eapnfinPLAN

SUMMARY REPORT ON NAP INCLUSION FINLAND

Prepared by Riitta Särkelä, EAPN-Finland
with support of the social policy task force of EAPN-Finland

25 August 2003

Part 1: REACTION TO THE FINNISH NAP INCLUSION 2003-2005

1.1 The major trends and challenges in combating poverty and exclusion

The trends identified in the Finnish NAP Inclusion are fairly comprehensive. This work was very much based on the recent research and the analysis of the situation by the working group preparing the second NAP. The good basis was also the strategypapers of different ministries, NGOs and church. There are no big surprises or omissions. The issues taken on the agenda are not new in Finland. Also the starting point of the NAP that the Finnish Social Policy Model, universalism, services and social sequrity for all is good antipoverty policy but complementary measures are still needed was a shared one in the NAP by all the partners. The risk groups in need of specific actions in the analysis were the following: long-term unemployed, the disabled, children living in unstable conditions, immigrants, the cronicly ill, substance abusers, violence against women and prostitution, the over- indebted, the homeless, prevention of crime-related social exclusion and the Roma population. The analysis of the trends was better in that sense that gender dimension and also the regional differences were taken better up than in the first round.

From NGO-perspectieve we can very much agree with the analysis, but four issues are worth taking up:

1. The very strong emphasis on work:
NGOs have been worried about the very strong emphasis of work in the NAP. If we take emphasis on work too strongly, we implicitly have the idea that people are valuable if they are able to work. From our point of view human dignity and decent life is for all. What is the future for those who cannot find decently paid work? Working poor is the element which is too little taken into account in Finnish NAP. We can also question the orientation of activation and punitive social measures designed in employment incentives.

2. One of the main criticisms in the first round of NAPS from NGO-perspective was that the level of basic social security allowances is too low and it causes poverty, which was not seriously enough recognised. In this second NAP this was taken up, but the analysis was not strong enough on this area and also the measures taken up later were small steps forward.

3. The social protection system is ambitious and has strong principles which should garantee support for all. The key is that the public authorities are responsible for garanteeing services and subsistence for all. The share of responsiblities between the state and municipalities is not clear. Especially while the level of basic social security allowances is too low, it means that the responsibility from the state is tranfered more to municipalities, who are responsible of income support. This is an element which should be clarified in the future.

4. How to build the link to local level from national action plan is an issue, which was not at all analysed. The municipalities themselves were not at all represented in the preparatory group ( the association of munucipalities was). It will still be a very big challenge to build the bridge to local level, when we take into account that we have about 450 municipalities in Finland and differences between them in size, population, and economical situation are big and seem to widen.

5. Different dimentions of poverty and social exclusion cumulate on family and individual level. This cumulative aspect could not been taken seriously enough up in the second round of the NAPS. Some progress was made in trying to develop new statistics in this area. From NGO perspertive this is a area, which needs much further development.

6. The situation and needs of Sami-people were not at all taken up in the NAPS2, which is a omission.

1.2 Progress during the NAP 1 period 2001-2003

The NAP process has opened an important discussion in Finland about poverty and social exclusion. These phenomena are now taken more seriously. There is a much better common understanding and analysis of the situation of poverty and social exclusion by the different ministries and partners. Also the networks in this field have become stronger. It is very difficult fo evaluate progress in practice since the first NAP because of the short period of time. Many of the planned measures have started, but we can not see yet, how do they effect on the lives of the poor. It is difficult to address the question of progress specifically in relation to the NAP Inclusion also because the NAPs in Finland was not such a programme document, where you have clear measurable objectives and concrete measures to be implemented. However there has been some progress in cutting unemployment and in starting new ways of working with the most vulnerable people.

1.3 Strategic approach, main objectives and key targets

The National Action Plan for Preventing Poverty and Social Exclusion is based on the basic welfare policy concept which is widely accepted by the Finnish population and which has proven efficient in international comparison. The new Government Programme emphasizes that the prevention of social exclusion and poverty can only succeed if the Programme’s employment objectives are achieved. According to the Government Programme this requires an active employment policy, an improvement in the preconditions for entrepreneurship, and the continuation and strengthening of agreement-based cooperation, particularly between labour market organizations and interest groups. The new Government Programme says that the reform policy promotes social equality and cohesion and is based on the tried and tested principle of political cooperation. By pursuing a policy of work, entrepreneurship and joint responsibility, the Government is further advancing the welfare state and welfare society which were successfully built up in previous decades.

