Newsletter October-December 2013 Dear Reader, Over the last quarter, OxPolicy has expanded to include 70 people actively involved in management of the think tank, organizing events, researching policy and contributing to our blog. Our reach has expanded exponentially, and we have made several important connections inside and outside of Oxford. OxPolicy is a very different animal from the small group of 10 starting out in April 2013, and we're proud of how far we've come. As the end of the year approaches, we would like to look back on the following term. In this newsletter, you will find a summary of this term’s events, research and reports. We also feature a policy comment by a distinguished academic and the winning blog from our SHIFT competition. We chose to focus on two main themes this term: human trafficking and social exclusion. You can read the executive summaries of our reports on pages 5 and 7; the full reports and fact sheets are available online at www.oxpolicy.co.uk. We w i s h y o u a l o v e l y Christmas season and all the best. 1 - The OxPolicy Team Contents p.1 p.2 p.3 p.4 p.6 p.9 People “‘Benefits reform is unnecessary.’ Discuss.”, a comment by Prof. Robert Walker “Sustained sustainable behaviour change”, by Fay Niker HUMAN TRAFFICKING. Events. Executive Summary. SOCIAL EXCLUSION IN THE UK. Events. Executive summary. Acknowledgements and Contact People We would like to thank our speakers, Ms. Debbie Beadle, Mr. James Behan, Mr. Andrew Desmond, Mr. Mark Glendening, Ms. Raven Kaliana, Ms. Caroline Lennartsson, Lord MacLennan of Rogart, Mr. David Nix, Dr. Carrie Pemberton Ford, and Ms. Nina Shick. We are grateful for the input of Ms. Fran Bennett, Dr. Emanuele Ferragina, Dr. John Hammock, and Prof. Robert Walker. We are also indebted to our graduate mentors Owain Johnstone, Ahmed Safar, Stephanie Tam, and Rachel Wechsler for their precious help along the way. ‘Benefits reform is unnecessary.’ Discuss. by Prof. Robert Walker Robert Walker is Professor of Social Policy at the University of Oxford. His research interests include a particular concern with poverty, social exclusion, family dynamics, and employment instability and progression in all parts of the world. He is currently directing (among other research projects) an eight country study of poverty and shame. We all know that the welfare benefit system needs to be reformed. ere is consensus across the political parties that change is needed and even a large measure of agreement on how this is best achieved. Benefits are bad, work is good. But why do we think that benefits need reform? Politically, the answer is obvious. Parties have to differentiate themselves and claim that they can do better than either the incumbent government or its predecessors. Benefits reform appeals to voters because the vast majority think that it will not affect them. If savings can be made, perhaps taxes will fall. But why do you think that benefits reform is necessary? You know that the continued existence of poverty -16 per cent of the UK population, 120 million persons across Europe - is a blemish on society1. You know that something must be done about it. But why do you think benefits reform will resolve the problem of poverty? Politicians certainly say that welfare reform will address poverty. Tony Blair argued that benefits ‘encouraged dependency, lowered self-esteem and denied opportunity and responsibility in almost equal measure’2. e planned introduction of the new Universal Credit in Britain, which the Labour Party did not oppose, aims to stem ‘welfare dependency’ which is said to have the ‘effect of trapping individuals, families and whole communities in the very condition it was supposed to alleviate.’3. e reform, the government states, will alleviate the ‘huge social and economic cost for individuals, their families and wider society’4. e public in focus groups and surveys say the same thing. ey say people ‘work the system’ at the expense of others. And because they can claim benefits, they are not ‘sufficiently’ poor ‘to want to actually get out of poverty ’5. But there is precious little evidence that welfare benefits create dependency other than the truism that if they exist for people in need, people in need are entitled to receive them. Rather, the causes of poverty lie in weak labour market demand, in mismatches between skills required and the skills possessed and in the inability to work due to disability, old age and childcare responsibilities. People do not choose to be poor. Instead they feel ashamed that they cannot afford to be good parents, relatives and friends6. So why do ministers blame and shame families receiving benefits, denigrate people in poverty and those without work suggesting that worklessness and welfare dependency ‘breed intergenerational poverty’?7 Rats breed vermin. Human beings have children. Perhaps it is because we, the electorate, would like to believe these things about people in poverty. at way we could justify