Sheffield Fairness Commission
Call for Evidence - Sheffield Hallam University
Sheffield Hallam University is pleased to submit evidence to the Commission.
It is largely based on the University's Centre for Regional Economic and
Social Research (CRESR) extensive knowledge and experience in the field.
1. What specific evidence do you hold about inequalities and fairness that
may be of use to the Commission?
Approximately 50,000 of Sheffield's working age residents (13.1%) were
claiming out of work benefits in August 2011. This was higher than the
national rate of 12.3%, but on a par with Yorkshire and Humberside. Nearly
half are claiming Employment and Support Allowance, Incapacity Benefit or
Severe Disablement Allowance. The distribution of IB/ESA claimants varies
widely across the city with more than one in ten working age residents on
these benefits in Norton, Nether Shire, Burngreave, Park, Firth Park, Southey
Green and Manor. The Manor has the highest rate with 14.1% of working age
residents on IB/ESA. In contrast, fewer than 3 people in 100 were claiming
these benefits in Broomhill, Ecclesall and Hallam.
Sheffield Hallam University's Centre for Regional Economic and Social
Research has undertaken substantial work in the field of worklessness and
regeneration that explores the causes of, and potential remedies, to social
and spatial inequalities. We have pioneered non-standard labour market
measures as a means of strengthening our understanding of labour market
processes and problems of labour market detachment. The best known are
the reports providing estimates of 'real unemployment' for all local authority
districts in Great Britain (Beatty et al, 2007). This has highlighted a tendency
for those who are out of work to shift away from active job search towards
economic inactivity and detachment from the labour market. Fletcher has
carried out a stream of research since the mid-1990s that has explored how
deprived communities (including the Manor estate and Shiregreen) and
groups (white working-class, offenders etc.) have been adversely affected by
economic transformation.
A common policy assumption is that helping workless individuals access paid
work can help reduce social and economic inequalities. However, research
undertaken by CRESR showed paid work is not always a route out of poverty.
A study for the Joseph Rowntree Foundation (JRF) on 'Work and
Worklessness in Deprived Neighbourhoods' found many residents were
trapped in ‘poor work’, characterised by combinations of low pay, long hours
or pervasive job insecurity (Crisp et al., 2009). At the same time, the research
found that low-paid, low-skilled work can provide important social benefits
such as a sense of purpose, social contact and a valued sense of identity
Crisp, 2010). These findings suggest that paid work often plays a highly
ambiguous role in supporting individuals and their families. One implication for
Sheffield City Council is that local initiatives to tackle worklessness need to be
ensure that they consider job quality.
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2. Based on your evidence what is your or your organisation’s analysis of
the cause/s of inequalities within Sheffield?
The UK has entered a new phase of capital accumulation which is marked
by intensified processes of economic globalisation, capital and labour
mobility and welfare restructuring. Economic restructuring has polarised
labour markets between 'knowledge and information intensive' and 'labour
intense and low productivity' sectors. In terms of the latter, there is a rise in
low paid work, in part-time and flexible employment (voluntary and
involuntary) and in the growth of the informal economy. Consequently, the
opportunities available to those with few skills are insecure, poorly paid and
do not offer a route of poverty. Labour market de-regulation has further
exacerbated these trends. Fletcher has published many articles that have
explored the impact of economic transformation on deprived communities
(including the Manor estate and Shiregreen) and the working class.
Wage inequality has risen significantly since the late 1970s. At the national
level skilled workers have improved their position relative to less skilled
workers and there has been a 'hollowing out' of middle paying jobs. In
terms of the latter, there has been very rapid growth in the top two deciles of
job quality (as measured by mean occupational wages from 1979 to 2008)
and positive growth in the bottom deciles but declines in between. It has also
become harder to rise through the wage distribution over time. The
introduction of new technologies which require more skilled workers to
operate them has been identified as another factor.
'Area effects' are an insignificant part of the explanation. However, research
conducted by Fletcher et al (2008) on the Manor estate has found that
residents reported that there was something about the area that made it more
difficult for them to get work. The main issues reported included: experience
of 'postcode discrimination' by prospective employers; social norms and
routines that can result in lifestyles or peer influences resistant to formal paid
work; the narrow spatial horizons of some residents which serve to restrict the
geographical extent of job search and travel to work.