The strategic outlook for social protection over the next decade can be summarized in the four guidelines approved by the Ministry of Social Affairs and Health

• promoting health and functional capacity
• increasing the attractiveness of working life
• preventing and treating social exclusion
• providing functioning services and reasonable income security

The general objective of social protection is to safeguard the welfare and equality of the population so that every person has the opportunity to live a life in dignity and to use and develop his skills and capabilities at the various stages of life. The four pillars of Nordic social security — income-based security, basic security for everyone, income transfers to low-income population groups, and equitable welfare services regardless of wealth, gender or domicile — form a basis upon which the prevention of poverty and social exclusion is built. The universal system is supplemented with income transfers and services aimed specifically at groups threatened by social exclusion.

Preserving the basic structure of social policy

In the NAP the key starting point is that the basic framework of the Finnish social policy system will be retained. It means that the Government sets the general objectives, enacts legislation and issues guidelines and recommendations regarding the provision of services. The social policy system is based on individual and universal social benefits and rights, and safeguards gender equality regardless of family relationships. It is a publicly funded system that emphasizes prevention.

The important basis also is that public welfare services intended for all are mainly tax-funded and guaranteed equitably to everyone, regardless of domicile. Local authorities, which have a high degree of autonomy, are responsible for providing these services. In addition to such statutory services, local authorities provide voluntary services to promote employment and prevent social exclusion. NGOs and church have a role to play here as partners.

It is recognised that in the plan period, better integration of service systems will be needed in order to increase public welfare and health and reduce social exclusion. It is said that special attention will be given to safeguarding the environment in which children and young people grow up by improving the service system. Development of joint services, multi-professional cooperation and early-intervention procedures will be supported.

The important orientation is that the population groups threatened by social exclusion will primarily remain within the coverage of benefits and services intended for the entire population. It is said that the regional differences will be evened out through a policy aiming for social and regional balance. Local and central government will uphold a functional and viable municipal structure and ensure sustainable financing for municipal basic services through reasonable taxation and moderate charges. How this will be done seems not to be so clear.

Organizations in the social welfare and health care sectors have their role to play in producing social security services, as do private companies in these sectors. The Evangelical-Lutheran Church of Finland also plays a role in social welfare and health care policy. Broad-based cooperation is seen a strength in Finland in a wide variety of fields, including the prevention of poverty and social exclusion.

• This main strategic approach is widely accepted and supported. The main critisims here among NGOs is that the strategic approach has a too strong emphasis on work. Key here is that people have rights to social and health services and to social security which are garanteed by the Constitution.
• From NGO-perspective the important orientation is that the population groups threatened by social exclusion will primarily remain within the coverage of benefits and services intended for the entire population.

Basic points in the Government Programme on preventing poverty and social exclusion

The political goals related to the prevention of poverty and social exclusion are expressed as follows in the Government Programme:

The Government Program says that the alleviation of poverty and exclusion requires the development of primary social protection as well as less unemployment. Income support must be the final resort as a form of income security and efforts should be made to reduce its use as a long-term means of support. Earnings-related unemployment allowance will be the way to prevent poverty and exclusion. The present system of unemployment funds will be maintained.

It emphasises that clarification of the present legislation on social protection will continue. The system has to be clear and predictable from the point of view of individuals and must provide sufficient security. Means of support and life management must be seen as an entity which comprises work, taxation, social protection and services. Transparency between the charges and benefits of the system must be improved.

The Government will draw up an action programme for realizing gender equality. Together with labour market organizations, the Government will promote equal pay and workplace equality through a long-term programme.

To prevent social exclusion and to improve people's life management skills, it is necessary to increase the number of joint service agencies and to expand multi-professional cooperation between the social, health, education and employment authorities within a municipality, on the one hand, and between municipalities, the Social Insurance Institution (KELA) and other actors involved, on the other.

• The system has to be clear and predictable from the point of view of individuals and must provide sufficient security is a good starting point, but this is really of big challenge and requires plenty of work, resources and time

Strategies of other actors are also referred to in the NAP

In the second NAP the strategies of other actors, partners are also referred to, which is now stronger present than in the first one. It says that the aim of the Association of Finnish Local and Regional Authorities is to equalize regional and economic differences between municipalities by promoting business development, improving expertise and promoting welfare. The municipal basic service system constitutes the most important component in action against social exclusion and is politically highly valued. Shared responsibility, public financing and equal treatment form the basis for welfare services in our society. The main challenge for the future is to safeguard the availability of basic services — particularly those related to education, health promotion, the welfare of children and young people, and care for the elderly — throughout the country and to take changes in the demographic structure into account in their provision. A good balance between the duties of local authorities and income financing is a basic requirement for an efficient service system.

