 90 trainees in diverse job which people move. sectors: cooking, masonry, landscaping, parquet floor- A second significant dimension is the long-term ing, mechanics, and sales among others. support, from the beginning to the end: in other The ORIF only welcomes young adults who are sent words, measures start with assessment, continue there by the Office ForDisability Insurance. The with training and conclude when people are back to project is based on the idea that disabled people have work. This support marks a significant contrast with remaining/residual working abilities that enable them other programmes, which are only in charge of one to integrate into the labour market. Modes of working dimension (skills assessment or training or job search consist in supporting people in the diverse steps of strategies). The ORIF support lasts 3 years. The first professional integration: one focuses on the career choice. The NGO offers training in 10 professional sectors and young people >> offering people opportunities to be aware of their are involved in diverse job experiences to be able to working abilities through observation modules choose further a type of job. At the end, young people and job experiences; have to argue their choice in front of the ORIF man- >> placing people in a working situation in order to Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities agers. The first year also focuses on a school upgrade explore their abilities in relation to employers’ and on a specific course on social skills. The second needs; and third years are about training in various places: in >> implementing working projects that take into the ORIF facilities, in private companies and in classic account the trainee’s health situation vocational schools.

Figure 1 - Organisation of the 3 years training

The Office forDisability Insurance Intellectual, motor and behavioural disabilities

First visit of the ORIF center

Career orientation Evaluation of career Job experiences in three job possibilities and interests sectors offered by the ORIF

Career choice Ex: Cooking, retail trade,construction, mechanicals, maintenance services, tilesetting

Vocationnal training

Attestations of vocational education

Integration into employment 374 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities qui rendcapable society (seeforinstanceJacquesDonzelotin develop theirabilitiesandtobecomefullmembersof not reducedtotheirdisabilities,areencouraged nessing an involved. Butontheotherhand,wehavebeenwit tied toformalarrangementsbetweenparticipants should notbemechanicalanduniversalbutrather the liberalperspectivemeaningthatsocialassistance responsibilities onbothhands.Thecontractrefersto welfare goeswithacontractinvolvingobligationsand grated intothe benefits shouldnotpreventpeoplefrombeinginte around traditionalmarkers– goingtoschool,choos employment. Youthappears asalifecycleorganised training andthelatterissupposed toleadpeople defined inanormativeway: theyareassociatedwith In thisperspective,youthandearlyadulthoodare relevant recipients.Themanagersays: and Solidarity,youngadultswerenotconsideredas ject astotheheadofDepartmentEmployment the emploisdesolidarité. about whetheryoungadultsmayhavebenefitedfrom implementing thisprogramme,thereweredebates the primarylabourmarket.Withinworkinggroup long-term jobstopeoplewhocannotintegrateinto ité areasignificantexample.Thisprogrammeoffers young people.Debatesaboutthe divergent viewsofinstrumentsandpoliciestargeting adulthood. Withinthe about theconceptionofhowyoungpeopleenter The impactoftheORIFislessabout welfare system 68.4. Interaction withthe with an“ market: wehavebeenwitnessinga which eachindividualhastoparticipateinthe On theonehand,ORIFcontributestoaprocessin lation asolderpeoplefromthispointofview. to dissocialise.Youngpeoplearenotasariskypopu for thiscategoryofpeoplebutthosewhoarelikely get aqualification.Theemploisdesolidaritéarenot People under30yearsoldmustfollowtrainingand great. Mostofrecipientsaremorethan55yearsold. of acareer.Startingwiththistypejobwouldnotbe The emploisdesolidaritéshouldnotbethebeginning Geneva CH activation” ofsocialexpenditures. empowerment ofpeoplebecausetheyare labour market.Inthisperspective,the , 2007). local welfaresystem,wefind Tothemanagerofpro Emplois deSolidar- workfare regime governance than local Employment Categories Disability Un Etat labour - - - - - ise manner, NicolasFrossard,theheadofNGOReal- be supportedthroughpublicprogrammes.Inageneral not occurinalinearwayandsometimes,theyneedto Going toschool,accesstrainingandgettingajobdo into trainingandparticipationtothelabourmarket. but alsobehaviouraldisabilitiesimpedeintegration count thediversityofyouthandhowintellectual,motor The ORIFprojectisinnovativebecauseittakesintoac- debates withinthe fragmented featureshavebeenoverlookedinsome that changesintotheentranceadulthoodandits with riskbiographies.Tosomeextent,wemaythink unfinished (VandeVelde2008).Itgoeshandin individualisation, alonglifestagebothuncertainand these scholars,youthisfundamentallyaprocessof transition isnotrelevantanylonger.Accordingto ers evenassertthatdefiningyouthasaprocessof not untiltheearlythirtiesorbeyond.Someresearch markers ofadulthoodhaveoccurredlater,sometimes school coursehavemeantthatmanytraditional tion focusingonhowemploymentandanextended ars haveunderscoredahighlyfragmentedlifetransi youth ismuchlessrelevantthanitwasbefore.Schol Still, researchhighlightedthatthisrepresentationof linear way. ing acareerpathandgettingjob,alloccurringin this moreflexibleapproach of populations. bine meansandgoals”.TheORIF projectconcursto stakeholders tohavemorefreedom inhowtheycom- an NGO,wehavedefendedflexible measuresenabling diately implylogicsofexclusion.Withanotherhead target groups.Hesaysthat,“toopreciserulesimme- 1 All nameswereanonymised. © MaximeFelder 1 , disapproved strict rules in a matter of selection of , disapprovedstrictrulesinamatterofselection local welfare. - - - 375 CH Categories Geneva Neighbourhood revitalization / Housing

69/77 The Unit for Temporary Housing (ULT) Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 69.1. Short description

This municipal service offers temporary subsidisedhousing to vulnerable populations: foreign households in a challenging housing situation, people who become homeless and sometimes those who are seriously depressed following a separation, households with massive employment and debts problems. The project aims to counterbal- ance the effects of the Geneva very limitedhousing market (very low rate of available dwellings) on marginalised people’s housing conditions and opportunities. This building (called Michel Simon) was inhabited by elderly people 30 years ago but populations have changed since the 1990s through policy effects. The municipality of Geneva turned this building into a place offering 157 temporary subsidised flats. What is specific in theULT is that residents may be supported by a team employed by the municipality, i.e. a building manager and two nurses. Indeed, the health dimension of social vulnerability has been taken into account and is, as a matter of fact, a key feature of many users living there. The maximum stay is officially 6 months but it may be longer and many residents have been living there for 1 and even 2 years. Rent varies according to the tenants’ resources. This service takes into account risk biographies and how life accidents overlap with health, employment, family status and housing situation. Roughly, tenants may be divided in two parts: first of all, we find people who are excluded from thelabour market for several years and cannot have an autonomous flat. Most of the time they lack of qualifications, have substantial social problems and health conditions, which are the key elements explaining that their lack of jobs for a very long time. The case of Christine exemplifies this type of trajectory: Christine had a very serious car accident in 1995. “I was waiting for the bus and suddenly a car hit me violently. I was completely squeezed. I had multiple injuries and for 1 year I remained in rehabilitation and underwent skin transplants”. Her life completely changed from this moment. Some years after, she became separated from her third husband who “threw her out”. She was not able to find an apartment again as she had no income (she has been affiliated to theDisability Insurance since 1986-1987 because she was previously a drug user and addict with long-term consequences). Some tenants of this category are not likely to go back to the labour market, except perhaps in subsidised jobs. A second category of tenants that is not insignificant do not have significanthealth problems but family problems such as a divorce or/and an erratic job career with precarious jobs have not enabled them to get a flat in an 376 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities arrived inGeneva andarenotnecessarily migrants. It isevenmorerelevantfortenants whorecently ate it(Cattacin2009;Cattacin andKettenacker2011). become morefamiliarwiththe cityandtoappropri people inthecity.Theseplaces helpnewcomersto a placeoftrustandsupport thatexplainsandinforms Ways ofaddressinguserscontributetomakethe grammes andwithtraditional with thecompartmentalisationofsocialpolicypro of autonomy.Fromthispointview,itcontrasts especially psychologicaltroubles,socialisolation,lack sions ofsocialmarginalisation: of the and nurses.Tothisend,oneoftheinnovativeaspects some weeks,theyonlymeetthebuildingmanager people haveverylittlecontactwithotherand etc.) butitalsodealswiththeirsocialisolation.Some population’s basicneeds(food, assistance: indeed,itisnotonlyconcernedwiththe The ULTcontrastswithatraditionalpatternofsocial addressing users 69.2. Conception andways of numerous inthiscategory. previous wivesremainedinthefamilyapartmentare dised apartments.Menwhogotdivorcedandwhose other people’sflatsbeforeaccessingthesesubsi autonomous way.Mostofthemlivedinhotelsand © MaximeFelder Geneva CH ULT isthatittakesintoaccountdiversedimen social housingprojects. housing, healthand housing, clothes, Neighbourhood revitalization/Housing Categories - ULT - - - segregation withinamixedarea. holds there.It building) asweonlyfindvery disadvantagedhouse of socio-economic But ontheotherhand, university studentsandevenquitewealthyfamilies. of Genevabutwealsofindthereintermediarygroups, populations withrespecttotheotherareasofcity There isanoverrepresentationofdisadvantaged a low/averagerateofsocio-economic located inthearea individuals andneighbourlyrelationships.The populations inthebuildinghassomeeffectson The waypublicpolicyhasconcentratedvulnerable overestimated. to thecityeventhoughthisprocessshouldnotbe munities providingsupportandafeelingofbelonging to manyothers,the depressed duetoanongoingdivorce.ToMartine,as on thesamefloorforachatandteabecausehewas talked toherneighboursandsheinvitedamanliving took partinaChristmaseventthere,sheregularly other peoplelivinginthebuildingMichelSimon.She Martine hadgoodneighbourlyrelationshipswiththe her dog.Althoughshedidnotlikethearea was reluctanttogoout.Sheonlywentoutsidewith long time.Shewasnotusedtolivinginthecityand Thus, Martinelivedinaruralarea,Dardilly,for isactuallyaplaceofsocio-economic segregation atamicro-level (the La Jonction, ULT isoneofthesesmallcom ULT displaysapattern a neighbourhoodwith segregation. Jonction ULT is - , - 377

We found that the concentration of low-income long time do not “frame” the place where they live as households and high residential proximity shape residents who have experienced a quite sudden social solidarity practices between neighbours and help decline following a separation or a loss of job. Brice, them to find diverse strategies and arrangements to for instance, is very critical about his neighbours and deal with problematic situations. Numerous exam- it seems that it is highly related to his feeling of social ples might be mentioned: hours of child care, loan of decline (déclassement). Indeed, Brice experienced a money (50 or 100 euros), short repairs, discussions social fall following his bankruptcy as an entrepreneur between neighbours, etc. Consequently, we observed and his recent separation from his wife. The diverse that a concentration of vulnerable populations cognitive frames impact upon residents’ practices and provides resources to tenants. To some extent, we relationships with their neighbours. consider that the ULT is a small stabilising community where people can find a support (from theULT work- 69.3. Internal organisation and ers and neighbours) to facilitate daily life. One of the modes of working tenants, Catherine, who was homeless and lived in a squat for many months, said: “I have been relieved The ULT is owned and managed by the city of Geneva and moved by how Geneva welcomes me. I am very (Department for Social Cohesion and Solidarity). The grateful for this flower they offered me. Since I lived manager and the three nurses have been employed here, I always receive presents...from the Red Cross, by the city for several years. The building comprises places for events, I said to someone it is a permanent 170 small apartments. People are generally sent there Advent time here (...). I am in a transitory time with by social workers and NGOs; they have to apply to get the protection of the city of Geneva”. a flat. The ULT is part of a large network of emergency The ULT contributes to make the city more inclusive housing offered by NGOs and the city services. Flats Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities to precarious and marginalised populations trying are supposed to welcome people for up to 6 months to recover. This research outcome sheds light on but most of people have been living there for 1, 2 or aspects of segregation differing from those often 3 years due to the housing situation in Geneva. The studied. Indeed, what is commonly called “social rate of turnover in the rented housing market and mixing of populations” has been at the core of many the number of available dwellings are very low (0.2 urban policies as it would enable a better integration per cent) explaining that people who are evicted from of disadvantaged groups - immigrant or low income their flats have many difficulties finding a new flat, populations while socio-economic segregation is com- even a much smaller one. Each year, only 30 residents monly associated with public disorders, delinquency are able to leave the ULT because they find a flat. and increasing of social and urban marginalisation. The ULT does not only offer subsidisedhousing but Research shows that concentration of vulnerable also diverse types of support to tenants as the modes populations may also become a resource for resi- of working show. Three nurses are in charge of visit- dentsThis innovation is characterised by both closure ing tenants: they provide medication and control evo- and openness with respect to the city. On the one lution of health. Many tenants need medication for hand, closure is related to protection (an intercom is a depression. Secondly, the building manager has the boundary between outdoor spaces and the interior of role of managing common spaces; he is also regularly the building; nurses and a manager take care of res- in touch with tenants and may help them with diverse idents). On the other hand, it is opened with respect issues. Maria, a single mother tenant, mentioned that to the city to the extent that it supports integration of she appreciated the manager of the building: one day, residents into the urban fabric. her daughter Evelyne who is disabled, escaped from It does not mean, however, that conflicts do not occur the flat. The manager found her and brought her back in the social life of the building. Some residents try to to Maria’s apartment. Investigation in the building distance themselves from the others, as they want to showed that he contributes to make the ULT more avoid the label and self-identification of “populations welcoming and secure. The city of Geneva is also Unité d’Action Communautaire with social problems” (Lapeyronnie 2008). Representa- present through the of Jonction tions of the building vary according to residents, some the neighbourhood , which is located at the who have experienced massive social problems for a ground floor. Modes of working build up asolidarity network around residents. 378 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities processes isatworktosomeextent. We mayconsiderthat“apsychiatrisation”ofsocial not sufficientanddoesreallymeettheirneeds. In thelattercase,itseemsthatamedicalapproachis due to experimented amarginalisationprocessonlyrecently a medicaltreatmentfordepressionatthe working foralongtimebutothers,whoalsoreceive of themhave residents areaquiteheterogeneousgroup:some employment. Still,ourinvestigationshowedthat to becomemoreautonomousthroughtrainingand people, discusstheirexpectationsandhelpthem as intheORIFteam,asocialadviserwhowouldmeet tent, reducedto all happensasifsocialproblemswere,tosomeex proach andthemanagementteam.Tosomeextent, is acontrastbetweenthestatementofglobalap welcome residentswhohave employed. Aswesaid,theyprovidemedicationand the healthapproachisdominantwiththreenurses working withresidentsisnotmultidisciplinaryand of vulnerability(health,socialisolation),theteam edges riskbiographiesandthediversedimensions mous. Althoughwemayconsiderthat of workingenablepeopletobecomemoreautono We maywonder,however,towhatextentthemodes Geneva CH unemployment, afamilybreachorbankruptcy. health problemsandhavenotbeen health problems.Wedonotwitness, health problems.There ULT acknowl- Neighbourhood revitalization/Housing Categories ULT, have - - - suffered fromlow-standardspatternsof welcoming city,formigrants,instance,whohave ple inthecity.The a placeoftrust,supportandinformationforpeo ways ofaddressinguserscontributetomakethe secure andstabilisingenvironment.Aswesaidabove, perspective, the flat tolow-incomepopulations:adoptingadifferent are individualisedandfocusontheallocationofa In addition,mostofmeasuresin stances underwiththeylive. biographic eventdramaticallychangedsocialcircum a processofmarginalisationforlongtimebut vulnerable populations:theyhavenotexperienced policy takesintoaccountthisparticularsegmentof proportion totheirincome).Tosomeextent,the by mostoftheNGOs,residentshavetopayarent(in flat. Differingfrompeoplelivingintheflatsoffered income butitdoesnotenableaccesstoasubsidised debts andexpulsion):someofthemstillhavean graphic events(lossajob,bankruptcy,divorce,heavy and householdswholosttheirflatsfollowingbio tions emergency Emmaus, Carrefour-Rue)offermarginalisedpopula for 3months).NumbersofNGOs(TheSalvationarmy, (most ofthetime,cantonpaysforstaysatahotel emergency housingforpeopleevictedfromtheirflats cy: allowances,accesstosubsidiseddwellingsand WP2 report). ditions (SchaererandBaranzini2008,seetheGeneva the cantonisinchargeof policy forverylow-incomepopulations.InGeneva, The ULToccupiesaspecificsegmentofthe welfare system 69.4. Interaction withthe ULT offersnotonlyaflatbutalso housing. The ULT contributestoshapeamore social housingpoli ULT dealswithpeople social housingpolicy housing con local housing - - - ULT ULT - - - 379

