New Deal for Lone Parents: evaluation of innovative schemes
A hard copy of this report summary can be obtained by contacting Paul Noakes [E-Mail: Paul.Noakes@dwp.gsi.gov.uk] or by writing to him at the 'Social Research Division, Department for Work and Pensions, 4th Floor, Adelphi, 1-11 John Adam Street, London WC2N 6HT'.
Research Report No. 89
By Kandy Woodfield and Helen Finch
This report presents findings from the evaluation of the innovative schemes run by voluntary sector organisations which were set up in parallel with Phase One of the New Deal for Lone Parents, and designed to help lone parents on Income Support to take up paid work. The research was undertaken by Social and Community Planning Research between November 1997 and March 1998. The study involved consultation, through in-depth interviews and focus groups, with users of the schemes and with scheme organisers or staff.
- Six voluntary sector schemes were evaluated: a telephone advice line for lone parents; a printed information booklet for employers; and four schemes working directly with lone parents over a period of time, providing training or guidance. Each scheme put a different emphasis on the barriers to employment that it addressed.
- There was a mixed response schemes working directly with lone parents, and although the schemes did not meet their targets in terms of the number of lone parents moving into jobs, some achieved positive results, moving lone parents closer to being work-ready.
- There is no ‘blueprint’ for an ideal scheme. However, the evaluation identified the following key elements as being particularly valued by lone parent participants: a flexible approach that can be tailored to individuals' needs; a holistic approach taking a wider view than ‘getting a job as soon as possible;' the opportunity to meet other lone parents, providing mutual support; and links with other agencies and service providers.
- Other important features of a successful scheme included: affordable, reliable child care; confidence building; jobsearch guidance; work experience and placements; vocational skills training at an appropriate level; and exit guidance and on-going support. As with the New Deal for Lone Parents, there is an 'adviser effect' and staff members have a great impact on the experiences and outcomes of participants.
- The information booklet was viewed by employers as a useful reference source. The booklet was felt to be particularly appropriate for smaller employers. However, the business case for employing lone parents was not felt to be entirely convincing and there were some reservations about the booklet’s design and layout.
- The telephone line met with a very positive response from callers. Overall, the impact of the telephone line extended beyond the provision of information or advice. It played a role in improving confidence and facilitating further action on the part of the caller.
Introduction
The NDLP is a programme of back-to-work help for lone parents on Income Support. Phase One was launched in July 1997 in eight areas around the UK, based on Benefits Agency districts. It offers a tailored package of help and advice on jobs, benefits, training and child care, through the provision of advisers (or caseworkers) who work on a one-to-one basis with participants. Lone parents with school age children (aged 5 years 3 months and above) are invited to participate in the programme; lone parents whose youngest child is below school-age may ‘opt in’ to the programme by requesting to participate. In parallel to the NDLP, contracts were awarded by the DSS, following a competitive tendering exercise, to deliver six innovative schemes. The schemes, whilst also designed to help lone parents into work, adopted different strategies to those of the NDLP.
The innovative schemes
Six schemes were evaluated, all located in the voluntary sector. They included a telephone advice line for lone parents, a printed information booklet for employers, and four schemes that worked directly with lone parents over a period of time, providing training or guidance. The four schemes that worked directly with lone parents offered a varying mix of elements on such aspects as careers guidance, job search skills, workplace skills, IT access/training, business skills and employment advice. The extent to which work experience or work placements were offered, or child care provided (on or near to the site), and the emphasis placed on either a group or an individual one-to-one format (or both), varied.
Each scheme put a different emphasis on the particular barriers to employment that it addressed. The manner by which the barriers were addressed also differed. To differentiate between the four schemes that offered direct training and advice and to distinguish the essence of each approach, they were labelled respectively as: a “job guidance approach”“, job club approach, tailored menu approach, and motivational approach”.
Job guidance approach
Scheme C provided a six week course of job search skills and careers guidance. The key elements of the scheme included: job search skills and career guidance provided through group sessions and one-to-one mentoring, access to information technology, confidence-raising & motivational work through group sessions, an employment recruitment register advertising job vacancies on-site, work placements both on-site and with external employers, post-course support for participants. The scheme also provided free child care for under-5’s at a nearby local authority nursery.
