Learning by numbers? The use of indicators in the co-ordination of social inclusion policies in Europe

The indicators developed for the open method of co-ordination (OMC) in social inclusion might, according to their authors, serve to establish a common language for the discussion of social inclusion issues, set the agenda for inclusion policies, and provide benchmarks for the identification of best practices. To examine whether 'learning by numbers' is taking place, this paper scrutinizes the use of the indicators in the area of child poverty and exclusion. The discussion uses a theoretical account of the institutional preconditions for the transmission of OMC-based learning into the policy processes of member states which distinguishes between 'normal policy-making' and 'paradigm shifts'. The indicators are designed to contribute to the advance of knowledge about normal policy-making, but it is shown that the OMC/inclusion disseminates a new policy paradigm which bears little relationship to the indicators.