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‘Featuring a conceptual introduction and 28 country chapters, the second edition of this
Routledge Handbook provides a rich overview of social policy continuity and change within
the European Union. Scholars and practitioners interested in the evolution of social policy in
Europe should read and engage with this strong volume.’
– Daniel Béland, Professor of Political Science,
McGill University, Montreal, Canada

‘To cope with far-reaching social, economic, and demographic changes – in particular the
challenges resulting from the financial crisis of 2008 – European welfare states have demonstrated
their transformative capacities in the last two decades. These profound changes have been
analyzed thoroughly in this book in a series of well-organized and evidenced chapters. The
editors have brought together a number of recognized social policy scholars to explore in 28
country chapters and in a chapter on EU social policy the shifting landscape of European welfare
states. In addition to the in-depth analysis of what is happening in 28 countries and on the EU
level, the reader is also offered a comparative analysis of the reforms, both from a quantitative and
a qualitative perspective. This comprehensive overview of recent efforts to transform European
welfare state systems makes the book a must read for all who are interested in comparative social
policy research. It is a recommended reading for students and senior researchers, but also for
professionals and policymakers who seek to learn from policy solutions from abroad.’
– Tanja Klenk, Professor of Administrative Sciences,
Helmut-Schmidt University Hamburg, Germany

‘Edited volumes which review social policy development in a “country-by-country” fashion

seem somewhat old-fashioned in style and can often be incoherent in substance. This volume is
a welcome exception. Guided by a clear analytical structure, the chapters in this compendium
systematically assess key national social policy trajectories since the late 1990s across Europe.The
result is an invaluable resource for all those interested in the development of advanced welfare
states in recent times.’
– Jochen Clasen, Professor of Comparative Social Policy,
The University of Edinburgh, UK
 Routledge Handbook of
European Welfare Systems
Published ten years after the first edition, this new Handbook offers topical and comprehensive
information on the welfare systems of all 28 EU member states and their recent reforms, giving the
reader an invaluable introduction and basis for comparative welfare research. Additional chapters provide
detailed information on EU social policy, as well as comparative analyses of European welfare systems
and their reform pathways. For this second edition, all chapters have been updated and substantially
revised, and Croatia additionally included.
The second edition of this Handbook is most timely, given the often-fundamental welfare state
transformations against the background of the financial and economic crises, transforming social policy
ideas, as well as political shifts in a number of European countries.The book sets out to analyse these new
developments when it comes to social policy. In the first part, all country chapters provide systematic
and comparable information on the foundations of the different national welfare systems and their
characteristics. In the second part, using a joint conceptual foundation, they focus on policy changes
(especially of the last two decades) in different social policy areas, including old-age, labour market,
family, healthcare, and social assistance policies.
As the comparative chapters conclude, European welfare system landscapes have been in constant
motion in the last two decades. While austerity is not to be seen on the aggregate level, the in-depth
country studies show that all policy sectors have been characterised by different reform directions and
ideas. The findings not only reveal both change and continuity, but also policy reversal as a distinct type
that characterises social policy reform. The book provides a rich resource to the international welfare state
research community, and is also useful for social policy teaching.

Sonja Blum is Researcher and Lecturer at the Institute of Political Science, University of Hagen, and
External Research Fellow at the KU Leuven Public Governance Institute. She holds a PhD in Political
Science from the University of Münster. Her research focuses on public policy analysis, comparative social
policy, family policy, evidence use, and learning in public policy. She has published in journals such as Critical
Social Policy, European Policy Analysis, Policy Studies, Social Policy & Administration, and Social Politics and is
co-editor of the Annual Review of Leave Policies & Related Research.  

Johanna Kuhlmann is a Postdoctoral Researcher at the Collaborative Research Centre ‘Global

Dynamics of Social Policy’ (CRC 1342), University of Bremen. She received her PhD from the
University of Münster. Her current research focuses on public policy analysis and causal mechanisms
of social policy dynamics. She has published in journals such as Policy Studies Journal, Review of Policy
Research, Journal of Comparative Policy Analysis: Research and Practice, and European Policy Analysis.