Job club approach
Scheme D offered back to work or self-employment advice and training. It provided a ten week course offering the opportunity to gain credits towards an NVQ in Administration (Level 1 & 2) and receive support and guidance in relation to job seeking and work readiness. The scheme resembled the Job Club model of help for the unemployed with a focus on job search skills and preparing for work but with additional on-site training towards a vocational qualification. The key elements of the scheme were: vocational skills up to Level 2 NVQ, access to IT training packages, work experience and one-to-one guidance.
Tailored menu approach
Scheme E offered the following key elements were: vocational skills training, individually tailored provision, a Job Link worker providing one-to-one support and guidance with job search skills and Back to Work Refresher courses. The scheme also offered: business/self-employment skills and advice, business plans & business courses. Work placements were offered. There was ongoing post-course support available for participants, including one-to-one counselling and access to IT facilities. The scheme also provided free on-site child care in its existing nursery or offered a contribution towards child care costs. The scheme developed a lone parents Networking Forum.
Motivational approach
Scheme F provided a 12 week course. A key emphasis of the course was to raise the confidence and self-esteem of participants by broadening their horizons through self development. The key elements of the course were: group activities relating to motivation and work preparedness/workplace skills but also personal sessions and after care on leaving the scheme. In addition to the motivational elements, the scheme provided: job search skills, advice and information relating to jobs, further training, self-employment and business start up. The scheme was able to provide occasional child care for day seminars by making use of a local authority mobile crèche.
User perspectives on the schemes
Scheme A - The employer information booklet
This was welcomed by the employers interviewed as a useful reference source on lone parent issues, with its information presented in an accessible form. Although the booklet was intended to focus exclusively on issues relating to lone parents, this specific targeting was questioned by employers. They felt that many issues addressed in the booklet were equally applicable to a wider section of their workforce including any employees with parenting or caring responsibilities. Information on working benefits (such as Family Credit) was appreciated and the case studies were welcomed (with a call for even more detail). The booklet was felt to be particularly appropriate to smaller employers, who would be less likely to have family-friendly policies (some larger employers felt there was an element of ‘preaching to the converted’). Nevertheless, they stressed the difficulty of implementing some of the booklet’s suggestions and wanted more information on how to do this in practice, for example on how they could start an employee mentoring scheme or on what the implications would be of developing a child care strategy for their company. The business case for employing lone parents was not felt to be entirely convincing and some reservations were also expressed about the booklet’s design and layout.
Scheme B - Telephone advice line
This met with a very positive response from callers. It was regarded as a valuable service, providing information in a readily-accessible way (with no need to leave home, and the chance to remain anonymous), from an agency trusted as specialising in issues of lone parenthood. Staff answering calls were deemed sympathetic, non-judgemental and good listeners. Often it was found that they were able to help beyond the scope of the original query, and information given was perceived as accurate and printed follow-up materials sent by post were appreciated. The only criticism was that, as a national service, the advice line was not able to provide detailed local information. Callers suggested two improvements: that access be widened even further (in terms of cost/hours/more lines), and that the additional option of meeting an adviser face-to-face in a drop-in advice surgery might be offered, especially where the case was complex. However, these suggestions take no account of the limited resources of the provider, and the fact that their geographical location would make face-to-face drop-in sessions impractical. Overall, the impact of the telephone line extended beyond the provision of information or advice. It played a role in improving confidence and facilitating further action on the part of the caller.
Scheme C - The job guidance approach
Response to this particular scheme was mixed. There was strong appreciation of the provision of free child care and free travel allowances (crucial to the attendance of some). The teaching of job search skills (e.g. in relation to CVs, application forms and interview techniques) was found valuable, as was provision of information on state benefits and return-to-work costs, and access to resources such as IT, reference facilities, telephoning and photocopying. The scheme also incorporated a group element which was found beneficial.
On the negative side, the scheme was experienced as rather disorganised, lacking structure, with sessions often late in starting; there were problems with uneven staffing due, for example, to staff shortages or changes; IT training was seen as insufficient; and links with employers, as promised in the scheme’s promotional literature, proved unsatisfactory. Overall, this led to varied outcomes for participants. Some participants experienced gains in confidence and broadened horizons, had grown more accustomed to work routine, and developed IT and job search skills. Others however, felt strongly disappointed.