our own privileged position. We have studied and worked hard so as to be able to afford the good things of life, whereas people 2 in poverty have not. at is why they are poor. And that is why they do not deserve to be helped through our taxes. Moreover, maybe we can shame them into changing their ways. But whatever we would like to believe about ‘the poor’ being lazy and feckless, it is simply not true. e vast majority of people claiming benefits have worked a full working life, are unable to work or are doing their very best to find employment and to better themselves8. Perhaps welfare benefits do need to be reformed. But much more important, we need to reform the way we think about poverty and welfare benefits. Benefits are not the cause of poverty. ey are a policy response, currently inadequate because we refuse to be generous and are willing to see claimants stigmatised, hassled and humiliated. We need to live up to our international obligations. We should insist that our governments abide by the treaties to which they are a party. ey should have ‘respect for the rights and dignity of people covered by … social security guarantees’9. Indeed, according to a 2013 Resolution of the UN General Assembly, ‘respect for the inherent dignity of those living in poverty must inform all public policies’10. Moreover, ‘state agents and private individuals [you and I] must respect the dignity of all, avoid stigmatization and prejudices, and recognize and support the efforts that those living in poverty are making to improve their lives.’ Do we? References : DWP (2013) Households Below Average Income An analysis of the income distribution 1994/95 – 2011/12 June 2013 (United Kingdom). London: Department for Work and Pensions; ISBN 978-1-78153-531-8; http:// epp.eurostat.ec.europa.eu/statistics_explained/index.php/ People_at_risk_of_poverty_or_social_exclusion 2 Blair, T. (1997) e 21st Century Welfare State, Speech to the Social Policy and Economic Performance Conference, Amsterdam, 24 January. 3 DWP (2011) Universal Credit: welfare that works, London: Department for Work and Pensions, Cm. 795.7, p.12. 4 Ibid, p.11. 5 Chase, E. (2012) e role of society in shaming people living in poverty – UK, http://povertyshamedignity.spi.ox.ac.uk 6 Walker, R. with others (2014) e Shame of Poverty: Global perspectives. Oxford: Oxford University Press. 7 DWP, op cit, p. 1. 8 Barnes, M. and Lord, C. (2013) Poverty, Economic Status and Skills: What are the Links? York: Joseph Rowntree Foundation. Gordon, D. et al. (2013) e Impoverishment of the UK, Bristol: e_Impoverishment_of_the_UK_PSE_UK_first_results_summary_report_Ma rch_28.pdf Aldridge, H et al. (2012) Monitoring poverty and social exclusion 2012, York: Joseph Rowntree Foundation. Longhi, S. and Taylor, M. (2011) Explaining Differences in Job Search Outcomes between Employed and Unemployed Job Seekers, Colchester: ISER Working Paper Series No. 2011-17. 9 ILO (2012) Recommendation Concerning National Floors of Social Protection, adopted by the Conference at its one hundred and first session, 14th June 2012. Geneva: ILO, Recommendation 202. 10 UN (2013b) Resolution adopted by the General Assembly, 67/164. Human rights and extreme poverty New York, United Nations General Assembly [on the report of the Third Committee (A/67/457/Add.2 and Corr.1)], General distribution: 13th March. 1 Fay Niker is the MT13 winner of SHIFT, our blogging competition. Want to be next ? Register as a policy blog writer at http://www.oxpolicy.co.uk/services/policy-blog-writer/ ‘Climate change’ and ‘behaviour change’ are both central themes in the policy landscape, academic research, and media discourse of the twenty-first century. e former has been described by the former Secretary-General of the UN, Kofi Annan, as “the greatest humanitarian challenge facing mankind today”, a statement that carries added weight in light of the complete devastation inflicted upon the Philippines by Typhoon Haiyan – one of the strongest storms ever to make landfall. e latter, ‘behaviour change’, has become a ubiquitous phrase in policymaking circles, representing a radical shift towards a nonregulatory policymaking paradigm, often referred to as nudging. e 2008 Climate Change Act established the world’s first legally binding climate change target. is has committed the UK to reducing its greenhouse gas emissions by at least 80% by 2050 - a target that requires a major change in the way we live and think, representative of an unprecedented reversal of a universal trend among industrialised nations concerning the relationship between economic growth and carbon emission. e key question going forward, therefore, is: How is such a radical behavioural/cultural transformation going to be brought about? e current government’s answer appears to rest heavily upon behaviour change techniques that seek to nudge (implicitly encourage, incentivise, etc.) citizens’ toward more sustainable behaviour patterns. e problem with this approach – or