The economic divide in Sheffield may have been further exacerbated by the
inability of affluent households to migrate outwards into the rural hinterland
due to restrictive planning policies (National Park and Green Belt). This has
meant that many have settled for living in the city's western suburbs. This is
likely to have driven up house prices in these areas even further, and has
helped to contribute to the Hallam constituency being one of the most affluent
in the country.
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3. Are there any examples of good practice in relation to reducing
inequalities and increasing fairness (from within the city, elsewhere in the
UK, or overseas) that the Commission should be aware of?
Sheffield Hallam University's Centre for Regional Economic and Social
Research undertook an evaluation of a small-scale Intermediate Labour
Market (ILM) project delivered by Blackpool City Council in 2009. This
provided long-term, workless individuals with opportunities to undertake a
paid work placement in the public or third sector. The authors found this
approach was highly effective in supporting individuals facing multiple barriers
to gain valuable work experience and, in some cases, to secure permanent,
reasonably-paid work in those sectors. Sheffield City Council may well want to
consider the potential for implementing a similar scheme to support more
marginalised individuals living in high areas of worklessness.
At the same time, it is important to remember that small-scale, local
interventions may have a transformative effect for individuals but less impact
across the wider area. Research undertaken for CLG on the effectiveness of
the New Deal for Communities (NDC) Programme (see CLG, 2009a, 2000b)
found neighbourhood-based projects to tackle worklessness made little
difference to overall levels of worklessness in NDC areas. They were
particularly effective, for example, in supporting young BME groups. Localised
interventions can, therefore, deliver fairness to individuals but this may not
translate into significant reductions in worklessness.
The evaluation of the South Yorkshire Social Infrastructure Programme
(SYSIP) undertaken by the Centre for Regional Economic and Social
Research (Wells et al. 2010) showed that the programme had a relatively
modest impact on combatting social exclusion in South Yorkshire, with quite
considerable variation in the impacts across the programme. It found relative
success of volunteer programmes in supporting some groups in long term
unemployment and on sickness related benefits. However, the benefits
returns were of a relatively small scale and required long term support.
Similarly, it found that capital investments in voluntary and community sector
support and development organisations (a district and neighbourhood levels)
has helped coordinate actions by frontline organisations. However, the
evaluation also raised concerns that 'Community Action Programmes'
targeted at developing the role of sustainability of 'neighbourhood
infrastructure' were largely ineffective set against the scale of social and
economic deprivation these organisations were seeking to address. The
evaluation also found that whilst infrastructure support was reaching a high
proportion of frontline third sector organisations, the support could have been
better targeted at organisations making a greater contribution to addressing
inequality (an overall objective of SYSIP) and those organisations which were
at greatest risk of collapse.
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The following information is presented to illustrate how the University
promotes and supports aspiration, progression and participation in Higher
education, in the context of the Commission's work in tackling inequalities and
promoting fairness.
Outreach and UK Recruitment Development
The University's Outreach and UK Recruitment Development team work
closely with a network of 100+ institutions within a 50 mile radius of the City,
including 13 in Sheffield to
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raise attainment and aspirations to Higher Education.
raise the awareness and opportunities of higher education for local
learners.
inspire, using student ambassadors as positive role models, and
showcasing exciting opportunities and career pathways which HE can
offer
Initiatives that tackle issues around access and disadvantage for particular
groups of learners in Sheffield include:
Looked After Children (LAC)
We work closely with our Local Authority partners to produce high quality
raising aspirations events for young people in care from Y9 to Y11. This work
is carried out in partnership with The University of Sheffield. We currently
have 41 LAC/care leavers enrolled at the University. During 2010/11, 48
Looked After Children attended visits to the University and 100 attendees
(mainly teachers and advisers) attended our transition conference. The
package of support for LAC includes
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A non repayable bursary of £1,500 per year of study
Dedicated support from our Care Leaver Co-ordinator
Support in securing suitable accommodation (including 365
accommodation)
Priority access to a personalised finance and welfare advisory
appointment with the Students’ Union
Compact
The Compact scheme supports students who have the potential to study at
University but face certain barriers to doing so, including those students who
can only have Sheffield Hallam University as an option for them. The scheme
is available to all students at Sheffield schools and colleges and applicants
are automatically included within the Compact.