Conclusions This orientation is relatively new but the ORIF organisation has already developed significant know-how The three innovations we studied have grown and and relevant tools in a matter of participation of stabilised. A first critical factor explaining this stabili- people suffering fromhealth problems and motor/ sation is certainly the significant public funds invested intellectual disabilities. This feature contributes to in social policy in Geneva. They enable innovations to the stabilisation and the growing of this innovation. stabilise on time. For instance, the UAC were created This is much less the case of the ULT because we see 10 years ago and they have progressively grown to 40 a discrepancy between the current policy orientation workers: wages represent a yearly budget of almost towards ill populations and the approach of people in 4 million euros. The key role of public funding in the the ULT. Indeed, the working team comprises three stabilisation of innovations is perhaps a limit to their nurses and a caretaker. They tackle resident’s health diffusion in other contexts. Indeed, UAC encourages problems and social isolation but they are not likely organisation of civil society and plays a key-role in the to favour their professional integration in a significant contacts between the diverse participants involved in way. All happens as if the architecture and modes neighbourhoods but also in the interrelations between of working of the ULT were, to some extent, a legacy organisations and the local government. Therefore, of the previous orientation towards ill populations, their legitimacy and their efficiency (perceived by which does not mean that it is not innovative in many participants) are strongly related to the financial and ways (stabilising community, housing alongside every- material support provided by the city of Geneva. In a day support to residents, etc.). less favourable financial context, the UAC would have In addition, we may consider that the Geneva con- to reshape their actions and their goals, at least partly. text favours diffusion of innovations to some extent. A second critical factor favouring stabilisation of Many people with responsibilities in the field of social Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities innovation is that they agree with the current inter- policy have known each other for a long time and pretation of solidarity according to which the latter some of them are used to working together. These involves a contract with obligations and responsi- routines of collective work favour diffusion of inno- bilities on both hands. The current orientation of vation to the extent that workers are aware of what the local welfare system has been enabling people the other organisations do; circulation of information depending on social assistance to access measures to is easy. This context favours the shaping of coalitions reintegrate the labour market, which was much less and these coalitions may further be involved in the the case before. Legal norms were changed as well as “mainstreaming” of the respective organised projects the general representation of people on benefits as through lobbying and social marketing for instance. we have showed in the WP4 report (see the reform of Thus ORIF has been in touch with other organisations the Minimum Cantonal Income for Social assistance). such as Realise and OSEO. They all agree with the One considered that they had to work in one way or idea that improvement of reintegration of people into another. The ORIF project, for instance, concurs with the labour market requires that the sector of employ- this vision because it is clearly focused on the partici- ment and that of social assistance should open to pation of disabled people into the labour market. This each other rather than being referred to antagonistic orientation agrees with the current orientation of so- principles. These organisations, shaping a coalition, cial policy regarding people sufferinghealth problems have developed a significant lobbying practise, on as the head of the Hospice Général explains: their own part and sometimes together, to spread Previously, many people were able to receive Invalidity this idea. We may therefore consider that develop- Allowance but it is currently much less the case. The ment of routines of collective work favours diffusion Invalidity Insurance is reducing the number of recipients of innovation. and people are much less recognised through their However, a weak point concerning diffusion of in- health problems. We now have to work with them on novation in the Geneva context is related to the lack their professional reintegration. Those who already of relevant assessment of innovations. Assessment receive an invalidity allowance have seen the amount of concerns modes of working or the governance but benefits reducing. The question for us is how can we sup- they remain weak with respect to the impact of inno- port them and support their economic participation? vations upon populations. Thus, the city of Geneva 380 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities comparée delajeunesseenEurope, VAN DEVELDEC.(2008) recherche, the GenevaandZurich how doSwissandimmigrantslive?Segregationin SCHAERER C.&BARANZINIA.(2008). Service socialdelaVilleGenève. profils deterritoires,réseauxd’acteurs, ROSSIAUD J.(2007). PUF. PAUGAM S.(2007,ed.). vreté enFranceaujourd’hui LAPEYRONNIE D. (2008). Stanford PHILLS, J.(2008), enser lasolidarité, DONZELOT J.(2007). de ladurabilité,Genève,FondationBraillard,pp.31-8. et l’identitédelavilleGenève”, rapports entrel’organisationurbaine,leslienssociaux n’existe pas.Pasencore ?Essaisociologiquesurles CATTACIN S.&KETTENACKERF.(2011). ty Press,pp.250-9. migrant PoliticalIncorporation.Ithaca,CornellUniversi Bringing Outsidersin:TransatlanticPerspectivesonIm urban space”,inHochschildJ.andMollenkopf(eds). worlds, migration,andinclusionofdifferencesinthe CATTACIN S.(2009). odologiques” au prismedescapabilités.Enjeuxthéoriquesetméth BONVIN J.M&FARVAQUEN.(2007). References feature islikelytohamperdiffusionofinnovation. vulnerable populationsisrelativelyunknown.This sessed. Inbothcases,theimpactofinnovationupon services includingtheUAC.The about thearchitectureandmodesofworkingsocial has fundedanassessmentoftheUACbutlatteris Geneva CH social innovationreview,6,4,pp.36–43. HauteEcoledeGestionGenève,pp.2-19 , Formation-emploi, “Rediscovering Paris,PUF,pp.87-109 Problématiquesduliensocial, “Differencesinthecity:parallel “Unétatquirendcapable”, Repenserlasolidarité housing markets”, , Deveniradulte :sociologie

Ghetto urbain. Violence et pau- , Paris,Laffont. 98,pp.9-23. ULT hasnotbeenas social innovation”, Paris,PUF. Genève àl’épreuve “L’accèsàl’emploi “Whereand rapportpourle “Genève Cahiers de , Paris, Rep- - - - - UK United Kingdom Birmingham

Nadia Brookes, Jeremy Kendall and Lavinia Mitton (University of Kent) 382 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Social media Social investment Social housing Personalising support Partnerships Participation Lone parentsupport Local government Labour market Entrepreneurialism Empowerment Child care Keywords: Local background of thesocialinnovations Introduction Birmingham UK aim ofthiswastotackle central governmentgrant,the level. Theopportunityforinnovationcamelargelythroughfundingfroma necessarily forpeopleinthoseareaswhere issues identified.Birminghamwasperceivedasgoodatjobcreationbutnot and youngentrepreneursnotgettingenoughsupportweresomeofthe unemployment, ashortageofappropriatejobs,fragmentationsupport highest rateof the workingagepopulationarenotinemployment.Birminghamhas rates twicethenationalaverageandinsomeareasover50percentof The othermaindriverforinnovationwasaccesstojobs;Birminghamhas mortgage lending. of thehousingmarket,adropinhousebuildingandrestrictedaccessto more pressingwiththeeconomicdownturn,whichresultedinaslowing to buyanaveragepricedhome.Thisisahugehousingchallenge,made housing ofover30,000applicants.Theaveragecityincomeisinsufficient significantly outstripssupplyandthereisalargewaitinglistforsocial 90,000 additionalhouseholdswillbeformed.Demandforsocialhousing increasing andprojectedtogrowby100,000residents2026,intotal for accesstosocialandaffordablehousing.Birmingham’spopulationis One ofthekeydriversforinnovationsdescribedherewastheneed Birmingham CityCouncil(BCC),thelargestlocalauthorityinUK. hood areas.Localgovernmentforthecityismetropolitanauthorityof and The cityhashadawiderangeof inhabitants. MuchofBirminghamsuffersfromhighlevelsdeprivation. in theUKoutsideLondonandhasapopulationofjustoveronemillion is theregionalcentreforbusiness,retailandleisure.Itlargestcity Birmingham islocatedwithintheWestMidlandsregionofEnglandand tions tochildcareissues. care hoursfor2-4yearolds. Thisdoesnotallowfordecentralisedsolu- and under,tailoredtotheneeds oflocalcommunities)andforfreechild ing holistic,one-stop-shopservicesforfamilieswithchildren 5yearsold across thecity,andadministeringresourcesforchildren’s centres(provid- include ensuringthatthereisamixedeconomyofchild careprovision care policyisdeterminedbycentralgovernmentandlocal responsibilities ing but not visible in the area of child care. This is due to the fact that child ing. Innovationwasevidentinbothlabourmarketintegrationand hous- usually withsomeinvolvementfromtheCityCouncilas asourceoffund- There wasevidenceofsocialinnovationacrossallsectorsinBirmingham, the citybetween2008and2011. prise inthemostdeprivedareas.Atotalof£114millionwasallocatedto (University ofKent) Nadia Brookes,JeremyKendallandLaviniaMitton Authors initiatives overtheyearstargetingbothcitycentreand youth unemployment intheUK.Entrenchedproblemsof unemployment andlowlevelsofskillsenter Working NeighbourhoodsFund(WNF).The regeneration andrenewalprogrammes unemployment satatahigher neighbour - - 383

The five innovation examples were chosen according to the following criteria: they were “new” to the setting in which they were being implemented; they covered one or more of the WILCO policy fields; and involved a variety of local stakeholders.

Welfare innovations in the three policy fields

The five social innovations presented were chosen on the basis of initial meetings with stakeholders and a desktop review of information available (websites, reports, policy documents). The examples selected had been highlighted as “innovative” or “promising” but these are merely examples, there were many more social innovations in existence in Birmingham at the time of selection. The innovations are introduced by a brief description followed by the themes of conceptions and ways of addressing users; internal organisation and modes of working; and interaction with the local welfare system. There are four innovations Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities related to labour market policy and one the housing policy field. 384 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities to helptackle Funding forthe development ofanumber innovativeprojectstoaddress overall contractvaluessetat aleveltoallowthirdsectorproviderstenderforcontracts. Italsofacilitatedthe what providertheyaccessed. Theapproachwasdesignedtoensurethatlocalneeds weretakenintoaccountand action andsupportthateachindividualrequired(whether thiswaseducation,skillsoremployment)nomatter model andtheNESPsCESPsprovidedafoundation for afocusattheclientlevelandprovisionoftargeted deliberate targetingoflocalareas,groupsandindividuals wasakeyinnovativefeatureoftheapproach. ment ofasinglecontractforthewholecitytoonewithtailored contractstomeettheneedsoflocalpeople. NESP/CESP approachandthecontractingprocesswere innovative. Thiswasamoveawayfromtheusualarrange skills support,butthelocalityand The NESP/CESPcontractedprovisiontendedtoprovide a somewhatstandardsetofoptionsforemploymentand strategically toensureanintegratedpathwayforclients. ognised thatprogressionwasoftennotasimpleorlinear process. Skills modelor characterised byastrongclientfocus,whichaddressedtheneedsofindividuals(the capacity oflocalproviderstodeliverinterventionsandsupportedmonitoringactivities. missioning activitywiththeintentionofselectinghigh-qualityprovidersandLocalProviderForumsdeveloped agreed atlocalconstituencyorstrategicpartnershipmeetings.LocalCommissioningBoardsoversawthecom to becommissioned.TheseNeighbourhoodorConstituencyEmploymentandSkillsPlans(NESPs/CESPs)werethen existing serviceprovisionmapped,gapsinidentified andproposalsmadeforadditionalactivity ers, communityorganisationsandlocalcouncillors could becharacterisedintwoways. Birmingham developedanapproachtotackling 70.1. Shortdescription unemployment A localityapproachto employment (25percentormore)anddetailedconsultationtookplacewith 70 Birmingham UK unemployment andlowlevelsofskillsinareas ofhighdeprivation(the CoalitionGovernmentphased IES). Theaimofthemodelwastoofferacontinuousserviceledbyindividualclientneed,whichrec unemployment initiativecame fromtheWNFacentralgovernmentallocationtolocal authorities /77 IES drivenapproachtodeliveryonacity-widescale,the Firstly, itwaslocalitydriveninthatfocusedonareaswithhighlevelsof Employment Categories unemployment forthoselivinginthemostdeprivedareas,which . Throughthisprocesstheneedsoflocalareaswereanalysed, unemployment. Usingthismodelserviceswerecommissioned local welfarepartners,provid Integrated Employmentand Secondly, theapproachwas development ofthe TheIES The un - - - - - 385

