Towards the consolidation of pilot initiatives for service integration: an exploratory study based on three notable cases in Spain
DOI:
https://doi.org/10.26754/ojs_ais/ais.20264812513Keywords:
Service integration, Social services, Governance, Leadership, SustainabilityAbstract
Service integration constitutes a fundamental strategy in the reconfiguration of contemporary welfare states under the social investment paradigm. These initiatives are proposed as a response to the structural fragmentation between social protection systems, a phenomenon identified as one of the main causes of their ineffectiveness. The relevance of this integrative approach takes on particular importance in the field of social services, a sector facing growing pressure due to the increase and intensification of current social risks.
In Spain, various innovative service integration initiatives have been implemented in which the social services system, coordinated with sectors such as employment, health and care, plays a central role. However, although these initiatives have been successful, they face significant obstacles in moving beyond the experimental phase and becoming permanently established.
This exploratory study aims to analyse the structural and operational factors that are key to the transition from technical experimentation to definitive institutionalisation within public social protection systems. To this end, a comparative analysis of three notable experiences of integrated care is carried out, examining them from the perspective of governance, leadership, funding and the care model.
The study’s findings reveal critical factors that determine the sustainability of these initiatives. These include difficulties in securing funding, the complexity of scaling up intervention models, coordination with existing programmes, and the need for strong government leadership.
This analysis aims to contribute to an understanding of the challenges and opportunities in the process of service integration, providing some valuable insights for the formulation of such initiatives in the future.
Downloads
References
Adelantado, J. (2018). Reestructuración de los Estados del bienestar. Cambios cuantitativos y cualitativos: El caso de España. Textos & Contextos, 17(1), 25-39.
ALTER. (2020). Claves y resultados del modelo de atención integrada de ERSISI (Proyecto ERSISI. Academic Papers). Gobierno de Navarra.
ALTER. (2022). Resultados de la evaluación de impacto del proyecto ERSISI: actualización a doce meses de finalizada la intervención (Proyecto ERSISI. Academic Papers). Gobierno de Navarra.
Arrieta, F., Zúñiga, M., y Etxeberria, B. (2024). Reorganizando los cuidados: Liderazgo(s) en la construcción de ecosistemas locales en el Territorio Histórico de Gipuzkoa. Investigaciones Regionales - Journal of Regional Research, 61, 123-136.
Barbier, J.-C. (2005). The European employment strategy: A channel for activating social protection? En J. Zettlin & P. Pochet (Eds.), The open method of co-ordination in action. The European employment and social inclusion strategies (pp. 417-446). P.I.E. Peter Lang.
Cantillon, B., & Van Lancker, W. (2013). Three shortcomings of the social investment perspective. Social Policy and Society, 12(4), 553-564. https://doi.org/10.1017/S1474746413000080
Casado Pérez, D. (2010). La descentralización territorial de los servicios sociales públicos. Problemas. En D. Casado Pérez, Leyes de servicios sociales del siglo XXI (pp. 177-200). FOESSA.
Chamberlain, P., Roberts, R., Jones, H., Marsenich, L., Sosna, T., & Price, J. M. (2012). Three collaborative models for scaling up evidence-based practices. Administration and Policy in Mental Health and Mental Health Services Research, 39(4), 278-290. https://doi.org/10.1007/s10488-011-0349-9
Champion, C., & Bonoli, G. (2011). Institutional fragmentation and coordination initiatives in western European welfare states. Journal of European Social Policy, 21(4), 323-334. https://doi.org/10.1177/0958928711412220
CIS. (2024). Actitudes hacia el estado de bienestar (No. 3487) [Dataset]. https://www.cis.es/es/detalle-ficha-estudio?origen=estudio&codEstudio=3487
Corlet, C., Druckman, A., & Jackson, T. (2021). Welfare systems without economic growth: A review of the challenges and next steps for the field. Ecological Economics, 186. https://doi.org/10.1016/j.ecolecon.2021.107066
Davidson, G., Duffy, J., Barry, L., Curry, P., Darragh, E., & Lees, J. (2012). Championing the interface between mental health and child protection: Evaluation of a service initiative to improve joint working in Northern Ireland. Child Abuse Review, 21(3), 157-172. https://doi.org/10.1002/car.1164
Devanney, C., & Wistow, R. (2013). Mapping the implementation of children’s trust arrangements. Journal of Children’s Services, 8(1), 65–77.
