ISSN 2277-0844, Volume 4, Issue 1, pp 1-7, March, 2015. Online Journal of Social Sciences Research ©2015 Online Research Journals Full Length Research Available Online at http://www.onlineresearchjournals.org/JSS Malta and a Social Policy in the Making Dr Andrew Azzopardi Senior Lecturer, Department of Youth and Community Studies, Faculty for Social Wellbeing, University of Malta, Malta. E-mail: [email protected]; Tel.: (+00356)23402918. Received 19 February, 2015 Accepted 17 March, 2015 Social policy is a term which is applied to various areas of policy, usually within a governmental or political setting. It can refer to guidelines, principles, legislation and activities that affect the living conditions conducive to human welfare. It is generally viewed as the study of human wellbeing. This concept denotes action as well as end results and therefore implies changing situations, systems, practices and behaviour. The awareness of social policy in Malta increases in importance during economic recession because people feel that their standard of living might be threatened. In this paper the researcher defines social policy and explains how it can be applied to all individuals in Malta. The discussion is a clear distinction between the individual and the collective well-being. Finally, the paper makes a case in favour of the value of intangible assets which have a determining factor on the state of well-being. Key words: Society, human welfare, economic recession, social cohesion, standard of living, Malta. INTRODUCTION When discussing social policy, this important question arises; what do we mean by social policy? And connected to this is the equally important question; whose policy is this? The word 'policy' has been taken to refer to the principles that govern action directed towards people in need. The concept denotes action and therefore implies changing situations, systems, practices and behaviour. The concept of social policy is a complex one. It is about equity, where everyone‟s rights are guaranteed. It is a pragmatic measure stemming from the basic principle of equality and fairness. Social policy as a concept is not new. It started in Europe [1] as a response to the increasing communal split resulting from employment conditions and the insufficiency and meagerness of social welfare provisions [2]. Social policy should be constructed in a pro-active manner based mainly on the notion of healthy living, responsible choices, healthy environment, interaction, inclusion and community engagement. Essentially social policy is a key element in ensuring active citizenship which is about having equal access and the opportunity to participate fully in the life of the community [2] and all the decisions affecting its development. Full and active citizenship is at the basis of a fulfilled and content life. In other words, an effective social policy promotes the concept of well being for all which does not only provide for the prevention from poverty but ensures inclusion and active citizenship in all aspects of civic and political life [3]. Thus social policy primarily refers to guidelines, principles, standards and legislation that affect the quality of life and good quality living conditions. In social policy a number of actions are developed that affect the well-being of members of a society through the just distribution of goods and resources. That is why we need to analyse social policy within a discussion that also includes the economy. In this respect economic and social policy discourses need to be analyzed in tandem and both geared towards wealth generation, sustainable development, community development and social cohesion, equality and the democratization of our society [4]. Essentially the objective of social policy is that the citizens have a positive life experience. The author‟s point of view is that we need a social policy model in Malta that does not reduce social expenditure and curtail social spending whilst imposing more demanding eligibility requirements, control benefit expenditure and eliminate universal entitlement to minimum economic support. The social policy that we need to design needs to be centered around models whereby an individual can attain a decent standard of living despite the unequal distribution of market-based incomes. Having a welfare service package and a safety net philosophy remains pivotal. It is also important to maintain that the social policy in Malta relies on non-profit and Church run 2 Online J Soc Sci Res charities to augment services and provide value for money. Conversely, in a globalised World where competition, consumerism and technology seem to dominate every aspect of living, the strategy underpinning our economic and social policy is important for two main reasons, first, such a strategy maps out a direction towards the communities that we hope to have in the future; namely one that empowers and supports its citizens in their life projects underpinned by the value of solidarity and second, it is duty bound to be an alternative Policy and Strategy that makes a difference in the quality of life and standard of living of its citizens [5]. Values and ideology determine the desired end-goals of social policy, this together with empirical data that can document the prevalence and incidence of an identified social problem, evaluate outcome and determine policy goals. Some interesting social policy concept emanates from the Council of Europe’s [6] rich social policy tradition. These are: - Promoting social cohesion by increasing the capacity of our society to ensure the welfare of all its members, minimising disparities and avoiding polarisation. A cohesive society is a mutually supportive community of free