this out in 2011). This was awarded between 2008 and NESP/CESP providers indicated that having provision 2011. The NESPs covered seven Birmingham wards available at a local level was essential for engaging that had more than 9 priority areas for deprivation with service users. Many people did not want to travel within them and nine constituencies were the subject outside of their neighbourhood and so it was impor- of CESPs (which also captured the needs of smaller tant to have a visible presence in the community and clusters of priority areas lying outside key wards). to use organisations potential users of the service would be familiar with. 70.2. Conceptions and ways of addressing users 70.3. Internal organisation and modes of working The areas with the highest levels of unemployment are also usually the most deprived, by supporting Forty-three contracts were let to a variety of provider people into sustained employment in those areas types: private sector; third sector organisations and there should be benefits to the localities as a whole. consortium; and social enterprises. Individual projects This was a proactive drive to pursue the develop- specifically targeted a range of groups: the disabled, ment of community-led, neighbourhood-specific lone parents, the over 50s, those not in education approaches, actively engaging those individuals most employment or training (NEET), carers, women, and at risk of unemployment and furthest away from the vulnerable clients (alcohol users, offenders, not in labour market, including the long-term unemployed, employment, education or training). The employment ethnic minorities and people with disabilities. The IES and skills support provided included making contact model underpinned the delivery of the unemploy- with clients, skills assisted planning, mentoring, sub- ment approach and focused on making changes to sidised work placements, support into business “start the way the infrastructure works, including improved ups”/social enterprise, and English language and basic Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities partnership working and more joined-up services. skills. There was also support to local businesses to The support process included employability skills provide job vacancies for local residents. to overcome personal barriers; skills support linked In terms of responsibilities for the management of to existing vacancies; and support to and through sus- the locality approach, Be Birmingham was responsi- tained employment. ble for the effective delivery of Birmingham’s Local The key features of the IES model included: Area Agreement and the City’s Area Based Grant including the WNF. Be Birmingham, as the Local >> Improved local information to effectively target Strategic Partnership, played a key role in bringing resources to the needs of a particular group or partners together to coordinate action on unemploy- individual. ment through focusing on the most deprived neigh- >> A wide range of outreach and contact strategies bourhoods. The Birmingham Economic Development to effectively engage with groups or individuals. Partnership (BEDP) was the thematic partnership responsible for the management of elements of the >> A strong client-focused approach that addressed the needs of specific individuals. WNF. Responsibility for the development and approval of projects was delegated to the Employment Sub >> A range of interventions to address the needs of Group (ESG), which included BCC, Job Centre Plus individuals. (JCP) and Skills Funding Agency representatives. BCC >> Client tracking to support individuals to access was the accountable body for the funding and so employment and post-employment support. processes and governance needed to comply to both Be Birmingham and BCC requirements. >> Engaging with employers and providing bespoke training to match priority clients to vacancies. The unemployment approach was largely bottom up in that priorities were identified through the NESPs >> Continuity to ensure a joined-up approach, assurance to clients and opportunities to build on and CESPs, which were then fed into a delivery plan. learning. The ESG management team agreed the priorities and commissioned projects and activities. An appraisal >> Local unemployment champions. panel made recommendations on which projects 386 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities ing opportunities. got manypeopleintowork,trainingandvolunteer lieved thatthisapproachprovidedlocalsupportand Stakeholders andservicedeliveryorganisationsbe the NESP/CESPdeliverycontractsintheirareas. cillors alsohelpedtoembedandraisetheprofileof local press)buthavingtheengagementofcoun start resultedincriticismwithintheCityCounciland ment intheprocessledtosomedelays(andslow able toholdprovidersaccount.Politicalinvolve have greaterindependenceoverspendingandtobe scrutiny mostlyrelatedtoconstituencieswanting mance. Therewasasignificantamountofpolitical which tocommissionactivityandassessperfor Agency. Itprovidedawell-understoodmodelagainst IES model,includingBCC,JCPandtheSkillsFunding local welfaresystemallagreedandsigneduptothe to delivertheCityStrategy). jobs by2026)andtheLocalAreaAgreement(steps provide 50,600newhomesanddeliver100,000 sustainable growthinBirmingham,withproposalsto (the corestrategytoprovidea20yearframeworkfor was informedandsatattheheartofCityStrategy pal meansbywhichactivitytotackle on thepoliticalagenda.The tackling As acity,Birminghamwasandishighlycommittedto welfare system 70.4. Interaction withthe in linewithfinancialregulations. mance andaBCCCabinetMemberapprovedprojects mation. BeBirminghamreceivedupdatesonperfor programme leveldecisionsandreceivedprojectinfor to BeBirminghamforapproval).TheBEDPmade projects (exceptforthoseover£300,000,whichwent should goaheadforapprovalandtheESGapproved proved duringthedeliveryphase oftheNESPs/CESPs. many communityandthirdsector groupshadim sector providersalsofeltthat theirrelationshipswith for thepurposeofdelivering WNFcontracts.Private Many thirdsectorproviders cametogethersolely skills andexpertiseforsupportingpeopleintowork. a thirdsectorlocalprovidereachofferingdifferent together anationalprovider,city-wideproviderand ical andtargetgroupfocus.Onepartnershipbrought sizes anddifferentsectorswitharangeofgeograph together forthefirsttime,includingthoseofdifferent Birmingham UK unemployment, andsocialinclusionishigh A numberof The majorplayersinthe IES modelwastheprinci partnerships came unemployment local Employment Categories ------under thecouncil’slocalismagenda. process. Thereareplanstorefreshthisapproach neighbourhood management,whichsupportedthe ily asaknock-oneffectofthelossresourcesfor in thewayoriginallyintended.Thiswasseenprimar does notoperateinsomeoftheoriginalareasor local welfaresystem,thelocalityapproachcurrently However, withregardsembeddednesswithinthe BEDP partnersandtheirsigninguptothe and capturelearning.Keywastheagreementof opportunity todevelopsmall-scaleinnovativeprojects to worktogetherforthefirsttimeandprovidedan the opportunityfordifferentproviderorganisations residents where enabled anin-depthunderstandingofissuesforlocal and awillingnesstoundertakemajorchange. of aparticularsetcircumstancesinBirmingham The IESmodelandlocaldeliveryapproacharoseout clients toaccessavailablejobs. with employers,whichincreasedopportunitiesfor It alsoenabledprojectstodevelopnewrelationships unemployment washigh,provided IES model. It - 387 UK Categories Birmingham Employment

71/77 Youth Employment and Enterprise Rehearsal (YEER) Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 71.1. Short description

In 2010 The Future Melting Pot (TFMP) set up the YEER pilot project (for 1 year) to provide business support to black and minority ethnic individuals who were not in employment, education or training (NEET) with the main aim of participants being able to set up their own enterprises. YEER was designed to provide business-specific training and assist young people from developing an idea to starting their own business. The project included training, support and access to accredited advisors. The approach could be characterised as intensive, personalised support to stimulate entrepreneurialism. The project’s approach was innovative in that it offered hard-to-reach, excluded young people an alternative toun - employment or ad hoc paid employment. This differed from conventional employment support and the focus on “getting a job”. It used innovative approaches to communication and retention using the clients preferred method of communication such as Facebook and other social media.

71.2. Conceptions and ways of addressing users

TFMP is a community interest company, which was set up in 2009 after identifying a gap in the market for an organisation to support the aims and aspirations of disadvantaged young people. The project provided a structured yet flexible programme of support in a “safe and welcoming atmosphere”.Young people had to be over 18 years old and on benefits for at least 3 months. There were a limited number of places and young people had to complete an application form and take part in an interview. Participation therefore required a certain amount of motivation and commitment from the outset. The usual timeframe for young people to be engaged with the project was 6 months or less. Participants were offered the chance to improve personaldevelopment; nurture their entrepreneurial “mind”; start the business they had always wanted to start; create their own work and become their own boss; and make a difference for themselves, their family and their community. An action plan was drawn up with a mentor and participants received support in developing business ideas from initial design to completion. It provided the opportunity to explore the option of self-employment in an environment, which was led by the needs of individuals and where 388 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities from thestart. participants theopportunityto seen asalargepartofthesuccessYEERandgave people couldtapinto. the projectsothattheyhadexisting mentors andadviserswererecruitedspecificallyfor The InnovationFundwaspartofthewiderWNF. innovative approachestoissuesof Innovation Fund,whichprovidedsmallgrantstotest The YEERprojectreceivedsupportthroughalocal business find ithardtoengagemeaningfullywithtraditional to “opennewgatewaysdisadvantagedgroupswho much aboutdevelopingindividualideasandtalents, potential throughenterprise”.Theconceptisvery “enable andempoweryoungpeopletoachievetheir shareholders/members. ThephilosophyofTFMPisto public good.Theyoperatewithaboardandhave social enterprisethatusesprofitsandassetsforthe TFMP isacommunityinterestcompany,which modes of working 71.3. Internal organisation and and additionalsessions. could benefitfroma“fast-track”approachtocourses paces ofindividualsandmoreadvancedlearners ject developedinresponsetothedifferentlearning feedback wasincorporatedintotheproject.Thepro Birmingham UK networks”. Partnership developmentwas network effectively unemployment. networks that Employment Categories - practices toareasofsocialconcern. delivering servicesandtheapplicationofbusiness of theincreasedinvolvementthirdsectorin considered difficulttoengagewith. and evenlesssoforthisparticulargroup,whichwas which hadnotoftenbeencentralinpolicydiscussion, ple intoworktosupportingentrepreneurialactivities, The projectdidshiftthefocusawayfromgettingpeo for impactonthe partnership tosupport;therefore,alsothepotential pilot projectandsolowriskforthelocalstrategic project helpedtoaddressthis.Itwasasmall-scale been aparticularconcernovertheyearsandthis In Birmingham,youngpeoplewhoareNEETshave welfare system 71.4. Interaction withthe local welfaresystemwaslimited. It wasanexample local - 389 UK Categories Birmingham Child and family care

72/77 Lone parent support

72.1. Short description

The lone parent support project was delivered by Employment Needs Training Agency (ENTA) and partners, and Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities offered a holistic approach to addressing barriers to work for lone parents. Once contacted people were assessed, agreed an action plan and then received on-going support and mentoring from the project team (this continued once they had a job or placement). Training had always been an issue for many lone parents as this was not always child-friendly. The project funded some child care and travel costs to volunteering and training sessions and clients were able to bring their children into the project (unlike the case for many other statutory agencies) and this helped with issues surrounding child care. The funding for the project came through the Innovation Fund of the WNF.

72.2. Conceptions and ways of addressing users

The project offered a holistic approach to addressing barriers to work for lone parents. Project partners developed a range of activities to secure the initial engagement of the target group. All partners had local bases within the target areas and therefore offered local access points for recruitment and delivery.Eligibility was determined by the area someone lived and users had to be unemployed, 19 years old or over and a lone parent. Individuals could self-refer to the project. After contacting the project, an initial client assessment was undertaken using a range of assessment tools. The assessment led to the completion of an agreed action plan for the individual, which could be tracked by the service user and the responsible officer. The action plans included short, medium and long-term actions. The clients received on-going support and mentoring from the project team and support continued once a job or placement was secured. A benefits advisor was appointed as this was identified as a particular need by ENTA and helped to address people’s fears about coming off benefits. The advisor went into all centres, partners and job clubs to -ad vise on getting benefit roll-on andhousing benefit. They also advised on debt, as this could be a major barrier for clients getting into work. The project had a particular impact on people who were long-term unemployed and enabled them to compete for jobs on a more equal footing. Being able to sit with someone and talk through their concerns was a key benefit of the project for many of the service users. The individuals concerned were very vulnerable and the project enabled them to deal with issues at their own pace with staff considered friendly and approachable. Clients were able to bring their children into the project and this helped with issues surrounding child care. 390 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities them todealwitharangeofissues. in information,adviceandguidance,whichhelped housing benefitsupport.Staffmembersweretrained benefits advisortoofferadviceondebt,and ployment. ErdingtonConstituencyalsopaidforthe Kingstanding wardsinBirminghamtoaccessem ents fromErdington,StocklandGreen,Tyburnand The projectaimedtoengageandsupportlonepar living inandaroundthecity”. provide opportunitiesand to “workwiththe been workingacrossBirminghamsince1977. ENTA wasacommunityinterestcompanythathad were consideredtobeveryactivewithintheproject. training andeducation.Ofthesebetween1012 with groupswhowerealongwayfromemployment, partner organisationswithatrackrecordofworking Venture. Theprojectalsoinvolvedaconsortiumof22 ered byENTA,workinginpartnershipwithMerlin The contractinErdingtonwasmanagedanddeliv modes of working 72.3. Internal organisation and Birmingham UK community toimprovelivesand empowerment forpeople Child andfamilycare Categories It aimed - - - nity toimpactonthewider time-limited fundingandthereforehadlittleopportu authorities. Itwasasmall-scale,pilotprojectwith services butnotspecificallywithinlocalpoliticsor reputation, capacitybuildingandprofilewithother the projecthelpedtoenhanceorganisation’s these groups. ual projectswerecommissionedspecificallytotarget groups bythelocalstrategicpartnershipandindivid Lone parentswereidentifiedasoneofthepriority welfare system 72.4. Interaction withthe Partnership workingworkedwelland local welfaresystem. local - - 391 UK Categories Birmingham Employment

73/77 Targeted discretionary housing payments (TDHP) Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 73.1. Short description

The aim of the TDHP project was to support people from areas of high levels of unemployment and deprivation in Birmingham in the transition from welfare to work. Having managed to overcome hurdles associated with getting a job in the first place, people may be faced with a series of issues, some social and some more practical, which need to be addressed to support the sustainability of the employment. Among the most practical difficulties can be those relating to financial matters. The previous Labour government recognised the difficulties in thetransition from benefits to work in a number of benefit changes but many claimants still did not meet the strict eligibility criteria for additional support. The criteria were that individuals must have been claiming certain benefits for 26 weeks continuously and take a job for at least 5 weeks. Those who met the criteria could receive support for a 4-week period. The project provided additional and practical support to people in the transition period for up to 12 weeks to maximise their chance of sustain- ing their new employment.

73.2. Conceptions and ways of addressing users

The project provided tangible support in the form of payments to ease the costs of transition into work for clients. Eligibility was based on the area that a person resides and qualification for the initial 4-week support. People were contacted by the service with information on how to access payment, which involved completing a form. The support was in the form of additional Housing and Council Tax benefit payments. In 2011 the average each participant had been paid was over £280 to bridge the gap between coming off benefits and paid employment. One client explained that the extra assistance received helped towards rent arrears as before becoming unemployed they had fallen behind with paying rent. When they started work, the discretionary housing payment helped towards paying the arrears so that they were not threatened with eviction. Another felt that the financial assistance had helped them remain in work. 392 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities to getmorereferralagenciesonboard. implementation phasewouldhavemadeitpossible database. Theprojectmanagersfeltthatalonger identified bytheBenefitsTeamtrawlingtheirown sations suchasJCPwaslow.Mosteligibleclientswere but overallthenumberofreferralsfromkeyorgani referrals fromorganisationsandindividualworkers support provider.Theteamdidreceivesomedirect continued dialoguewithawiderangeofemployment deal ofworkwasdoneinthisareaandtherea agencies andemploymentsupportproviders. mutually supportivereferralarrangementswithother An originalaimoftheprojectwastodevelopcloser, through theschemewerestillinworkat27weeks. of 13weeksandover77percentcustomerspaid mained inemploymentatthefirstoutcomemilestone 2011 indicatedthatover91percentofcustomersre of eachmonth.TheinformationavailableatJanuary remaining inemploymentwasmonitoredattheend As partofcontractualarrangements,theparticipants released fundsbackintothewiderWNFProgramme. ers butatalowercostthananticipated,andassuch project benefitedtheproposednumberofcustom Service andsupportedinitiallythroughtheWNF.The The projectwasrunbytheCityCouncil’sBenefits modes of working 73.3. Internal organisation and Birmingham UK Employment Categories Agreat - - - two localgovernmentawards. project works.Thewasalsoputforwardfor authorities contactedtheteamtofindouthow the contextof came tofindoutmoreabouttheTDHPprojectwithin Pensions) visitedBirminghaminFebruary2011and Smith MP(currentlySecretaryofStateforWorkand ernment’s proposalsfor retention. Thisapproachpre-datestheCoalitionGov impact relativelylow-costsupportcanhaveonjob and NeighbourhoodOfficeshelpedtoshowwhat such astheBenefitsTeam,Regeneration,Housing sations anddepartmentswithinBCCtoworktogether The projectwassuccessfulatgettingdifferentorgani welfare system 73.4. Interaction withthe welfare reform.Inaddition,twolocal welfare reform.IainDuncan local - - 393 UK Categories Birmingham Neighbourhood revitalization / Housing

74/77 Birmingham Municipal Housing Trust (BMHT) Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 74.1. Short description

BCC devised a way of delivering affordable but high-quality new homes that limited financial risk through the formation of BMHT. Properties on BMHT sites were a mixture of council homes and those for outright sale built on council-owned land. An innovative financial model was developed in consultation with contractors that reduced upfront costs and reduced uncertainty over planning permission. Planning consent for each site was gained and paid for by the council before tenders were invited so potential partners could tender risk-free financially. The houses were then built on council-owned land with an agreed number of properties on each site allocated for social housing. Payment for sale property land was delayed until developers sold their homes and then only on a plot-by-plot basis. The concept of “site clusters” was developed where two or more sites could be treated as one within the council’s social housing policy. This meant a higher proportion of homes could be offered for sale in some areas maxim- ising cross-subsidy funds to build further council homes. Developers were given the responsibility, within their contracts, for creating local apprenticeships in areas where BMHT sites were situated. Wherever possible, electricity-generating photovoltaic panels or air-source pumps were included as features in the new homes to reduce energy bills and help prevent families falling into fuel poverty. A number of homes were adapted for wheelchair use. By 2011, more than 700 properties were in contract under BMHT and more than 150 of these homes had been allocated to council tenants.

