1. Maynooth University, Ireland
Joint Meeting ESF Thematic Network Inclusion and EMIN MADRID: September 2018
Presentation of the 2008 Recommendation on Active Inclusion and its Follow up
Hugh Frazer
Maynooth University, Ireland

2. What is Active Inclusion?
Active inclusion can be seen as a concept or approach aimed at promoting the greater social inclusion and participation in the labour market and in society of those of working age who are experiencing poverty and social exclusion.
It is aimed both at supporting the inclusion and participation of those who can work into the labour market and the inclusion and participation of those who cannot work (either temporarily or in the longer term) into society.
The active inclusion approach is built around three key policy “pillars”: adequate income support, inclusive labour markets & access to quality services.
(from: A social inclusion roadmap for Europe 2020)

3. Context – 5 reasons why AI emerged as EU priority between 2005-2008
1. Learning from Social OMC ( )
Reinforced awareness of multi-dimensional nature of poverty & social exclusion & need to develop comprehensive, integrated & coordinated policy responses covering adequate income, access to services and inclusive labour markets
Highlighted that many MS had unbalanced approaches over-emphasising employment policies at expense of income support & access to services
2. Weakness of social strand of Lisbon Strategy
Since 2000 social strand much weaker than economic & employment strands so development of active inclusion intended to redress balance
3. Weakness of European Employment Strategy in reaching
those most distant from the labour market had become
increasingly evident
Also realisation that access to employment not a realistic solution for all

4. Context – 5 reasons why AI emerged as EU priority between 2005-2008 (cont.)
4. Insufficient attention being given to 1992 Council
Recommendation on common criteria concerning
sufficient resources and social assistance in social
protection systems
Growing evidence that many schemes not effective enough in ensuring adequate income
Linking adequate income to employment and services made it politically easier to address issue
5. Recognition that the Tendency for labour market,
income support and access to services to be treated
separately in the Lisbon Strategy and the Social OMC
needed to be addressed
Thus need for a more coherent framework to handle 3 pillars

5. Commission Recommendation on The Active Inclusion of People Excluded from the Labour Market (Oct. 2008)
Main Elements
Integrated comprehensive strategy combining 3 strands:
adequate income support
inclusive labour markets
access to quality services.
Facilitate integration into sustainable, quality employment of those who can work
Provide resources which are sufficient to live in dignity, together with support for social participation, for those who cannot work

6. Commission Recommendation
Ensuring effectiveness
Comprehensive policy design
Integrated implementation across 3 strands
Address multi-faceted causes of poverty & social exclusion
Coordination between public agencies & services
Policy coordination
local, regional, national & EU authorities
Active participation in development, implementation & evaluation of strategies
Those affected by poverty, social partners, NGOs, service providers

7. Commission Recommendation
Ensure AI policies:
Support implementation of fundamental rights
Promote gender equality & equal opportunities
Take into consideration complexities of multiple disadvantage & needs of vulnerable groups
Take account of local/regional circumstances & improve territorial cohesion
Be consistent with lifecycle approach to social & employment policies, support intergenerational solidarity & break intergenerational transmission

8. Commission Recommendation – Common principles & guidelines
Adequate Income Support
Emphasises individual’s right to resources & social assistance sufficient to lead life of human dignity
MS should review their social protection systems in the light of 1992 Council Recommendation on common criteria concerning sufficient resources and social assistance in social protection systems
Right to sufficient resources should:
be combined with active availability for work or training & policies necessary for economic & social integration
take account of living standards, price levels & types/size of households
safeguard incentives to take up work
adjust or supplement amounts for specific needs

9. Commission Recommendation – Common principles & guidelines
Inclusive labour market
Address needs of people excluded
Promote inclusive labour markets for all
Promote quality jobs & measures to prevent in-work poverty
Tackle labour market segmentation by promoting job retention & advancement
Expand investment in human capital
Develop active & preventive labour market measures – tailored, personalised, responsive services
Review incentives/disincentives from tax/benefit system
Support social economy & sheltered employment
Promote adaptability & in-work support

10. Commission Recommendation – Common principles & guidelines
Access to quality services
including social assistance services, employment and training services, housing support and social housing, childcare, long-term care services and health services
Ensure:
Availability, accessibility, affordability
Solidarity, equal opportunities for users
Comprehensive, coordinated, integrated services
User involvement & personalised approaches
Monitoring, evaluation & sharing of good practice

11. Commission Recommendation – Funding & administration
Guarantee relevant resources for social protection arrangements
Use Structural Funds, esp. ESF, to support AI measures
Take account of economic & budgetary constraints in order to strike right balance between work incentives, poverty alleviation and sustainable budgetary costs
Ensure all are informed of their rights
Simplify administrative procedures
Organise easy access to appeals machinery
Improve indicators and information systems

12. Follow up
Immediate
2008 (October): Round Table Conference on Poverty & Social Exclusion focusses on Recommendation
2008 (December): EU Council endorses Recommendation
2009 (March): Joint Report on Social Protection & Social Inclusion emphasised need for comprehensive AI approach
2009 (May): European Parliament resolution
2009 (throughout the year): COM takes first steps in monitoring/evaluating AI in MS
EU Network of Independent Experts on SI reports on min. income
2010: AI priority theme for European Year for Combating Poverty
2010: Joint Report on Social Protection & Social Inclusion

13. Follow up Slow start Thus 2013 Social Investment Package EU Funds:
By end 2010
Minimum Income & access to services pillars underdeveloped unlike inclusive labour markets (aactivation)
Integrated and reinforcing strategies lacking in many MS
Need to establish regular reporting/monitoring systems
(see A Social Inclusion Roadmap for Europe 2020)
Impact of Economic Crisis & austerity policies undermined development of more balanced approach to social, economic and employment policy & thus development of active inclusion strategies
Weak development of social inclusion dimension of Europe 2020 Strategy in first phase ( )
Thus
2013 Social Investment Package
COM attempt to strengthen social dimension of Europe 2929
Reaffirmed validity of AI approach but to some extent (for a while) SI subsumed and replaced AI as the main focus
Highlighted weaknesses in implementation (esp. re minimum income & services & coordination)
Adopted an AI approach in Investing in Children
EU Funds:
AI not specific priority
but quite a lot of activation measures supported
Increased resources for social inclusion & AI a specific priority so a more comprehensive approach intended

14. Conclusion Active Inclusion should be much more than just activation
Holistic approach needed:
all 3 pillars are equally important and need to be developed in an integrated and mutually reinforcing way
Important to reach those individuals & groups most distant from labour market
Employment not the solution for everyone
Stakeholder involvement vital at all stages (design, implementation & monitoring)
“Slow burning” concept that in many MS still needs to be fully implemented
“While there have been some improvements in developing an active inclusion approach, too often this is too narrowly focussed just on employment measures and on increasing conditionality and sanctions. In many countries, there is still not sufficient emphasis on developing an integrated and tailored approach to supporting those receiving benefits and to help them to integrate into society and, as far as is possible, into the labour market.” (ESPN, 2016)
A comprehensive active inclusion approach will be key to implementing the European Pillar of Social Rights
Commission are taking significant steps to strengthen active inclusion approach
Katalin Szatmari will tell you more!