The causal mechanisms behind expansive basic universalism in Kosovo

The majority of Kosovo’s public social welfare provision is today spent on basic universal programmes, namely, old-age pensions, healthcare services and child benefits. These programmes are tax-financed, citizenship-based and unconditional with regard to other criteria. Such expansive basic universalism is unusual for the Western Balkans and the rest of post-socialist Southeastern Europe. The first two of these programmes emerged through a complex process of policy formation led by powerful international organisations (IOs). The third programme was more recently initiated by the first-ever left-wing majority that came to power after two decades of democratic elections, implementing a manifesto that endorses a progressive policy mix. This outcome is counterintuitive: the IOs would be naturally expected to lean towards means-tested, targeted programmes, and Kosovo to crystallise into a (neo)liberal welfare regime (path-dependency). The article examines the detailed causal mechanisms that intervened in producing the outcome. Basic universalism has already had a significant impact in Kosovo by contributing to poverty reduction, the size of overall social protection expenditure and citizenship-building, and by serving as a good policy standard.