NGOs emphasise in their strategies that extending basic social rights to all comprehensively and at a sufficient quality level is one of the major aims of the social and health policy of the social welfare and health care NGOs which provide services and support for various population groups. These organizations strengthen the position of citizens by developing ombudsman services and other action designed to enable feedback. To support their work, they survey changing welfare needs, convey related information to social decision-makers and develop new solutions for welfare benefits, multi-actor services and social security support functions. Of special interest are early-intervention benefits and low-threshold forms of support. For the long-term unemployed, pathways to employment in the third sector will be developed, and various combinations of forms of assistance will be experimented with. Also, mediating structures will be sought even in situations where employment is not a realistic option.

Enabling those in the most difficult situation to cope requires the development of services and support that match their needs. From the viewpoint of NGOs, it is essential for the service system to develop working methods that support change in people’s lives, and the organizations are involved in this work. Timely and sufficient support can act as a springboard for building a new life. Public action and participation in service design will become increasingly important. The aim is to continue to expand the process for creating regional welfare support networks all around Finland. Shaping these networks into a structure linking the resources of the public administration, NGOs and members of the public is being pursued in cooperation between a variety of partners.

Updated information is also the element, which is emphasided by NGOs. NGOs interact with citizens and researchers to create information provision tools that can identify early signs of skewed development.

The second NAP also referres the strategic plan of the Evangelical-Lutheran Church of Finland, Church of presence’. One point of focus in this strategy involves the weak and the socially excluded. The Church is seeking out excluded individuals and groups and making efforts to improve their circumstances. The Church’s strategy for welfare services and social work, ‘Community of participation and responsibility’, further specifies future action against poverty and social exclusion, and work to alleviate the effects of social exclusion. This strategy is based on cooperation with local authorities and relevant NGOs.

• The challenge here is how the different strategies meet at local level and it is hard to see the how they as separite one meet the multidimensionality of poverty

Objectives and strategies in various policy sectors

In almost all the areas the main criticism of NGOs is that not clear objectives are set. Most of them have budgetary implications and it is not easy to see were this element really exists.

1. Income support

Strategic goals to be monitored:
• reduce need for income support
• provide sufficient minimum benefits and a reasonable guarantee of a living
• ensure comprehensive insurance coverage
• reduce poverty among families with children and prevent inheritance of social exclusion
• make health care client charges reasonable and increase the transparency of the charge system

• not clear objectives set, good progress in that sense that the too low level of the real value of minimum benefits in means-tested social security is an important factor in the growing poverty among those who have no earned income. The steps planned here are too small and the connection to the budget in not clear in all the aspects
• from NGO- perspective very important element here is the plan to revise the policy on social welfare and health care charges. The aim is that charges will no longer prevent people, particularly low-income groups and those with multiple health problems, from seeking medical attention. Ways of introducing a system which will allow for a uniform ceiling on charges are therefore being sought. Provisions on user charges will be revised in a way that ensures frequent users of out-patient services reasonable disposable funds. This was one of issues NGOs were strongly proposing to the NAPS.

Developing the service system

Strategic goals to be monitored:
• reduce differences in health between population groups
• improve availability and quality of services
• reduce public-health impact of alcohol consumption
• improve the potential of the elderly to live and cope at home
• improve the disabled’s potential for social participation

• from NGO- perspective it is important that the objectives include reducing inequality
• According to the objectives of the personnel in services for the elderly will be increased with a view to achieving the level required by the quality recommendations on care for old people. Quality recommendations will also be drawn up for other special groups, and their observation will be monitored. There are new resources available for municipalities and it contains posibilities. The key issue is how the municipalities in reality allocate resources and are the new ones really put to bridge the gaps there exists between the services available and the needs of people. From people´s point of view there are no mecanisms strong enough for the state to react if the recommendations and national level criteria are not met at local level reality.
• The important project is the National Development Project for the Social Welfare Field. The objectives of it are: the availability and quality of social welfare services will be improved, and social work reinforced. Personnel in services will be increased. Here the resource allocations in the budget are a big question and also the issue how to build the bridge between this new project and the health project in real terms. From NGO- perspective the risk is that the health issues will have more focus and resources and the needs of the most vulnerable met by social workers is not taken seriously enough.