individuals pursuing these common goals by democratic means. - Constructing social cohesion on a basis of human rights and the revised European Social Charter, the starting point of the social cohesion strategy. In this respect welfare implies not only equity and non-discrimination in access to human rights but also; The dignity of each person and the recognition of their abilities and their contribution to society; namely, respect towards the diversity of cultures, opinion and religious beliefs; the freedom of each individual to pursue their own personal development; the possibility for each person to participate actively as a full member of society. - Social cohesion as a responsibility shared by all and seen as a responsibility for all sectors of society. During the 20th century it was often considered that, apart from the role of the family and other traditional social relationships, welfare was the sole responsibility of the State, while on the other hand business was responsible for economic development. In recent decades and as a result of the phenomenon of globalisation, the economy has shown that this model is no longer adequate and that welfare must become a goal shared by all social stakeholders; the State, the industry and services and the individual. This new situation does not imply the withdrawal of the State but leads to its seeking more varied means of action involving new partners. Economic and social scenario Malta is traditionally identified as having a good welfare state [7]. People are said to be understood in a social context, rather than as individuals. „Solidarity' is a well ingrained concept and collective action is the rule of the day. Our social services are „funded‟ through two main sources; directly by the State and indirectly through the free services provided by NGOs. Malta's economy is dependent on foreign trade, manufacturing especially electronics and pharmaceuticals and tourism [2] all of which have been negatively affected by the global economic downturn. Malta produces only about 20% of its food needs, has limited fresh water supplies, and has few domestic energy sources [2]. Malta's geographic position between the EU and Africa make it a recipient of illegal immigration, which has strained Malta's economic resources. The Maltese government is challenged to contain the budget deficit, which has ballooned in recent years, placing it above the euro zone's 3% maximum. On the other hand, the financial services industry has grown in recent years, but is not fully modernized. It escaped significant damage from the international financial crisis, largely because the sector is centered on the indigenous real estate market and is not highly leveraged. Locally, the restricted damage from the financial crisis has been attributed to the stability of the Maltese banking system and to its prudent risk-management practices. The global economic downturn and high electricity and water prices have hurt Malta's real economy [8]. There are some very crucial notions we need to engage in when linking economy with social policy. Some of which are: Sustaining growth: Social policy is there to support the economy and encourage the private sector with a view to delivering sustained growth in the country. The Government should design policies to support the economy and to target as much support as possible where it is needed most for families, pensioners, businesses and to take the action necessary to promote growth and jobs while ensuring that the public services offer the hold that is required. Responsibility: Social policy should outline and indicate the responsible course of action. The Government should take to support the Maltese economy during the ongoing global economic slowdown. We have seen in the last years the benefits of globalisation with cheaper consumer goods but also difficulties that need to be overcome in terms of resources and on restructuring if Malta is to withstand the competitive pressures of the single market and the global economy [2]. The economy is successful if it works for everyone and not just for a few. Sensible policy: Malta needs to embrace social policies that take into account the economic realities. Sensible social policies will not take risks with inflation or let the public deficit get out of control. The reality today suggests that everyone needs to be responsible, employers investing and workers showing restraint on pay. For example, benefit penalties could be considered if claimants refuse to turn up for interviews facilitated by the Employment and Training Corporation. Adapting and reforming: Malta must adapt and reform Azzopardi its economy in order not to be left behind. Anticompetitive practices should be discouraged and stability, prudence and job opportunities should be a priority. The Government should be guided by a social policy that aims for an even split between additional revenue raising and lower spending, roughly 50:50. Given the scale of the deficit, there is a need to spread the burden of adjustment to make it economically and socially credible. Modern enforcement: It is possible to achieve considerable savings in social welfare by reforming the way in which the system works. Savings can be made by more robust and modern enforcement of anti-fraud measures. What may be required is a good comprehensive expenditure review with a definite time horizon. New ways to generate wealth: In addition to established economic measures that have proved successful, new ways of generating wealth need to be encouraged particularly in view of the need to increase the participation of effective micro-enterprises which can help diversify economic activity. Outlining an alternative: The challenge for any