Personal assistance as a strategic game between state and municipalities in Norway

Jan Andersen

doi:10.1080/15017410309512619

Original Articles

Personal assistance as a strategic game between state and municipalities in Norway

Author:

Jan Andersen

Political Science. Faculty of Health and Social Studies, Lillehammer University College, Norway, NO

About Jan

Associate Professor in Political Science

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Abstract

The paper is based on a study of the law‐making process of personal assistance in Norway. It discusses some tensions between the state and the municipalities concerning the type and quantity of services with regard to personal assistance. Does introduction of personal assistance imply an extended quantity of services or is it just another way of organising existing services? The signals from the state authorities are ambiguous, and when implementing the reform the municipalities are left to find a solution to this question. This might create a strategic game between the state and the municipalities. It might become an unpredicted side effect of the legislation of personal assistance that the municipalities will become more restrictive in the provision of personal assistance than they were in the experimental period.

How to Cite: Andersen, J., (2009). Personal assistance as a strategic game between state and municipalities in Norway. Scandinavian Journal of Disability Research. 5(2), pp.140–159. DOI: http://doi.org/10.1080/15017410309512619

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Published on 08 Jul 2009

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References

Andenæs , K (1992). . . Klagesaksbehandlingen etter lov om sosial omsorg ‐ noen kommentarer til den tallmessige utvikling. [The management of the appeals according to the Social Services Act ‐ some comments to the development of the figures]. . Lov og Rett, , : : 124.–.
Andersen , J (1995). . . En ideell reforms møte med den kommunale hverdag. En Studie av kommunenes iverksetting av HVPU‐reformen. [An ideal reform's meeting with municipal reality. A study of the municipalities’ implementation of the reform for intellectual disabled people]. , Report no. 4[city: Lillehammer]: : Eastern Norway Research Institute. .
Andersen , J (1997). . . Drypper det på klokkeren? En Studie av ansvarsreformens betydning for andre grupper av funksjonshemmede i kommunene. [Did the parish clerk benefit from the rain on the vicar? A study of the consequences of the reform for intellectual disabled for other groups of disabled people in the municipalities]. , Report no. 8[city: Lillehammer]: : Eastern Norway Research Institute. .
Andersen , J (2001). . . Brukerstyrt personlig assistanse fra forsøk til lov. [User‐controlled Personal Assistance from experiment to legislation]. , Research report no. 78[city: Lillehammer]: : Lillehammer University College. .
Askheim , OP (1999). . . Personal assistance for disabled people ‐ the Norwegian experience. . International Journal of Social Welfare , 8: : 111.–. 1999: Blackwell Publishers Ltd..
Askheim , OP (2001). . . Personlig assistanse for funks jonshemmede i Norden. En sammenliknende Studie av ordningen i Danmark, Finland, Sverige og Norge. [Personal assistance for disabled people in the Nordic countries. A comparative study of the arrangement in Denmark, Finland, Sweden and Norway]. , Research report no. 61[city: Lillehammer]: : Lillehammer University College. .
Askheim , OP and Guldvik , I (1999). . . Fra lydighet til lederskap? Om brukerstyrt personlig assistanse. [From obedience to leadership? About user‐controlled personal assistance]. , [city: Oslo]: : Tano Aschehoug. .
Bengtsson , H and Gynnerstedt , K (2001). . . Personlig assistans och statlig assistansersättning. [Personal Assistance and compensation from the state for the assistance]. Delstudie 1 i Riksförsäkringsverkets rapport: Ressurser för att leva som andra ‐ en analys av kostnadsutvecklingen inom assistansersättningen. . Riksförsäkringsverket, , 27.02.2001.
