2.3 Definición de variables
2.3.1 Conceptualización de las variables
The differences in the reviews to a large degree reflect the different social and economic context in which they operated, and the dominant policy concerns of the day. Some things have changed.
Many of the earlier reviews were concerned with the financing of the welfare system (whether it should be tax financed or based on a social/national insurance model) and related questions of universal or targeted access. Australia has ended up with a highly targeted welfare system, funded through general taxation, and this has not been the subject of independent review since the 1970s.
The reviews of the 1970s and 1980s were particularly concerned with adapting the welfare system to new models of family life – a reform agenda which had (arguably) worked its way through by the end of the 1980s. There was increasing concern throughout the 1990s around welfare dependency and that the levels of payments were acting as a disincentive to work. Henderson’s recommendation in the 1970s to increase benefit levels at the same time as supporting people into work shifted to a
‘make work pay’ agenda during this later period.
The nature, prevalence and experience of poverty and disadvantage have also changed, but many elements of the policy debate have stayed the same. What is probably most striking from collectively analysing welfare reviews since the 1940s is this degree of commonality in themes and challenges across the period. These common themes include:
> links between the welfare payment system, employment and the labour market
> the obligations of welfare recipients (questions of conditionality and reciprocity)
> the sustainability and distribution of social security spending
> the targeting and means-testing of payments
> the differentiation of payments and services for different ‘client groups’
> the adequacy of benefits
> incentives/disincentives to work
> the relationship between the tax and transfer systems.
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Crucially these are all challenges and tensions that prevail today. It seems fitting (and probably inevitable) that this analysis concludes with highlighting the importance of a historical perspective and the value of understanding previous reviews and policy reform to future policy activity.
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5. CONCLUSION
In conclusion, some final remarks are made in relation to welfare reviews and reviews in general.
The ‘value’ of reviews stem from a range of factors:
> They are versatile and multi-functional (combining research, consultation, consensus-building
and analysis in one entity and to fit the task at hand).
> They provide time and a space outside of the day-to-day demands of government (and
beyond the limits of departmental or institutional boundaries) to refresh knowledge and think critically, creatively and long-term.
> They are ‘public’ - involving stakeholders and the wider public, publishing terms of reference
and reports and engendering transparency in process and findings.
> They are usually led by and involve external experts, bringing expertise and knowledge to the
policy process that is often not available within government.
> They are to varying degrees independent, operating at a distance from government and
populated mainly by external experts.
> But, they are also connected to government - commissioned by government, resourced by
government and frequently involving public servants in their membership.
This suggests that reviews can add most value in areas:
> where evidence and the facts are weak or disputed (e.g. distribution of welfare spending)
> where public understanding is low or public attitudes are not known (e.g. adequacy of benefits)
> which are contentious (e.g. child support)
> which require long-term thinking (e.g. retirement incomes)
> which need cross-government action, including involvement and co-operation of the States
(e.g. poverty alleviation).
Therefore, what seems surprising is not how many reviews have involved the welfare system, but how few have been broad and strategic. Yeend (2000, e-brief) points out that, ‘there have only been a few occasions in the history of welfare provision in Australia when full-scale reviews have been followed by comprehensive reforms. Most of the changes to welfare programs and systems have occurred on an ad-hoc and incremental basis.’ This mode of development risks exacerbating complexity and inconsistencies in the welfare system.
This all points to an important role for external reviews in the future, particularly in providing a ‘neutral space’ for external experts and public servants to work together to produce more strategic policy advice.
Finally, the value of reviews could be enhanced in the future if reviews were evaluated, with lessons captured and used to inform future reviews. No such process, or institutional home for this activity, currently exists. The ALRC inquiry (2009, p32) suggested a Review Handbook be developed with this objective in mind. Another option might be to establish a mediated Review Alumni program for ex-reviewers and support staff.
The documentation on welfare reviews (publicly available because a public process) is a rich source of insight into the development of welfare policy in Australia and the realities of policymaking more generally. This literature reveals that the influence of welfare reviews has frequently been significant – shaping public discourse, enhancing the evidence-base and often leading to changes in policy. A history of the development of the welfare system in Australia cannot be told without reference to Henderson, Cass or McClure. It is hoped that this paper, in bringing together material on the many past reviews, will act as a helpful resource for future review activity and policy development.
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