administration is to begin an honest public debate about what kind of economy we want for Malta and how we might create it. This is already being taken up amongst many sister parties across Europe [7]. Reference may be made to the debate on the Good Society that has been taking place in the United Kingdom in which the issue of political economy has always been present. What kind of economy will sustain the Good Society is the key element here. Sustainable economy: A sustainable economy can be built on a number of policy foundations. Government should substantially boost funding for energy efficiency projects and other measures to improve the energy economy in homes and businesses [9]. Waste reduction policies that can be effectively implemented should be pursued. Business promotion: A modern economy sees significant opportunities for developing businesses which are not constrained by Malta‟s size in new areas such as biotechnology, information and communications technology and design. This is a social policy that emphasises on traditional values in work, the family, and nationhood, a good male-breadwinner/family approach to social policy [5]. The economic debate within a social policy discourse is a crucial one that ensures that industry and services, production and consumerism are closely engaged within a scenario of mutual respect between citizens, regard towards our communities and reverence towards the environment. The researcher is particularly worried about the extensive differences that are developing between the different social classes, an issue that will be discussed further on in this paper. Maybe the time is ripe to understand social policy within a context of liberalism 3 beginning from the premise that everyone is an individual, and that individuals have rights. Liberals argue that society is likely to regulate itself if state interference is removed. Due to the fact that social policy is a competing ideology, it is a complex concept that carries tensions and contradictions. It is a concept that reflects policy-advocacy aimed at reforming social institutions in order to respond to populations in need. In more ways than one it is a notion that acts as a social control. The essential question we need to ask at this point is; what is the role of government in social policy? What can be said as being „good‟ for people? The role of government is „unique‟ in tackling the challenges experienced by small communities. We need to have an innovative framework to research social policy. The „take home‟ pay of every individual is a key component when evaluating quality of life. Wage inequalities and an expansion of low-paid jobs, the inability to produce a well-trained labor force and accumulative cycles of social disadvantage and exclusion of vulnerable groups require that we re-think our social policy within a context of anti-greed measures [9]. We live in a consumerist society that is constantly enticing citizens to spend, with media and marketing pressure pushing people to the brink at times, especially when the purchasing power of the individual falls short of one‟s „expectations‟. As a result we need to have systems in place that guarantee consumer security and we need to embed in our policy systems consumer education. It is imperative that we ensure that the necessary regulations and enforcement systems for the protection of the consumer are in place and effective. Good corporate governance and sustainable development at the macro level is crucial. We need to promote ethical financing and responsible consumption, ensure sustainable land and water management and food production, encourage greater industrial democracy and promote a solidarity based economy, co-operative societies and social enterprises by direct investment and supporting structures [10]. This will all fall into place when we promote micro enterprises, consumer societies, introduce „social impact assessments‟ and „consumer impact assessments‟ when embarking on new projects and/or measures and ensure the access to public procurement and responsible consumption by public authorities. Malta‟s main resource is the people and given that social policy is meant for the well-being of all, the economic policy needs to serve this purpose. So while the economic policy has to be one that rewards entrepreneurship and innovation, it has to be framed within a strategy of sustained development and just distribution of wealth with a commitment towards the eradication of poverty and social exclusion. In particular, emphasis needs to be laid on continuous professional development of the workforce, fair and just rewards, making work pay and a safety net that offers security and promotes activation [9]. 4 Online J Soc Sci Res Social policy paradigm in Malta It is important to realize that Malta is a small Country but with robust traditions cast within a scenario of a resilient religious cult, a hefty family presence (extended and nuclear), values and morality directed essentially by religious beliefs, a momentous charity [11] tradition and consumer patterns that tend to follow Anglo-Saxon and Italo models. Naturally, to have a fully-fledged social policy we need to develop evidence-based research to help us understand the norms that are governing our communities (of practice). The initiatives the author is advocating for will be focusing on identifying the common values that will take us through the next generation. This is based on civic integration, synergy and integrity within a discourse of societal norms and values relating to social justice and egalitarianism. Essentially, social policy needs to be developed from the people and by the people [12]. Taking the citizens on board and engaging them in policy