Scheme D - The job club approach
This scheme also met with a mixed response. There was some appreciation of a businesslike, professional approach offering a stepping stone to work. Some help was gained with job search skills (CVs, application forms, interview techniques) and advice on business projects was valuable to some participants, as well as access to IT resources and a good reference section. Those who took part in work experience through the scheme, on the whole, found this valuable. Yet criticisms were expressed. A key point related to a perceived insensitivity to the diversity of the lone parent population, to individual needs, as well as to general issues associated with lone parenthood. As a result, the scheme was experienced by many as inflexible. It was felt to lack attention to individual participants’ needs for advice, support or motivation to broaden individual horizons. The approach was considered too specific and narrow. It placed a clear emphasis on participants who had little or no skills or work experience (all had to take a basic level NVQ in secretVerdana and administrative skills for example, whatever their background). This did not suit all participants. Other stumbling blocks concerned the lack of practical support with child care and limited follow up support. Little use was made of the group dynamic, beyond teaching, to build confidence. Outcomes were mixed; some participants found the job search skills and business advice useful, others, demoralised by the low level and rigidity of the vocational training, were left with unmet needs.
Scheme E - The tailored menu approach
There was an emphatically positive response to this scheme. As well as one-to-one advice and guidance (including business advice), the opportunity to use a number of further training options was appreciated, including IT and other skills training on site, and opportunities for work experience. The free on-site child care was welcomed and the commitment and sensitivity of the scheme organiser was particularly praised. There was also a successful ‘Lone Parent Network’ group that met regularly as a vehicle for talks and peer support which was run by lone parent participants. The focus on African Caribbean clients was appreciated by some, though for others was unimportant. There was some evidence that this focus might deter potential clients of other community groups. The only criticism (and this was little expressed) related to variable post-scheme support due to pressures on staff time, and a slight feeling that the scheme might be under-publicised. There were hugely positive outcomes reported, turning round confidence and motivation, broadening horizons and moving people on, into or towards training or jobs.
Scheme F - The motivational approach
This scheme also met with an emphatically positive response. This was due largely (as with Scheme E) to its focus on the individual, offering tailored options, without necessarily plunging in directly and solely to job-related issues, but beginning by fostering confidence and motivation according to individual need and then working towards individual goals. The additional element of group support (with groups headed in this scheme by staff rather than participants) was also very much valued, as was a module on ‘self development’. All this was additional to teaching job search skills, intensive preparation for job interviews (including role plays using video equipment) and business advice. The provision of a mobile crèche on site was appreciated when available. Staff were valued as very supportive and sensitive to lone parents’ needs, both on the scheme and after. There was some criticism of rather dated IT equipment (no formal IT training was available on site but participants were referred elsewhere for this as necessary). The scheme received great praise from participants. Outcomes were described in terms of increased confidence and self esteem, and broadened horizons and ambitions, as well as the acquisition of skills useful for job search or work.
Implications for effective practice
It seems unlikely that there can be a ‘blueprint’ for an ideal scheme to help lone parents into work. Many factors affect outcomes, including those related to the local labour market and others to do with the scheme’s contractual obligations. However, because elements across the schemes in this study varied, and each of these elements met with consistently positive or negative responses from the lone parent participants, it is possible to draw implications from what was valued (or not) and why. Elements that were especially valued in those schemes directly involved with lone parents over a period of time (like Schemes C-F) have implications for the design of similar schemes in the future. Findings suggest the need for the following key elements:
- a flexible rather than rigid approach, allowing individual diversity among participants; (able to respond or adapt to varying needs, tailored to suit the individual, so that rather than following a set structure, the route through the scheme could to an extent be participant-led);
- a more holistic approach, in some cases taking a wider view of an individual’s needs than those relating to getting a job as soon as possible (for example broadening horizons or first addressing emotional and other issues as help along the way to a job, if these were barriers to work); an aspect of this would be:
- an agenda to include the building of participants’ self confidence;
- attention to be paid to the crucial importance of the scheme staff or organisers; judging from participants’ accounts, successful schemes were led by exceptional staff. These individuals acted as mentor, motivator, enabler, almost a ‘good parent’ to the participant. They were understanding of lone parents’ issues or problems, non-patronising and non-judgemental. This appeared to make a huge impact.
- opportunities for participants to meet others in a group; groups worked especially well for some participants. They combated the isolation often experienced as a lone parent, provided mutual support and an arena for learning from the experiences of others. Schemes which did not offer this component missed an opportunity to use the lone parent participants themselves as a resource in helping each other
- links with other agencies, service providers and employers to provide maximum support to the individual lone parent, whatever their needs, when moving into training or work.
