Memorandum submitted by the Royal Association
for Disability and Rehabilitation (RADAR) (SG27)
INTRODUCTION
This paper responds to the Social Security Select
Committee and the Employment Sub Committee's inquiry into the
Single Work-focused Gateway.
RADAR is a national disability organisation
working on behalf of disabled people, irrespective of their type
of impairment.
The organisation has three main functions:
— The first is to provide information
on all aspects of disability except medical, dealing with around
23,000 enquiries per annum and other staff dissimulate information
as part of their work.
— RADAR has around 500 self-governing
organisations in membership whose interests we seek to represent
in all aspects of our work.
— RADAR carries out work on all of
the major social policy areas affecting disabled people: anti-discrimination
legislation, health, education, employment, social security, community
care, independent living and transport.
RADAR has a well established Education, Training
and Employment Committee. The Committee consists of people with
expertise from a wide range of organisations and examines issues
concerned with the educational and employment opportunities available
to disabled people. RADAR has also carried out extensive research
into existing employment support initiatives, such as the Employment
Service's "Access to Work" scheme. RADAR has therefore
been able to draw upon its own expertise, from staff and members,
and the experience of other organisations.
RADAR welcomes the opportunity to contribute
to the work of the Committee.
1. BACKGROUND
1.1 There are approximately 8.6 million
sick and disabled people in the UK. This represents 17 per cent
of the working population. In the winter of 1997-98 2.5 million
disabled people were in employment. This constitutes an employment
rate of 42 per cent, compared with 80 per cent of non-disabled
people. (Source: Labour Force Survey, Winter 1997-98).
1.2 RADAR believes that disabled people
have a right to the same range of opportunities as non-disabled
people and this includes employment. Disabled people have an enormous
wealth of skills and expertise to bring to the workforce and,
for many disabled people, employment aids social integration,
raises self-confidence and heightens aspirations.
2. INFORMATION
PROVISION
2.1 RADAR advocates that a major obstacle
to disabled people fulfilling potential is the provision of coherent,
unambiguous and accessible information. Information for disabled
people concerning opportunities, including employment, needs to
be provided in a way that meets the individual disabled person's
requirements. Not only does the information need to incorporate
the requirements and concerns of a wide range of disabled people
but also be perceived as relevant to the circumstances of the
individual. To achieve this the information must be delivered
in a clearly structured framework with disabled people understanding
the divisions of responsibility of the different information providers.
This enables a disabled person to identify sources of information
and advice and utilise services.
3. DELIVERING
AN APPROPRIATE
AND REALISTIC
SERVICE
3.1 RADAR believes that a modern, flexible
and integrated approach needs to be adopted in aiding disabled
people to gain a greater degree of independence and that employment
is a realistic goal for many disabled people. However, it must
be recognised that, for a significant number of disabled people,
employment is neither an appropriate nor realistic option. A recent
review of disability benefits by Richard Berthoud (see: "Disablity
benefits, a review of the issues and option for reform",
Richard Berthoud, Joseph Roundtree Foundation, 1998) cast considerable
doubt on the Government's assertion that over one million disabled
people wanted to work. His analysis of the number of disabled
people affected by the reforms made to Incapacity Benefit revealed
that instead of the expected 240,000 existing claimants losing
their benefits, as a result of the stricter test, only about 160,000
ex-Invalidity Benefit claimants left the register over the next
two years. This was partly because of slow administration but
moreover because more candidates than expected "passed"
the new test. This would cast doubt on the view that a large proportion
of claimants are capable of work. RADAR is concerned that an over-emphasis
on the "work first" model, within Single Work-focused
Gateway, could further disengage disabled people who are unable
to work from pursuing alternative activities.
3.2 RADAR is concerned about the introduction
of compulsory interviews for disabled people entering the Single
Work-focused Gateway. Whilst the early provision of help and support
is to the advantage of the disabled person, there is a danger
that the concept of compulsion may lead to a misconception by
a participant about the purpose of the interview. Some disabled
people who claim benefit may perceive a compulsory interview as
a sanction for a failure to find an alternative. This could lead
to mistrust by the disabled people, resulting in the initiative
being less effective as a positive tool towards employment.