Bernt , JF (1994). . . Kan kommunalt selvstyre og rettssikkerhet forenes? [Can local autonomy and legal rights be combined?]. . Lov og Rett, , : : 67.–. 1994:.
Bernt , JF (1997). . . “Statlig kontroll med kommunene ‐ en trussel mot eller en forutsetning for det kommunale folkestyrets legitimitet? [State control of the municipalities ‐ a threat against or a precondition for the legitimacy of local democracy?]. ”. In Kommunalt selvstyre i velferdsstaten. [Local autonomy in the welfare state]. , Edited by: Baldersheim , H , Bernt , JF , Kleven , T and Rattsø , J . [city: Oslo]: : Tano Aschehoug. .
Bernt , JF and Kjellevold , A (2000). . . “Velferdsstat, rettssikkerhet og kommunalt selvstyre. [Welfare state, legal rights and local autonomy]. ”. In Sosial trygghet og rettssikkerhet — under sosialtjenesteloven og barnevernloven. [Social security and legal rights in the Social Services Act and the Child Welfare Act]. , Edited by: Kjønstad , A , Bernt , JF , Kjellevold , A and Hove , H . [city: Bergen]: : Fagbokforlaget. .
Eskeland , S (1993). . . “Rettssikkerhet, velferdsstat og kommunalt selvstyre. [Due process, welfare state and local autonomy]. ”. In Hvor gikk sosialomsorgen? [Where did the social welfare services go?]. , Edited by: Eskeland , S . [city: Oslo]: : Universitetsforlaget. .
Guldvik , I (1998). . . Kommunenes erfaringer med brukerstyrt personlig assistanse. [The municipalities’ experiences of user‐controlled personal assistance]. , Report no. 11[city: Lillehammer]: : Eastern Norway Research Institute. .
Guldvik , I (2001). . . Mellom brukerstyring og medbestemmelse ‐ Å jobbe som personlig assistent. [Between user‐control and participation ‐ To work as a personal assistant]. , Report no. 4[city: Lillehammer]: : Eastern Norway Research Institute. .
Hagen , TP and Sørensen , RJ (1997). . . Kommunal organisering. [Municipal organisation]. , [city: Oslo]: : Tano Aschehoug. .
Høringsuttalelser (1999). . . “Innkomne høringsuttalelser til “Høringsnotat. Utkast til endring i lov om sosiale tjenester ‐ om brukerstyrt personlig assistent”; fra Sosial‐ og helsedepartementet, pleie‐ og omsorgsavdelingen 10.03.99. [Comments from the hearing institutions to a consultative paper about the amendment to the Social Services Act concerning personal assistance, sent from the Ministry of Health and Social Affairs]. ”.
Kjellberg , F (1988). . . “Local Government and the Welfare State: Reorganization in Scandinavia. ”. In The Dynamics of Institutional Change. Local Government Reorganization in Western Democracies. , Edited by: Dente , B and Kjellberg , F . Sage Publications. .
Kjønstad , A and Syse , A (1997). . . Velferdsrett. , [city: Oslo]: : Ad Notam Gyldendal. . [Welfare law]..
Kleven , T (1997). . . “Forholdet kommune‐stat i et legitimeringsperspektiv. [The relationship between municipality and state in a perspective of legitimacy]. ”. In Kommunalt selvstyre i velferdsstaten. [Local autonomy in the welfare state]. , Edited by: Baldersheim , H , Bernt , JF , Kleven , T and Rattsø , J . [city: Oslo]: : Tano Aschehoug. .
Larsen , HO and Offerdal , A (2000). . . “Political Implications of the New Norwegian Local Government Act of 1992. ”. In Towards a New Concept of Local Self‐Government? Recent Local Government Legislation in Comparative Perspective. , Edited by: Amnå , E and Montin , S . [city: Bergen]: : Fagbokforlaget. .
Montin , S (2000). . . “A Conceptual Framework. ”. In Towards a New Concept of Local Self‐Government? Recent Local Government Legislation in Comparative Perspective. , Edited by: Amnå , E and Montin , S . [city: Bergen]: : Fagbokforlaget. .
NHF Oslo (2001). . . Brukerstyrt personlig assistanse i Oslo. En undersøkelse om brukernes, bydelenes og assistentenes erfaringer. [User‐controlled personal assistance in Oslo. A study of the users, the municipal districts and the experiences of the assistants]. , [city: Oslo]: : Norges Handikapforbund. .