Ferrera, M. (2019). Do estado de bem-estar social ao estado de investimento social. En Welfare state: Os grandes desafios do estado de bem-estar social (pp. 209-228). LTr Editora.
Gallego, R., Subirats, J., y Gomà, R. (2003). Políticas sociales y gobierno multinivel en España. En R. Gallego, J. Subirats, y R. Gomà, Estado de bienestar y comunidades autónomas: La descentralización de las políticas sociales en España (pp. 213-229). Tecnos.
Germundsson, P., & Danermark, B. (2012). Vocational rehabilitation, interagency collaboration and social representations. Work, 42(4), 507-517. https://doi.org/10.3233/WOR-2012-1382
Golding, K. S. (2010). Multi-agency and specialist working to meet the mental health needs of children in care and adopted. Clinical Child Psychology and Psychiatry, 15(4), 573-587. https://doi.org/10.1177/1359104510375933
Goodwin, N., Stein, V., & Amelung, V. (2017). What is integrated care? En V. Amelung, V. Stein, N. Goodwin, R. Balicer, E. Nolte, & E. Suter (Eds.), Handbook integrated care (pp. 3-23). Springer International Publishing. https://doi.org/10.1007/978-3-319-56103-5_1
Hasse, S., & Austin, M. J. (1997). Service integration. Administration in Social Work, 21(3-4), 9-29. https://doi.org/10.1300/J147v21n03_02
Heidenreich, M., & Aurich-Beerheide, P. (2014). European worlds of inclusive activation: The organisational challenges of coordinated service provision. International Journal of Social Welfare, 23(S1). https://doi.org/10.1111/ijsw.12098
Heidenreich, M., & Rice, D. (2016). Integrating social and employment policies at the local level: Conceptual and empirical challenges. En Integrating social and employment policies in Europe (pp. 16-50). Edward Elgar.
Hemerijck, A. (2014). The reform capacities of European welfare states. En B. Cantillon & F. Vandenbroucke (Eds.), Reconciling work and poverty reduction: How successful are European welfare states? (pp. 238-259). Oxford University Press. https://doi.org/10.1093/acprof:oso/9780199926589.003.0008
Hemerijck, A., Ronchi, S., & Plavgo, I. (2023). Social investment as a conceptual framework for analysing well-being returns and reforms in 21st century welfare states. Socio-Economic Review, 21(1), 479-500. https://doi.org/10.1093/ser/mwac035
Hunter, D., & Perkins, N. (2012). Partnership working in public health: The implications for governance of a systems approach. Journal of Health Services Research & Policy, 17, 45-52. https://doi.org/10.1258/jhsrp.2012.011127
Inza-Bartolomé, A. (2015). La inversión social como respuesta a los Nuevos Riesgos Sociales. Revista Mexicana de Sociología, 77(3), 385-406.
Klenk, T., & Reiter, R. (2023). Taking stock of the promises of the social investment state. European Journal of Social Security, 25(2), 107-114. https://doi.org/10.1177/13882627231190049
Laparra, M., Gaviria, M., y Aguilar, M. (1998). Aproximación a la exclusión social. En J. Hernández Aristu y M. Olza Zubiri, La exclusión social: Reflexión y acción desde el trabajo social (pp. 19-50). Ediciones Eunate.
Laparra, M., Zugasti, N., y Sánchez-Salmerón, V. (2025). La respuesta de los servicios sociales ante los nuevos riesgos de la sociedad: Un análisis desde el paradigma de la inversión social. Dykinson.
Lara Montero, A., van Duijn, S., Zonneveld, N., Minkman, M., y Nies, H. (2016). Integrated social services in Europe: A study looking at how local public services are working together to improve people’s lives. European Social Network.
Legarreta-Iza, M., Villena-Camarero, U., y Martinez-Tola, E. (2025). Ecosistemas locales de cuidado de larga duración: una propuesta de evaluación. Investigaciones Regionales - Journal of Regional Research, 61, 137-154.
Lindsay, C., McQuaid, R. W., & Dutton, M. (2007). New approaches to employability in the UK: Combining ‘human capital development’ and ‘work first’ strategies? Journal of Social Policy, 36(4), 539-560. https://doi.org/10.1017/S0047279407001171
Marquina Márquez, A., de la Rosa Gimeno, P., Prieto Lobato, J. M., Rodríguez Sumaza, C., y Lucas García, J. (2024). Perceived effects of a home-based social care program on palliative care in Spain from the caregivers’ perspective. Social Work in Health Care, 1–19. https://doi.org/10.1080/00981389.2024.2427764
Martínez-Virto, L., y Sánchez-Salmerón, V. (2019). Regional inclusion policies in Spain: New approaches and keys to their effectiveness. Investigaciones Regionales, 2(44), 17-28.