Employment and employment policy

Strategic goals to be monitored:
• reduce long-term unemployment and structural unemployment
• increase the work participation rate in various age groups
• increase the length of time at work by at least 2 to 3 years by 2010
• increase the incentive for work in social protection

• In this area the goals are clear. The Government’s main economic policy goal is to find jobs for at least 100,000 people by the end of the electoral period, with a further aim of raising the employment rate to 75 per cent towards the end of the decade. These are also really ambitious goals.
• The Government is to launch a special intersectoral programme designed to raise the employment rate and to prevent social exclusion caused by joblessness. The goal is to increase the employment rate and lower unemployment in the area covered by every Employment and Economic Development Centre.This is a positive new attempt and the good thing is the orientation of having good partnerships between all the actors to achieve better results in this area.
• Equal opportunities for all it present as well while the government emphasises that work should be done to change attitudes preventing employment of the disabled and the long-term unemployed.

Housing policy

Strategic goals to be monitored:
• balance supply of and demand for reasonably priced housing in growth centres
• preserve the social balance in housing districts while diversifying their resident structure
• reduce homelessness

• The aim of housing policy is to ensure a socially and regionally balanced and stable housing market, to eliminate homelessness and to improve the quality of housing- this aim is easy to share. The measures planned are not sufficent to meet these ambitous aims.
• the Government will ensure sufficient social housing production. (enable steady production of about 10,000 new dwellings annually). Loans will be channelled to the Helsinki metropolitan area, major growth centres and other regions with high demand for housing. In order to help young people leaving home and single-person households, there will be a focus on socially subsidized construction of small dwellings and action to make it easier for young families to find housing corresponding to their needs. In order to diversify the resident profile in government-subsidized housing, the criteria for the selection of residents will be revised.
• An action plan to reduce homelessness in cooperation between central government and the cities of Helsinki, Espoo and Vantaa will be implemented jointly by the Ministry of the Environment and the Ministry of Social Affairs and Health between 2002 and 2005. We can ask here, where did the ambitious aim to eliminate homelessness vanish? Homelessness has been a rising problem which concerns also families and single persons, especially men, who have had divorce or come big change in their lives. The connection to other social problems for ex. drinking problems does not nessarily exist.
• Efforts will be made to enable the aged and the disabled to live in their own homes through more efficient cooperation between the housing sector and the health and social welfare sector. We warmly support this intersectorial approach.

Education policy

Strategic goals to be monitored:
• strengthen components in pupil counselling services that help prevent social exclusion
• make the transition from comprehensive school to vocational education more efficient and quicker
• reduce the number of dropouts from education and training

Education can have a substantial impact in preventing risks of social exclusion. good education system integrates all population groups and provides individual support systems when problems arise. Everyone has an equal right to education and training according to their abilities, in compliance with the principle of lifelong learning. Remedial teaching will be increased in support of early intervention and preventive action, and special needs teaching and care for school pupils will be reinforced. The emphasis will be on cooperation between home and school; special attention will also be given to improving mental health services for schoolchildren and students.

Every comprehensive school leaver will be guaranteed a place in further education. The Government will step up measures to guide those who drop out of education after comprehensive school into meaningful tailor-made education and training.

As age groups get progressively smaller, supporting upper secondary school pupils with learning difficulties through special education would further their placement in further training and more demanding positions on the labour market. The Upper Secondary School Act should be amended to include special education. Another aim is to help the least-educated adults to stay in working life and to pursue career development.

• These principles and measures are easy to share, but the measures taken in this area remain unclear and so do their budgetary implications. At the moment the class- sizes have bocome bigger and bigger, more and more teachers are working on the temporary basis. The measures planned are not enough to meet these tensions. It is clearly question of basic resources in educational area.

Risk groups requiring targeted measures

Growing problems with social exclusion calls for targeted special measures in addition to services and income support under the principle of universality if we are to keep the problems under control. Measures undertaken in only one sector of the administration are not enough; collaboration, multi-professional cooperation and individually tailored measures are required. Special attention must be given to safeguarding the fundamental and human rights of the socially excluded. Social exclusion is caused by repeated experiences of being excluded and unempowered. NGOs, the Church and other third-sector actors have an important role in preventing the social exclusion and isolation of risk groups.

From NGO-perspective some parts of the NAP are commented here:

The long-term unemployed and the recurrently unemployed
*see comments in employment policy above

The disabled
• The challenge here is to ensure equal availability and quality of services and support measures, regardless of the applicant’s place of residence, type of disability or age. This will also help promote participation of the disabled in working life. NGOs emphasise the idea “Towards a society for all". The importance of the disabled being able to participate as full members of society in decision-making concerning themselves and the removal of physical, functional, interactive and social barriers inhibiting full participation.

