MULTIWELFARE
Comparing how local welfare systems
respond to immigration
Ferruccio Pastore and Irene Ponzo
Seminar on «Migrants and Welfare»
Centro Einaudi, Torino, 13 June 2013
What we are presenting
• Main results of a comparative empirical study
on how local welfare systems respond to
immigration (viewed as major exogenous
transformative factor, in a context of wider and
more complex transformations)
• A privately funded study, where the funders
are themselves part of the research object
• An interdisciplinary and collective research
project (the team)
Exogenous (demand-side) transformative factors
of local welfare systems: a recursive interaction
New
Changes
changes
in demand
in demand
for
for
welfare
welfare
And so on…
Changes
Local in
supply
welfare
of
system
welfare
on the backdrop of our research…
•Pre-crisis decade: South European labour
immigration boom
•Crisis  slowdown in arrivals, but net migration still
positive and comparatively high
•Closure of long-term planned admissions BUT
- continuing regularisations (2009 and 2012)
-continuing family regroupments (140,000 new permits, -21%
on previous year)
TO SUM UP: Changes in composition, steps back in
integration  Growing pressure on welfare
Our territorial and thematic focus
• Local welfare systems, functionally identified (on the
basis of the criterion of relative autonomy of local
systems)
• Two largest immigration basins in Piedmont (one of the
main receiving regions in Italy)
• Asymmetrical comparison: City-level in torino, Provincelevel in cuneo (why comparing apples and pears makes
sense)
• Thematic focus on social policies (one of the areas
where migration-induced transformations have been
most precociously evident)
Our analytical tools (I):
welfare mix, broadly meant
PRIVATE
FORPROFIT
SEMIPUBLIC
NON-PROFIT
(foundations)
PRIVATE
NON-PROFIT
PUBLIC
PRIVATE
NO-PROFIT
COMMUNITYBASED
Our analytical tools (II):
A classification of welfare services/ provisions
based on relation with immigrant beneficiaries
Migration-blind
Universalistic
Migrant-specific:
Access formally restricted
to foreigners/immigrants
Migration-sensitive:
Incorporating specific
devices or approaches
aimed at facilitating
access for
immigrant minorities
Methodological choices
Methodological strategy apt to analyse a situation in
turbulent, unplanned and largely unforeseeable
evolution:
- strong empirical focus
- mix of qualitative and quantitative methods
- participatory approach
THEREFORE:
Quantitative analysis of demographic data
Quantitative analysis of data on welfare providers
Qualitative analysis of interviews with key actors
Discussion with local Steering groups made up of experts and
practitioners
Starting with demographic data (indicators of potential demand)
In Turin the demographic weight of immigration is
higher than in Cuneo
Share of foreign residents on total (31 Dec. of each year)
Source: Istat Demo – Own elaboration
Settlement processes are advanced in both territories
Born in Italy as % of
foreign residents (Istat –
Demo, own elaboration)
Acquisitions of
citizenship as % of
foreign residents
(Istat – Demo,
own elaboration)
Inflows remain sizeable in spite of the crisis
New foreign residents (registrations from abroad) – Absolute values, 2002-2010
Source: Istat Demo – Own elaboration
Levels of diversity (in terms of national origin)
are similar in the two territories
Composition of foreign population by citizenship – Percentages at 31 Dec. 2010
Province of Cuneo
Municipality of Torino
What about the actual
demand of welfare?
A comparison between
the two target areas
MORE IMMIGRANT BENEFICIARIES IN CUNEO
The share of foreign beneficiaries of public social
provisions is higher in Cuneo than in Turin
Share of foreign beneficiaries of public provisions (%)
Source: Regione Piemonte – Relazione Enti Gestori dei Servizi SocioAssistenziali - Own elaboration
MORE WELFARE-CONSUMING IMMIGRANTS IN CUNEO?