During 2010/11 a total of 341 students (266 or 78% from Sheffield) were
accepted onto the scheme, with 154 (110 or 71% from Sheffield) progressing
to enrolment.
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Mentoring
Our undergraduate student mentors deliver a series of interactive and
engaging themed group sessions to Year 10 students in local schools in
South Yorkshire, discussing topics such as introductions to Higher Education,
GCSE choices, study skills, financial awareness and future choices. The
scheme is targeted at students from Black and Minority Ethnic (BME) groups
under-represented in HE, with the aim to:
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raise aspirations
improve attitudes towards higher education
improve motivation and self-esteem.
During 2012/13 we have 19 trained current student mentors who are working
with 46 students from 4 local schools (34 are based in 3 Sheffield schools).
Financial support for Sheffield students
The University has a range of bursary schemes to support local students as
they enter and progress through their studies. A measure of relative
inequality can be seen in the profile of bursary support the University provides
to its students, based on residual household income. Data from the Student
Loans Company in 2010-11 shows that 2125 University students with a
Sheffield postcode were assessed as having an income of less than £20,000,
representing 62% of all Sheffield postcode students.
4. What do you or your organisation believe would be the best way to tackle
inequalities and increase fairness in the city?
5. What should be the top 3 priorities for the city?
There are few simple panaceas which could significantly address
inequalities in Sheffield. The experience of the last 30 years is that
whilst there is scope for considerable action at a city level, some policy
and economic levers are outside the gift of local policy makers. Any
priorities also need to be set against what are likely to key economic,
social and environmental challenges for the city in the future.
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Employment and Economy. The research evidence points to a need
to address fundamental weaknesses in the demand side of the
economy and the challenges of not simply generating jobs, but high
quality jobs. Facilitating the growth of jobs that pay a 'living wage' and
provide a stepping stone to better quality work should be an important
priority and cuts across policy and sectoral domains. Following this,
improving the human capital of deprived groups to facilitate access to
better quality work.
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Community. Supporting and protecting communities in the context of
the economic downturn and public sector retrenchment. In the context
of a shrinking public sector, this will demand the coordination of service
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delivery to minimise duplication and maximise efficiencies and the
targeting of increasingly limited resources through specific
interventions to promote resilience. Moving forward with this agenda
will demand understanding of the factors underpinning community
resilience and how to recognise and respond to deficits in these factors
within particular communities. The withdrawal of state activities will
make the understanding of resilience increasingly important if the
future if inequalities are not to rise further.
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Annex
Beatty. C. and Fothergill, S. (2011) Incapacity Benefit Reform: the local,
regional and national impact. Sheffield: CRESR.
http://www.shu.ac.uk/_assets/pdf/cresr-final-incapacity-benefit-reform.pdf
Beatty, C., Fothergill, S., Gore., T. and Powell, R. (2010) Tackling
worklessness in Britain's weaker local economies. Sheffield: CRESR.
http://www.shu.ac.uk/_assets/pdf/cresr-tackle-worklessness-report-nov10.pdf
Beatty, C., Fothergill, S., Houston, D. and Powell, R. (2010) 'Bringing
Incapacity Benefit numbers down: to what extent do women need a different
approach?' Policy Studies 31 (2), pp. 143-162.
http://www.tandfonline.com/doi/pdf/10.1080/01442870903429603
Beatty, C., Fothergill, S., Gore, T., and Powell, R. (2007) The Real Level of
Unemployment 2007. Sheffield: CRESR.
http://www.shu.ac.uk/_assets/pdf/cresr-RealLevelUnemployment07.pdf
Beatty. C. and Fothergill, S. (2005) 'The diversion from 'unemployment' to
'sickness' across British regions and districts'. Regional Studies, 39 (7), pp.
837-854. http://www.tandfonline.com/doi/pdf/10.1080/00343400500289804
Crisp, R., Beatty, B., Lawless, P., Foden, M. and Wilson, I. (2009)
Understanding and tackling worklessness: Lessons and policy implications.