3.3 RADAR welcomes the proposals to streamline
the institutions and agencies that come into contact with disabled
people seeking employment. Many disabled people are in contact
with a large number of agencies, bodies and organisations. A single
point of contact is not only likely to result in improved sign
posting and information provision but also add enthusiasm, by
the client group, for the initiative. However, it is important
that disabled people are aware and can clearly identify distinct
divisions of responsibility of the departments involved. This
needs to include how different departments such as the Benefits
Agency and Employment Service collaborate and the level and type
of support that can be provided by each. Evidence in the past
has suggested that disabled people have not been adequately informed
of the role of agencies. An example is the Employment Service's
Access to Work scheme. Research by RADAR and the RNIB identified
that lack of awareness of the scheme and information on the type
of support it can provide, together with the way the Employment
Service operates, constituted the principal reasons for its low
take-up (See "Access to Equality", an analysis of the
effectiveness of the Access to Work scheme" RADAR and RNIB,
1995).
3.4 RADAR acknowledges that technology has
a role to play in providing information and support. Indeed for
some disabled people the use of telephone help-lines and the Internet
can greatly ease information gathering. However, mass information
provision through central points like call-centres will not always
meet the needs of all participants and may cause disproportionate
difficulties for disabled people. Some disabled people have conditions,
such as poor dexterity and/or speech impairments, that hinder
the ability to use mass information-providing tools. This has
become evident during the growth of other technology-based services
such as telephone banking. RADAR is aware, through calls to its
Information Department and direct contact with its members, of
a number of difficulties that disabled people have encountered
using these services. These have included automatic referral systems
not being able to recognise speech or actions needed to obtain
services. This has, on occasions, resulted in the disabled person
receiving a lesser service or being denied access altogether.
RADAR would want to ensure that where technology is used to provide
information it remained one of a number of options with disabled
people having continued access to one-to-one support from an appropriate
source.
3.5 RADAR welcomes the proposal that private
and voluntary organisations could become an integral part of the
Single Work Focused Gateway. Many disability organisations and
private bodies are able to bring expertise that can assist disabled
people to progress. However, this will need careful management
within a clearly defined framework to ensure consistency and quality
of service. All parties need to be aware of their responsibilities
and these need to be communicated effectively to the client.
4. MONITORING
AND EVALUATION
4.1 The development of the mainstream New
Deal and New Deal for Disabled People has already prompted discussions
by disability organisations and officials on how to evaluate services
effectively where consortia are involved. A two-strand approach
consisting of how the service providers perceive themselves and
how clients perceive them is evolving as a best practice approach.
RADAR would endorse this approach and stress the importance of
the "partnership model" ensuring that the client remains
central to the monitoring and evaluation process and that modifications
are made to the service level agreement when necessary.
4.2 RADAR understands and agrees with the
need for piloting the Single Work-focused Gateway. Whilst RADAR
agrees that the development of the initiative requires a comprehensive
evaluation within a practical time scale, it is clear that a longitudinal
study will be required to evaluate the ability of the Single Work-focused
Gateway to provide sustainable opportunities to disabled people.
This initiative will ultimately be measured by its ability to
reduce the number of disabled people who are long-term unemployed.
5. THE SINGLE
WORK-FOCUSED
GATEWAY AND
THE BENEFIT
SYSTEM
5.1 RADAR accepts that the current benefit
system is in need of reform and that some factors within the benefit
system can prevent many disabled people having the opportunity
to reach their full potential in a range of areas including employment.
An impairment often results in a loss of earning capacity and
disabled people are recognised as a low-income group. This, coupled
with the well-documented disability-related expenditure which
is often under estimated (see Kestenbaum, A. 1997 "Disability
Related Costs and Charges for Community Care. London DIG"),
makes it imperative that the benefit system provides an adequate
level of income.
5.2 RADAR welcomes the Government recognition
of the need to reform the benefit system to remove financial disincentives
to employment. A range of factors exists which encourage a disabled
person not to pursue opportunities, including employment. This
can result in the disabled person becoming inactive, disengaged
and losing confidence. In the past many of these areas have been
seen as peripheral to employment or attaining a "work-ready"
status. These areas include housing, transport and independent
living. RADAR believes that providing help and assistance to overcome
these barriers is vital in increasing a disabled person's confidence
and aspirations.
6. THE
ROLE OF
PERSONAL ADVISORS
6.1 RADAR believes that personal advisors
have an important role to play in providing assistance and support
to disabled people. However personal advisors will have a great
deal of responsibility and will require an extensive body of knowledge.
The introduction of the Benefit Integrity Project saw many disabled
people being interviewed by people who have little to no knowledge
of disability. RADAR, through its information service and member
network, was contacted by a large number of disabled people who
felt they had been unfairly assessed by people who did not understand
the full implications of their disabilities. This caused a great
deal of distress and mistrust among disabled people and their
organisations. RADAR is concerned by the lack of knowledge on
disability issues specifically: disability awareness and disability
benefits demonstrated by some Disability Employment Advisors (DEAs).