74.2. Conceptions and ways of addressing users

The City Council persuaded developers that building new homes in any volume in the current economic climate meant entering into new financial arrangements to minimise risk while providingsocial housing for the city. The key was to involve developers from the start so potential obstacles could be identified and solutions found at the earliest possible stage. 394 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities on-site apprenticeshipsforlocal youngpeople. requirement tocontractsthatdevelopmentsprovide them. Unemploymentwasaddressedbyaddinga to abidebytheagreementssigningandreturning council askedeachtenanttoshowthattheyagreed among thenewneighbourhoodsateachsite. established groundrulesforpositivebehaviour team developed“goodneighbouragreements”that To helpimprove specified duringtenderandcontractnegotiations. build standards,thelevelofgreentechnologieswas specifications forrentorsalehomes. made suredesignswere“tenure-blind”withthesame of allhomesfromtheoutsettopreventthis. BMHT teamprescribedthesize,layoutandmaterials to theminimumsizeandstandardspossible.The also oftenattemptedtomaximiseprofitsbybuilding opments wouldhaveamixoftenures.Developers developers’ contractssoallareaswithBMHTdevel way ofclusteringthemoreandlesspopularsitesin would bemorelikelytosell.BMHTcameupwitha desirable” areaswherehomesforoutrightsale Developers tendedtowantbuildonsitesin“more partnership withdevelopers. quality standardswereprioritised.BMHTworkedin design advisorswasestablishedtoensurespaceand multi-disciplinary teamofplanners,architectsand Initiative programmesfromcentralgovernment.A under theLocalAuthorityNewBuildandPublicLand million ofHomesandCommunitiesAgencygrant ing programme.Theteamsecuredmorethan£16.7 team ofcouncilofficersassignedtothe BMHT wassetupinJanuary2009andadedicated modes of working 74.3. Internal organisation and receiving particularpositivecomments. quality designandlargerhomesforbiggerfamilies tives toprovidegreentechnologyreducefuelbills, new homesthroughBMHTwasgood,withobjec writing. Feedbackfromcounciltenantswhoreceived were eightsitesacrossBirminghamatthetimeof ants whohadmadeanapplicationfortransfer. BMHT homeswereallocatedtoexistingsecureten Birmingham UK community cohesion,theBMHT As with

house-build Neighbourhood revitalization/Housing Categories It also housing The There - - - - ers’ contractsforBMHT. been createdforyoungpeopleaspartoftheemploy in theseareasandsomenewapprenticeshipshave companies fromhavingtoreducetheirworkforce The developmentworkhasprotectedconstruction tenants andhomeownerschoosetoliveinthefuture. there andhelptocreateneighbourhoodswhereboth on effectinimprovingthe areas inneedof munities surroundingBMHTsites.Providinghomesin homes, jobsandtrainingopportunitiesforthecom to thelocalenvironmentandeconomywithnew In addition,thenewdevelopmentsshouldbeaboost standards ofhealthandwell-being. fuel povertyandbenefitfromtheassociatedhigher also helpensurethat will helptoreducecarbonemissionsasawholeand renewable technologiesthatfeatureinBMHThomes just providingsomewhereforpeopletolive.The It isfeltthatBMHTwillhavealastinglegacybeyond and on-goingcosts. sound financialfootingwhileminimisingtheirupfront the futureallowingthemtocontinueinbusinessona ers havealsolookedtothismodelasasignpost has beenshownbyotherlocalauthorities.Develop Interest inhowtheBMHTmixed-tenuremodelworks recoup costsonlywhenthehomesbuiltonitaresold. local authoritiestodonatelanddevelopersand its “accelerateddisposal”initiativethatencouraged adopted bytheHomesandCommunitiesAgencyin other councilinthecountry.TheBMHTapproachwas has plansinplacetobuild,morehomesthanany being poolednationally,Birminghamhasbuilt,or keep rentfromthehomestheybuiltratherthanit the Governmentin2009,whichmeantcouncilscould Since newfinancialfreedomswereannouncedby welfare system 74.4. Interaction withthe regeneration shouldhaveaknock- social housingtenantscanavoid housing marketingeneral local - - - 395

Conclusions Researching innovation and change on Social service research: Innovations the local level: The importance of the as illustrative examples for a new local context generation of social services The local context is of central importance and local welfare policies in Birmingham had been under- These innovation examples are time-specific and pinned by a focus on community cohesion, devolu- came about as a result of particular circumstances tion or localism and social inclusion over the past in Birmingham and more general problems caused few years. Politically there was overall consistency by the current financial climate. However, there were of references and values and agreement on social some overall key approaches and instruments adopt- problems. There was a slightly different approach to ed by the innovations. In terms of how service users’ solutions but social policy was developed through a needs were addressed, there was a trend towards largely consensus-oriented approach. investing in capabilities rather than targeting deficits. The labour market innovations in particular focussed Birmingham was viewed as having non-conformity “built into its DNA” and a history of looking at differ- on personal development and developing individual ideas and talents. ent ways to deal with social issues. Local stakeholders believed there was a tradition of supporting unor- There were also attempts to bridge the gaps, bringing thodox ideas. However, there was little opportunity services closer to the communities they were trying for individuals or smaller organisations to develop to engage with such as targeting particular neigh- innovations without the support of local government bourhood areas. The innovations adopted a holistic who saw themselves as an “enabler, a policymaker

, Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities approach with service offers that connect the idea and a funder”. being that it was rare for service users to have only one issue to deal with at any one time. Researching the role of innovations in Personalising support was also a key feature. The local politics and governance labour market innovations adopted a strong client-focused approach addressing the needs of specific In terms of impact, all innovations were perceived as individuals. There was also an example of providing successful by local stakeholders. The labour market ad hoc transfers beyond fixed entitlements; TDHP approach and projects were evaluated as part of a provided a combination of cash with individual sup- review of the wider funding stream, which included port to help with the transition from benefits to work. measurement against targets set and the views of Some of the innovations involved innovations in those involved were captured. Some of the projects public governance. The locality approach to unem- received positive attention from other local areas ployment for example involved city-wide support, and from central government or won awards from localised decision-making and encouraged the third national bodies. sector to participate. The BMHT involved a closer rela- There is little evidence to suggest that the innovation tionship between the public and private sector. ideas were adopted from elsewhere, the small-scale There are features that point to the links between the projects identified a need (for example YEER conduct- innovations and post-traditional welfare concepts, ed focus groups with young people) and designed for example the labour market innovations described a service to meet that need. The IES element of the here are examples of an enabling welfare state with locality approach came out of a national review of their focus on individual strengths and the YEER skills and Birmingham was one of the trial areas for project in integrating economic and social develop- the model initiated by central government (who then ment through stimulating entrepreneurialism, social continued with it to underpin the approach to un- enterprise and start-ups, is an example of a social employment). The focus on local areas and involving investment perspective on public welfare. the community had more to do with learning from the implementation of other central government programmes in the city such as the Neighbourhood Renewal Fund than ideas from elsewhere. 396 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities local authorityinvolvementintheirdirectdelivery. the home-buildingprojectscontinuebutthesehave learning fromnewprojects.Thebenefitsupportand local strategicpartnershipforthedesign,deliveryand are partofbestpracticeguidanceproducedbythe going tobelimited. meant theopportunityforscalingupwasalways ited, pilotprojectsandweresmallinscale,which ment-based projectswereintendedtobetime-lim reduction in in someareasbutnotasoriginallyintendedduetoa The localityapproachto after 30yearsofdeliveringservicesinBirmingham. project; however,anotherwentintoadministration projects exists,butisnolongerfundedtodeliverthe One oftheorganisationsthatdeliveredone withdrawn, therewasnomainstreamingofservices. but werestillvulnerable;oncegrantfundingwas Some oftheprojectswereperceivedasasuccess Birmingham UK neighbourhood resources. In termsoflegacy,theprojects unemployment continues The employ- - 4 FinalReport,DCResearch:London. WNF WorklessnessandEnterpriseProgrammeOutcome DCResearch andFocus(2011) Birmingham. Fund, AGoodPracticeGuideforPractitioners, Learning fromtheEvaluationofWNFInnovation CESR (2011) er-3936850 local-news/birmingham-city-council-deputy-lead Nov 2009http://www.birminghampost.co.uk/news/ cil deputyleaderrejectsJohnDenhamcriticism’,4 Birmingham Post(2009) ty-birmingham-council-leader-defends-107468 www.birminghammail.co.uk/news/local-news/depu leader defendsWNFspending’,4Nov2009http:// Birmingham Mail(2009) Plan, BCC:Birmingham. Housing Trust–AnnualReport2001-12andForward homes andneighbourhoods:BirminghamMunicipal WrapperBirmingham CityCouncil(2012) C%2FCommon%2FWrapper%2F PageLayout&cid=1223377273441&pagename=BC uk/cs/Satellite?c=Page&childpagename=Housing%2F – 2011entryBMHThttp://www.birmingham.gov. Birmingham CityCouncil(2011) ny, BCC:Birmingham. ployment Strategies:AreportfromOverviewandScruti Birmingham CityCouncil(2009) Bibliography Tackling WorklessnessinBirmingham: ‘BirminghamCityCoun ‘Deputy BirminghamCouncil Evaluation oftheBEDP UKHousingAwards EffectivenessofEm Building BCC: ------UK United Kingdom Dover

Lavinia Mitton, Nadia Brookes and Jeremy Kendall (University of Kent) 398 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Partnership Participation Enabling Community Child care Keywords: Local background of thesocialinnovations Introduction Dover UK development of majorprojects,investmentand has beentomaketackling sector agenciestoworktowardsacommongoal.TheCouncil’sresponse resources, andbringtogetherresidents,businessesdifferentpublic local authorities.Councilsarewellplacedtoco-ordinateandbroker critical tocreatingabusiness-friendlyenvironment,andlieinthehandsof Business regulation,streetcleaning, both thesepolicyfieldsneedtobeaddressedtogether. characterises theunderlyingdominantapproachinDoveristhatplans housing andemploymentopportunitiesareintricatelylinked. is facingachanging tions andvaluestonoteinthisstatementare all residentsaccesseconomic The aimisnotonlyto to residents’ aspirations continues to be a challenging agenda” effective useofresources,targetingthemostneededareas andresponding Watkins tomembersoftheCabinetwasthat:“Decisions aboutthemost The conclusionofarecentaddressgivenbytheLeader of DDCCllrPaul solutions evenmorepressing. the pressureonlocallyorganisedservicesandmade demandfornew needing todecidewhatcut.Thecurrentfinancialclimate hasincreased deep andurgent. shifts. TheUKgovernmenthasperceivedthecrisisinpublicfinancestobe ble werestrugglingtorespondchangingexpectationsanddemographic Even beforetherecession,servicesforwhichlocalauthoritiesareresponsi Context for publicservices in Doverdescribingtheirgeneralvaluesandpolicy Council tothegrowthagenda.Thekeywordusedbyofficialsandpoliticians economic growthtoDoverDistrictCouncil(DDC)andtheimportanceof emerged amongofficialsandpolicymakersabouttheimportanceof Across alltheexamplesof and Public andprofessional debates aboutgrowth 3 East KentMercury, July12,2012,Nomoney,soit’sover toyou... cmodpm/1023/1023we30.htm Written Evidence.Availablefrom:http://www.publications.parliament.uk/pa/cm200506/cmselect/ tee onOfficeoftheDeputyPrimeMinister: Housing,Planning,LocalGovernmentandtheRegions 2 Dover Pride(2006).Memorandum by DoverPride(CT29).HouseofCommonsSelectCommit tion/PDF/CorporatePlan2012-2016.pdf 1 DDC (2012).CorporatePlan2012-16. Availablefrom:http://www.dover.gov.uk/Corporate-Informa system” andisthefirststrategicpriorityofCouncil’s ation. Adrivefor and JeremyKendall Lavinia Mitton,NadiaBrookes Authors regeneration regeneration hasbeenthemainfocusoflocal“ Public servicesinEnglandarefacingthestarkrealityof local governmentenvironmentwithnew physically regeneratethearea,butalsotoensure social innovationpresentedhere,aconsensus regeneration “thepriorityoftheCouncilinterms benefits.Intheconceptof“ partnership working” community safetyandplanningareall major andpartnership orientation is 2 Corporate Plan . Thekeyorienta- regeneration” partnerships Indeed,what 3 . The Council regener . welfare 1 . - - - - 399