Klaus Schubert is Senior Professor of Political Science at the Institute of Political Science at the
University of Münster. His research interests focus especially on comparative social policy, policy analysis,
integration research, and pluralism. He has co-edited Challenges to European Welfare Systems (2016), Policy
Analysis in Germany (2013), as well as the first edition of the Handbook of European Welfare Systems (2009),
and is the co-editor of the journal European Policy Analysis (EPA).
Routledge International Handbooks

ROUTLEDGE INTERNATIONAL HANDBOOK OF POVERTY

Edited by Bent Greve

ROUTLEDGE INTERNATIONAL HANDBOOK OF NEW DIGITAL PRACTICES

IN GALLERIES, LIBRARIES, ARCHIVES, MUSEUMS AND HERITAGE SITES
Edited by Hannah Lewi,Wally Smith, Dirk vom Lehn and Steven Cooke

ROUTLEDGE INTERNATIONAL HANDBOOK OF HUMAN TRAFFICKING

A Multi-Disciplinary and Applied Approach
Edited by Rochelle L. Dalla and Donna Sabella

THE ROUTLEDGE HANDBOOK OF COMPARATIVE RURAL POLICY

Edited by Matteo Vittuari, John Devlin, Marco Pagani and Thomas Johnson

ROUTLEDGE INTERNATIONAL HANDBOOK OF MASCULINITY STUDIES

Edited by Lucas Gottzén, Ulf Mellström and Tamara Shefer

ROUTLEDGE HANDBOOK OF EUROPEAN WELFARE SYSTEMS, 2E

Edited by Sonja Blum, Johanna Kuhlmann and Klaus Schubert

ROUTLEDGE INTERNATIONAL HANDBOOK OF HETEROSEXUALITIES STUDIES

Edited by James Joseph Dean and Nancy L. Fischer

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MOVEMENTS
Protest in Turbulent Times
Edited by Cristina Flesher Fominaya and Ramón A. Feenstra

For more information about this series, please visit: www.routledge.com/Routledge-International-

Handbooks/book-series/RIHAND
 Routledge Handbook of
European Welfare Systems
Second edition

Edited by
Sonja Blum, Johanna Kuhlmann,
and Klaus Schubert
Second edition published 2020
by Routledge
2 Park Square, Milton Park, Abingdon, Oxon, OX14 4RN
and by Routledge
52 Vanderbilt Avenue, New York, NY 10017
Routledge is an imprint of the Taylor & Francis Group, an informa business
© 2020 selection and editorial matter, Sonja Blum, Johanna Kuhlmann, and Klaus
Schubert; individual chapters, the contributors
The right of Sonja Blum, Johanna Kuhlmann, and Klaus Schubert to be identified as
the authors of the editorial material, and of the authors for their individual chapters,
has been asserted in accordance with sections 77 and 78 of the Copyright, Designs and
Patents Act 1988.
All rights reserved. No part of this book may be reprinted or reproduced or utilised in
any form or by any electronic, mechanical, or other means, now known or hereafter
invented, including photocopying and recording, or in any information storage or
retrieval system, without permission in writing from the publishers.
Trademark notice: Product or corporate names may be trademarks or registered
trademarks, and are used only for identification and explanation without intent to
infringe.
First edition published by Routledge 2009
British Library Cataloguing-in-Publication Data
A catalogue record for this book is available from the British Library
Library of Congress Cataloging-in-Publication Data
Names: Blum, Sonja, 1983– editor. | Kuhlmann, Johanna, editor. |
Schubert, Klaus, 1951– editor.
Title: Routledge handbook of European welfare systems / edited
by Sonja Blum, Johanna Kuhlmann and Klaus Schubert.
Other titles: Handbook of European welfare systems.
Description: Second edition. | Abingdon, Oxon ; New York, NY : Routledge, 2020. |
Series: Routledge international handbooks | Earlier edition published in 2009 as:
The handbook of European welfare systems. | Includes bibliographical references.
Identifiers: LCCN 2019030477 (print) | LCCN 2019030478 (ebook) |
ISBN 9780367259150 (hardback) | ISBN 9780429290510 (ebook)
Subjects: LCSH: Public welfare—European Union countries. | European Union
countries—Social policy.
Classification: LCC HV238 .E9613 2020 (print) | LCC HV238 (ebook) |
DDC 361.94—dc23
LC record available at https://lccn.loc.gov/2019030477
LC ebook record available at https://lccn.loc.gov/2019030478
ISBN: 978-0-367-25915-0 (hbk)
ISBN: 978-0-429-29051-0 (ebk)
Typeset in Bembo
by Apex CoVantage, LLC
 Contents

List of tables xi
List of box xv
List of figures xvi
List of contributors xvii
Prefacexxv

PART 1
Introduction1

1 Reform pathways of European welfare systems: Analysing change and

continuity in a broadened geographical and temporal perspective 3
Johanna Kuhlmann and Sonja Blum