at least with the way in which it is currently being framed by the Coalition government in major initiatives such as the Green Deal – is that it threatens to actually undermine sustained sustainable behaviour change: for instance, by presenting energy-saving simply as a means of saving money. Providing this self-interested motivation for environmentally responsible action does not translate into meaningful engagement with climate change. And it also runs the risk of trivialising the issue at hand. e debate about sustainable behaviour change must remain connected to the fact that climate change is already a daily reality for some of the world’s poorest communities, where unpredictable rainfall and drought patterns are threatening food security and livelihoods. As Mary Robinson, former UN High Commissioner for Human Rights and climate justice advocate, states: “ese communities are not responsible for the emissions causing climate change, and yet they are disproportionately affected because of their already vulnerable geographic locations and their lack of climate resilience”. In terms of private morality, we each have a duty of justice not to harm others; and our current levels of emissions can be expected to cause significant harm. Hence, we - citizens of industrialised nations - each have a duty of justice to reduce our net personal emissions to zero, whether by transforming our lifestyles or by offsetting our emissions. And this not only makes sense as an abstract philosophical argument; recent 3 Sustained sustainable behaviour change by Fay Niker research by Dr Rachel Howell (University of Aberystwyth) has shown that the single most significant motivation among people who had already made major changes towards environmentally responsible, low- or zero-carbon lifestyles was a sincerely held conviction that climate change is a matter of social justice. Hence, it seems as though the government’s enthusiasm for ‘nudge’ and its potential for generating measureable behavioural outcomes may have caused it to lose sight of the fact that committed, long-lasting behavioural transformations are not brought about by government officials tinkering with ‘choice architecture’, but rather by citizens’ internalising the ethical reasons that are motivating such a change – reasons based on justice, fairness and responsibility. For the sake of both efficiency and justice, therefore, the government’s ‘behavioural’ strategy on climate change should be driven and defined by the moral motivation that taking action on climate change is simply the right thing to do. is would not necessarily involve canning the existing proenvironmental nudge policies; but it would require a significant alteration of the government’s rhetorical strategy, to make it focused on communicating to, and educating, citizens about climate change as an issue of social justice by highlighting the impacts on people, especially poorer and disadvantaged people. is strategy should also include the instigation of public debate concerning the socially just adaptation to climate change within the UK. Furthermore, alongside (and as part of) this norm-changing strategy, it will be necessary to provide both practical guidance about carbonreduction and a variety of low- or zero-carbon infrastructure options, so that the opportunity for sustainable behaviour change is a real and equitable one for all citizens. Ultimately, it is values and morals that (i) inspire public support for national-level, regulatory policies and (ii) motivate transformational individual- and household-level behaviour changes; so the quicker the government engages with the issue of sustainable behaviour change in these terms, the more chance that we have of reaching our own decarbonisation targets. RESEARCH PROJECT Human trafficking The reality of modern-day slavery Although trade in humans has been illegal for many years, it continues around the world today, including in our own country. This might be for sexual slavery, forced labour or even for the forced extraction of organs. Indeed, in the UK it is estimated that there are significantly more than 2,000 people at the mercy of traffickers at any given time. OxPolicy’s research this term has attempted to develop a coherent picture of the problem, and examine the work of government, NGOs and the police in tackling the problem. To this end we have produced three documents summarizing our work. The flagship project is our policy report entitled ‘Modern Day Slavery: Human Trafficking in Oxfordshire and The UK’ and which was launched at a panel debate of the same title on Tuesday 26th November. The paper includes our own primary research into the attitudes of Oxford residents and students. Events in October and November 30th October 2013 The reality of modern-day slavery We launched our research on human trafficking with an awareness-raising event. Andrew Desmond, from New Scotland Yard, gave a presentation on the criminal dimension of human trafficking, specifically the structure and functioning of trafficking networks. Raven Kaliana, film-maker and puppeteer, showed deeply moving passages from her film, inspired by her experience. Debbie Beadle, from ECPAT UK, introduced ECPAT’s action and shared her experience as an anti-trafficking campaigner. 