Research and analysis

Summary: Evaluation of the Personal Support Package

Published 20 July 2021

Applies to England, Scotland and Wales

Authors: Amelia Benson, Tim Buchanan, Joe Crowley, Malen Davis, Anna Marcinkiewicz, Katariina Rantanen, Bethany Thompson and Karen Windle (National Centre for Social Research)

This summary presents the key findings from the evaluation of the first 18 months of the Personal Support Package (PSP).

The evaluation focuses on the implementation and delivery of the PSP as a whole and the implementation and delivery of the Health and Work Conversation (HWC) as an initiative integral to the PSP.

Background

The PSP was introduced in April 2017 for new claimants in the ESA Work-Related Activity Group (WRAG) and the UC Limited Capability for Work (LCW) group. Eligibility was later widened to all ESA and UC health journey claimants.

The PSP offer consisted of tailored support from Jobcentre Plus work coaches, in addition to a wide range of new and existing initiatives aimed at both work coaches and claimants.

The HWC was launched as part of the PSP. The purpose of the HWC was to help individuals to identify their health, personal and work related goals, draw out their strengths, make realistic plans for the future and build their resilience and motivation.

For ESA claimants, the HWC was held prior to the Work Capability Assessment (WCA) while for UC claimants on a health journey, work coaches are encouraged to use elements in their regular meetings.

Methodology

A mixed methods approach was used to evaluate the PSP and HWC. This included:

1. Evaluation of the PSP:

• PSP survey – a quantitative telephone survey with 1,808 ESA and UC claimants eligible for the PSP. Interviews took place between August and November 2018

• PSP case studies – 6 cases studies were conducted, four of which focused on the implementation and delivery of the Journey to Employment (J2E) initiative. The remaining 2 case studies explored the wider implementation and delivery of the PSP in areas where J2E was not available. The case studies consisted of 63 interviews with Jobcentre Plus (JCP) staff and external providers and 24 interviews with claimants

2. Evaluation of the HWC:

• HWC survey – A quantitative telephone survey was conducted with 1,006 claimants who were eligible for HWC. The survey took place in November and December 2018
• HWC case studies – 3 case studies were completed and consisted of 27 in-depth telephone interviews with JCP staff and 24 in-depth face to face interviews with ESA and UC claimants who had experienced HWC techniques

Key Findings

PSP key findings

Claimants health and readiness for work

The most commonly reported health condition among claimants was a mental health condition (83% of claimants). The majority of claimants (93%) reported having more than one health condition or disability.

Three-quarters of claimants (75%) reported that their health condition or disability caused them at least moderate problems when carrying out daily activities.

The majority of claimants in the PSP survey (93%) perceived their health as a barrier to returning to work.

9% of claimants who were out of work when surveyed said they could work now if the right job and support was available, 60% said work was a future option if their health improved, and 31% said their health ruled out work now and in the future.

Staff awareness and understanding of the PSP

Staff awareness of the aims of the PSP and the initiatives under it was varied.

Some staff were able to identify all elements that constituted the PSP, but most commonly staff were only aware of some of the initiatives available to claimants and unaware that existing provision had been altered or expanded to be incorporated into the PSP.

This may in part be due to the staggered rollout of some elements of the PSP and that some elements were only available in selected districts.

Type of support offered to claimants as part of PSP

JCP staff reported referring and signposting claimants to four main types of provision: pre-employment support or training in-work support; health and disability-related services; and other general provision.

Around two-thirds of claimants (65%) recalled being offered some form of general support, such as support with their job search, managing their health condition, making lifestyle changes, or developing an action plan.

14% of claimants recalled being offered one of the four external programmes highlighted in the PSP survey (J2E, Work Choice, Work and Health Programme (WHP) and Specialist Employment Support (SES)).

Decision-making and referrals to PSP and general provision

The most significant factor which influenced whether claimants were offered further support was the severity of their health condition and proximity to the labour market.

A range of factors influenced which provision work coaches referred claimants to. These included staff awareness of provision, promotion of provision by other staff, the work coaches’ relationship with particular providers and feedback of provision from previous referrals. The perceived likelihood of acceptance onto a programme and staff workload also played a part in determining referral pathways.

Support taken-up

Among all claimants in the PSP survey, 65% recalled being offered general support by their work coach, and 42% of all claimants reported taking up at least one of the support options offered.