PART 2
Country studies 19

2 Austrification in welfare system change? An analysis of welfare system

developments in Austria between 1998 and 2018 21
August Österle and Karin Heitzmann

3 Belgium’s welfare system: Still lagging after all these years 38

Ive Marx and Lien Van Cant

4 The Bulgarian welfare system: Reforms and their effects on

inequalities and vulnerable groups between 1997 and 2018 56
Rumiana Stoilova and Veneta Krasteva

5 The restructuring of the Cypriot welfare system: Will the new

provision system prove to be a success? 73
Odysseas Christou and Christina Ioannou

vii
Contents

6 Hybridisation and diversification: Welfare system developments

between 1993 and 2018 in the Czech Republic 91
Tomáš Sirovátka andVojtěch Ripka

7 The German welfare system: The calm after the storm 110
Florian Blank

8 Denmark – a universal welfare system with restricted austerity 129

Bent Greve

9 The welfare system in Estonia: Between liberalism and solidarity 145

Mare Ainsaar, Ave Roots and Avo Trumm

10 The Spanish welfare system: Towards a new social and territorial pact? 164
Paloma de Villota and Susana Vázquez-Cupeiro

11 Still holding its breath: The Finnish welfare system under reform 184
Juho Saari and Liina-Kaisa Tynkkynen

12 The recalibration of the French welfare system 202

Patrick Hassenteufel and Bruno Palier

13 ‘Liberalising’ social protection amid austerity in Greece 220

Stefanos Papanastasiou and Christos Papatheodorou

14 The Croatian welfare system: A lack of coherent policy paradigm

followed by inconsistent policy reforms? 237
Ivana Dobrotić

15 Pathway to a punitive workfare system: Hungary 256

Katalin Tausz

16 The welfare system in Ireland over the last 20 years 275

Mary Daly

17 The Italian welfare system: An incomplete transition? 291

Igor Guardiancich and David Natali

18 The Lithuanian welfare system over the last 20 years of democratic

transition: Achievements, challenges, and future prospects 310
Jolanta Aidukaite, Julija Moskvina and Daiva Skuciene

19 Changes in Luxembourg’s welfare system (1998–2018): Coalition

governments and Europeanisation as major driving forces 327
Nicole Kerschen
viii
 Contents

20 Social policy reforms in Latvia: Shift towards individual responsibility

of welfare 348
Feliciana Rajevska and Olga Rajevska

21 The Maltese welfare system: Hybrid wine in rightist bottles? With

two-sided labels? 367
Charles Pace

22 The Dutch participatory state: Shift from a welfare system of collective

solidarity towards individual responsibility in a participatory society 387
Minna van Gerven

23 Politics of welfare: The Polish welfare system in the first decades of

the 21st century 404
Renata Siemienska and Anna Domaradzka

24 The Portuguese welfare system: A late European welfare system

under permanent stress 424
José António Pereirinha and Maria Clara Murteira

25 The Romanian welfare system: From the shadow of equality to

the dazzle of dualisation 445
Cristina Raţ, Livia Popescu and Valentina Ivan

26 The Swedish welfare system: The neoliberal turn and most recent
struggles over decentralised top-down re-regulation 466
Sven E.O. Hort, Lisa Kings and Zhanna Kravchenko

27 Restructuring the Slovenian welfare system: Between economic

pressures and future challenges 483
Maša Filipovič Hrast and Tatjana Rakar

28 The Slovak welfare system: From turbulent times to stability 502

Ondrej Botek

29 The United Kingdom: New devolved welfare systems in Britain 522

Christopher Deeming

PART 3
EU social policy and comparative perspectives 543

30 European Union social policy: Facing deepening economic integration

and demand for a more social Europe with continuity and cautiousness 545
Miriam Hartlapp
ix
Contents