Maxwell, J. (2009). The SAGE handbook of applied social research methods. Sage Publications.
Midgley, J. (2017). Social investment: Concepts, uses and theoretical perspectives. En J. Midgley (Ed.), Social investment and social welfare: International and critical perspectives (pp. 13-32). Edward Elgar Publishing.
Pérez Eransus, B., y Martinez Virto, L. (2020). Políticas de inclusión en España: Viejos debates, nuevos derechos. Un estudio de los modelos de inclusión en Andalucía, Castilla y León, La Rioja, Navarra y Murcia. CIS.
Prieto Lobato, J. M., De la Rosa Gimeno, P., Rodríguez Sumaza, C., Marquina Márquez, A., y Lucas García, J. A. (2024). Social work at the end of life: Humanization of the process. Journal of Social Work, 24(2), 240-258. https://doi.org/10.1177/14680173231206713
Prieto Lobato, J. M., de la Rosa Gimeno, P., Rodríguez Sumaza, C., e Izquieta Etulain, J. L. (2020). El modelo de inclusión social en Castilla y León: Trayectoria de las políticas de inclusión desde el año 1983 hasta el 2017. En B. Pérez Eransus y L. Martínez Virto (Coords.), Políticas de inclusión en España: Viejos debates, nuevos derechos: un estudio de los modelos de inclusión en Andalucía, Castilla y León, La Rioja, Navarra y Murcia (pp. 207-248). CIS.
Saltkjel, T., Andreassen, T. A., & Minkman, M. (2023). Conceptualising service integration for inclusive activation: Exploring transferal and translation of models from health care. International Journal of Social Welfare, 32(2), 149-163. https://doi.org/10.1111/ijsw.12539
Sánchez-Salmerón, V. (2025). El paradigma de la inversión social y sus implicaciones para los servicios sociales en España. En M. Laparra, N. Zugasti, y V. Sánchez-Salmerón (Coords.), La respuesta de los servicios sociales ante los nuevos riesgos de la sociedad: Un análisis desde el paradigma de la inversión social (pp. 29-47). Dykinson.
Sartori, G. (1994). Comparación y método comparativo. En G. Sartori y L. Morlino (Comps.), La comparación en las ciencias sociales (pp. 13-50). Alianza.
Sartori, G., Morlino, L., Russo, J., y Ruiz de Azúa, M. A. (2002). La comparación en las ciencias sociales. Alianza.
Silver, H. (2007). The process of social exclusion: The dynamics of an evolving concept (Working Paper No. 95). Brown University Chronic Poverty Research Centre.
Stebbins, R. A. (2001). Exploratory research in the social sciences. Sage Publications.
Winters, S., Magalhaes, L., Anne Kinsella, E., & Kothari, A. (2016). Cross-sector service provision in health and social care: An umbrella review. International Journal of Integrated Care, 16(1), 1-19. https://doi.org/10.5334/ijic.2460
Downloads
Published
Data Availability Statement
The authors declare that the database generated from the secondary sources used in the study is available to the Editorial Board.
Issue
Section
License
Copyright (c) 2026 Víctor Sánchez-Salmerón, Pablo de la Rosa-Gimeno, Felix Arrieta-Frutos

This work is licensed under a Creative Commons Attribution-NonCommercial 4.0 International License.
Authors publishing in this journal agree to the following terms:
- Authors retain copyright and grant the journal the right to be the first publication of the work as well as licensed under a Creative Commons Attribution-NonCommercial 4.0 license that allows others to share the work with an acknowledgement of authorship and initial publication in this journal.
- Authors may separately establish additional agreements for the non-exclusive distribution of the version of the work published in the journal (e.g., placing it in an institutional repository or publishing it in a book), with an acknowledgement of its initial publication in this journal.
- Authors are allowed and encouraged to disseminate their papers electronically (e.g., in institutional repositories or on their own website) before and during the submission process, as it can lead to productive exchanges, as well as earlier and higher citation of published papers (see The Effect of Open Access).




