State of the Union: le strategie di welfare dell’investimento sociale

Nel corso di questo ottavo State of the Union a Firenze, non si è parlato soltanto di Unione economica e monetaria. Un ruolo centrale lo ha giocato anche il welfare, o meglio, le politiche di investimento sociale. Del resto, l’edizione della conferenza annuale organizzata dall’Istituto universitario europeo di Fiesole, è stata dedicata, prima di tutto, al concetto di “solidarietà”.

Nel corso di questo ottavo State of the Union a Firenze, non si è parlato soltanto di Unione economica e monetaria. Un ruolo centrale lo ha giocato anche il welfare, o meglio, le politiche di investimento sociale. Del resto, l’edizione della conferenza annuale organizzata dall’Istituto universitario europeo di Fiesole, è stata dedicata, prima di tutto, al concetto di “solidarietà”.

Nel corso del panel intitolato “Social Investment in the Balance”, il professor Anton Hemerijck (Istituto universitario europeo) ha moderato un dibattito tra studiosi di alto livello – presenti al tavolo, Maurizio Ferrera (Università di Milano), Frank Vanderbroucke (Università di Amsterdam) come anche eurodeputati ed ex-commissari europei, quali Maria Jao Rodrigues (S&D e presidente del FEPS) e Lazslo Andor (ex-commissario europeo all’Occupazione e gli Affari Sociali).

Cosa è il paradigma dell’investimento sociale

Le politiche di investimento sociale, nate alla fine degli anni ‘90 e inizio ‘00, rispondono all’esigenza dei sistemi di welfare di adeguarsi a  nuove forme di rischio a cui vanno incontro individui e famiglie. Nelle attuali economie del sapere (“knowledge economies”) caratterizzate da un generale stato di incertezza, da un invecchiamento demografico progressivo, nonché da una crescente presenza di donne nel mercato del lavoro, le forme tradizionali di assicurazione sociale non riescono a garantire più una rete di tutele adeguate ai cittadini. L’idea è quindi di spostarsi da misure di welfare ex-post ad altre di investimento, focalizzate, soprattutto, sui primi anni di vita (ma non solo) e che possano permettere agli individui di rispondere meglio e in prima persona a difficoltà sociali e ambienti che affronteranno da adulti.

Storicamente e politicamente, questa trasformazione e impostazione delle politiche di welfare è stata sostenuta dagli esponenti della così detta “terza via”; su tutti: Tony Blair e Gerhard Schroder. Eppure, sono sicuramente in Paesi nordici ad aver fatto proprio il nuovo paradigma. I risultati sono meno chiari invece se si guarda a Paesi come Francia e Italia. Inoltre, il concetto di investimento sociale è stato spinto e sponsorizzato soprattutto dalle istituzioni europee, tramite dibattiti e scambi tra esperti del settore. In particolare, è il Trattato di Lisbona ad aver assorbito al meglio il paradigma  – almeno in termini di linguaggio. A livello nazionale invece, è difficile dire se ci sia stata una vera e propria transizione dal welfare classico. A maggior ragione, se si pensa che, le politiche di austerity degli ultimi anni hanno trasformato la spesa pubblica in servizi sociali e in capitale umano in un costo “insostenibile”.

Insomma, la svolta teorica dell’investimento sociale sembra essere stata frenata a livello pratico sia da fattori strutturali (minore reattività delle classi politiche nazionali alla riflessione accademica), sia congiunturali (crisi economica, finanziaria e del debito).

Il dibattito #SoU2018

È Maria Jao Rodrigues a spiegare che quello dell’investimento sociale è un paradigma di politiche che rappresenta l’evoluzione naturale e positiva (in termini progressisti) del modo in cui le politiche sociali tout court sono state concepite a livello europeo dagli anni ‘90 in poi in ambito europeo.

Se “a inizio anni ‘90 – sulla scia di Maastricht – le politiche sociali dovevano fungere da livellatore del piano di gioco naturale del Mercato Unico”, successivamente, si arriva a sviluppare “politiche dell’occupazione coordinate” (fine secolo). È con gli anni 2000 che si sviluppa logicamente l’agenda dell’investimento sociale in quanto politica sociale a tutto tondo. In quest’ottica, Lisbona è uno snodo importante, ma “la crisi” taglia letteralmente le gambe a questo processo, ricorda Rodrigues. È anche per questo motivo che agli occhi dell’eurodeputata, il Pilastro europeo dei diritti sociali (EPSR) rappresenta un importante fattore di “recupero”.

Nonostante ciò, la domanda rimane: l’investimento sociale, a 20 anni dalla sua nascita, può considerarsi un successo?

Secondo Frank Vandenbroucke, uno dei massimi esperti di welfare olandesi (nonché ex-ministro) “il bicchiere è mezzo pieno o mezzo vuoto a seconda della prospettiva che si adotta”. Se si guarda il percorso fatto in 20 anni, si notano elementi di “convergenza” fra Paesi dell’Ue. Allo stesso tempo, considerando esclusivamente il decennio post crisi economica, il bilancio è sicuramente meno positivo.

In parte è colpa della crisi stessa che ha reso difficile raggiungere obiettivi di convergenza sociale e abbattuto le singole economie. A proposito, è lo stesso Vandenbroucke a fare mea culpa: “[In quanto sostenitori dell’agenda dell’investimento sociale] abbiamo sottovalutato l’importanza delle misure classiche di assicurazione sociale e della loro importanza [in un contesto di crisi sistematica]”. Come a dire che, forse , quello che serve è una combinazione tra investimento sociale e welfare classico.

Anche perché,  anni fa, in seguito a Lisbona e in piena crisi economica,in gruppo di intellettuali  (tra cui gli stessi presenti nel panel)aveva spinto per la creazione di un vero e proprio “Patto Sociale” (sulla base dei precetti del paradigma dell’investimento sociale) europeo. Ques’ultimo però si è trasformato  nel così detto “social investment package”, un “pacchetto di misure e azioni” che, in gergo tecnico, può definirsi “soft law”, ovvero con poco mordente sullo stato di fatto delle politiche sociali.

A livello istituzionale, è l’ex-commissario europeo all’Occupazione e agli affari sociali, Laszlo Andor, il volto da abbinare al “pacchetto social investment” appena menzionato. Anche per questo, Andor rivaluta, rispetto a Vandenbroucke, le misure approvate al tempo: “Durante la crisi, i ministri agli affari sociali hanno apprezzato molto quanto fatto dalla Commissione, proprio perché i margini di azione nazionali [nel quadro della governance economica europea] erano estremamente limitati”.

Nel valutare il successo del paradigma, il professor Maurizio Ferrera dell’Università di Milano pone invece l’accento su un altro elemento importante: l’assenza di un elemento simbolico, un dispositivo istituzionale concreto capace di dare sostanza alla strategia di policy in discussione. Tradotto, il vizio dell’agenda social investment sarebbe stato quello di essere un coacervo di tante misure, sì legate da un comune approccio, ma in assenza di un cavallo di battaglia riconoscibile. Concludendo su una nota positiva, Ferrera sostiene che proprio il Pilastro europeo dei diritti sociali potrebbe rappresentare uno strumento chiave: “Elencando una serie di diritti fondamentali legati sia al paradigma dell’investimento sociale che al linguaggio delle politiche di cittadinanza, l’EPSR potrebbe portare a nuove forme di rivendicazione” politica e, quindi, a una politica più di sostanza. Come a dire, se i partiti della socialdemocrazia e i sindacati – nonché la società civile – non prendono in mano la causa, difficile che si raggiunga un risultato.

(EuNews, 11.05.2018)

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