31 The development of welfare state spending in the EU, 1995–2015:

A quantitative comparative analysis 560
Karsten Mause

32 Landscapes in motion: Welfare system reform in 28 European

countries, 1998–2018 577
Sonja Blum and Johanna Kuhlmann

x
 Tables

1.1 Summary of analysis of welfare system change 10

2.1 Social protection expenditure, Austria, 1995–2015 24
2.2 Social protection benefits by function, Austria, 1995–2015
(% of total expenditure) 25
2.3 Outcome indicators, Austria, 1995–2015 26
2.4 Major welfare state changes over time in Austria 28
3.1 Social protection expenditure 40
3.2 Social protection benefits by function (as % of total expenditures) 41
3.3 Labour market outcome indicators, Belgium, 1995–2015 42
3.4 Inequality and poverty indicators, Belgium, 1995–2015 43
3.5 Welfare system change in Belgium (examples) 46
4.1 Social protection expenditure 59
4.2 Social protection benefits by function, Bulgaria, 1995–2015
(% of total expenditure) 60
4.3 Outcome indicators, Bulgaria, 1995–2015 61
4.4 Welfare system changes over time, Bulgaria 63
5.1 Social protection expenditure 75
5.2 Spending by function in Cyprus since 2000 as a proportion of total social
protection expenditure 76
5.3 Performance indicators 79
5.4 Welfare system changes over time in Cyprus 80
6.1 Social protection expenditure: Czech Republic and the EU, 1995–2015 93
6.2 Social protection benefits by function, Czech Republic, 1995–2015 95
6.3 Outcome indicators, Czech Republic, 1993–2015 96
6.4 The overview of the changes in a three-dimensional perspective 98
7.1 Social protection expenditure 114
7.2 Social protection benefits according to function, 1995–2015
(% of total expenditure) 115
7.3 Sources of social budget and total contribution rates, 1991–2015 116
7.4 Outcome indicators for the German welfare state 1995–2015 – labour
market performance, poverty rates, and Gini coefficient 117
7.5 Welfare system changes over time in Germany 1998–2018 119
8.1 Social protection expenditure 132
8.2 Social protection benefits by function, 1995–2015 (% of total expenditure) 133
8.3 Development in the Gini coefficient of equivalised disposable income and at
risk of poverty in selected years since 2000 134

xi
Tables

  8.4 Unemployment rate of active population in selected years since 2000 135
  8.5 Types of change within central policy fields in Denmark – mainly since 2000 137
  9.1 Social protection expenditure in Estonia and EU countries in the period of
1999–2015148
  9.2 Social protection benefits by function, 2000–2015 (% of total expenditure) 149
  9.3 Outcome indicators, 1995–2015 151
  9.4 The major social policy changes in Estonia 1997–2018 153
10.1 Social protection expenditure 166
10.2 Social protection benefits by function (% of total expenditure) 167
10.3 Outcome indicators, Spain, 1995–2015 171
10.4 Welfare system changes over time: Spain 173
11.1 Social protection expenditure, Finland, 1995–2015 187
11.2 Social protection benefits by function, 1995–2015 (% of total expenditure) 188
11.3 Outcome indicators, Finland, 1995–2017 189
11.4 Summary of the reform sequences 193
12.1 Social protection expenditure 206
12.2 Social protection benefits by function, 1995–2015 (% of total expenditure) 207
12.3 Summary of analysis of welfare system change in France 209
13.1 Social protection expenditure 223
13.2 Social protection benefits by function, 1995–2015 (% of total expenditure) 224
13.3 Financing of social protection 224
13.4 Outcome indicators on inequality, poverty, deprivation, and unemployment 226
13.5 The main parameters of change in the Greek social protection system 227
14.1 Social protection expenditure 239
14.2 Social protection benefits by function, 1995–2015 (% of total expenditure) 240
14.3 Outcome indicators, 2003–2017 243
14.4 Main characteristics of the reform sequences in Croatia 247
15.1 Social protection expenditure 259
15.2 Social protection benefits by function, 1995–2015 (% of total expenditure) 260
15.3 Outcome indicators, 1995–2015 261
15.4 Main welfare state changes in Hungary 262
15.5 Overview of schemes for unemployed persons (in %) 267
16.1 Social protection expenditure, Ireland and EU28 and EU15, 1995–2015 277
16.2 Social protection benefits by function, Ireland, 1995–2015
(% of total expenditure) 278
16.3 Some outcome indicators, Ireland, 1995–2015 280
16.4 Welfare state changes over time in Ireland (examples) 281
17.1 Social protection expenditure 294
17.2 Social expenditure per function (1995–2015) 295
17.3 Spending on welfare programmes in 2016 (% of GDP) 295
17.4 Selected labour market indicators 2007–2017 297
17.5 Reform sequences since the 1990s 299
18.1 Expenditure on social security 313
18.2 Structure of expenditure on social security by type (%) 314
18.3 Outcome indicators, Lithuania, 1995–2015 315
18.4 Development of the welfare state in Lithuania 317
18.5 Minimum wage increase since 1998 (Euro, %) 320
19.1 Social protection expenditure 329