The share of foreigners who benefit from public social
provisions is higher in Cuneo than in Turin
Share of residents who benefit from social provisions by nationality (%)
18,0%
16,0%
15,2%
15,6%
14,0%
12,0%
12,6%
10,0%
9,0%
8,0%
6,0%
6,4%
4,0%
4,1%
2,0%
2,2%
6,7%
4,6%
4,7%
2,1%
2,2%
0,0%
2008
Stranieri a Torino
2009
Italiani a Torino
2010
Stranieri a Cuneo
Italiani a Cuneo
Source: Regione Piemonte – Relazione Enti Gestori dei Servizi SocioAssistenziali - Own elaboration
FALSE EXPLANATIONS
Contrary to widespread beliefs, the differences
between Cuneo and Turin can not be explained just
with:
1. Immigration stocks and inflows
2. Amount of public expenditure for migrant-specific
provisions
IN FACT, expenditure for migrant-specific social
provisions is lower in Cuneo than in Torino
Public expenditure for migrant-specific provisions, 2010
Areas
Expenditure
Share of totale
expenditure for migrantspecific provisions
Province Cuneo
€ 416,802
0.6%
Municipality of Torino
€ 10,881,858
3.79%
Piedmont Region
€ 13,449,432
2.06%
Source: Regione Piemonte based on ‘Indagine Istat sugli interventi e servizi
sociali dei comuni singoli e associati’ - Own elaboration
OUR EXPLANATIONS
Differences between Cuneo and Turin seem to depend
mainly on:
1. Composition of public expenditure
for migrant-specific provisions and per capita-cost of
migrant-specific provisions
2. Types of local welfare mix: size and indipendence of
no-profit welfare providers and funders
In Cuneo migrant-specific expenditure is concentrated on
cheap services addressing not marginalised migrants
Composition of public expenditure for migrant-specific provisions, 2010
Municipality of Turin
Share of migrantspecific expenditure
Types of provision
Professional social work
Accomodation and residential services
Cultural mediation and orientation to services
Other provisions
Province of Cuneo
Types of provision
21.8%
40.1%
2.9%
35.2%
Share of migrantspecific expenditure
Professional social work
9.10%
Cultural mediation and orientation to services
53.50%
Accomodation and residential senrvices
11.9%
Other provisions
25.5%
Source: Regione Piemonte su dati Indagine Istat sugli interventi e servizi sociali dei comuni singoli e associati Own elaboration
The outsourcing of social provision management
to no-profit organisations is higher in Torino than in Cuneo
Share of social workers employed in contracted no-profit organisations
Source: Regione Piemonte – Relazione Enti Gestori dei Servizi Socio-Assistenziali
Own elaboration
In the immigration policy area, public contributions to no-profit
associations are generally higher, particularly so in Torino
Public expenditure for social provisions and the share given to no-profit associations
by policy sector, 2010
Expenditure for
social provisions
of which for
supporting
no-profit
organisations
of which
supporting
no-profit
organisations (%)
Immigration
€ 10,881,858
€ 1,567,762
14.4%
Total
€ 292,711,493
€ 6,197,768
2.1%
€ 470,901
€ 37,557
8.0%
€ 90,021,532
€ 436,756
0.5%
Policy
areas
Municipality
of Turin
Province of
Cuneo
Immigration
Total
Source: Regione Piemonte su dati Indagine Istat sugli interventi e servizi sociali
dei comuni singoli e associati - Own elaboration
Expenditure by bank foundations is higher in Torino
than in Cuneo
Municipality of Torino
Foundations
CSP
Year
Expenditure for social
projects
Expenditure for
migrant-specific
projects
2009
€ 30,001,196
€ 2,811,000
2010
€ 32,576,437
€ 2,736,763
Province of Cuneo
Foundations
CSP
CRC
Year
Expenditure for social
projects
Expenditure for
migrant-specific
projects
2009
€ 573,000
€ 102,000
2010
€ 889,375
€0
2009
€ 2,841,360
€ 50,000
2010
€ 2,601,920
€ 35,000
Source: Relazioni annuali delle fondazioni – Own elaboration
What is changing with the crisis?
2 preliminary hypotheses
1. The growing ‘projectification’ of welfare has its pros and
cons
An increasing use of calls for projects – as a way to fairly
distribute insufficient resources? – seems to produce:
Innovation
Increasing investments in fund-raising and accounting
activities by welfare providers
Obstacles to empowering strategies
What is changing with the crisis? 2 preliminary hypotheses
2.Even ‘light welfare mix’ solutions are increasingly under strain
Care workers applying for support to find a job at the desk «Sportello Assistenti familiari»
in Reggio Emilia
Anno
2006
2007
2008
2009
2010
2011
2012
Numero di domande
634
639
861
963
1045
1162
1605
Families applying for mediation to find a (migrant) careworker
at the desk «Sportello Assistenti familiari» in Reggio Emilia
Anno
2009
2010
2011
2012
Numero di domande
940
858
972
709
Source: Sportello Assistenti Familiari Reggio Emilia, report 2012
TO SUM UP:
Welfare provisions on offer locally differ widely by:
-Type of provisions (mediation and orientation services vs.
accommodation)
-Primary targets (less or more disadvantaged)
-Nature of providers (with a wider or smaller role played by noprofit sector)
Demand is dependent upon supply, particularly in
terms on composition of local welfare and of
expenditure
A more sophisticated qualitative analysis of the
interaction of demand and supply as a possible new
research step