Children living in unstable conditions
• This area contains plenty of positive elements. The Government Programme emphasizes the right of children and young people to a psychologically and physically safe environment to grow up in. To help prevent social exclusion, the early intervention working model will be strengthened and expanded, encouraging cooperation between social welfare, health care, police and education authorities, on the one hand, and NGOs, on the other, to prevent children’s and young people’s problems. The working model will be expanded to cover the entire country by 2007. Special attention will be drawn to children’s mental health problems and their prevention, and sufficiently fast access to care.
• The Child Welfare Act will be revised during this Government’s term of office and child welfare work strengthened.
• Poverty and chains of inter-generational exclusion of families with children will be prevented, but how this is planned to do is a question from NGO-perspective
• An action plan will be drawn up to combat violent entertainment targeted at children.
• Youth workshops will be made permanent and alternative vocational education options will be developed on the ‘working school’ model as pathways to the employment and social inclusion of young people.

Immigrants

The Government is to draft an immigration policy programme which will also promote the language and cultural rights of children in various ethnic groups. Immigrant children will be supported in keeping up their first language skills, aiming at functional bilingualism. Specifying the rights of immigrants should be begin by revising the legislation on and financial principles of comprehensive school.

Integration work should be increased especially for those outside the work, and its content should be given more attention.

• these are warmly welcomed by NGOs

The chronically ill

The financial position of the chronically ill is being alleviated with reform of public policy on charges and through clarification of the benefits system. Changes in the drug reimbursement system should not increase the burden of payment on the chronically ill.

• from NGO- perspective very important element here is the plan to revise the policy on social welfare and health care charges. The aim is that charges will no longer prevent people, particularly low-income groups and those with multiple health problems, from seeking medical attention. Ways of introducing a system which will allow for a uniform ceiling on charges are therefore being sought. Provisions on user charges will be revised in a way that ensures frequent users of out-patient services reasonable disposable funds. This was one of issues NGOs were proposing to the NAPS.
• There is a large unsatisfied demand for treatment for mental health problems The availability of services will be improved by channelling additional funds into treatment and support services for mental health patients and substance abusers. Immigrants should be taken into account as a special group. These are areas where resources and new approaches are needed in the future. It is also a question of equal opportunities.

Substance abusers

Drug and alcohol problems translate into homelessness, unemployment, low education and, very commonly, combined alcohol and substance abuse. The Government will draft a resolution and a programme on combating the harmful effects of alcohol and draw up an action plan on drug abuse for the period 2004-2007.

As the EU enlarges, Finland’s prospects for maintaining the present excise duty rates for alcohol and tobacco will decline. Taxes on alcohol will be reformed systematically in the manner that best guarantees tax revenues while minimizing harmful effects on health and the economy. The Government will make concerted efforts to raise tax rates on alcohol and tobacco in the European Union.

According to the Government Resolution, drug control will be enhanced through a complete ban on their distribution and use, discouragement of drug experiments and use, and sufficient treatment. Measures to alleviate the negative effects of drug use will be expanded with the aim of stopping the rise in drug use and drug-related crime. The Objective programmes and action plans of the various ministries support anti-drug measures. A national alcohol programme is also under preparation, with the aim of producing a Government Resolution on alcohol policy outlines for 2003-2007. The aims are to reverse the rise in overall consumption of alcoholic beverages by 2005 and to reduce intoxication-oriented drinking and its negative effects. The Church is beginning to draft its own intoxicant abuse strategy together with Christian organizations.
• since the NAPs2 was completed the Government argeed of a very big reduction of alcoholtaxes to secure the economical interests. Economical interests and competitevenes ignored the argumentation for public health and fight against poverty and social exclusion.
• the reduction of alcohol taxes will be extremely worring from the point of view of public health and social problems. It will inevitably increase the amount of heavy drinkers and social exclusion. The heavy drinkers are persons who are often severaly excluded, often unemployed, without family and with big housing problems.
• already now the municipalities are in big problems in garanteeing social and other services for people with drinking problems. These were the services which met most cuts in the 1990´s and the earlier level of services has not yet been met. The rise in needs in this area means inevitably that more and more people are in the situation that their basic rights to services and support are violated.
• the key issue is to at least stop and reduce the consumption. the price of alcohol seems to be the most effective means to do it in Finland.
• the Government has to decide what level of consumption Finland is ready to tolarate with it´s negative side-effects. this is a ethical question: what is the balance between the economical and public health interests
• the high level of alcohol-consumption and needs of addicts will be one of the key areas in the fight against poverty and social exclusion in the future
• there are plans to launch new programs in this area as mentioned above. In preparing these it is necessary yto have good partnership between the officials and NGOs and other experts, who have good knowledge of everyday-needs of abusers.