and alternative ways of working and a shift from The support the Council offers to the VCS for activ- councils directly delivering a multitude of services to an ities, other than funding the provision of services, environment of enabling others, where appropriate, to is primarily administrative support to organisations deliver services for themselves. Cllr Watkins said: using the expertise developed by the authority in The government’s spending plans require public sector delivering its own projects. This can include assisting organisations to consider changes to the way that in the development of constitutions for VCS groups, local services are delivered … Over the next few years, assisting in the completion of funding applications, we are facing a changing local government environ- and attending meetings. The Council has also taken ment with new partnerships and alternative ways of steps to involve the VCS by being a partner in the working and a shift from councils directly delivering a Dover and District Compact, which represented local multitude of services4. groups and public bodies working together to achieve objectives for the local community7. The Compact Many in government at all levels believe that the provided the Council with a greater understanding of challenges faced call for a rapid expansion of the role how the VCS worked and provided a focus for corpo- of innovative civil society organisations, social enter- rate strategic awareness in involving the community prises and other non-traditional providers in a market and voluntary sector8. for public services. Such a radical change is being hastened by the opening up of contracts to provide Approach to social innovation public services to a greater range of providers and the emergence of new forms of finance, including social Inequality, whilst receiving less attention than regen- finance, philanthropic and commercial investment. eration, does have some priority. In 2006 the Council In consequence, the other notable feature of the local identified the general issues facing Dover then as in- 9 welfare system in Dover is the debate about how to cluding “high levels of deprivation” . Their diagnosis at Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities deliver the Council’s priorities of growth, jobs and that time was that “the town is suffering from lack of investment in an environment of ongoing financial investment that has led to the high levels of depriva- Annual Mon- constraints, the national government’s Big Society tion within its urban ward.” The Council’s itoring Report 2010-11 agenda and the need for establish alternatives to showed there had been an al- Council-delivered services. most doubling in the number of areas that are within the 20 per cent most disadvantaged in England. It was For example, the Council’s Corporate Plan 2008-20 felt by the Council that, “The cause and impacts of the stated that role of the Council in respect of the increase in the number of most disadvantaged areas voluntary and community sector (VCS) would seek to in the District needs to be investigated further”10. deliver services in different ways, including devolving services to the VCS and others5. It stated: “We have Still, the overall direct strategy has been to bring been working closely with partners to support, economic growth to Dover, rather than expanding enable and encourage development and enterprise”6. support to individuals with services and financial “Partnership working” has more than one definition assistance beyond statutory and national government in the context of the Council’s relationship with services. So, whilst a larger council might be able to the VCS The nature of the relationship depends on build on its reach into local communities, particularly how the Council works with the organisation, such as whether it was the commissioner of a service or 7 DDC (2010). Minutes of the meeting of the Scrutiny (Community and Regeneration) Committee held on Wednesday 17 November 2010 at providing support and expertise to another group. the Council Offices, Whitfield at 6.00 pm. This way of working raises a number of issues. 8 DDC (2010). Minutes of the meeting of the Scrutiny (Community and One potential risk is that of an alternative provider Regeneration) Committee held on Wednesday 17 November 2010 at defaulting on service delivery. the Council Offices, Whitfield on at 6.00 pm. 9 Dover Pride (2006). Memorandum by Dover Pride (CT 29). House of 4 East Kent Mercury, July 12, 2012, No money, so it’s over to you... Commons Select Committee on Office of the Deputy Prime Minister: Housing, Planning, Local Government and the Regions Written Evidence. 5 DDC (2010). Minutes of the meeting of the Scrutiny (Community and Available from: http://www.publications.parliament.uk/pa/cm200506/ Regeneration) Committee held on Wednesday 17 November 2010 at cmselect/cmodpm/1023/1023we30.htm the Council Offices, Whitfield at 6.00 pm. 10 DDC (2012). Agenda Item No 13. Dover District Annual Monitoring 6 DDC (2012). Corporate Plan 2012-16. Available from: http://www. Report. Meeting and Date: Cabinet – 12 February 2012 Report of Mike dover.gov.uk/Corporate-Information/PDF/CorporatePlan2012-2016.pdf Dawson, Director of Regeneration and Development. 400 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities dover.gov.uk/Corporate-Information/PDF/StateoftheDistrict2012.pdf 12 DDC (2012).StateoftheDistrict2012. Availablefrom:http://www. dover.gov.uk/Corporate-Information/PDF/CorporatePlan2012-16.pdf 11 DDC (2012).CorporatePlan2012-16. Availablefrom:http://www. underlying valueshavebeensummedupasfollows: business, newresidents,andtouriststothearea.The so inabigway.Theoverallpoliticalfocusistoattract unemployed, Doverhasnothadthecapacitytodo seekers andinnovativeprogrammesaimedatthe make itwellplacedtobrokerlinksbetweenjob through its ties.” needs andimproveaccesstolocaljobopportuni- to identifyskillsshortagesmeetlocalbusiness working withlocalemployersandtrainingproviders The approachadoptedisoneofan“enablingrole or socialmobilityagenda. economic growth”ratherthanadirect position isthat“trainingandeducationlinkedto educational attainmentandskills.ThustheCouncil’s outside of profile andpro-activeCouncilinvolvementrightnow discourse. Thesocialinnovationswithmosthigh although theyarenotusingthatvocabularyin that target“socialcohesion”atthe“locallevel”, by theCouncil,itclearlyfavourssocialinnovations However, despitetheconstraintsondirectactivities access toquality addressing inequality,and well asimprovingtheconditionofexistinghomes, wants toseedeliveryofmoreaffordablehomes,as Council’s limitedresources.In except inthefieldof recurrent inthepublicdiscourselast10years, cohesion” and“socialinclusion”havenotbeen Concepts suchas“reducinginequalities”,“ facility) tosecurethelong-term futureofthearea (a mixeduseeducational,employmentandtourism Country ParksitesasaSustainableFuturesCampus develop theBetteshangerCollieryandFowlmead and CommunitiesAgencyHadlowCollegeto wealth locallytoseeourdistrictgrowandthrive support thecreationoflocaljobs,andaimtokeep ing andenablinginwardinvestmenttothedistrict, on economicrecoveryandgrowthcontinueattract- economic downturn.Itisthereforeimportanttofocus es andindividuals)hasbeenaffectedbythenational Everyone (communities,publicservices,localbusiness- Dover UK 12 ThesehaveincludedworkingwiththeHomes housing policyaimtoraiseaspirations, housing andsocial housing toliveindependently. housing, perhapsbecauseofthe enabling vulnerablepeople housing, theCouncil care services,which social cohesion and JeremyKendall Lavinia Mitton,NadiaBrookes Authors social 11 . outcomes inthedistrictfuture admission, theCouncilintendstoaddresshealth Dover andthelikelihoodofhavinganurgenthospital relationship betweenlivinginthepoorestwards least deprivedareas,andthestatisticallysignificant in themostdeprivedareasofDovercomparedto years lowerformenand2.3women view ofsuchstatisticsaslifeexpectancy,whichis8 known andDoverhasbeennoexceptiontothis.In problems encounteredbyformerminersarewell include, health,partlybecausethelong-term Other socialconcernshaveincluded,andcontinueto sector a trainingcentreofexcellenceforthemarineskills and workingwithpartnerstoenablefacilitate dover.gov.uk/Corporate-Information/PDF/StateoftheDistrict2012.pdf 15 DDC (2012).StateoftheDistrict2012. Availablefrom:http://www. dover.gov.uk/Corporate-Information/PDF/StateoftheDistrict2012.pdf 14 DDC (2012).StateoftheDistrict2012. Availablefrom:http://www. dover.gov.uk/Corporate-Information/PDF/StateoftheDistrict2012.pdf 13 DDC (2012).StateoftheDistrict2012. Availablefrom:http://www. behaviour anddelayedchild adults inthefamily,toproblemsmanagingchildren’s factory housingconditions,tolowliteracyofthe a number of inter-related issues ranging from unsatis- Often thiscanbestbeachievedbygivingsupportwith involves improvingthewell-beingofwholefamily proving thecircumstancesofanindividualfrequently of theirworkispreciselythattheyrecogniseim Indeed, themostinnovativeandsuccessfulaspect project, i.e.housing,employment,andchildcare. three policyfieldsthatarethefocusofWILCO ANP andHappyFeetPre-schoolofferservicesinall about byreorganisation. example ofimprovementincouncilservicesbrought third innovation–EastKentHousing(EKH)isan Happy FeetPre-school–arerunbytheVCS.The Neighbourhood Project(ANP)FamilyLearningand from Dover.Thefirsttwodescribed-Aylesham This documentoutlinesthreesocialinnovations The socialinnovations selected inDover and social care needs and improve health outcomes a localHealthandWell-BeingBoardtoidentifyhealth communities by,forexample,creatinginpartnership input intoplanningtherightservicesforDover other services.TheCouncilhasbeenworkinghardto space, housing,planning,socialcareandarangeof can haveanimpactonhealththroughsports,open 13 . development milestones. 14 . Localgovernment health - 15 . . 401

The other important component of success that is shared by these two social innovations is that they are seen by their clients as separate from council-run or national government-run services (e.g. social work, JobCentre Plus, or the Work Programme), which the service users may have had bad experiences with. The descriptions in this document are based on interviews with staff working in the services, local politicians, and district and county council officials. In summary, the recurrent patterns and features of the innovations ANP and Happy Feet Pre-School are that they are services that:

>> Offer often fragmented forms of support under one roof.

>> Personalise support in order to address critical situations affecting the whole family.

>> Involve flexible forms of ad hoc support. >> Are perceived by users as welcoming and not part of the “establishment”. The major innovation of EKH is to work beyond the Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities political boundary of the local authority. This demonstrates that a local council area is not always the most logical geographic area over which to plan services. 402 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Support isprovidedto: not belongtermandcanresolvedinamaximumofeightsessions.Theissuesbeingexperiencedinclude: short-term earlyintervention.Theyaimtoworkwithfamilieswhoareexperiencingawiderangeofissuesthatshould Established in2008,theANPFamilyLearningserviceoffersfamilieswithchildrenandyoungpeoplefrom0-12years 75.2. Theinnovation ment-run orcontractedservices. characterised asholisticservicesthatworktogetherandputclientsateasebybeingarm’slengthfromgovern employment andskillstraining;SmallWonderschildcare;achildren’scentre.Thisinnovativeapproachcan be a numberofdifferentservicesunderoneroof:FamilyLearning;Supportadviceservice;SkillsFactory services andthewithdrawalofother setbacks includingtheclosureofsecondaryschoolinAylesham,library,areductionlocalbus community perspective,theproblemscreatedbymineclosurewerecompoundedasuccessionoffurther Aylesham, nearDover,wasaffectedbythevacuumleftcollieryclosureatSnowdownin1989.From 75.1. Shortdescription Family LearningattheANP 75 > > > > > > > > > > > > > > > > > > > > Dover UK Advise onissues withtoddlersandpre-school children Provide opportunitiesforfamilies andchildrentospendqualitytimetogether Tackle issuesthatafamilyis experiencing Build uponfamilies’relationship withtheirchild/children Parent/carer difficultiesinconnectingemotionallywith theirchild Social difficulties Relationship difficultieswithinfamilies Transitions/loss/change/grief Emotional difficulties;Helpingachildandfamilytoexpress theirfeelings Low self-esteem(childorparent/carer) /77 community services.TheANPisavoluntarysectororganisation.Itprovides Child andfamilycare Categories - 403

ANP Family Learning service exemplifies an innovative example, problems with family relationships can make approach to building local cohesion, which has work difficult but unlike with ANP, support with this is only emerged in the last 10 years. The strapline of not typically available on welfare-to-work programmes ANP Family Learning is “Making a positive change, more narrowly focused on “getting a job”. together.” Family learning is based on the core ANP Family Learning is a bespoke service to meet belief that families are not only our first and most service users’ specific needs. The activities are important teachers, they also teach us the most child-centred and include creative activities such important things in life, and on the research finding as cookery, arts, crafts, painting, drawing, and free that parental involvement in a child’s learning is more play. They often use the “Solihull approach” with a powerful than family background, size of family or family, which offers guidance on sensitive, effective level of parental education and, in the primary years, parenting to help create a better understanding of has more impact on attainment than a child’s school. a child’s behaviour. The support can be delivered at Shaping education and social policy to build positively various settings in the community. They do not offer on this insight is innovative. counselling, psychotherapy or therapy. The progress of families towards their goals (specific ANP Family Learning addresses service users by changes) is reviewed during their engagement involving every family member. Family learning takes with the service. After sessions are completed, a place when family members of all ages are involved closing meeting is held with the worker, referrer, together and encourage each other. ANP can help child and family to evaluate and celebrate progress. overcome barriers caused by negative associations An overall formal evaluation of the wider positive with traditional or government institutions. This impact of ANP Family Learning on social cohesion helps to raise aspirations and create a long-term in the surrounding community would be difficult to change in the culture of the family and patterns of Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities do because its outcomes include some that are hard learning among the service users. However, children to measure and quantify, such as, helping those the and their families need to be willing to make chang- furthest away from getting into work; raising aspira- es, with support. tions; conscious rejection of “tick-box” approaches to combination delivering services. The of adults and children taking part together is crucial in building resilience in families, in 75.3. Conceptions and ways of creating community well-being, economic prosperity and social cohesion. A basic assumption of family addressing users learning programmes is that reaching both generations of service users can simultaneously can help The funding body SEEDA’s community consultation break the “cycle of disadvantage.” In this regard, such and organisation of public meetings a decade ago programmes are an excellent example of “joined-up” uncovered a wide range of views culminating in “total policymaking, in which it is understood that children’s disillusionment with establishment” announcements cognitive and non-cognitive development cannot be and processes. It became clear that the biggest chal- addressed in isolation, by focusing on the child alone, lenge was to re-create a framework for engagement but the family needs to be involved. and positive community support for future regeneration solutions16. Practitioners have told us that ANP’s In the past families interested in participating could philosophy has achieved this by being at arm’s length refer themselves. However, in time there was some from government-run or contracted services. It is also perception that the service should target its limited very important that they take into account the overall resources on those families most needing extra immediate setting of users and offering a personalised support. Consequently, access to the service is now approach of support with a number of issues that may through referral from other agencies, followed by be presenting an obstacle to entering paid work. For an assessment by a team member. If appropriate, four sessions are offered initially, with the possibility 16 South East England Development Agency (2003). Memorandum by The South East England Development Agency (SEEDA) (COA 25). House of another four sessions if goals have not yet been of Commons Select Committee on Office of the Deputy Prime Minister: reached. If a family and child require longer term or Housing, Planning, Local Government and the Regions Written Evidence. Available from: http://www.publications.parliament.uk/pa/cm200203/ more specialist support, they may be referred to a cmselect/cmodpm/1169/1169we26.htm different agency. 404 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities targets notmet. they haverejectedoutofconcernaboutpenaltiesif In addition,ANPisnot role outsideofcouncilorgovernment-runservices. when “upagainstit”.ANPhasagenuineuseand led bycommunityleaderswithavision,especially of tradeunionismthatmeanttheywerewillingtobe munity. Theformerminershadacultureandhistory very muchabottom-upinitiativefromthelocalcom- not financialsupportordirectinvolvement.ANPis approval, enabling,partnershipandfacilitation,but non-statutory, services.Theirsupportconsistsof public servicesDDCdonothaveresourcesfornew, Because ofthecurrenteconomicenvironmentfor local welfare system 75.5. Impact onthe such ascookingandsewingworkshops. income fromsellingservicesasa become moretargeted.Itisinnovatingbygenerating now hardertocomebyandtheprojecthashad originally camefromagrant.However,grantsare of theorganisationisfairlyconventional.Funding It isnotrunbyoutsideprofessionals.Theworking development workersratherthanthelocalauthority. ANP isaVCSinitiativethathascomefrom modes of working 75.4. Internal organisation and Dover UK working bycontracts,which governance of social enterprise, Child andfamilycare Categories community 405 UK Categories Dover Child and family care

76/77 Happy Feet Pre-School

76.1. Short description

The Happy Feet Pre-school is a registered charity located in one of Dover town’s more underprivileged neigh- Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities bourhoods. The pre-school is in a very deprived area and the surrounding area suffers from social and economic problems. There is a lot of unemployment, drug addiction, alcoholism and so on. Anti-social behaviour and vandalism are problem in the area. The Happy Feet Pre-school is based at The Ark, a Christian church-run centre that hosts a number of different activities under one roof. For example, there are groups for mums and toddlers, health visitors, and appointments can be made with the local MP. They are on the same site as Tower Hamlets Children’s Centre. The pre-school supports children with learning difficulties and/or disabilities. The majority of staff have child care qualifications. The Ark generates some income by hiring out its facilities and by employing business practices. It is led by a committee and the core beliefs and values that underlie the approach of the service and its staff are Christian ones. It offers an approach to improving child development outcomes in a deprived neighbourhood by supporting whole families, delivered by a third sector faith organisation. As well as early years education, support is offered in: adult literacy, child protection, and help with any crisis. In their own words: “We always go the extra mile, don’t get extra money, but to be working here you need to have a real passion for the children here and to support the families.” Happy Feet Pre-School has been formally inspection by government body OFSTED, although the wider family support it provides has not been formally evaluated (and would in any case be hard to measure)17.

76.2. The innovation

The innovative aspect of the pre-school is that the staff work to support the whole family and to form very strong professional working relationships with other agencies that may be involved in supporting the family. The pre- school is trusted by families who are wary of government-run or contracted services. The work of the pre-school is based on evidence about child development. It is now established that if by the time a child starts go to school they have not been adequately stimulated and had full learning opportunities there are parts of the brain that “shut off”.