development and, in particular involving the users of services is a powerful exercise in empowerment and collective well-being. The author proposes the concept of user involvement as a fundamental right right and duty for all individuals that informs social policy. Principles that govern social policy The principles that should regulate our social policy are the following; equality of rights; eradicating discrimination; availability of quality services; basic services that are affordable by all; special focus on vulnerable populations within the community; eradicating stigmatisation; sustainable fiscal policies; service-user participation; transition from a „pension based‟ to a „services-oriented‟ welfare structure and sustainable and pro-active social services [13]. Malta has poor, vulnerable and excluded people in our community, people who are living „hand-tomouth‟ and the slightest predicament will have an immediate negative impact on them [2]. Others experience social exclusion, both because of poverty and also because of conditions that bar them from being fully immersed in their communities. We need to ensure that the voice of every citizen is considered as important and relevant and to have the courage and the de rigueur social mechanisms to identify the groups and individuals that have fallen or are prone to plummet by the wayside. It is central that we identify the scale of values of the dominant groups in society [2]. Social policy is one important tool to guarantee that the values of liberty, equality and engagement lie at the heart of our communities, but within a context of respect and autonomy of one‟s individual. We need to keep finding ways on how to get the citizens to participate and entice the community as a whole to nourish and take care of itself. It is vital that we create the necessary configurations that ensure the involvement of the citizen. This is crucial and we need to evaluate whether current systems are really engaging the community, Local Governments being a case in point. A social policy paradigm Social policy needs to cover various aspects that work together in favour of inclusion and often the piecemeal approach to social cohesion is ineffective and wasteful. In social policy, social recognition and well-being is obtained by full citizenship in the various aspects of social life [4]. Naturally a social policy would require taking in consideration depth of the recession, unemployment levels, balancing between tax revenues and public spending, extent of previous social policy expenditure and welfare state profile, individual and family savings amongst other. On the other hand the economic paradigm is dependent on one‟s ability to earn money and use it in order to secure inclusion. Most often those who participate and are included are doing well economically and socially whilst those who do not have the fiscal assets are highly limited in this social endeavor. It is a fact that we cannot keep postponing the reality that the traditional social support of the extended family is decreasing and shall continue doing so. However, the Church structures, the Local Governments and the NGOs may fill in some of the roles that the traditional extended family used to fulfil [8]. The Government may consider a policy of facilitating partnership among these bodies to take on a more active role in this respect at the community level. The Catholic Church has a longstanding tradition in providing social welfare services in Malta, in particular, services for children, the elderly and disabled people come to mind. Supporting the Church to rationalise its services and align them to the national priorities may present the Church with an increased activity, better reach at community level and costeffectiveness. The Government must also consider prioritising low income workers, children, elderly, those struggling with mental health and people with disability as the priority groups. The strategy of the State should look at structural change of the main institutions, reform of major societal institutions and create a universal safety net always taking into consideration individual and family responsibility [13]. Social policy depends on regular review of social indicators that measure social and employment mobility, indicators of effectiveness and accountability with regards to each policy and a periodic review of the overall strategy for social cohesion. Social policy is there to create the systems and procedures that support people who fall by the wayside but also to create the right conditions to find the necessary services and support to provide the rod rather than the fish. Moreover we need to look into the future and take action today to avoid difficult situations. We also need to instil in our communities a feeling of mutual responsibility, respect and regard [6]. Namely, children in Azzopardi vulnerable situations such as persons with disability, those with mental health problems and those in need of care and management; young people who are passing through drug-related problems and young people with serious and severe delinquency issues and criminal career trajectories; families in precarious life-situations, especially single-parent families; elderly people, especially those who are living alone or who no longer have the support of their family; asylum seekers whose status is inherently exclusive and whose integration into society is of utmost importance to social cohesion albeit sensitive and low income workers and in particular those with low educational/skills base [9]. Unless we priorities and focus on certain populations we risk trying to do a bit for everyone and a lot for none. That is why each step and decision in social policy needs