Research and analysis

Summary: Intensive Activity Programme trial evaluation: claimant research

Published 4 August 2016

By Becci Newton, Jonathan Buzzeo, Rosa Marvell, Ellie Snowden and Alice Broughton

This summary presents key findings from qualitative research into Jobseeker’s Allowance (JSA) claimants’ experience of the Intensive Activity Programme (IAP), when it was implemented as a randomised controlled trial (RCT) in spring 2015 by the Department for Work and Pensions (DWP).

The IAP was a package of intensive support and structured activities that claimants had to complete within 21 days of making a new JSA claim. It was designed to facilitate effective full-time job seeking from the earliest stage of a claim, and thereby accelerate movement into work.

Participating claimants were required to complete a fixed curriculum over a 3-week period, while also conducting a comprehensive job search. The curriculum consisted of modules delivered through interactive workshops, work at home activities and follow-up appointments with work coaches.

The findings in the report derive from longitudinal in-depth interviews with claimants and structured, observational research in 3 Jobcentre Plus offices participating in the trial. DWP also conducted an impact assessment and research interviews with Jobcentre Plus staff delivering IAP. For a summary of the full evaluation evidence from across the RCT, including the impact on claimants’ movement into work, see the IAP evidence synthesis report.

1. The IAP theory of change

Prior to the qualitative fieldwork reported here, a theoretical model informed by policy intentions of how the IAP would help claimants to progress was developed. This theory of change acted as a benchmark against which claimants’ experiences and progress were evaluated, to understand if the policy intentions held true in practice.

The analysis drew on behavioural insights to understand claimant outcomes. The following findings are presented in sequence of each stage of the IAP claimant journey.

2. Key findings

2.1 Entry into IAP

The theory of change indicated that during the Initial Work Search Interview (IWSI) work coaches would encourage claimants to engage with the IAP by ‘selling’ the support and improvements it would bring about, and that claimants would not need to be mandated to attend.

In interviews, some claimants recalled being encouraged in this way by work coaches, who had explained that by taking part in the IAP they would have access to additional support from work coaches over and above what they could usually expect. However, other claimants reported that work coaches had not gone into detail about the benefits of IAP, which had made it hard for them to understand what, of value, might emerge from taking part. Many did not recall receiving information about what to expect from the workshops.

2.2 The intensive experience

Once assigned to the IAP, claimants quickly began the intensive experience and typically progressed through the curriculum and workshops within the first 2 weeks of their claim, in line with policy intent. Most claimants were happy with this speed and welcomed early support.

As expected by the theory of change, workshop wall displays were purposively designed for the IAP with the intention of creating a positive learning environment. This included visual aids, labour market facts and statistics, buzzwords that claimants could use in applications as well as a code of conduct for IAP participation.

IAP workshop facilitators were generally viewed positively by claimants. They were perceived as effective in encouraging claimants to contribute to group discussions and in ensuring each claimant’s input was valued. Claimants described the workshop experience as inclusive and comfortable. In line with the theory of change, staff were seen to be most capable when they tailored workshop content to claimants’ situations and circumstances.

There was substantial evidence of information being shared between claimants, with some providing advice and support to others based on their experiences. The theory of change anticipated that being part of workshops that were formed of claimants with different personal characteristics and backgrounds would facilitate greater learning. There was evidence that individuals with more knowledge of particular job-search approaches benefited others, for example, by giving advice on using the situation, task, action and results (STAR) technique or how to ask about salary levels in job interviews. The mixed groups also showed some claimants that they were not isolated in their experiences of unemployment. However, some wished to be grouped with people from similar sectors or with similar levels of experience. Moreover, some found self-disclosure was easier where they shared characteristics with other group members.

Claimants held mixed views of the work they were to complete at home following each workshop. While some commented that these activities had helped them to practice a wider range of job search skills, others felt that some of the tasks were not relevant to their circumstances.

The area where some claimants’ experience departed markedly from the theory of change was in relation to the feedback and support they received on the activities they completed for IAP. While some claimants reported receiving detailed feedback on activities, others said that work coaches had simply checked that activities had been completed.

2.3 Claimants’ outcomes

Claimants derived practical benefits from IAP, including improvements to the structure and content of curricula vitae (CVs), cover letters and applications. They also noted that they had picked up helpful hints and tips and local labour market knowledge from work coaches as well as other claimants.

Claimants drew a link between the IAP activities, new information received and an expanded job search to new regions, positions and opportunities for work. This matched an assumption in the theory of change that IAP activities would bring about behavioural change by increasing individuals’ job-seeking skills or capability.

Further, some individuals were as or more positive about their search for work following participation. However, obstacles such as a lack of local job opportunities, rejection by employers or ageism from employers could demotivate individuals. This indicated that the continuation of IAP approaches until the claim ended would be particularly important for individuals who did not move swiftly into employment.

While intermediate outcomes were not closely specified in the theory of change, claimants identified some. Where claimants wanted to develop their job-search skills, the opportunities afforded by IAP were effective in increasing motivation to deploy freshly-honed techniques, providing they engaged, and saw the curriculum and/or the contribution of others in workshops as relevant to their needs.

Claimants who perceived their updated job-search skills had improved their applications were also more motivated to sustain these behaviours. Where validation of their efforts and development did not come from employers, and where claimants could not see results such as improvements to their job search, these benefits started to wane. As such, some claimants who initially benefited from the IAP were at risk of regressing.

3. Lessons learned

• Voluntary engagement in the IAP was not a crucial lever in achieving outcomes. Nonetheless, wanting to take part remained valuable to positive engagement with the IAP.

• There was space for greater personalisation in the referral process in order to better accommodate the needs of claimants with health problems and disabilities, caring responsibilities and anxiety-type disorders.

• While personalisation within IAP support was seen as valuable by claimants, ensuring consistency in ‘the sell’ and that all claimants understood the benefits of participation would have increased commitment to the IAP and motivation to attend workshops.

• Tailored advice during workshops and in meetings increased claimants’ belief in work coaches’ competence. It also increased the relevance and retention of IAP messages.

• Flexibility on activities similarly increased the relevance to individuals’ situations/circumstances.

• Validation and continued encouragement was important to claimants’ progress, but was a weaker element of delivery. There needed to be attention to quality, as well as to providing feedback and motivating claimants. Where this was done well, it helped claimants to improve their job-seeking activities, and to be motivated to persist in applying techniques to a high standard throughout their claim.

• It was particularly important that work coaches provided validation of progress where claimants did not receive this from other sources such as employers, or seeing their outcomes improving. This could be particularly effective to claimants sustaining the momentum established early on in their claim.

4. Policy implications

The qualitative research into claimants’ experiences of IAP shows very positive signs. The findings indicate that the IAP offers something of value to most who take part, as the theory of change expected. Gains included increased confidence and motivation as well as improved understanding of how to present CVs, covering letters and so forth. The techniques and approaches gained meant that many claimants believed their outcomes had improved.

Nonetheless, the IAP could be strengthened to ensure that maximal results are achieved with most claimants. Key recommendations include:

• Many claimants did not feel well informed about the IAP prior to their first workshop. While this did not deter their engagement, they could have been better prepared. On this basis, a greater focus on prior self-assessment of job-seeking skills could help claimants understand their own situation before the workshops as well as more about what the workshops would cover.

• Claimants who did not rapidly find work would have benefited from detailed, ongoing coaching to help sustain their gains, and to keep the quality of their job-search activities high. This would be valuable alongside consideration of obstacles to employment that they may face.

Read the full report – Intensive Activity Programme trial evaluation: claimant research