26th November 2013 How can we end human trafficking ? On 26th November, we published our findings at a panel discussion event on human trafficking policy. We were delighted to be joined by speakers from OXCAT, an antitrafficking charity based in Oxford, who opened the event with an overview of the work they do on a day-to-day basis. After their introduction had set the scene, we moved on to the main debate with our panel, consisting of a number of highly experienced speakers. James Behan, Head of Operations at the UK Human Trafficking Centre, passionately defended the important work of the police in this area and suggested that resources may be better spent on may be better spent on making human trafficking a core part of police training rather than on raising awareness of the problem among the general public. Concurring, David Nix, Head of Licensing at the Gangmasters Licensing Authority, noted that, although many people are not aware that forced labour is still affecting many workers in this country, the authorities have recently been quite successful in stopping what are in essence slave operations. Dr Carrie Pemberton Ford, Director of the Cambridge Centre for Applied Research in Human Trafficking, despaired at the depravity many victims of trafficking face and strongly urged the audience to look at this as an issue of transnational justice, requiring international solutions. 4 Modern Slavery Human Trafficking in Oxfordshire and the UK OxPolicy Report - Executive Summary Our report looks into the extent of human trafficking in Oxfordshire and the UK and what provision there is for victim support and police training in this area. We decided to concentrate on this issue for two main reasons. Firstly, as demonstrated by our primary research, there is a general lack of awareness that socalled ‘modern day slavery’ still exists. Secondly it has been shocking to hear about the recent sex trafficking ring right here in Oxford, and we wanted to further expose the detail surrounding both this hidden crime and work to stop it happening in the future. Our research is taken from both primary and secondary sources. We conducted a survey into attitudes towards human trafficking in Oxfordshire and submitted freedom of information requests to ames Valley Police. While we recognise the limitations of our resources as students, we believe that our approach provides refreshing clarity and creativity in policy analysis. Human trafficking across the UK remains a hidden, horrific and prevalent crime. Estimates of the number of victims span from 2255 to over 5000, counting both those trafficked into and within the UK. ere is not data available on how many of those are based in Oxfordshire, but we know from the recent Operation Bullfinch that it is not an insignificant number. e inter-departmental ministerial group on human 5 trafficking is the government body responsible for overseeing human trafficking policy in the UK, and it works closely with UK Human Trafficking Centre, part of the National Crime Agency. But our research has exposed two key policy problems: there is a great deal of missing data and the public simply do not know the extent of the problem. We recommend that the government establishes a human trafficking commissioner, who would have responsibilities including raising awareness of the problem and collecting data. Police training on human trafficking is lacking in both scope and intensity. Officers complete a ‘distance learning package’, which experience shows takes only about thirty minutes. It is not even a mandatory requirement for police officer training. ames Valley Police is seeking to develop a more in-depth training package to be delivered on their training course, but unless that involves rigorous training from qualified experts in the field then we believe police training will remain weak. We recommend that officers are given training in a ‘classroom’ format from key players in the field (including detectives, NGOs and survivors) so that officers understand both how to spot human trafficking and how to deal with it. Child victims, once rescued, are supported by their local authority, whereas adults are cared for by the Salvation Army (as the recipient of a government contract), as well as other NGOs. It is unclear how successfully adult victims are integrated back into society, but the quality of care for trafficked children depends significantly on a postcode lottery. Many victims disappear once they are rescued, and it is only to be assumed that they are retrafficked. One of the main causes behind human trafficking is that traffickers exploit victims’ vulnerability. e most effective way to allow