Violence against women and prostitution

Discrimination against women will be prevented and the social status of women enhanced in several dimensions of social policy. Special attention has been given in recent years to uprooting violence against women.

If social exclusion is defined as an accumulation of deprivation, prostitution fulfils all the essential elements, besides also violating the human rights of the prostitute. Prostitution often has links with criminal activities. Prostitutes also have a higher risk of becoming substance abusers, and often suffer from physical and mental health problems.

For the entire term of Government, resources will be allocated for preventing domestic violence, violence against women and prostitution. A programme on the prevention of violence against women and children and the prevention of prostitution will be launched in multi-professional cooperation involving several sectors of the administration. Resources will be added to support services for victims of violence and prostitutes, and protection for victims of trafficking in human beings will be reinforced.

The over-indebted

Debt problems can cause serious economic and social difficulties. The risk of getting into trouble with debts affects disadvantaged population groups the most heavily. However, the development and spread of new forms of financing and credit, and the fact that households and the labour market are becoming increasingly atypical, have increased the risk of over-indebtedness in other population groups, too. Also, the varying practices of local authorities in granting income support drive those in the lowest income groups to use various forms of credit which require no security and which are therefore more expensive.

In the 1990s, the debt problem was countered by creating a debt risk management system, which in most cases enables debt modification or renders debts statute-barred after a certain period of time. However, the over-indebted remain in dire financial straits. In the near future, a comprehensive action plan to prevent the emergence of new over-indebtedness problems and the deepening of existing ones, and to enable the flexible and efficient management of insolvency, will be created. The social objective here is to promote the potential of individuals and families in such difficulties for leading an active life. Debt counselling methods and personnel competence will be improved. Legislation on bankruptcy, debt restructuring and execution will be reformed.

• The most important way to prevent over-indebtedness is not mentioned at all and that is the preventive work. That means economical education, starting already at school and continuing the whole lifetime whenever needed.
• To create a new action plan to prevent over-indebtedness is a good idea but means to do it are not clear. They even have budgetary implications and no calculations has been done. People in debt problems are already now in unequal situation depending in which part of the country they live becaus there is not enough money for debt counselling although in the law the for free- counselling is obligatory for the authorities to organize.

The homeless

Homelessness is a state to which quite a large portion of the population may become liable, for instance through over-indebtedness, a change in family relations or unemployment. Some homeless have multiple problems; finding them accommodation without the necessary housing, services and support is difficult. The homeless are also subject to discrimination. The lack of sufficiently intensive support is a problem equal to the housing shortage. There are people living in treatment units, institutions or sheltered housing because of not having a home.

The Government will continue with its programme to reduce homelessness. The aim is to provide more small homes for the homeless by building new ones and by obtaining housing within the existing building stock. The allocation of freed social rental housing to the homeless should be increased. Home support services and sheltered housing for population groups requiring special care should be further developed in a balanced manner. Local authorities and NGOs have a vital role to play in this.

• reducing homelessness- program is very responsible and important but it will meet plenty of obstacles. The big economical problems of municipalities can prohibit the good plan to be true, while the municipalities have wide independence and can use their resources as they will.
• it is also a question of attitudes, which are very much against to plans of having new solutions of housing for the people in most vulnerable situations. For ex. discriminative attitudes towards people, who have psyhiatric or drinking problems are big. the landlords seem not to understand and tolerate the specific nature of these problems and the needs of these people.
• most of homeless people live in the capital area, where the special program is planned. there the biggest challenge is the lack of supporitive services for those, who have biggest problems in managing living on their own.

Prevention of crime-related social exclusion

People who commit crimes are often socially excluded or threatened by social exclusion. Released prisoners are also in a weak social position, with slim chances of entering the labour market, education or the housing market successfully. About 40 per cent of prisoners are homeless when they go to prison, and about 400 to 500 homeless prisoners are released each year.

Recidivism remains common in Finland, particularly among young prisoners. The prison population increased by 14 per cent in 2000-2001. Reducing recidivism would lead to considerable social savings. Special crime policy programmes are being implemented as part of the National Action Plan against Poverty and Social Exclusion. A cross-sectoral programme on internal security will be drawn up to increase public security and to reduce drug-related crime, violent crime and recidivism in particular.