17 OFSTED (2011). Happy Feet Pre-School: Inspection report for early years provision. Available from: http://www.thearkdover.com/happy-feet/images/ downloads/Ofsted_Report_2011.pdf 406 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities and canadvocateonbehalfofafamily. be doing,ortheyarenotseeingthebiggerpicture, helpful becausetheyarenotdoingwhatshould often findthatsocialservices’supportisnotentirely government-run orcontractedservices.HappyFeet The pre-schoolistrustedbyfamilieswhoarewaryof how theyarepresented. are pickedup,whattheirlunchboxlookslike,and they arelikewhendroppedoff, the otherhand,knowhowchildrenbehave,what family forrelativelybriefperiods.Pre-schoolstaff,on other agencies,onthehand,mayonlyvisit a week.Staffmayinitiateinterventions. of because thechildisintheircareforseveralhours most awareofwhenfamilieshavesupportneeds The HappyFeetstaffareoftentheprofessionals box” becausetheywouldseeitasshallow. from theirgarden.Theydonotwanttojust“ticka to activitiessuchashelpingahouseholdtidyjunk able todothis.Thehelpgivenhasevenextended and othertypesofform-fillingiftheparentsarenot children intothebettersurroundingprimaryschools, they activelyhelpwiththeprocessofgetting child careandisatapersonallevel.Forexample, context. Theinvolvementofthestaffgoesbeyond the widerneedsofwholefamilyintheirsocial attributed tothewaythatstaffcanworkwith A largepartofthesuccessHappyFeetcanbe addressing users 76.3. Conceptions andways of are 16staff,includingthe manager, supervisor,an pm onTuesdays,Wednesdays andThursdays.There on MondaysandFridays, from8.45amto3.30 of theyear).Sessionsarefrom 8.45amto12.00pm school opens5daysaweek termtime(38-39weeks attend avarietyofsessionseachweek.Thepre- to lookafterchildrenagedover5years.Children sory andvoluntarypartsoftheChild-careRegister and 4yearolds.Itisalsoregisteredonthecompul- the roll.HappyFeetisinreceiptoffundingfor2,3 There areabout55childrenagedfrom2yearson Description of thesetting modes of working 76.4. Internal organisation and Dover UK

Child andfamilycare Categories and theyhavenoideaitisconnected toachurch. community. Manytimespeople enjoythepre-school bashing”, butthereisamotivationabouttouching stones thatleadtowardsGod.Itisnotabout“bible and alotofitsrootenergyisaboutmakingstepping The Arkhasdifferentgroupswherepeoplecome, majority ofthefamiliessticktofundedsessions. parents dopayforafewextrasessions,butthe prefer tocomeHappyFeet.AtFeetsome in whattheyoffer.Inconsequence,alotofparents the governmentvoucherscheme,theyaretighter nurseries doprovidespacesfor3and4yearoldson for thattypeoffulldaycare.Whilstothernearby parents fromadeprivedareacannotaffordtopay and arepartofachainbusinesses.Workingclass ness-run nurseries.Othersprovidefulldaycare Happy Feetisdifferentfromneighbouringbusi- 3 and4above(i.e.degreelevel). least level2,andseveralhavequalificationstolevels majority ofstaffhavechildcarequalificationsto at administrator, coverstaffandparenthelpers.The a faith equal opportunitiesinemployingpeople,itisatheart The managersareChristians.Whilsttheyexercise important toappreciatethatitisinessenceachurch. the helpthatHappyFeetgivesto OFSTED asotherpre-schoolsare.Inunderstanding although itisgovernmentfundedandinspectedby by Christianfaith.HappyFeetispartofachurch, The workingcultureatHappyFeetisinfluenced Motivations andpurposeof thestaff is justaboutworkinginthatway. another department.Soinourthinkingthewholetime of thechurch,justaswehaveayouthdepartmentand to besaltandlight.Sothepre-schoolisadepartment the hire. So…thewholewaywerunisaboutmeshingwith whether it’sthecoffeemorning,business amongst thecommunity,whetherit’spre-school, don’t listenandit’snotourstyle.Sostyleistobe believers webelievethatifyoudoitforcefully,people God tobeexplainedpeople.Weinthisgroupof part ofourbeliefinGodandtheworldisthatwewant community, we would use a bible phrase like trying community, wewoulduseabiblephraseliketrying community. OneoftheMinisterssaid: community itis

407

Skills of the staff gradually been introducing free early education to some 2-year-olds based on the child’s circumstances The personal qualities of the staff are critical. The or on the family income. extra services are not just an overflow of the pre- Last year Happy Feet decided that the pre-school who school but depend on the Operations Manager was so successful that they wanted to expand it. It is. She has invested her life into the pre-school: it is was doubled and used another room, which was like a vocation for her, a major decision because it meant it could not use And so part of our motivation and our belief in life is that room for business hires. So, the pre-school has actually about linking and sharing with others, and recently moved into two separate rooms for children so when Sharon talks about like helping parents it’s at different stages of development because they because she’s lovely and kind and skilful … it’s hard felt the need. They were taking more and more very enough for Sharon running the pre-school, but when young 2 year olds who were more like 18 month olds people ask questions about their primary school in their development in the same room as children I’m really proud that parents have bothered to ask who go to school. The staff working with such a Sharon about that. broad range of children found it hard to ensure that every child was catered for because the little ones Management structure are very needy, and the older ones do not have enough patience. The organisational structure has been quite flexible However, whilst the government made funding avail- according to the skills and ambitions that the Opera- able for 2-year-old children, the support in making tions Manager has, and the skills and ambitions that changes to provision to cater for such young children the Business Manager has, because the organisation

has not been in place. Consequently, Happy Feet had Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities is able to be a bit malleable. The leadership structure to set up the new room “off their own back” with its is committee-led, and in that committee are five or own money, and had to make its own adaptations. six people. That committee is then answerable to Whereas previously under the Labour government the leadership team of the church but because of grants were available, such as one that was provided the number of people, and a shared interest, they in 2010 for a sum of 25,000 pounds sterling to are able to make sometimes quite big changes in completely recreate the outside play area, there is a relatively short period of time. The pre-school no such money available at the moment. Instead, is owned by the church and so all of the people Sure Start paid for Happy Feet to join an organisation on the committee are stakeholders in the church, called Treasure Chest for a year and this enabled for example Minsters, Vicars and attenders of the them to borrow a lot of equipment and furniture for congregation. Their thinking is the pre-school is a very the new room. Happy Feet will have to apply for a significant part of the church and needs to be man- grant for furniture at the end of the year. aged by people who have an awareness of the church and the pre-school. Their business health is because Further, funding for staff to professionally develop they are able to make changes quickly. Part of their themselves has been cut too, so staff will have to fund success is being able to respond to growth, e.g. new more themselves. equipment has been bought. Because of the current economic environment for public services, the Council does not have resources 76.5. Impact on the governance of for new, non-statutory, services. There is little local local welfare system government involvement other than funding available to all child care settings. Happy Feet is an initiative Child care providers (including Happy Feet) are by a local faith community, and such initiatives funded by the local authority to provide free places. are generally being encouraged by the national In England, the government funds free part-time early government. Communities Secretary Eric Pickles has education for children aged 3 or 4, and in some cases urged faith groups to make use of new powers in the if they are aged 2. It is intended to prepare children government’s Localism Bill to strengthen their arm for school. The places are available for 15 hours per week, for 38 weeks per year. The government has 408 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities groups-at-the-centre-of-their-communities from: https://www.gov.uk/government/news/new-powers-will-put-faith- powers will put faith groups at the centre of their communities. Available 18 Department forCommunitiesand LocalGovernment.(2011).New ship withthestatutorysocialservices. which canmakeithardtohaveaproductiverelation deaf child.However,socialworkersareoverloaded, children withdisabilitiesincludingablindchildand additional speechandlanguagesupportneeds, children inlocalauthoritycare,severalwith are severalchildrenknowntosocialservices,three meetings involvingstatutoryagenciesbecausethere The HappyFeetstaffattendalotofsocialservices support thefamilies: support thechildyouactuallyhavetodothings They areworkingontheprinciplethatinorderto have movedawayfromjustproviding Home Start.Theyfeelthisisnecessarybecausethey Start Children’sCentre,andVCSorganisationssuchas work closelywithcouncilservices,suchastheSure next toaSureStartChildren’sCentre.HappyFeet Happy Feetalsobenefitsfrombeinginabuilding Working withotheragencies in playinganactiveandvisiblerolesociety sector, whichhasinspiredhisapproach. expertise andenthusiasmthatcanbefoundinthis public services.HappyFeetisagoodexampleofthe to actintheircommunities,includingtherunningof is committedtogivingfaithgroupsnewfreedoms on theirhousingandsomethingsortedoutforthem. and they’vemanagedtogethelpwiththerentarrears within aweekthatpersonhascontactedtheparent away andbytheendofthatdayit’sgoneoff straight intoanotheroffice,makeareferral doorstep. OftenIcanwalkstraightoutofmyoffice pre-schools thatdon’thavethemrightontheir here, whichIfindmorebeneficialthanmaybeother it’s veryhelpfulhavingSureStartandHome Dover UK child education. Child andfamilycare Categories 18 . He - 409 UK Categories Dover Neighbourhood revitalization / Housing

77/77 EKH

77.1. Short description

In 2002, Inspectors classed the Housing Management Service provided by DDC as poor, with poor prospects for Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities improvement. The inspection team gave the service no stars. The rating may be from 0-3, where 0 is poor and 3 is excellent. Action was needed to do more to make the Council’s homes meet the Decent Homes Standard set by the government. In 2005, the four neighbouring councils of Dover, Canterbury, Shepway and Thanet each carried out an appraisal of the long-term viability of their council housing. While all four authorities could achieve and sustain the Decent Homes Standard and had viable business plans, concerns remained that the relatively small stock holding of each authority would limit any ambitions to improve services and to improve opportunities for council tenants and leaseholders. Not-for-profit companies set up by a local authority to manage itshousing stock known as “arms-length management organisations” (ALMOs) have demonstrated that they offer a better service to tenants than any other form of council housing management. The ALMO programme started in 2001 and there are around 68 ALMOs in the UK, which manage more than one million council homes across 64 local authorities. ALMOs manage over 700,000 council homes. They achieve higher inspection ratings than local authority managed housing or housing associations. There were only 26 “three star” housing authorities in the country, of which the majority were ALMO’s and none were councils19. East Kent Housing (EKH) came into being on 1 April 2011. It is an ALMO owned by the four councils of Dover, Canterbury, Shepway and Thanet. EKH is aimed at saving money while improving services to tenants. EKH is responsible for the management and maintenance of 18,000 homes owned by the four councils. EKH does not: decide who is allocated housing, make homelessness decisions, set the housing strategy, manage the Housing Revenue Account (HRA), or decide what improvements are made to the housing stock. These functions all remain with DDC.

77.2. The innovation

The innovation behind EKH is that it aims to achieve economies of scale by operating cross local authority boundary working, and was the first instance in the country of four authorities sharing a single housing company, or “super ALMO”. EKH differs from other ALMOs in that it is the first that serves more than one local authori-

19 DDC (2011). Minutes of the meeting of the Scrutiny (Community and Regeneration) Committee held at the Council Offices, Whitfield on Wednesday 14 December 2011 at 6.00 pm. 410 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities of scaleinmaintenanceand administration. payroll, buttherearefuture prospectsforeconomies have beenmade.Sofar,thesemainlyon is alsomeasured,e.g.rentarrears.Hoped-forsavings other ALMOs.Itsperformanceinbusinessareas EKH inthetopquartileoverallwhencomparedto annual surveysoftenants’satisfaction.Statisticsplace Its claimstosuccessarebasedonstatisticallyrobust sterling ayear(34,000poundsinDover). faster, bringinginrevenueofaround122,000pounds That istosay,ithasbeenre-lettingemptyproperties come tothecouncilsthroughimprovedperformance. pounds sterlinginDover),andhasincreasedrental by about900,000poundssterlingayear(340,000 sterling inDover),hasmadeprocurementsavings 300,000 poundssterlingayear(about86,000 running costsacrossthewholeofEastKentbyabout Wednesday 23February 2011at6.00pm. and Regeneration)Committeeheldat theCouncilOffices,Whitfieldon 20 DDC (2011).Minutesofthemeeting oftheScrutiny(Community the fourauthorities and servicecontractscouldbeharmonisedbetween ings fromyear5,whenthelonger-termmaintenance ALMO shouldbegintodeliveritsmostsignificantsav sterling inoverall years wouldsavethefourcouncils1.5millionpounds of 44,000poundssterlingforDDCandthefirst5 hoped thesecondyearwouldmakemodestsavings share estimatedat237,000poundssterling,itwas Although therewereinitialset-upcosts,withDover’s model forfuturesharedservices. and hasattractednationalattentionasapotential ty. Assuch,itisseenasbeingparticularlyinnovative Dover UK housing costsbetweenthem. 20 . TodateEKHhasreduced Neighbourhood revitalization/Housing Categories The - - provements although itmighttakesometimetodelivertheim- by listeningandtakingonboardtheirsuggestions, sceptical atfirst,butthatofficershadwonthemover organisation, ensureeffectivefinancialmanagement Board istooverseethestrategic EKH isrunbyitsownBoard.Themainfunctionofthe voted infavourofthetransfer housing managementfunctionstoEKH,72percent of tenantswhovotedontheissuetransfer DDC tookintoconsiderationthatofthe51percent been involvedinanumberofways.Forexample, service isakeyelementofitswork.Tenantshave and learnsaboutwhattheyreallythinkthe Improving thewayEKHcommunicateswithtenants addressing users 77.3. Conceptions andways of Wednesday 11April 2012at6.00pm. and Regeneration)Committeeheldat theCouncilOffices,Whitfieldon 23 DDC (2011).Minutesofthemeeting oftheScrutiny(Community Tuesday, 22March2011. Committee heldintheCouncilChamber, DoverDistrictCouncilon 22 KCC (2011).Minutesofameeting of theEastKent(JointScrutiny) Wednesday 23February2011at6.00 pm. and Regeneration)CommitteeheldattheCouncilOffices,Whitfieldon 21 DDC (2011).MinutesofthemeetingScrutiny(Community tenant concerns in whichEKHcommunicatedhowitrespondedto said, wedid”sectionnewsletterwascitedasoneway as clearandtenant-friendlypossible.The“You communications withtenantstoensuretheywere A DovereditorialpanelwassetuptoreviewallEKH to identifyanddeliverenvironmentalimprovements. ed toplayasignificantroleinworkingwithtenants 22 . Neighbourhoodmanagersareexpect- 23 . 21 . Tenantgroupswere development ofthe 411

