Association for Public Policy Analysis & Management

This research aims to empirically investigate experiences of social exclusion among social assistance (SA) recipients and the ways in which activation policies shape and interact with these experiences. Developed countries have widely embraced activation policies, which tie income support conditional on behavioural requirements to the provision of re-employment services (Immervoll & Scarpetta, 2012). While most studies on activation policies focus on unemployment beneficiaries, this paper concentrates on SA recipients, who until recently have received considerably less attention in this context (Marchal & Van Mechelen, 2013).

The paper argues that the individual experience of living on SA is embedded in social structures. The theoretical point of departure is Amartya Sen’s capability approach with a focus on relational features to allow for the integration of social components. Individual capabilities are understood as the combined, interacting result of individual capacities and the individual’s relative position within social structures (Smith & Seward, 2009). The concept of social exclusion, captured by the defining elements of relativity, agency, and dynamics (Atkinson, 1998), is used to locate an individual’s position in society (cf. Sen, 2000).

Individual experiences of social exclusion interact with and can be shaped by activation policies. They can enhance or inhibit individual capabilities as they influence both capacities (e.g. through training) and the relative position within society (e.g. through the level of income support). This framework offers an alternative mindset to rethink the design of activation policies within SA schemes beyond the currently dominating neo-liberal paradigm.

The analysis uses primary data collected in 50 semi-structured interviews with SA recipients in the Dutch city of Maastricht. This approach allows a detailed, contextualised understanding of beneficiaries’ experiences regarding living on SA and activation policies, whereby respondents lead the discussion and compile their own narratives. Interview data are analysed using thematic analysis in an iterative process.

The results illustrate various manifestations of processes of social exclusion that constitute capability deprivations and can cause further deprivations. Respondents subjectively define their position in society relative to other people – both those that have work and other SA recipients – and relative to their situation prior to receiving SA. The level of income support is experienced as limiting as it allows covering basic needs, but renders it difficult to engage in social activities.

Feelings of constrained agency arise from factors that are perceived as being beyond personal control, such as the labour market situation or age, as well as behavioural requirements that restrict the freedom of choice. Caseworkers’ communication can enhance these feelings – e.g. by strongly emphasising personal responsibilities regarding finding work, obstacles beyond personal control, or sanction threats.

The dynamic dimension is reflected by respondents’ deteriorating perspectives for changing their future situation. These perceptions can be reinforced when activation activities designed to maintain or increase employability, such as volunteering work, do not lead to sustainable employment but are experienced as impasses. The findings encourage considering the design of activation policies from the point of view of avoiding the reinforcement of social exclusion and inequalities that inhibit reintegration.