The sanctions regarding young offenders will be revised and their impact enhanced. The system will be modified to help young offenders return to a permanent crime-free life. The handling time for crimes committed by young people will be shortened through closer cooperation between the police, prosecutors, the courts and the social welfare authorities. After-care designed to support the life management of released prisoners will be provided.

The Romani population

There are an estimated 10,000 Romani in Finland. The living conditions, level of education and income of the Romani population are still lower than in the majority population, although the situation has improved. There are problems, in that Romani have more difficulty than average in finding employment and earning a living. The ban on discrimination has significantly improved the equality of the Romani population and their socio-economic status has been improved through the creation of services and procedures allowing them to participate safely in society without having to compromise their own culture. Such services must be developed so that they gain the trust of the Romani population, and they must be sufficiently publicized. Ways of improving the education and health of the Romani minority should also be considered.

1.5 Examples of Best Practice

The five examples chosen are:

1) Citizens’ welfare networks (HYVE)

HYVE is a regional welfare-boosting model in which one or more local authorities cooperate with the Finnish Federation for Social Welfare and Health, its regional associations and other local actors. The work is based on the social situation, needs, problems and challenges in the relevant area. The aim is to produce welfare services and support through cooperation in which the work of public-sector professionals is linked to third-sector and NGO work. This linkage is done by developing network models which not only combat threats and risks but also actively reform service concepts and welfare service structures. This enables the provision of individual solutions for preventing social exclusion, taking local conditions into account. The HYVE model also incorporates personnel training and a research angle. Administratively, the model is based on a framework agreement between the Finnish Federation for Social Welfare and Health, the relevant local authority or authorities (Oulu, Joensuu, Jyväskylä and Jyväskylä rural municipality) and regional social security associations, an annual cooperation plan and a networking budget. The model also serves as an example of how a joint development venture can be expanded into a long-term framework agreement after the project stage is over. Work is still at the project stage in two regions: southern Finland, with the partner local authority being Helsinki, and western Finland, with the partner local authorities being Kokkola, Seinäjoki and Vaasa. The model involves close cooperation with regional centres of expertise in the social welfare sector.

2) Cooperation model for the prevention of social exclusion, Jyväskylä

In the Jyväskylä model, the basic strategy for the prevention of social exclusion involves marshalling local forces and launching joint projects. Involved in the projects are the City social welfare and health authorities and other authorities, the employment office, the Social Insurance Institution, the university, the polytechnic and organizations. The joint projects each have their own target group (e.g. the long-term unemployed, immigrants, those with mental health problems). The projects constitute a flexible interactive entity. As projects come to an end, experiences gained from them are used not only to improve official basic services but also to launch follow-up and supplementary projects, or completely new projects, so that the work continues smoothly even if a specific project ends. Each actor contributes to the projects, and funding sources include the central government, the Slot Machine Association and ESF financing in addition to local authority budget appropriations. A foundation has been set up for the provision of special services.

3) The Turku model for promoting the welfare of children and young people

The Turku strategy focuses on children, young people and families with children. The strategy is pursued through a network model managed and monitored by a management group for the welfare of children and young people, whose members include experts from all service authorities and a town planning expert. Indicators for monitoring relevant factors have been developed in cooperation with the National Research and Development Centre for Welfare and Health (STAKES). The indicators are supported by a tri-annual ‘child budget’, a tool for examining after the fact how much the various authorities spend annually on managing children’s and young people’s affairs. In addition to indicator and resource monitoring (child budget) projects, an environmental impact assessment model from a child’s viewpoint (child EIA) is being developed to ensure that children’s views are taken into account in land use and town planning.

4) East Helsinki local working model for preventing social exclusion

The Mellunkylä social welfare office in Helsinki has adopted a comprehensive local strategy for preventing social exclusion. The district suffers from high long-term unemployment, a large number of immigrants and a low level of income and education. The model is based on the City’s own basic services. Because social exclusion is closely linked to an accumulated variety of shortcomings in living conditions, the model has a broad-based approach: all aspects of life, from everyday concerns to the living environment and culture, are considered important. Development projects in the district are considered of primary importance in preventing social exclusion. The district has been involved in suburban projects, partnership projects, school partnership projects, ESF projects and the Urban I and II programmes. New projects have been built on old ones. The high number of projects has helped change job patterns towards a networking model and diversified opportunities for clients and professionals to meet. Cooperation and planning between authorities has increased, and the harmonization of measures in client services has been improved. Continuous dialogue between personnel in projects and basic services is an important feature of the model. This local project model for preventing social exclusion has been evaluated in the Työllistyvä Helsinki (‘Job-creating Helsinki’) project framework