Evidence from the New Deal for Communities Programme. London: CLG.
http://www.shu.ac.uk/_assets/pdf/cresr-understanding-tacklingworklessness.pdf
Crisp, R., Fothergill., S., Gore, T., and Platts-Fowler, D. (2009) Sheffield
Worklessness Study: The characteristics and aspirations and skill needs of
Incapacity Benefit claimants and lone parents on benefit. Sheffield: CRESR.
Crisp, R. and Fletcher, D. (2008) A comparative review of workfare
programmes in the Unites States, Canada and Australia. London: Department
for Work and Pensions. Research Report No. 533.
http://research.dwp.gov.uk/asd/asd5/rports2007-2008/rrep533.pdf
Fletcher, D. (2011) 'Welfare Reform, Jobcentre Plus and the Street-Level
Bureaucracy: Towards Inconsistent and Discriminatory Welfare for Severely
Disadvantaged Groups?' Social Policy and Society, 10 (4), pp. 445-458.
http://journals.cambridge.org/action/displayFulltext?type=6&fid=8350198&jid=
SPS&volumeId=10&issueId=04&aid=8350197&fulltextType=RA&fileId=S1474
746411000200
Fletcher, D.R. et al (2011) Qualitative study of offender employment review:
final report. London: Department for Work & Pensions. DWP Research Report
No. 784. http://research.dwp.gov.uk/asd/asd5/rports2011-2012/rrep784.pdf
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Fletcher, D.R. et al (2009) Qualitative evaluation of the Jobseeker Mandatory
Activity (JMA). London: Department for Work and Pensions. Research Report
No 553. http://research.dwp.gov.uk/asd/asd5/summ2009-2010/553summ.pdf
Fletcher, D.R. et al (2008) Social housing and worklessness: Qualitative
research findings. London: Department for Work and Pensions. Research
Report No. 521. http://research.dwp.gov.uk/asd/asd5/rports20072008/rrep521.pdf
Fletcher, D.R. et al (2007) Evaluation of the Working Neighbourhoods Pilot:
Final Report. London: Department for Work and Pensions. Research Report
No. 411. http://research.dwp.gov.uk/asd/asd5/rports2007-2008/rrep411.pdf
Fletcher, D.R. (2007) 'A culture of worklessness? Historical insights from the
Manor and Park area of Sheffield'. Policy and Politics, 35 (1), pp. 65-85.
http://docserver.ingentaconnect.com/deliver/connect/tpp/03055736/v35n1/s4.
pdf?expires=1332860578&id=67976185&titleid=777&accname=Sheffield+Hall
am+University&checksum=A66DAD4514E74EDEBF17E4ADC14CE826
Fletcher, D.R. (2010) 'The workless Class? Economic Transformation,
Informal Work and Male Working Class Identity'. Social Policy & Society, 9
(3), pp. 325-336.
http://journals.cambridge.org/action/displayAbstract?fromPage=online&aid=77
88179
Fletcher, D. R. (2009) 'Social Tenants, Attachment to Place and Work in the
Post-industrial Labour Market: Underlining the Limits of Housing-based
Explanations of Labour Immobility?' Housing Studies 24 (6), pp. 775-791.
http://www.tandfonline.com/doi/pdf/10.1080/02673030903205895
Fletcher, D.R. (2008) 'Offenders in the post-industrial labour market: from the
underclass to the undercaste?' Policy and Politics, 36 (2), pp. 283-297.
http://docserver.ingentaconnect.com/deliver/connect/tpp/03055736/v36n2/s8.
pdf?expires=1332860704&id=67976226&titleid=777&accname=Sheffield+Hall
am+University&checksum=02A27A131A844BD4F698991898CCFE8B
Fletcher, D.R. (2008) Employment and Disconnection: Cultures of
worklessness in Neighbourhoods in Flint, J. and Robinson, D. (Eds)
Community Cohesion in Crisis? New dimensions of diversity and difference.
Bristol: Policy Press.
Green, A and Adam, D. (2011) City Strategy: Final Evaluation. London:
Department for Work and Pensions. Research Report No. 783.
http://research.dwp.gov.uk/asd/asd5/rports2011-2012/rrep783.pdf
Wells, P. et al (2010) Evaluation of the South Yorkshire Social Infrastructure
Programme: Summary Report. Sheffield: CRESR.
http://www.shu.ac.uk/_assets/pdf/cresr_A_SYSIP_summary_report.pdf
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