victims to escape from that vulnerability is by giving them the education and training they need to be able to support themselves as an autonomous and dignified individual in modern society. We think the government needs to reform victim support significantly. Care quality needs to be assessed based on clearly defined targets to work on for each victim, whether an adult or a child. e care service needs a comprehensive follow up process so that the carers can ensure victims are not retrafficked and have the tools to develop their own lives, either in the UK or in their home country. Find out more by reading our report and fact sheet : http:// www.oxpolicy.co.uk/ portfolio/humantrafficking-2013/ RESEARCH PROJECT Social Policy is made at many levels: To this end we have produced two Social Exclusion in the UK EU and National Policies a fact which often escapes the national media and even policy makers. In this policy report, we examined different approaches and systems tackling the problem of Social Exclusion. This involved comparative analysis of policies adopted by the UK and other European countries and also an examination of the influence of the European Union in social exclusion, with reference to its Europe 2020 programme. Event : Panel debate 29th November 2013 Should the UK prioritise its relationship with the EU or the Commonwealth ? On the day of our panel event titled “Should Britian prioritize its relationship with Europe or with the Commonwealth?” the bill for a referendum of Britian’s membership of the EU passed through the House of Commons’ final reading. Although OxPolicy’s EU research focus this term was on one specific policy area (social exclusion and how policy in this dimension is divided between national and supranational methods), we wanted to ask a broader question: namely where should Britian look in the future: to Europe or elsewhere? We were lucky to have three excellent speakers representing a range of views on the issue. A large amount of the debate focussed on the merits and demerits of the European Union as a framework for our EU relations. Also considered however was the dynamic of the commonwealth, and what Britian could achieve outside the EU were it to leave completely or to become part of (for example) the EEA. Nina Schick, Policy Analyst at Open Europe, began by questioning the question. It is a false dichotomy, she argued, to suggest that Britain can choose only one option. Instead it must focus on improving the quality of its relationships with its European neighbours through reform of the EU and developing its global presence. Whilst she advocated backing 6 documents summarizing our work. The flagship project is our policy report entitled‘Social Exclusion in the UK: EU and National Policies’ , which was launched at a panel debate on Friday 29th November featuring several high profile speakers from the world of politics and think tanks. both horses, she noted that the commonwealth is a very heterogeneous group, and countries such as India and South Africa are routinely on the opposite side to Britain in negotiations regarding trade, for example. Marc Glendening, Campaign Director of the Democracy Movement which is the biggest non-party campaign against Britain's EU membership, presented a stance that was proEurope but anti-European Union. He highlighted some of the democratic failings of the EU, and argued that Britain should have greater freedom to determine its affairs – and perhaps it might do this by becoming a ‘new Norway’ or a ‘new Switzerland’. Lord MacLennan of Rogart spoke in favour of our continued membership of the European Union, highlighting its essential role in bringing people together. e European Union has been a positive force in the world, he argued, and although its peace-bringing effects may be obvious in the post-Second World War and Cold War contexts, it still plays this role today. He emphasised that whilst independent relations with commonwealth countries may be important, the European Union allows Britain and its neighbours to engage with other nations with a common voice. ere was no real consensus reached by the end of the debate, but each speaker spoke passionately and responded with insightful analysis to the viewpoints put forward over the evening. e audience likewise had interesting questions and opinions. We hope that this is just the start of a more in-depth conversation about Britain’s place in the EU and wider world, and that people will move forward into discussions of the Referendum and EP elections next year having more information about the issues! Social Exclusion in the UK EU and National Policies OxPolicy Report - Executive Summary Amidst the political tumult and institutional upheaval following Europe’s severe economic crisis, international attention on the European Union (EU) has mostly been directed towards its economic policies. Increasingly, however, social exclusion 1 has grown in prominence to EU policymakers as the social