7% of claimants said they took up at least one of the four external programmes included in the survey (J2E, Work Choice, WHP and SES). Take-up was highest for J2E, of the 8% offered J2E, 51% took up the programme.

Claimants reasons for taking up provision included wanting support with job applications, health-related issues, and confidence building.

From the qualitative analysis, there were three interrelated factors that influenced whether a claimant took up the offer of support: claimant motivation, the voluntary nature of participation and encouragement from work coaches and providers.

Barriers to taking-up support

The most common reason for not taking up support was poor physical or mental health, and a lack of confidence/ anxiety. In the case studies it was also reported that support was not taken up because the provision was not suitable for claimants’ health needs, for example, when mental health treatment or drug-dependency treatment was prioritised over PSP provision.

For some claimants who participated in the case studies, there was concern about the negative financial implications of moving into work. Negative perceptions of employment support also prevented participation.

Experiences of PSP support

Experiences were largely positive. Three quarters (75%) of claimants in the PSP survey who said they received support from a work coach reported that they had found it helpful and 59% felt the support had been suitable to their needs.

Those who said that their health ruled out work now and in the future were more likely (60%) to report that support they received was not suited to their needs compared to those who could return to work straight away in the right job (45%).

The qualitative case studies found that views of the J2E programme were particularly positive. Most J2E participants found the peer support valuable, and both claimants and staff viewed J2E providers positively.

However, a peer support setting was not always appropriate for people with social anxiety.

Outcomes from PSP support

Around two-fifths (42%) of claimants who had accessed support said that their confidence increased as a result of the support and advice they had received from their work coach.

46% of claimants said that the support and advice received had increased their motivation to find work.

Qualitative interviews with claimants who participated in J2E reported increased confidence in managing their own health condition, improvements in self-esteem, and confidence in looking for work.

Nearly half (44%) of claimants who had taken up support reported participating in work-related activities as a result of the support received.

Among those who took up support, 12% found some form of work. Eight % had found permitted work^{[footnote 1]}, 3% had found part-time work, and 3% full-time work.

HWC key findings

Training staff to conduct the HWC

The format, content and duration of the HWC training that staff reported receiving varied significantly. The training duration ranged from one hour to two days, and was delivered in a range of formats including face-to-face, e-learning, and as part of the wider UC work coach training programme.

Staff who undertook the longer training reported HWC training gave them a good understanding of the purpose and structure of the HWC. Less experienced staff valued learning new skills and improving their in-depth interviewing skills.

Delivery of the HWC

The majority of claimants recalled discussing their health / ability to work with work coaches, even if they could not remember the individual techniques used.

Overall, claimants were comfortable with the topics covered by the HWC. However, in general, claimants were less comfortable discussing their health than other topics. This may in part be a consequence of the use of open plan settings for the HWC.

The qualitative research across both ESA and UC case study areas found that work coaches did not always use all HWC techniques.

Factors affecting engagement with the HWC

For ESA claimants, the HWC was prior to the WCA. The timing created a challenge for ESA claimants, who were concerned that if they engaged in work-related discussions, this may prejudice the outcome of their WCA.

Claimants reported that location and surroundings could have a negative impact on engagement, with open plan offices limiting the extent to which they felt able to discuss personal or private issues.

Both JCP staff and claimants perceived that the HWC and accompanying techniques were less effective for certain claimant groups, particularly those closest to and furthest from the labour market.

Action planning, goal setting and follow-up

Around a third of claimants in the HWC survey (30% of UC and 30% of ESA claimants) recalled agreeing actions or goals in their meetings with work coaches.

ESA claimants were most likely to set physical and mental health related actions or goals, whilst those on UC were more likely to set work-related actions or goals. This could be connected to the timing of the HWC, which can occur much later in UC.

A majority of claimants who participated in the HWC survey and set actions or goals, felt that they were achievable (85% of ESA claimants and 81% of UC claimants).

Half of UC claimants (51%) and one fifth (21%) of ESA claimants reported having follow up contact with JCP regarding the actions or goals they had set. Where no HWC follow-up took place, almost half of all claimants felt it would have been useful (48% of ESA claimants and 49% of UC).

1. This is paid employment that ESA claimants can undertake if they work less than 16 hours per week and earn up to a maximum of £125.50 per week. ↩