Odelstinget 14th December 1999, Sak nr. 2: Innstilling fra sosialkomiteen om lov om endring i lov av 13. desember 1991 nr. 81 om sosiale tjenester mv. (brukerstyrt personlig assistanse). [The Odelsting: The debate on the recommendation from the Standing Committee on Health and Social Affairs about incorporating personal assistance in the Social Services Act]..
Oppedal , M (1993). . . “Den nye sosialloven. [The new Social Services Act]. ”. In Hvor gikk sosialomsorgen? [Where did the social welfare services go?]. , Edited by: Eskeland , S . [city: Oslo]: : Universitetsforlaget. .
Ot. prp. nr. 29 (1990–91). Om lov om sosiale tjenester m.v. [Bill originating in the Odelsting (lower house of Norwegian legislature) about the Social Services Act]. Sosialdepartementet..
Ot. prp. nr. 8 (1999–2000). Om lov om endring i lov 13. desember 1991 nr. 81 om sosiale tjenester m.v. (brukerstyrt personlig assistanse). [Bill originating in the Odelsting (lower house of Norwegian legislature) about incorporating personal assistance in the Social Services Act]. Sosial‐ og helsedepartementet..
Rattsø , J and Sørensen , RJ (1997). . . “Kommunen som serviceprodusent/tjenesteyter: Hva forteller norsk kommuneforskning om kommunesektorens effektivitet? [What are the findings of Norwegian research regarding the efficiency of the municipalities as service producers?]. ”. In Kommunalt selvstyre i velferdsstaten. [Local autonomy in the welfare state]. , Edited by: Baldersheim , H , Bernt , JF , Kleven , T and Rattsø , J . [city: Oslo]: : Tano Aschehoug. .
Regjeringens handlingsplan for funksjonshemmede (1994–1997). . . “[The Cabinets’ plan of action for the disabled]. Ressurssenter for Omsorgstjenester 1997. ”. In Brukerstyrt Personlig Assistanse. En begrenset evaluering av virkningen av stimuleringstilskudd til kommunene. [User‐controlled personal assistance. A restricted evaluation of the consequences of the financial contribution from the state to the municipalities], Rapport April 1997.
Rose , L (1996). . . “Norway. ”. In Nordic local government. Developmental trends and reform activities in the post‐war period. , Edited by: Albæk , E , Rose , L , Strömberg , L and Ståhlberg , K . [city: Helsinki]: : The Association of Finnish Local Authorities. . Acta,.
Sosialdepartementet (1993). . . “Lov om sosiale tjenester mv. Rundskriv 1–1/93. ”. [Circular to the Social Services Act].
Sosial‐ og helsedepartementet (1999). . . “Høringsnotat. Utkast til endring i lov om Personal Assistance as a Strategic Game between State and Municipalities in Norway sosiale tjenester ‐ om brukerstyrt personlig assistent fra Sosial‐ og helsedepartementet, pleie‐ og omsorgsavdelingen 10.03.99. [A consultative paper about the amendment to the Social Services Act concerning personal assistance, sent from the Ministry of Health and Social Affairs]. ”.
Sosial‐ og helsedepartementet (2000). . . “Brukerstyrt personlig assistanse. [User‐controlled personal assistance]. Rundskriv I‐20/2000 til lov om sosiale tjenester mv. [Circular to the Social Services Act]. ”.
St. meld. nr. 23 (1992–93). Om forholdet mellom staten og kommunane. [White Paper: Concerning the relationship between the state and the municipalities]. Kommunal‐ og arbeidsdepartementet..
Åström , K (1998a). . . “Normbildning och beslutsfattande. [Creating norms and making decisions]. ”. In Politik, lag och praktik. lmplementeringen av 1994 års handikappreform. [Politics, law and practise. The implementation of the reform for the disabled in 1994]. , Edited by: Bengtsson , H . [city: Lund]: : Studentlitteratur. .
Åström , K (1998b). . . “Funktionshindrade mellan SoL och LSS. [The disabled between SoL and LSS]. ”. In Politik, lag och praktik. lmplementeringen av 1994 års handikappreform. [Politics, law and practise. The implementation of the reform for the disabled in 1994]. , Edited by: Bengtsson , H . [city: Lund]: : Studentlitteratur. .