to be supplemented with the right dose of evidence-based research. In view of the fact that social policy covers a wide range of policy measures, it is of great importance that all policies and interventions are assessed to ensure that they have a positive collective impact. Through social policy policymakers seek to reform institutions and build a humane and just society whereby welfare discourses also function as a means of social control [15]. Inclusive policy making and implementation need to be debated within a discourse of „social dialogue‟ and the involvement of multiple stakeholders in policy making. Implementation may improve social cohesion and empower disadvantaged groups. In order to achieve this we need to consider involving social partners and NGOs in policy-making and evaluation at national, and regional / local level, involving service-users in service-delivery and provision (including, planning, design, implementation and evaluation). Social policy is particularly concerned with a range of issues extending far beyond the actions of government. Social and economic conditions shape the development of welfare. There is the need to foster full access to social rights for all citizens by monitoring the phenomena of irregular migration and look for opportunities for Malta and for the migrants consistent with the adherence of basic human rights and international obligations and the resources of the country. In conjunction we need to facilitate and improve access to comprehensive and quality social services and in this respect re-visit the Social Security Act and bring it up to speed with the current needs of today‟s communities; in particular eliminate benefits that are out of sync with the modern times and design social benefits with the aim of making work pay, empower people and offer security. This will also entail that we consider an integrated approach to social services to enhance effectiveness and avoid waste of resources, focused on moving people away from poverty. This is a major project for capacity building with long term effects and benefits and institutional development should also take into consideration the new reality of diversity and therefore develop intercultural sensitive policies and the 5 corresponding staff competencies [3]. Training should be provided to all the staff to deal effectively with diversity namely developing the skill of mediation within a policy of reasonable accommodation. The setting up of an interagency committee to ensure an integrated and coherent approach to social policy strategy, capacity building, standards of service and sustainable service development are essential considerations together with all public institutions follow a policy of user involvement in social services in order to produce better outcomes and efficiency. Such an approach is based on the premise that the involvement of users can be catalysts for change and help organisations become more responsive to the clients‟ needs and improve services. The imbalance between users and the administration is changed and the user is empowered leading the user to become more confident and self reliant. Moreover, the service system gains greater legitimacy and would be an exercise of education in democracy and value for money [3]. A social system is effective when a government is responsible for the economic and social welfare of its citizens and has policies to provide free health care, benefits, free education and an effective welfare net. Evidence suggests that differential access to social and cultural resources can have negative effects on the opportunities available to individuals and social groups. Housing policies that aim to improve access to housing for vulnerable groups have to be based on analyses of the nature of the housing hardship. In particular we need to look at the relationship between the extent of the legal protection and the economic situation, as well as the role of Government in terms of whether it is willing (and able) to be active in the housing market or not. The government has been involved in the provision of social housing and may consider consolidating this position. The method may however differ from that of the past in view of the high level of housing stock available and the need to exercise caution in the use of limited land space [10]. But this makes sense if the ability to analyze, propose, advocate, implement policy-based programs in social policy requires skills in the methods of indirect practice. The ability to deliver policy-based concrete services in face–to-face contact with individuals and families in an agency setting requires skills in the methods of direct practice. In order to tackle area-based and community disadvantage, one may consider fostering the involvement of all stakeholders in resolving community problems and promoting local development. In a nut shell, measures including funding to develop social capital empower the community to take charge of its own and increase the democratisation of our communities by engaging and including everyone in the life of the community. Ensure that local authorities receive adequate funding related to the needs of their communities and that they are accountable for their performance in meeting those needs. We need to be meticulous in the funding for social projects. Social policy 6 Online J Soc Sci Res is a crucial “turf” to move from a “socialist” interventionist approach to a more “neoliberal” flexible method [16]. Social policy is nothing more than a tool for decisionmakers, public-administrators, the labour market and civil society. It is a way of converging all stakeholders to work towards the „common good‟. The ingredients that influence the way social