5) HARAVA

Harava (‘Rake’) is a joint project between child protection organizations and the public sector, coordinated by the Central Union for Child Welfare in Finland and the Association of Finnish Local and Regional Authorities. The aim of the project is to use practical experiments to develop cooperation and service models for psychosocial services for children and young people. The project promotes cooperation between NGOs, the public sector and private service providers, and cross-sector cooperation between the social welfare, health care and education authorities. Also, new solutions are sought for the generation of inter-municipal services, for instance through sub-regional concepts.

Harava is organized into 14 regional experimental models. Component projects involve developing foster family and support family work on the sub-regional level, multi-professional client services, child psychiatry expertise in sparsely populated areas, and service strategy partnership between local authorities and NGOs. The project generates documented and distributable models for the production of services for children and young people in pluralist cooperation. It also involves an extensive evaluation study on changes in the service system.Harava is active in three pilot regions, Keski-Suomi, Varsinais-Suomi, and the Länsi-Pohja sub-region. The project will run from 2000 to 2004.

• In conclusion, all of these can be considered examples of good practice in many respects. Two out of these good practices in the Finnish NAP were introduced by NGOs and we are satisfied with this result.

1.6 New developments since NAP Inclusion 1

One of the objectives was mobilising all the actors and participation. The specific recognition of the role of other actors in combating poverty is evident throughout the NAP Inclusion 2 document. We believe this is because of the strong tradition of cooperation between different actors, especially between NGOs and different ministries ( ministry of social and health affairs has had a leeding role in this). Different ministries have also launched new strategy-papers of how to strengthen the cooperation with the civil society and NGOs especially since NAPS1. Maybe we could also say that we ourselves and other parntners were more active during this second round. We and our member organisations were a bit better prepared for this second round. Also the active role of the Ministry of social and health affairs in monitoring the first round and events organised connected to that kept the common process on. Hearing the direct voice of people with experience of poverty is still an issue with no progress during the second round.

Finnish Federation for Social Welfare and Health and EAPN- Fin organised for their members channels to influence the work and to propose important issues for them to the drafts on the second NAPs. Some of these were taken up but part of the proposals were so detailed that they were letf out. In any case they were also discussed in the process. The timetables were again too tight to garantee real participation. We could also say that these working methods widened the awareness of NGOs about OMC as a common tool.

Preventing the risks of exclusion and helping the most vulnerabe seems to be still a week area although some progress is made. They have had a recognition in the document, but not so much in terms of policy. One area where we have not seen movement is concerning the links between poverty and pereventive work.

PART 2: GENERAL

2.1 Impact of the NAP Inclusion on poverty

The first generation of NAPSincl. didn’t have much direct impact on the lives of people experiencing poverty and inclusion. It was not very well-known in Finland which is still a big problem.

The most essential problem has all the time been the status of NAP in relation to political structures and processes. It is emphasized that NAP is a national plan, not the plan of the Government. What does it mean? In Finland NAP is prepared by the working group with a broad base and large scale of actors. Compromises are natural in this kind of context but the Government (i.e. the Ministry of Finances!) always has the last word.

The period of NAPs has been too short to evaluate impacts and results. The second NAP was prepared in a good political situation in Finland: the election of the parliament took place in March 2003 and the programme of the new Government was drafted in spring. It was possible to “feed” that drafting while planning the second NAP.

Two issues have progressed during the NAP process. Poverty and social exclusion have become more visible in the public eye. NGO’s have taken one step forward to become a partner in fighting against poverty and exclusion.

In EAPN-Fin, most of the existing resources had to put on the NAP process. Anyway, we think it has been worth that and the whole idea of National Action Plans is very important, in spite of some disappointments.

It is also important that NGOs were directly represented in the preparatory working group so that there were two members and their vice-persons, one for EAPN-Fin and one for the Finnish Federation for Social Welfare. It made it possible to connect wider range of NGOs to the preparatory process through having dialoque with the members.

The Finnish Anti-Poverty Network EAPN-Fin
c/o The Finnish Federation for Social Welfare and Health
KOTKANKATU 9, 00510 HELSINKI
Tel. +358 9 774 721, fax +358 9 738 123, e-mail eapn@eapn.fi