ramifications of persistent recession on an already strained system of social protection become important. In setting out its Europe 2020 Strategy, the EU demonstrated a clear commitment to addressing social exclusion— the last of its five targets is the reduction of EU residents at risk of poverty and social exclusion by 20 million. Notably, this is the first official EU target on poverty reduction widely endorsed by member states. e EU thus appears to have signalled its intention to increase its involvement on policymaking regarding social exclusion; this report is a response to these intentions. Specifically, this report will examine national and EU-level policy approaches to social exclusion on the UK, occasional referencing other EU member states for comparison. e key research questions guiding the report are: How closely is UK policy regarding social exclusion in aligned with EU policy? How effective is national policy, EU policy, or a combination of both at reducing social exclusion? To the 7 extent that it is possible, will greater Europeanization of social policy benefit national attempts to address social exclusion? Given the multi-faceted nature of social exclusion, the report comprises seven sections, each analysing one aspect of social exclusion: Child Poverty, Education, Youth Unemployment, Financial Exclusion, Mental Health, Housing and Minority Issues. If the topics appear slightly narrow, it is because of a deliberate attempt to highlight less well-known aspects of social exclusion and to preserve analytical depth. In general, this report finds that UK policy has minimal links to EU recommendations and makes sparse use of coordination channels. In most cases the UK’s performance is average amongst EU countries, which is unsurprising given the current mix of EU members. Political realities, particularly those in the UK, limit the scope for further expansion of the EU’s role in social policy; however, most areas would still benefit from a more cohesive and collaborative approach to policymaking across the EU. What is most striking, however, is how under-developed the social policy strategy at the EU level is— the institution is only just beginning to wield any significant influence over social policy, and must improve its organisational capacity quickly to maintain even this minimal amount of influence. A broader finding is that the very concept of social exclusion is fairly nebulous, allowing for numerous permutations when translated into policymaking. Each country adopts its own definitions and indicators, making cross-EU comparisons on data especially difficult; within each country there is also scope for greater inter-ministry collaboration to address dimensions of social exclusion with overlapping causes or with common vulnerable groups. Finally, this report ends with the results of a survey conducted on 153 residents of Oxford. Overall findings indicate a consensus on the need to reduce social exclusion, although most were neither aware of the state of social exclusion in the UK nor possessed strong opinions on the EU’s role in this area. In acknowledgement of the limited sample size, we request that it be treated as a preliminary gauge of attitudes and knowledge upon which more comprehensive research can be built. In this vein, we hope you find the preliminary analyses and conclusions of this report enlightening, and strongly recommend that empirical analysis of social policy be undertaken on a far wider scale. Find out more by reading our report and fact sheet : http:// www.oxpolicy.co.uk/ portfolio/socialexclusion-2013/ Acknowledgements None of this would have been possible without our dedicated research teams Grant, Miski Abdi, Niamh Healy, Miski Abdi and Hannah Coates. Human Trafficking : Katherine Crofts-Gibbons, Cason Reily, Teh Guo Pei, Jahnvi Vaidya, Samuel Tran, Mark Williams, Beccy Davies, Darcey Murphy, Molly Brachfeld, Ruth Ng, Emmeline Skinner Cassidy, Max Young, Timothy Yap Wei Hang, omas Maassen, Naomi Social Exclusion : Ellen Wiencek, omas Grand, Stacey Boorman, Priya Shah, omas Maassen, Shihang Hou, Hung-Jen Wu, Kelsey Mollura, Abigail Burman, Christy Rush, Katherine Davies, Florence Barnett, Chaiyakorn Srisakvarakul, and Il-Kweon Sir. ...our blog contributors : Stephanie Tam, Fay Niker, Joshua Jesudason, Calum Montell-Boyd, Nicholas Howley, Kieran Hyatt, Grace Feenstra ...and all our readers, supporters, and contributors. Contact MT13 Committee : Directors : Maeve Sinnott and Russell Whitehouse Secretary : Justine Rughooputh Research Coordinators : Charlie Bishop (Human Trafficking) and Wei Qing Tan (Social Exclusion) Treasurer : Aditya Sharad Sponsorship : Michael Skazick Events : Heather Brown and Adam Ward Socials : Nuvneet Lutchoonum Publicity : eophilius Kwek Report Strategy : Zoe Huczok Blog : Kieran Hyatt 8 www.oxpolicy.co.uk Facebook page : /oxpolicy Twitter : @OxPolicy E-mail : contact@oxpolicy.co.uk We are based at the Oxford Hub: 16 Turl Street, Oxford OX1 3DH