These features were additional to the need to offer more direct job search skills, which included:
- job search guidance and advice, and job search skills training;
- use of resources such as IT, vacancy bulletins, newspapers, telephones;
- work experience/work placements;
- self-employment advice/help;
- vocational skills training or signposting to this;
- exit guidance and continuing support.
The other important feature, seen as an essential resource, is the provision of child care, or financial support for child care with flexible child care choices. This was said to offer the added benefit of helping participants to become accustomed to leaving their children in the care of another person, as they would in a working routine.
Further implications from the key features described above include the need to consider:
- the personal qualities, background or training of the scheme organisers and staff;
- a broad definition of outcome measures, beyond numbers placed in work, when assessing such schemes. Broadened horizons and raised expectations of the lone parent participants were found to be a positive outcome of the above approach. This in itself was considered a valid, if unquantifiable, outcome, that moved some participants nearer towards sustaining a lasting job even if paid employment was not achieved in the short-term.
A particular difficulty for organisers, when starting up a scheme, involved the initial recruitment of participants which was found to take some time. This was facilitated where links existed with other organisations who could provide access to the target population.
The Innovative Schemes and the New Deal for Lone Parents
SCPR undertook an extensive research study at the same time as the research into the innovative schemes to evaluate the impact of Phase One of the New Deal for Lone Parents prior to its national implementation. (“The New Deal for Lone Parents: Learning from the Prototype Areas”, DSS, 1999). This enabled the research team to compare some elements of the two programmes.
Awareness of NDLP varied among the innovative scheme participants. During the interviews they were given a brief outline of its elements and asked to comment on the schemes in comparison. Scheme organisers had a high awareness of the New Deal for Lone Parents. Compared to NDLP, the most effective innovative schemes were thought to be:
- better able to provide intensive support, for example offering lone parents more time, a wider agenda, and the ability to include a group element;
- more likely to enable participants to achieve lasting jobs, even if in doing so the process took longer. Some concern was expressed that the New Deal for Lone Parents would solely address job needs to the exclusion of other factors which could remain as barriers to long term job prospects, such as low self-confidence.
Problems with recruitment were more acute for the schemes than for Phase One of the NDLP. Yet as scheme participants were self-referred, they were a more motivated group than some of those targeted by NDLP. The innovative scheme participants were more equivalent to those who volunteered to participate in Phase One of NDLP. These participants sought out New Deal provision rather than waited to respond to invitations from NDLP advisors. It was notable that proportionately more of the scheme participants, than among the participants of Phase One of the NDLP, had higher level educational qualifications (degree level or equivalent).
The role and ability of NDLP personal advisers was found to be central to participants’ experiences of NDLP, researchers noted an equivalent ‘organiser effect’ in the innovative schemes. Those who had participated in the innovative schemes found the role and ability of the scheme organisers critical to the success of the scheme.
Finally, it was believed by both the lone parents and scheme organisers, that the schemes could perform a useful role alongside the New Deal for Lone Parents. In particular, by providing access to:
- vocational skills training, leading to marketable qualifications;
- guidance and support in the development of personal transferable , such as communication skills; and
- a supportive environment, bringing lone parents together and tackling feelings of isolation.
Relevant publications
Bryson A and Marsh A (1996) “Leaving Family Credit”, Department of Social Security Research Report No. 48, London: HMSO
Finch H, O'Connor W with Millar J, Hales J, Shaw A and Roth W (1999) “The New Deal for Lone Parents: Learning form the Prototype Areas, ”Department of Social Security Research Report No. 92, Leeds: CDS
Finlayson L and Marsh A (1998) “Lone Parents on the Margins of Work, ”Department of Social Security Research Report No. 80, London: CDS
Ford R, Marsh A and McKay S (1995) “Changes in Lone Parenthood”, Department of Social Security Research Report No. 40, London: HMSO
Ford R, Marsh A and Finlayson L (1998) “What Happens to lone parents?, ”Department of Social Security Research Report No. 77, London: TSO
Hales J, Shaw A and Roth W (1998) “Evaluation of the New Deal for Lone Parents: A Preliminary Assessment of the Counterfactual, ”Department of Social Security In-house Research Report No. 42