However, we do acknowledge the Employment Service's efforts to
improve this position. For the above reasons RADAR would want
to see personal advisors being given relevant and appropriate
disability awareness training and easy access to a wide range
of specialist organisations and skilled Benefit Agency staff.
6.2 The personal advisor's relationship
with the client can only be effective if it is within an environment
of trust and commitment on the side of the disabled person. There
is also a danger of confusion over the role of the personal advisor.
In particular, there needs to be clear distinction made between
the role of an advisor and a counsellor. Many disabled people
have difficulties that will be beyond the knowledge of a personal
advisor. Although the personal advisor will have the ability to
refer a disabled person to a more appropriate source of advice
like a DEA or rehabilitation specialist, the ambiguity of roles
is likely to increase confusion and mistrust on the side of the
disabled person.
6.3 The disabled person needs to believe
that the personal advisor and the Single Work-focused Gateway
can deliver a worthwhile and appropriate service. RADAR is concerned
that the interview with personal advisors needs to be carried
out within an appropriate and realistic time scale. Although a
degree of flexibility is allowed for in the time scale and location
of the initial interview, the document suggests that the interview
should usually take place within three days of the initial contact
being made. RADAR agrees that an interview needs to take place
at the earliest opportunity. However, an explicit target time
scale of three days may be unrealistic and could lead to personal
advisors feeling pressurised to meet specific targets that are
designed to meet the needs of the system, rather than the individual.
This could lead to personal advisors making disabled people, particularly
those with complex disabilities, a low priority. In addition,
for many disabled people three days is not a practical time scale
to make the arrangements that may be needed to have a constructive
interview either in the office or at home. Some disabled people
will have to arrange transport or organise facilitation such as
a personal assistant.
6.4 RADAR welcomes the Government's acknowledgement
that for some disabled people an immediate interview will be inappropriate
and insensitive. RADAR believes there should be clear and proper
guidance available to identify these instances and avoid unnecessary
and distressing interviews. Disabled clients also need to be aware
that they can, if they wish, decline an offer of a discussion
on employment without being penalised. Decisions to defer an interview
should be followed by an amount of time appropriate to the individuals
circumstances before an interview is rescheduled.
6.5 RADAR considers the appropriate referral
by a personal advisor to a specialist service as of paramount
importance. Personal advisors must direct the disabled person
to a specialist, like a DEA, if there is any doubt about the the
ability of the personal advisor to assist. RADAR is aware through
calls to its information department and direct contact with members
that some disabled people entering the New Deal have not always
been referred to a more appropriate source of help.
6.6 RADAR welcomes the proposal that personal
advisors could continue to provide help and support to participants
of the Single Work-focused Gateway once in work. RADAR believes
that the retention of disabled people in employment is a key to
reducing long-term unemployment amongst disabled people. This
often requires additional in-work support and advice. Whilst this
support is often provided by Disability Employment Advisors an
additional tier of support, offered by personal advisors, is likely
to be an added benefit to disabled people.
7. CONCLUSION
RADAR welcomes the concept of a Single Work-focused
Gateway as a tool to enable disabled people to explore employment
opportunities. The role of the personal advisor and their relationship
with the disabled client is likely to be the key to the success
of the initiative. For this to be effective the personal advisor
needs to have an extensive knowledge of disability issues and
create an atmosphere of trust with the disabled client. The disabled
person must have a clear understanding of the purpose for the
Single Work-focused Gateway and have advice and support that meets
their individual needs.
RADAR would welcome the opportunity to provide
oral evidence to the Committee.
SUMMARY OF
KEY ISSUES
RADAR welcomes the proposal of a Single Work-focused
Gateway. Many of the proposals outlined in the recent consultation
could assist some disabled people to obtain the information and
services needed to access a wider range of opportunities.
Disabled people must be made explicitly aware
of what the Single Work-focused Gateway is, its purpose and how
it relates to other initiatives.
For a significant number of disabled people
employment is not a realistic or appropriate option. RADAR would
want to ensure that this group of disabled people is efficiently
and appropriately processed by the Single Work-focused Gateway
and guided towards further advice.
Personal advisors will require a large body
of disability—related knowledge. RADAR advocates that all
personal advisors receive comprehensive training in disability
awareness and other relevant areas, such as housing, independent
living and mobility training.
Any disabled person entering the Single Work-focused
Gateway and requiring assistance beyond the abilities of the personal
advisor must be referred to an appropriate specialist at the earliest
opportunity.
The Single Work-focused Gateway will need to
be evaluated over a substantial period of time to assess its ability
to secure sustainable opportunities for disabled people.
April 1999
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