and ensure that the organisation delivers its obliga- EKH, on the other hand, manages and maintains tions to the four councils and their tenants. The Board council homes across the four councils involved in has 12 members, four councillors (one nominated areas including: repairing and improving tenants’ from each council), four tenants (selected by the ten- homes, managing grass cutting, gardening contracts, ant representative bodies in each local authority area) cleaning and maintenance of communal areas, and four independent members, selected through an collecting rent, and helping tenants who are having open recruitment process, involving councillor and difficulty in paying, and ensuring tenants stick to their tenant board members. The Board initially meets tenancy agreements. EKH supports DDC with regard bi-monthly. Board meetings are open to the public to the delivery of its strategic housing objectives. and agendas, papers, minutes and the forward plan The configuration of staffing was critical in delivering are published on the EKH website. both an effective and improved service and reducing Area Boards are a critical part of the EKH governance costs in line with expectations of the councils. Two structure and are designed to ensure that there hundred and thirty posts transferred from the four remains local accountability to tenants, leaseholders councils to EKH in April 2011. The Board appointed a and councillors. There are four local area boards, one Chief Executive and other senior management posts for each authority, and these provide scrutiny of EKH within the organisation. Two members of the man- based on the tenants’ priorities. Within Dover, these agement team, the Head of Corporate Services and comprise the Dover/Deal and Sandwich/Rural tenants’ the Head of Asset Management were both former groups. Each group elects six tenant representatives employees of DDC. and one leaseholder representative who form the Certain principles underpin the innovative restruc- Area Board, together with two councillor nominees turing, the most important being that core frontline and a nominee from the main EKH Board. Area Board services like housing management and repairs will Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities meetings are open to all tenants and councillors to remain locally based. Other functions have potential attend. Details of meetings, venues, agendas and for being centralised, e.g. debt recovery, leasehold minutes are on the EKH website. As well as an Area management etc. Board structure, EKH has developed other ways in which tenants can hold the organisation accountable 77.5. Impact on the governance of and has introduced Tenant Inspectors and a Tenant Scrutiny panel in line with the current regulatory local welfare system requirements for social landlords. EKH aims to achieve economies of scale by operating 77.4. Internal organisation and cross district boundary working, and was the first instance in the country of four authorities sharing a modes of working single housing company, or “super ALMO”. It follows DDC remains the owner and legal landlord of the a wider trend in smaller councils to explore sharing council housing stock in the district and continues other management staff roles within the council and to set rents. Tenants’ and leaseholders’ rights and services such as the collection of council tax, the ad- responsibilities are unchanged as they remain ministration of housing benefit, ICT technical support tenants and leaseholders of DDC. Councils have kept and customer services, with other district councils. responsibility for all strategic housing functions such EKH works closely with DDC. A comprehensive as housing strategy, homelessness, housing advice, performance-reporting framework has been devel- the management of the housing register including oped by EKH. Formal quarterly monitoring meetings Choice Based Lettings, private sector housing, and the take place involving the portfolio holders for Housing management of the Housing Revenue Account. DDC and Community and Finance and senior officers in retains responsibility for the policy that determines the council including the Housing and Community how council homes are allocated and for determining Manager. Within DDC, performance is monitored the terms and conditions of its tenancy agreement through the Housing Improvement Board (HIB) which which EKH undertakes to enforce. includes the Deputy Leader and Portfolio Holder for Housing, Community and Youth and the Portfolio Holder for Corporate Resources and Performance. 412 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities savings andimprovedservicecanbedemonstrated. EKH canbeexpectedtosustainableaslong workforce skillsinthesector. child careinthefuture.Thiscouldleadtolossof there maybelessnationalgovernmentfundingof However, thereissomeuncertaintyaboutwhether hiring premisesouttoothergroups,conferences,etc. care services.Theorganisationgeneratesincomeby are good.Thereislocaldemandforpaid-forchild For HappyFeetPre-School, workshops. as asocialenterprise,suchcookingandsewing innovating bygeneratingincomefromsellingservices had tobecomemoretargetedoncertainusers.Itis grants arenowhardertocomebyandtheprojecthas applying foruncertaingrantse.g.BigLottery.As entail toomuchrisk.Instead,ANPareconstantly by contractstodeliver types ofobligations.Similarly,theyfeelthatoperating projects suchasANParewaryofenteringintothese longer available.Insteadloansarebeingoffered,but tion TrustthatANPbenefitedfrominthepastareno relatively largegrantsfromtheCoalfieldsRegenera For theANP Sustainability Conclusions Managed Budgets(repairsbudgets). arrears, re-lets,repairstargets);DeliveryPlan;and the monitoringinclude,PerformancePlan(e.g.rent from thefourcouncilsmeetquarterly.Keyareasof The ManagementteamofEKHandtheclientofficers ings withtheCouncil’sCorporateManagementTeam. Chief executiveofEKHalsoattendsquarterlymeet Head ofFinanceatEKHandfinancestaffDDC.The two organisationsincludingmeetingsbetweenthe regular meetingsbetweenseniormanagersofthe managers onaquarterlybasis.Inaddition,thereare and meetswiththeChiefExecutiveofEKHsenior HIB scrutinises performance reports produced by EKH Dover UK sustainability ispotentiallydifficult.The employment servicescan sustainability prospects Neighbourhood revitalization/Housing Categories - - language andnumeracyprogrammes group andpromotedtheexpansionoffamilyliteracy, led tothegovernmentidentifyingparentsasapriority skills infamilies programmes inengagingparentsandtacklingpoor effectiveness offamilyliteracy,languageandnumeracy Start -ImprovingLiteracyandNumeracyhighlightedthe of poorliteracyandnumeracy.Forexample,AFresh in 1990sdemonstratingtheintergenerationaleffects an idea.Itisaconceptbasedonevidenceofresearch their workisveryclearlytheproductofdiffusion The ANP“FamilyLearning”lifelonglearningaspectof Diffusion the broaderoffer for families. tres, SchoolsandtheCommunity:literacy, languageandnumeracy 26 NIACE (2006).Briefingsheet74:Family LearninginChildren’sCen literacy andnumeracyskills. 25 DfEE (2001).SkillsforLife:thenational strategyforimprovingadult 24 DfEE (1999).AFreshStart-Improving LiteracyandNumeracy for familylearningcommencedin2002 Standards FundmoneythroughtheLSCandfunding fund AdultandCommunityLearning.TheDfESsent the LearningandSkillsCouncil(LSC)wassetupto support fromtheBasicSkillsAgency(BSA).In2000, for EducationandSkills(DfES)tolocalauthoritieswith in thelate1990s,whichcamefromDepartment were expandedwithfundingfromtheStandardsFund and FamilyNumeracydemonstrationprogrammes ICT technicalsupportandcustomerservices). of counciltax,theadministration in sharingadministrativefunctions(e.g.thecollection in purchasingsupplies,sharingseniorofficials,and towards localauthoritiestocollaboratemoresuchas diffusion ofthepresentnationalgovernment’snudge the principlesunderlyingEKHareinfluencedby what theEastKentcouncilshaveachieved.However, shire andCo.Durhamhaveshownaninterestin developed inCornwallandothercouncilsShrop shared services.Similararrangementshavebeen national attentionasapotentialmodelforfuture as beingparticularlyinnovativeandhasattracted is notitselfaproductofdiffusion.Assuch,itseen local authoritiessharinga company, or“superALMO”.Asthefirstexampleof country offourauthoritiessharingasingle boundary working,andwasthefirstinstancein services totenantsbyoperatingcross-district EKH aimstoachieveeconomiesofscaleandimprove 24 . This was one contributory factor that . Thiswasonecontributoryfactorthat housing companyinUK,it housing benefit, 25 26 . Family Literacy . FamilyLiteracy . housing - - 413

Acknowledgements February 2012 Report of Mike Dawson, Director of Regeneration and Development. We are grateful for the participation of the following DDC (2012). Corporate Plan 2012-16. Available from: people in the compilation of this report. Nevertheless, http://www.dover.gov.uk/Corporate-Information/PDF/ any errors remain the responsibility of the authors. CorporatePlan2012-2016.pdf >> Cllr Linda Keen, District Councillor (Lab) DDC (2012). State of the District 2012. Available from: >> Brian Horton, Researcher, Kent County Council http://www.dover.gov.uk/Corporate-Information/PDF/ StateoftheDistrict2012.pdf >> Nigel Bainbridge, Business Manager, Happy Feet Pre-school Department for Communities and Local Government. >> Sharon Lucas, Operations Manager, Happy Feet (2011). New powers will put faith groups at the centre Pre-school of their communities. Available from: https://www. gov.uk/government/news/new-powers-will-put-faith- >> Professor Steve Fothergill, Sheffield Hallam groups-at-the-centre-of-their-communities University and Industrial Communities Alliance DfEE (1999). A Fresh Start - Improving Literacy and Tim Ingleton, Head of Regeneration, DDC >> Numeracy. >> Cllr Sue Chandler, District Councillor (Con) DfEE (2001). Skills for Life: the national strategy for >> Brinley Hill, Alternative Service Delivery Manager, improving adult literacy and numeracy skills. DDC Dover Pride (2006). Memorandum by Dover Pride (CT >> Cllr Christopher (Kit) Smith, District Councillor (Con) 29). House of Commons Select Committee on Office of the Deputy Prime Minister: Housing, Planning, >> Tracy Perrow, DOver District Home Start Local Government and the Regions Written Evidence. Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities >> Brendan Ryan, Chief Executive, EKH Available from: http://www.publications.parliament.uk/ >> Angela Doggett, ANP Family Learning pa/cm200506/cmselect/cmodpm/1023/1023we30.htm >> Richard Collins, ANP East Kent Mercury (2012). July 12, 2012, No money, so it’s over to you... >> Cllr Frederick Scales, District Councillor (Con) KCC (2011). Minutes of a meeting of the East Kent References (Joint Scrutiny) Committee held in the Council Cham- ber, Dover District Council on Tuesday, 22 March 2011. DDC (2010). Minutes of the meeting of the Scrutiny NIACE (2006). Briefing sheet 74: Family Learning in (Community and Regeneration) Committee held on Children’s Centres, Schools and the Community: Wednesday 17 November 2010 at the Council Offices, literacy, language and numeracy and the broader Whitfield at 6.00 pm. offer for families. DDC (2011). Minutes of the meeting of the Scrutiny OFSTED (2011). Happy Feet Pre-School: Inspection (Community and Regeneration) Committee held report for early years provision. Available from: http:// at the Council Offices, Whitfield on Wednesday 23 www.thearkdover.com/happy-feet/images/down- February 2011 at 6.00 pm. loads/Ofsted_Report_2011.pdf DDC (2011). Minutes of the meeting of the Scrutiny South East England Development Agency (2003). (Community and Regeneration) Committee held Memorandum by The South East England Develop- at the Council Offices, Whitfield on Wednesday 14 ment Agency (SEEDA) (COA 25). House of Commons December 2011 at 6.00 pm. Select Committee on Office of the Deputy Prime DDC (2012). Minutes of the meeting of the Scrutiny Minister: Housing, Planning, Local Government and (Community and Regeneration) Committee held at the Regions Written Evidence. Available from: http:// the Council Offices, Whitfield on Wednesday 11 April www.publications.parliament.uk/pa/cm200203/ 2012 at 6.00 pm. cmselect/cmodpm/1169/1169we26.htm DDC (2012). Agenda Item No 13. Dover District Annual Monitoring Report. Meeting and Date: Cabinet – 12 414 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Index coalitions, 20,28,86,95,102, 103,153,158,180,201, 344, 346,357,362,369,370, 371,379,399 153, 158,227,286,287,296, 300,331,337,339,340, 50, 51,52,55,57,60,61,69, 91,111,138,142,144, civil society,15,22,32,35,39, 40,41,42,45,48,49, 219, 220,221,319 city districts,200,201,205,206,207,209,211,213, 200, 222,241,253,260,270,290,350,357 citizenship, 43,80,99,100,180,185,187,189,197, citizen initiatives,221,331 Children ofSingle(Lone)Mothers,319,326,331,333 Childhood CoordinationCentres,97 child education,164,189,408 Child andYouthWelfareOffice,127,128 case management,11,163,170,360 225, 259,266,268,311,312,319,368,400,412 97, 98,100,106,128,166,180,187,189,190,201, care services,16,23,37,40,69,79,83,91,94,95,96, C Birmingham MunicipalHousingTrust(BMHT),393 Birmingham CityCouncil(BCC),382 Barcelona model,287,301 Barcelona CityCouncil,291,301 B 224, 241,364 206, 208,210,212,214,216,218,219,220,221,222, Amsterdam, 9,19,23,199,200,201,202,203,204, activation policies,359 220, 229,268,269,321,330,342,359,374 activation, 16,23,49,50,52,54,56,59,60,61,204, accessibility, 353,354,359 A Index WILCO project cross-cutting, 91,97,98,102,103,104 co-production, 70,71,103,233,235,239,331 174, 175,214,216,217,218,248,274,322,341,344 cooperative, 19,62,65,123,124,142,162,166,171, Coompanion Incubator,337 compensatory education,354 404 community development,19,21,32,76,82,121,289, 388, 390,394,395,398,399,402,403,404,406,407 368, 369,370,371,372,377,379,384,385,386,387, 298, 307,314,322,329,340,344,350,356,362,363, 276, 277,278,279,280,282,283,288,289,295,297, 212, 225,232,233,239,240,252,267,268,269,270, 129, 130,132,148,152,172,188,190,192,194,195, 72, 76,81,82,92,99,111,114,116,118,121,122,124, 35, 39,43,45,49,50,51,52,55,56,57,59,61,63,65, community, 14,16,17,18,19,20,21,22,23,30,32, Commission foraSociallySustainableMalmö,337 346, 349,350,358,359 204, 206,208,211,212,213,217,230,232,287,309, collaboration, 3,35,50,51,114,161,162,177,185, Co-funding strategies,86,103 248, 249,346,360,363,364,379 305, 307,309, 318, 331,336,337,345,347, 352,362, 278, 279,280,282,287,289, 290,293,295,299,304, 240, 241,244,245,249,257, 261,265,268,269,274, 221, 225,226,227,229,230, 231,232,233,235,239, 181, 182,184,188,191,192, 194,195,197,208,209, 148, 149,150,151,152,153, 158,161,164,166,174, 118, 121,122,125,129,130,135,136,137,138,141, 85, 86,88,90,91,99,100,101,103,104,110,111,113, 62, 63,64,65,68,69,70,71,72,76,77,78,79,81,82, 35, 36,37,42,44,45,46,48,49,53,54,55,57,60,61, development, 10,14,16,17,19,20,21,23,24,32,34, Deregulation, 318,319,330,346 democracy, 15,69,259,261,283,286,290 D 415

368, 370, 379, 384, 385, 387, 388, 394, 395, 398, 399, Fondazione Housing Sociale, 181, 191, 192, 194, 197, 400, 403, 404, 405, 407, 410 198 Diakonisches Werk, 124, 125 Fondazione Welfare Ambrosiano, 181, 182, 198 Diffusion, 104, 153, 200, 221, 224, 241, 300, 412 Friedrichshain-Kreuzberg, 110, 111, 114, 118, 120, Disability, , 6, 269, 368, 372, 373, 374 125, 126, 127, 128 Fryshuset, 325, 326, 327, 331, 332 E Early child education and care, 187 G early language development, 77, 88 gentrification, 82, 121, 370 economically vulnerable, 325, 327 good practice, 42, 48, 60 Economic Development Agency, 120 governance, 13, 14, 15, 16, 19, 20, 28, 35, 40, 44, 48, 60, 61, 64, 68, 69, 70, 82, 90, 91, 96, 99, 102, 103, 104, economic growth, 24, 132, 174, 264, 279, 398, 399, 105, 110, 111, 114, 123, 129, 130, 132, 139, 142, 147, 400 185, 188, 189, 194, 196, 230, 234, 240, 249, 295, 296, emancipation, 214, 215, 218, 219, 361 298, 299, 300, 309, 313, 316, 324, 327, 330, 340, 342, Employment Needs Training Agency, 389 345, 346, 374, 379, 385, 395, 404, 407, 411 employment services, 84, 97, 98, 103, 105, 161, 162, grassroots initiatives, 92, 100, 103, 282 163, 177, 226, 230, 257, 412 guidelines, 10, 20, 36, 54, 98, 188, 194, 321, 322, 350, empowerment, 34, 53, 54, 56, 59, 61, 73, 116, 118, 355, 356, 357, 359, 362 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 147, 151, 192, 197, 229, 344, 346, 359, 374, 390 enabling, 24, 90, 94, 103, 129, 307, 310, 340, 346, 357, H 359, 363, 370, 372, 374, 379, 395, 399, 400, 404 Hafenforum, 149, 150, 151, 152, 153, 155, 156 entrepreneurialism, 112, 387, 395 health problems, 305, 372, 375, 378, 379, 400 entrepreneurship, 32, 39, 69, 91, 92, 121, 132, 139, holistic approach, 127, 201, 224, 346, 389, 395 185, 207, 232, 233, 257, 296, 337, 341, 344, 345, 347 home sharing, 94, 95, 104, 106 ESF, 114, 122, 125, 153, 154, 227, 249, 260, 261, 283, home visits, 124, 351, 352, 354 322, 323, 333, 342, 343 house-building, 394 European Social Fund, 110, 114, 135, 153, 227, 249, 277, 282, 283, 321, 341, 344 housing, 12, 16, 18, 19, 20, 21, 23, 32, 38, 42, 43, 44, 45, 48, 57, 62, 63, 64, 68, 69, 70, 71, 72, 73, 74, 75, 76, 83, 85, 86, 87, 88, 90, 91, 93, 94, 95, 96, 103, 104, 110, F 111, 114, 122, 146, 147, 148, 149, 150, 151, 156, 158, faith organisation, 405 159, 168, 169, 170, 171, 172, 173, 174, 175, 176, 177, family caregivers, 94 180, 181, 184, 191, 192, 193, 194, 195, 196, 197, 198, 201, 203, 204, 205, 206, 207, 209, 211, 212, 220, 221, Family Centres, 110, 127 224, 225, 227, 230, 232, 233, 234, 235, 239, 241, 245, family learning, 403, 412 250, 255, 256, 259, 260, 273, 274, 275, 280, 282, 290, family-minded and friendly spaces, 100 295, 297, 301, 304, 308, 309, 310, 318, 319, 328, 329, 336, 337, 338, 339, 346, 368, 369, 370, 375, 376, 377, family-minded policies, 112 378, 379, 380, 382, 383, 389, 390, 391, 393, 394, 398, family needs, 184, 403 400, 408, 409, 410, 411, 412 Family Office, 17, 141, 143, 144, 152, 153, 156 housing corporation, 23, 203, 205, 207, 220, 230, 233, federalism, 363 234, 235, 239, 241 Filur project, 319, 321, 322, 323, 324, 330, 332, 333 416 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 318, 319,321, 322, 323,330,343,344,345, 346,356, 291, 292,293,297,299,300, 301,305,306,311,313, 251, 257,258,260,261,265, 278,281,282,283,289, 206, 218,220,221,226,228, 229,231,240,248,250, 153, 160,161,162,163,176, 181,182,203,204,205, 124, 130,132,133,134,135,136,137,138,139,144, 55, 56,68,96,100,101,110,111,112,119,120,122, labour market,19,22,24,33,34,35,45,50,51,53,54, L Kreuzberg Acts,20,121,122,123 K Job Explorer,119,120 Jobbtorg, 321,322,323,324,332,333 J intergenerational cohabitation, 68, 93, 94, 95, 103, 105 intercultural mediatorsandmentors,124 integration ofmigrants,18,134,355 283, 295,296,336,338,355,356,357,359,373 Integration, 102,137,155,156,251,253,258,261, Integrated EmploymentandSkillsmodel,384 340, 344,346,347,356,362,370,382,407 280, 282,283,296,298,304,305,316,331,332,336, 245, 255,257,259,260,261,264,267,269,272,278, 197, 200,209,212,214,215,218,221,224,238,239, 176, 180,181,182,185,186,189,191,192,193,194, 103, 104,111,128,134,137,164,166,167,170,172, 68, 69,71,79,85,86,87,90,91,92,99,100,101,102, initiatives, 19,21,22,39,45,48,55,60,61,62,64,65, Incubator, 336,337,341,342,343,346,347 171, 177 Immobiliare SocialeBresciana,6,159,168,169,170, IES, 384,385,386,395 I housing shortage,318,328,337 housing self-renovation,21,69,73,74,86,87 259, 273,274,282,378,383,393,400 housing policy,62,64,68,73,76,147,151,255,256, 177, 191,192,193,195,196 housing needs,42,43,62,63,64,169,171,172,176, Index WILCO project lone parentsupport,389 lone mothers,248,326,359, 361 411 378, 379,383,386,388,390,392,394,399,404,407, 293, 295,307,309,313,315,330,336,350,371,374, 249, 253,256,258,269,271,274,277,279,286,290, 181, 185,190,195,206,212,218,224,230,234,238, 139, 142,144,147,151,152,163,167,170,172,175, 112, 114,118,120,123,125,126,128,133,135,138, 51, 52,56,60,64,65,72,75,79,82,85,95,98,101, local welfaresystem,7,13,14,32,35,40,44,45,48, 394, 395,399,404,407,411 370, 371,374,378,379,383,384,386,388,390,392, 315, 324,327,330,336,337,340,342,345,346,350, 279, 280,283,286,290,293,295,298,307,309,313, 238, 241,249,253,256,258,261,269,271,274,277, 191, 195,201,206,212,218,222,224,230,234,236, 152, 159,163,167,170,172,175,181,182,185,190, 126, 128,129,133,135,138,139,142,144,147,151, 95, 96,98,101,104,105,112,114,118,120,123,125, 44, 45,48,51,52,56,59,60,64,65,72,75,79,82,85, local welfare,7,9,10,11,13,14,22,30,32,35,40, local propertyfund,118 locality approach,384,385,386,395,396 340, 346 local initiatives,71,87,99,102,180,261,278,283, 407 319, 330,336,337,347,371,379,392,395,398,399, 258, 259,260,279,286,300,304,311,314,315,318, local government,44,48,49,56,57,58,60,61,63,83, local governance,82,114,139,298,299,300 local council,314,315,316,401 185, 346,395 local context,9,12,95,98,100,102,104,122,129, 399, 404 232, 233,276,277,278,279,280,282,283,340,344, local community,20,35,50,52,55,65,72,121,122, legitimacy, 32,43,45,63,102,331,339,359,379 La MinaNeighbourhood,289 181, 289,297,299,301,305,306,311,313,382 labour marketintegration,111,112,134,136,153, 382, 383,385,395 358, 359,360,363,364,368,372,373,374,375,379, 417