xii
 Tables

19.2 Social protection benefits by function, Luxembourg, 1995–2015

(% of total expenditure) 330
19.3 Outcome indicators, Luxembourg, 1995–2015 332
19.4 Evolution of interior employment (labour contract only) (1998–2018) 333
19.5 Interior employment by residence (labour contract only (1998–2018) 333
19.6 Luxembourg’s welfare state changes (1998–2018) 334
20.1 Social protection expenditure 350
20.2 Social protection benefits by function, 1995–2015 (% of total expenditure) 352
20.3 Outcome indicators, 1997–2017 353
20.4 Development of the welfare state in Latvia 356
20.5 Monthly amounts of social assistance benefits and benchmarks,
2003–2018, EUR 363
21.1 Social protection expenditure, Malta and EU – total, as % of GDP
and in PPS per inhabitant 371
21.2 Priorities in social protection expenditure, Malta and EU 372
21.3 Labour cost levels (euro) for industry, construction, and services (except
public administration, defence, compulsory social security) 372
21.4 Various data on performance of Malta’s economy and social protection 373
21.5 Benefits as % of all benefits, comparing selected countries and EU placed in
descending order for 2015: means-tested benefits for 1995 and 2015,
cash benefits for 2015 or latest available date 375
21.6 National equivalised disposable income: Gini coefficients 376
21.7 Tabulation of main changes in the Maltese welfare system, mid-1990s
until 2018 377
22.1 Social protection expenditure, the Netherlands, 1995–2015 389
22.2 Social protection benefits by function, 1995–2015 (% of total expenditure) 390
22.3 Outcome indicators, the Netherlands, 1995–2017 392
22.4 Summary of the reform sequences 393
23.1 Social protection expenditure 408
23.2 Social protection benefits by function, 1995–2015 (% of total expenditure) 409
23.3 Organisation of Polish social security system 410
23.4 Welfare state changes over time in Poland 412
24.1 Social protection expenditure in Portugal 427
24.2 Social protection benefits by function, Portugal, 1995–2015
(% total expenditure) 428
24.3 Outcome indicators, Portugal, 2005–2017 431
24.4 Welfare state changes over time in Portugal after 1996 432
25.1 Social protection expenditure 448
25.2 Social protection benefits by function, 2000–2015 (% of total expenditure) 449
25.3 Outcome indicators, 2000–2017 451
25.4 The main sequences of social policy change over time in Romania 452
26.1 Social protection expenditure, Sweden, 1995–2015 469
26.2 Social protection benefits by function, Sweden, 1995–2015
(% of total expenditure) 470
26.3 Outcome indicators, Sweden, 1995–2015 471
26.4 Welfare state changes over time in Sweden (examples) 472
27.1 Social protection expenditure 485
27.2 Social protection benefits by function, 1995–2015 (% of total expenditure) 486

xiii
Tables

27.3 Outcome indicators 486

27.4 Welfare system changes over time in Slovenia 491
28.1 Social protection expenditures in Slovakia and EU 506
28.2 Structure of social protection expenditures by type, 1995–2015
(% of total expenditure) 507
28.3 Selected performance indicators 509
28.4 Development of cluster indicator of at risk of poverty or social inclusion 510
28.5 Reform sequences of the Slovakian welfare system 512
28.6 Amounts of material need assistance benefit and special allowance in 2016 516
28.7 Health care and social care system in Slovakia 519
29.1 UK and EU-15 and EU-28 social protection expenditure, 1995–2015 527
29.2 Social protection benefits by function, 1995–2015 (% of total expenditure) 528
29.3 People at risk of poverty (percentage) 528
29.4 Income inequality 528
29.5 Changing policy paradigms and changing welfare systems in Britain 530
29.6 Public expenditure on labour market policies (% of GDP) 534
29.7 Dwelling by tenure, 2015, percentages 537
31.1 Total social protection expenditure (in euro per inhabitant) 561
31.2 Total social protection expenditure (% of GDP) 564
31.A1 Social benefits ‘family/children’ (euro per inhabitant) 571
31.A2 Social benefits ‘unemployment’ (euro per inhabitant) 572
31.A3 Social benefits ‘housing’ (euro per inhabitant) 572
31.A4 Social benefits ‘social exclusion’ (euro per inhabitant) 573
31.A5 Social benefits ‘sickness/healthcare and disability’ (euro per inhabitant) 574
31.A6 Social benefits ‘old age and survivors’ (euro per inhabitant) 575

xiv
 Box

29.1 Referenda results 539

xv
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