[CIT0001] Andenæs , K (1992). . . Klagesaksbehandlingen etter lov om sosial omsorg ‐ noen kommentarer til den tallmessige utvikling. [The management of the appeals according to the Social Services Act ‐ some comments to the development of the figures]. . Lov og Rett, , : : 124.–.

[CIT0002] Andersen , J (1995). . . En ideell reforms møte med den kommunale hverdag. En Studie av kommunenes iverksetting av HVPU‐reformen. [An ideal reform's meeting with municipal reality. A study of the municipalities’ implementation of the reform for intellectual disabled people]. , Report no. 4[city: Lillehammer]: : Eastern Norway Research Institute. .

[CIT0003] Andersen , J (1997). . . Drypper det på klokkeren? En Studie av ansvarsreformens betydning for andre grupper av funksjonshemmede i kommunene. [Did the parish clerk benefit from the rain on the vicar? A study of the consequences of the reform for intellectual disabled for other groups of disabled people in the municipalities]. , Report no. 8[city: Lillehammer]: : Eastern Norway Research Institute. .

[CIT0004] Andersen , J (2001). . . Brukerstyrt personlig assistanse fra forsøk til lov. [User‐controlled Personal Assistance from experiment to legislation]. , Research report no. 78[city: Lillehammer]: : Lillehammer University College. .

[CIT0005] Askheim , OP (1999). . . Personal assistance for disabled people ‐ the Norwegian experience. . International Journal of Social Welfare , 8: : 111.–. 1999: Blackwell Publishers Ltd..

[CIT0006] Askheim , OP (2001). . . Personlig assistanse for funks jonshemmede i Norden. En sammenliknende Studie av ordningen i Danmark, Finland, Sverige og Norge. [Personal assistance for disabled people in the Nordic countries. A comparative study of the arrangement in Denmark, Finland, Sweden and Norway]. , Research report no. 61[city: Lillehammer]: : Lillehammer University College. .

[CIT0007] Askheim , OP and Guldvik , I (1999). . . Fra lydighet til lederskap? Om brukerstyrt personlig assistanse. [From obedience to leadership? About user‐controlled personal assistance]. , [city: Oslo]: : Tano Aschehoug. .

[CIT0008] Bengtsson , H and Gynnerstedt , K (2001). . . Personlig assistans och statlig assistansersättning. [Personal Assistance and compensation from the state for the assistance]. Delstudie 1 i Riksförsäkringsverkets rapport: Ressurser för att leva som andra ‐ en analys av kostnadsutvecklingen inom assistansersättningen. . Riksförsäkringsverket, , 27.02.2001.

[CIT0009] Bernt , JF (1994). . . Kan kommunalt selvstyre og rettssikkerhet forenes? [Can local autonomy and legal rights be combined?]. . Lov og Rett, , : : 67.–. 1994:.

[CIT0010] Bernt , JF (1997). . . “Statlig kontroll med kommunene ‐ en trussel mot eller en forutsetning for det kommunale folkestyrets legitimitet? [State control of the municipalities ‐ a threat against or a precondition for the legitimacy of local democracy?]. ”. In Kommunalt selvstyre i velferdsstaten. [Local autonomy in the welfare state]. , Edited by: Baldersheim , H , Bernt , JF , Kleven , T and Rattsø , J . [city: Oslo]: : Tano Aschehoug. .

[CIT0011] Bernt , JF and Kjellevold , A (2000). . . “Velferdsstat, rettssikkerhet og kommunalt selvstyre. [Welfare state, legal rights and local autonomy]. ”. In Sosial trygghet og rettssikkerhet — under sosialtjenesteloven og barnevernloven. [Social security and legal rights in the Social Services Act and the Child Welfare Act]. , Edited by: Kjønstad , A , Bernt , JF , Kjellevold , A and Hove , H . [city: Bergen]: : Fagbokforlaget. .

