The European Union's social dimension: From market to welfare?

This paper outlines the development of social policy-making in the EU (European Union). It argues that contrary to the prognoses and judgements of many observers, the social dimension is rapidly emerging as a key factor in EU policy-making and governance. In some policy areas, the development entails reinforcement and elaboration of earlier policy considerations, for instance, in the area of occupational safety and work environment. Other policy developments – in the areas of employment, public health, food, anti-discrimination, gender equality, and fundamental rights – are largely recent, having emerged in the 1980s, and give an entirely new profile to EU policy-making and governance. The paper also argues that ‘soft laws’ and ‘non-legislative measures’ characterize some of the most significant developments in the general area of social policy. This is largely due to the requirement under EU rules that unanimity is necessary for legislation addressing social issues. However, even ‘hard’ social laws have been established in policy areas where the issue can be framed in terms of single market considerations. The theoretical approach in the paper builds on the new institutionalism. Institutional analysis is combined with cultural analyses, e.g. the role of framing, definitions of reality, and conceptualizations of problems and solutions. The concepts of public policy paradigm – and paradigm shifts – are introduced and applied to the transformations taking place in EU policy-making and governance.