policy is instructed and implemented are wide-ranging and this section will draw and describe a number of these elements that will lead towards the following; pparticipation, needs analysis, identification of vulnerable groups, resources required (including budgetary measures), vision and finally institutional structures. The term integration refers to, not just one, but a range of approaches or methods for achieving greater co-ordination and effectiveness between different services, and to achieve improved outcomes for the service users. Cost advantages are also possible. In a small country like Malta, integration of services should follow a common strategy, complement each other and apply common standards of practices. Policies create a huge return in terms of quality, effectiveness and cost reduction [17]. Discrimination is one of the factors that contribute to exclusion and poverty and in this respect should be tackled with vigor and commitment. Legislation and policy should also ensure equal rights [6]. The community based services that provide support (socio-medical) to individuals who cannot go to specialist centers and who need regular/daily support at home is seriously lacking. School absenteeism of children whose parents have mental health problems, disabled individuals needing help to go out to work and elderly people who need some support to function independently are a few examples. Moreover, what is provided is not integrated and therefore the system may have gaps and overlaps. The concept of a package of care needs to be introduced and properly managed. Such integration should be linked to community centres which should continue to grow as a focal regional family resource centre [5]. NGOs should also be a major stakeholder and empowered to increase their role in the community together with local government and schools. While our institutions continue to change and evolve, they often find themselves in situations that lack credibility and trust while clients feel frustrated. The public service reform has been slow at best, at worst it has been an exercise in increased expenditure and decreasing quality of service. While change needs to be driven from the highest echelons of the administration changes need to be absorbed and implemented at the level of each department and entity. Institutions tend to change slowly with the consequences that they may continue to follow practices and deliver programmes that add no value to the beneficiary. Furthermore priorities may change and the benefit would no longer reflect the current needs and therefore make no difference to the well being of the user or new user of the service [6]. At the moment the measure of success is only the degree of expenditure that goes into the services. We also need to look at individual utilitarianism and subjective wellbeing and happiness that all relate to quality of life. This should be in tandem with socially-oriented perspectives on poverty with normative and consensual approaches to social exclusion [10]. The solidarity based economy is a recent concept which basically advocate for viable business initiatives that are sensitive to the environment, include in their recruitment policy, people who might not be able to compete in the market economy and deliver a marketable product or service. This concept includes responsible consumption, an educated consumer and the provision of ethical financing. In Europe there are about 1,000,000 workers engaged in this type of economy that can run parallel to the market economy but its driving force is not the return on investment or the ratio of profit to sales but the sustainability in terms of financial viability, employment of people with special needs, support to the local community and respect for the environment [15]. This concept runs parallel to Corporate Social Responsibility. Co-operative societies are another variation yet another important model of doing business. Social policy is about encouraging incentives and benefits accorded to mainstream business. These solidarity based initiatives benefit from incentives and support. The NGOs are once again strategically placed to play a leading role and should be roped in. Furthermore such initiatives entail a culture of entrepreneurship and in this respect may consider supporting school based initiatives [2]. What happens when people find themselves left out of communities? The quality of life of a population is an important concern in so many areas and a significant part of our standard of living is measured by many social and economic factors. The notion of community development is most certainly crucial in the representation and debates surrounding this phenomenon. „Community, Governance and Participation‟ are the three main ingredients for effective social policy. Conclusion Social policy is a complex notion bearing a multiplicity of personal, occupational and economic interactions that are in a continuous transformation. For the stability of society to be maintained citizens require a steady flow of solidarity. Social inclusion cannot be an isolated experience divorced from reality but a shared community responsibility. As we have seen in this article, the social policy indicators that point towards social stability are [18] employment, health services, social services, access to post-secondary opportunities, increase in children and youth participation in NGOs and Local Councils, improved provision of services and increased representation and opportunities for disadvantaged Azzopardi groups. If this is achieved we will have a society that is genuinely community-based with robust governance and a stronger heritage [18, 19]. 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