[CIT0012] Eskeland , S (1993). . . “Rettssikkerhet, velferdsstat og kommunalt selvstyre. [Due process, welfare state and local autonomy]. ”. In Hvor gikk sosialomsorgen? [Where did the social welfare services go?]. , Edited by: Eskeland , S . [city: Oslo]: : Universitetsforlaget. .

[CIT0013] Guldvik , I (1998). . . Kommunenes erfaringer med brukerstyrt personlig assistanse. [The municipalities’ experiences of user‐controlled personal assistance]. , Report no. 11[city: Lillehammer]: : Eastern Norway Research Institute. .

[CIT0014] Guldvik , I (2001). . . Mellom brukerstyring og medbestemmelse ‐ Å jobbe som personlig assistent. [Between user‐control and participation ‐ To work as a personal assistant]. , Report no. 4[city: Lillehammer]: : Eastern Norway Research Institute. .

[CIT0015] Hagen , TP and Sørensen , RJ (1997). . . Kommunal organisering. [Municipal organisation]. , [city: Oslo]: : Tano Aschehoug. .

[CIT0016] Høringsuttalelser (1999). . . “Innkomne høringsuttalelser til “Høringsnotat. Utkast til endring i lov om sosiale tjenester ‐ om brukerstyrt personlig assistent”; fra Sosial‐ og helsedepartementet, pleie‐ og omsorgsavdelingen 10.03.99. [Comments from the hearing institutions to a consultative paper about the amendment to the Social Services Act concerning personal assistance, sent from the Ministry of Health and Social Affairs]. ”.

[CIT0017] Kjellberg , F (1988). . . “Local Government and the Welfare State: Reorganization in Scandinavia. ”. In The Dynamics of Institutional Change. Local Government Reorganization in Western Democracies. , Edited by: Dente , B and Kjellberg , F . Sage Publications. .

[CIT0018] Kjønstad , A and Syse , A (1997). . . Velferdsrett. , [city: Oslo]: : Ad Notam Gyldendal. . [Welfare law]..

[CIT0019] Kleven , T (1997). . . “Forholdet kommune‐stat i et legitimeringsperspektiv. [The relationship between municipality and state in a perspective of legitimacy]. ”. In Kommunalt selvstyre i velferdsstaten. [Local autonomy in the welfare state]. , Edited by: Baldersheim , H , Bernt , JF , Kleven , T and Rattsø , J . [city: Oslo]: : Tano Aschehoug. .

[CIT0020] Larsen , HO and Offerdal , A (2000). . . “Political Implications of the New Norwegian Local Government Act of 1992. ”. In Towards a New Concept of Local Self‐Government? Recent Local Government Legislation in Comparative Perspective. , Edited by: Amnå , E and Montin , S . [city: Bergen]: : Fagbokforlaget. .

[CIT0021] Montin , S (2000). . . “A Conceptual Framework. ”. In Towards a New Concept of Local Self‐Government? Recent Local Government Legislation in Comparative Perspective. , Edited by: Amnå , E and Montin , S . [city: Bergen]: : Fagbokforlaget. .

[CIT0022] NHF Oslo (2001). . . Brukerstyrt personlig assistanse i Oslo. En undersøkelse om brukernes, bydelenes og assistentenes erfaringer. [User‐controlled personal assistance in Oslo. A study of the users, the municipal districts and the experiences of the assistants]. , [city: Oslo]: : Norges Handikapforbund. .

[CIT0023] Odelstinget 14th December 1999, Sak nr. 2: Innstilling fra sosialkomiteen om lov om endring i lov av 13. desember 1991 nr. 81 om sosiale tjenester mv. (brukerstyrt personlig assistanse). [The Odelsting: The debate on the recommendation from the Standing Committee on Health and Social Affairs about incorporating personal assistance in the Social Services Act]..

[CIT0024] Oppedal , M (1993). . . “Den nye sosialloven. [The new Social Services Act]. ”. In Hvor gikk sosialomsorgen? [Where did the social welfare services go?]. , Edited by: Eskeland , S . [city: Oslo]: : Universitetsforlaget. .