M 238, 286, 289, 290, 293, 295, 296, 297, 298, 300, 301, Malmö, 9, 24, 325, 330, 332, 335, 336, 337, 338, 339, 318, 326, 342, 351, 360, 362, 372, 377, 388 340, 341, 342, 344, 346, 347, 363 networking, 3, 19, 20, 21, 35, 55, 56, 87, 110, 113, 114, MAMBA, 134, 135, 136, 139, 152, 153, 154, 156 121, 142, 144, 151, 154, 176, 177, 295, 314, 329, 331, 369 micro-credit, 183, 184, 185, 186, 197 networks, 9, 14, 23, 25, 28, 30, 35, 65, 74, 79, 83, 87, Miljardprogrammet, 319, 328, 329, 330, 331, 332, 333 91, 92, 95, 100, 101, 102, 106, 111, 114, 121, 122, 124, Million Homes Programme, 319, 328, 329, 337, 338, 125, 127, 128, 129, 130, 136, 138, 139, 144, 152, 154, 344 159, 166, 201, 210, 215, 233, 234, 244, 261, 264, 283, mothers, 12, 16, 17, 19, 39, 41, 53, 81, 83, 84, 91, 92, 287, 289, 295, 296, 298, 318, 331, 332, 342, 370, 371, 96, 97, 98, 111, 124, 125, 126, 158, 160, 162, 165, 166, 388 169, 170, 187, 215, 219, 232, 244, 246, 247, 248, 249, new generation of social services, 129, 395 259, 260, 312, 318, 319, 325, 326, 327, 331, 350, 352, Nijmegen, 3, 9, 22, 199, 200, 202, 222, 223, 224, 225, 354, 358, 359, 360, 361, 362, 363, 364 226, 227, 228, 230, 232, 233, 234, 236, 238, 240, 241, municipality, 18, 20, 22, 68, 69, 70, 79, 85, 88, 95, 98, 242, 6, 332 107, 140, 144, 146, 147, 148, 151, 152, 153, 158, 160, NM, 113, 114, 122, 204 161, 162, 163, 164, 165, 167, 170, 171, 172, 175, 181, 184, 185, 189, 190, 195, 196, 200, 201, 203, 206, 207, not in employment, education or training (NEET), 387 212, 215, 216, 218, 220, 221, 225, 226, 227, 228, 229, 230, 231, 232, 233, 234, 235, 236, 237, 238, 239, 240, O 241, 259, 288, 314, 322, 323, 329, 340, 344, 345, 375 Områdesprogrammet, 24, 337, 338, 339, 340, 346, 347 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Optionskommune, 22, 136, 137, 138, 139, 152, 153 N orientation, 10, 12, 15, 19, 20, 48, 55, 61, 119, 120, neighbourhood, 12, 14, 16, 20, 21, 23, 43, 45, 70, 71, 128, 129, 183, 194, 331, 359, 373, 379, 398 72, 74, 80, 81, 82, 83, 86, 88, 91, 92, 99, 111, 113, 114, 116, 121, 122, 124, 125, 126, 127, 128, 146, 147, 148, Osthuesheide, 146, 147, 148, 152, 153, 155, 156 149, 152, 153, 164, 167, 170, 171, 172, 188, 189, 192, 196, 201, 203, 204, 205, 206, 207, 209, 211, 212, 213, P 214, 215, 219, 220, 221, 224, 225, 232, 233, 234, 235, parenting support, 85, 166 236, 237, 238, 239, 240, 241, 287, 288, 289, 290, 297, 298, 299, 300, 314, 315, 330, 331, 337, 340, 346, 347, participation, 11, 12, 14, 15, 18, 23, 27, 43, 44, 48, 49, 352, 354, 369, 370, 376, 377, 382, 385, 386, 395, 396, 50, 53, 54, 56, 68, 70, 71, 72, 73, 81, 84, 85, 86, 87, 95, 405 97, 99, 100, 101, 102, 103, 104, 105, 129, 132, 133, 136, 140, 149, 151, 152, 164, 175, 180, 187, 188, 189, neighbourhood dynamics, 370 194, 195, 197, 201, 218, 224, 225, 232, 233, 234, 236, neighbourhood factory, 234, 235, 239, 241 238, 239, 240, 247, 248, 249, 251, 258, 271, 273, 274, Neighbourhood Management, 19, 113 277, 280, 282, 287, 288, 289, 290, 294, 295, 298, 300, 307, 322, 326, 330, 341, 344, 352, 353, 354, 356, 357, Neighbourhood Mothers, 21, 124, 125, 126, 214, 215, 374, 379, 413 216, 217, 218, 219, 220, 221, 222 partnerships, 14, 20, 28, 32, 35, 36, 45, 48, 55, 61, 65, Neighbourhood Mothers Catering, 214, 215, 216, 217, 81, 85, 91, 103, 130, 136, 163, 192, 193, 197, 201, 245, 218, 219, 220, 221, 222 259, 292, 332, 346, 359, 386, 398, 399 neighbourhood revitalization, 20, 21 partnership working, 385, 398 network, 11, 12, 36, 39, 40, 45, 53, 57, 58, 60, 61, 74, Personalising support, 382, 395 75, 80, 87, 92, 98, 99, 100, 101, 102, 103, 105, 106, 107, 134, 135, 136, 152, 153, 158, 165, 166, 167, 181, 183, political administrative system, 129, 130 185, 195, 201, 208, 210, 211, 213, 222, 225, 231, 233, political changes, 259, 292, 293 418 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities 388, 395,404,412 social enterprise,21,45,118, 205,217,306,344,385, social economy,247,248,249, 293,296,299,345 261, 283,290,295,346,353, 357,400,403 90, 92,96,111,113,133,168,172,188,219,239,242, social cohesion,3,7,8,9,10,23,24,40,43,44,64,65, social capital,40,45,59,61,63,65,244,264 social andsolidarity-basedeconomy(SSE),69,91 social andprofessionalinclusion,96,97,100 162, 166,169,170,249,319,325,331 single mothers,12,53,81,83,84,96,97,111,160, self-reliance, 201,210,241 376, 377 segregation, 63,297,319,328,336,337,346,347,371, segmentation, 319 safety, 38,216,236,237,238,239,369,370,398 S 111 routine-breaking servicearrangementsandprojects, re-integration, 17,214,218,220 306, 308,309,310,311,313,316 regional government,289,291,292,293,296,300, regeneration, 201,224,382,394,398,399,403 re-employment, 226,227,228,229,230,231,239 R public employmentservices,98 public contracts,306,307 151, 170,193,221,222,293,316,331,346,368 public administration,42,45,50,51,65,134,135,142, 363, 373,379 professional integration, 68, 93, 99, 100, 102, 350, 362, privatisation, 62,180,245,255,319,336 Princesses Gardens,116,117,118,125 154 prevention visits,140,141,142,144,145,152,153, preschool education,350 precarious workingconditions,103 precariousness, 90,95,101,103,119,183 Index WILCO project 336, 341,345,347 Sweden, 9,17,24,317,318,328,329,331,332,335, 283, 297,299,330,332,337,340,347,391,412 152, 153,184,192,195,197,220,221,239,240,261, 94, 95,98,99,101,102,103,104,116,125,133,135, sustainability, 15,35,44,45,56,58,61,63,65,85,86, subsidiarity, 62,132,138,152,192,370 324, 325,326,327,328,330,331,332,347 Stockholm, 9,15,17,317,318,319,320,321,322,323, spatial policyinterventions,111 304, 307,363,369,377,379 164, 165,167,180,181,185,192,222,224,247,295, solidarity, 68,69,91,93,94,104,107,110,132,158, 330, 336,337,346 294, 295,296,297,298,299,300,319,321,322,327, social welfare,24,35,42,44,64,129,286,287,293, social media,122,331,332,387 socially disadvantageddistricts,100 351, 353,354,358,359,360,363,395 social investment,23,44,64,129,132,187,188,198, 192, 267,308,309,310,358,359,363,371 social integration,15,16,17,23,33,39,43,44,64, 362, 380,382,398,399 220, 240,287,293,295,296,304,330,336,337,346, 103, 105,125,130,142,159,161,164,176,181,185, 44, 45,56,58,63,64,65,68,69,87,90,91,92,95,102, social innovation,7,9,10,22,25,32,37,40,42,43, Social Inclusion,33,106,286,294,295,296,301 194, 195,197,376 social housingprojects,168,169,176,177,191,192, social housingpolicies,111 social housinginitiatives,170,194 203, 225,227,297,308,376,378,382,393,394 170, 176,177,191,192,193,194,195,196,197,198, 74, 83,86,87,90,95,96,111,114,150,151,168,169, social housing,18,43,44,57,62,63,64,68,70,71,72, social entrepreneurship,39,91,92,207,337,345 419

T welfare governance, 96, 123, 130, 142 Targeted discretionary housing payments (TDHP), 391 welfare mixes, 13, 130 The Area Programme, 337 windows of opportunity, 91, 102, 133, 152, 176, 330 The Future Melting Pot (TFMP), 387 work corporations, 22, 225, 226, 227, 228, 229, 230, third sector organisations, 14, 111, 128, 283, 385 231, 240, 241, 242, 6 transfer of skills and knowledge, 73 workfare, 17, 18, 359, 360, 362, 363, 364, 374 transition from benefits to work, 391, 395 Working Neighbourhoods Fund (WNF), 382

U Y ULT, 370, 375, 376, 377, 378, 379, 380 Yalla Trappan, 337, 344, 345, 346, 347, 363 unemployment, 17, 50, 51, 54, 56, 60, 68, 74, 83, 100, young mothers, 16, 39, 249, 259, 260, 350, 358, 359, 114, 116, 137, 138, 161, 181, 183, 203, 257, 261, 276, 360, 362, 363, 364 278, 281, 283, 318, 319, 322, 323, 330, 331, 336, 337, Youth Employment and Enterprise Rehearsal (YEER), 338, 342, 343, 346, 353, 358, 359, 361, 364, 368, 378, 387 382, 384, 385, 386, 387, 388, 391, 395, 396, 405 Youth Office, 140, 141, 142, 143, 144, 145, 152, 153, Unit for Temporary Housing, 368, 375 155, 156 urban gardening, 18, 23, 48, 58, 60, 61, 116, 118, 171 youth unemployment, 68, 322, 330, 337, 346, 358, 382 urban renewal, 21, 70, 71, 72, 86, 87, 112, 203, 204, 209 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities user choice, 319

V vocational training, 94, 95, 96, 112, 116, 119, 120, 123, 135, 292, 325

W welfare, 7, 9, 10, 11, 12, 13, 14, 15, 16, 17, 18, 19, 20, 22, 23, 24, 25, 30, 32, 33, 35, 36, 40, 42, 43, 44, 45, 46, 48, 49, 51, 52, 56, 57, 58, 59, 60, 61, 64, 65, 72, 75, 79, 82, 85, 90, 95, 96, 98, 101, 104, 105, 112, 114, 116, 118, 120, 122, 123, 125, 126, 128, 129, 130, 132, 133, 135, 137, 138, 139, 142, 144, 147, 151, 152, 158, 159, 163, 167, 170, 172, 175, 177, 180, 181, 182, 183, 185, 190, 191, 194, 195, 196, 197, 198, 200, 201, 202, 206, 208, 209, 210, 211, 212, 213, 217, 218, 220, 221, 222, 224, 225, 227, 230, 232, 234, 236, 238, 239, 241, 249, 253, 256, 258, 259, 260, 261, 264, 269, 271, 274, 277, 279, 280, 283, 286, 287, 290, 293, 294, 295, 296, 297, 298, 299, 300, 301, 307, 309, 313, 315, 316, 319, 321, 322, 324, 327, 330, 331, 332, 336, 337, 340, 342, 345, 346, 350, 351, 353, 354, 355, 356, 359, 360, 361, 363, 364, 368, 369, 370, 371, 374, 378, 379, 383, 384, 386, 388, 390, 391, 392, 394, 395, 398, 399, 403, 404, 407, 411 420 Social Innovations for social cohesion. Transnational patterns and approaches from 20 European cities Varaždin HR Employment Categories