Shifts in Nordic welfare governance: introduction and outlook

Purpose - The purpose of this paper is to introduce the papers included in this special issue and discuss the theme - shifts in Nordic welfare governance. Design/methodology/approach - The paper discusses the major themes and sets out the structure of the special issue. Findings - The picture emerging is mixed and there is evidence for strong decentralisation where policy instruments allow for considerable local room to manoeuvre. Organisational arrangements for governance are also highly localised, but (over time) oscillate between decentralisation and centralisation. As for the consequences for universalism, the contributions point to three contrasting scenarios. The first, relatively optimistic assessment suggests that while decentralisation challenges territorial equality, in some Nordic countries there seems to be inbuilt self-correcting mechanisms pulling in the opposite direction. The second scenario is more critical and here it is argued that shifts in welfare governance, such as decentralisation and the introduction of elements of self and market governance, challenge universalism; universalism has become highly contingent on local circumstances and the practice of welfare delivery mixes different types of justice. The final scenario is rather pessimistic about the prospects of universalism and suggests that the shifts in welfare governance challenge universalism on all counts and lead to a wide range of new inequalities among citizens. This echoes the analysis of non-Nordic countries in Europe where the scope for universalism remains limited. Originality/value - The contribution of this special issue is twofold. First, using elderly care as a case study, the special issue analyses the complexity of welfare governance by looking at changes in both the vertical and the horizontal dimensions of governing. Second, focusing on Nordic countries, it assesses the substantive implications of shifts in welfare governance, notably in terms of universalism.