[CIT0025] Ot. prp. nr. 29 (1990–91). Om lov om sosiale tjenester m.v. [Bill originating in the Odelsting (lower house of Norwegian legislature) about the Social Services Act]. Sosialdepartementet..

[CIT0026] Ot. prp. nr. 8 (1999–2000). Om lov om endring i lov 13. desember 1991 nr. 81 om sosiale tjenester m.v. (brukerstyrt personlig assistanse). [Bill originating in the Odelsting (lower house of Norwegian legislature) about incorporating personal assistance in the Social Services Act]. Sosial‐ og helsedepartementet..

[CIT0027] Rattsø , J and Sørensen , RJ (1997). . . “Kommunen som serviceprodusent/tjenesteyter: Hva forteller norsk kommuneforskning om kommunesektorens effektivitet? [What are the findings of Norwegian research regarding the efficiency of the municipalities as service producers?]. ”. In Kommunalt selvstyre i velferdsstaten. [Local autonomy in the welfare state]. , Edited by: Baldersheim , H , Bernt , JF , Kleven , T and Rattsø , J . [city: Oslo]: : Tano Aschehoug. .

[CIT0028] Regjeringens handlingsplan for funksjonshemmede (1994–1997). . . “[The Cabinets’ plan of action for the disabled]. Ressurssenter for Omsorgstjenester 1997. ”. In Brukerstyrt Personlig Assistanse. En begrenset evaluering av virkningen av stimuleringstilskudd til kommunene. [User‐controlled personal assistance. A restricted evaluation of the consequences of the financial contribution from the state to the municipalities], Rapport April 1997.

[CIT0029] Rose , L (1996). . . “Norway. ”. In Nordic local government. Developmental trends and reform activities in the post‐war period. , Edited by: Albæk , E , Rose , L , Strömberg , L and Ståhlberg , K . [city: Helsinki]: : The Association of Finnish Local Authorities. . Acta,.

[CIT0030] Sosialdepartementet (1993). . . “Lov om sosiale tjenester mv. Rundskriv 1–1/93. ”. [Circular to the Social Services Act].

[CIT0031] Sosial‐ og helsedepartementet (1999). . . “Høringsnotat. Utkast til endring i lov om Personal Assistance as a Strategic Game between State and Municipalities in Norway sosiale tjenester ‐ om brukerstyrt personlig assistent fra Sosial‐ og helsedepartementet, pleie‐ og omsorgsavdelingen 10.03.99. [A consultative paper about the amendment to the Social Services Act concerning personal assistance, sent from the Ministry of Health and Social Affairs]. ”.

[CIT0032] Sosial‐ og helsedepartementet (2000). . . “Brukerstyrt personlig assistanse. [User‐controlled personal assistance]. Rundskriv I‐20/2000 til lov om sosiale tjenester mv. [Circular to the Social Services Act]. ”.

[CIT0033] St. meld. nr. 23 (1992–93). Om forholdet mellom staten og kommunane. [White Paper: Concerning the relationship between the state and the municipalities]. Kommunal‐ og arbeidsdepartementet..

[CIT0034] Åström , K (1998a). . . “Normbildning och beslutsfattande. [Creating norms and making decisions]. ”. In Politik, lag och praktik. lmplementeringen av 1994 års handikappreform. [Politics, law and practise. The implementation of the reform for the disabled in 1994]. , Edited by: Bengtsson , H . [city: Lund]: : Studentlitteratur. .

[CIT0035] Åström , K (1998b). . . “Funktionshindrade mellan SoL och LSS. [The disabled between SoL and LSS]. ”. In Politik, lag och praktik. lmplementeringen av 1994 års handikappreform. [Politics, law and practise. The implementation of the reform for the disabled in 1994]. , Edited by: Bengtsson , H . [city: Lund]: : Studentlitteratur. .

Reading: Personal assistance as a strategic game between state and municipalities in Norway

Original Articles

Personal assistance as a strategic game between state and municipalities in Norway

Author:

Jan Andersen

Political Science. Faculty of Health and Social Studies, Lillehammer University College, Norway, NO

About Jan

X close

Abstract

References