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21_03_07_budget_4 | Unemployment | Poverty & Homelessness
21_03_07_budget_4
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E M P LO Y M E N T OPPORTUNITY FOR ALL
The Government’s long-term goal is employment opportunity for all - the modern definition of full employment. Delivering this requires that everyone should be provided with the support they need to find, retain and progress in work, and adapt to and benefit from a global labour market. This chapter describes the principles which underpin the Government’s welfare reform agenda, and the further steps it is taking towards its aim of employment opportunity for all, including:
to provide further help to lone parents to stay in employment, by continuing to make In-Work Credit available to eligible lone parents in the current pilot areas until June 2008, benefiting over 250,000 lone parents, and offering a higher rate of £60 across the whole of London; introducing a four-week run-on in entitlement to Working Tax Credit from the day that a previously eligible claimant ceases to work 16 hours; testing reforms to the education and training offered to participants on New Deal for young people, and testing a seamless link from New Deal to in-work training delivered through Train to Gain; announcing local employment partnerships with large retail employers working in partnership with Jobcentre Plus at a local level, to help the longterm unemployed and economically inactive back to work; trialling short, work-focused approaches for English as a second or other language (ESOL) courses in the London Cities Strategy pathfinders for parents on benefits or tax credits; further improve the administration of Housing Benefit, and setting out an intention to reform Housing Benefit subsidy for temporary accommodation; introducing a package of measures to align further and simplify the benefits system; and following the Low Pay Commission recommendations, raising the adult rate of the National Minimum Wage to £5.52 per hour, the youth rate, for workers aged between 18 to 21, to £4.60 and the development rate, for 16 and 17- year olds to £3.40; all from October 2007.
The Government’s long-term goal is employment opportunity for all – the modern definition of full employment. The strong labour market performance of recent years has helped deliver this, with many of the previously most disadvantaged groups and regions demonstrating the most significant improvements.
Labour market 4.2 Employment in the UK reached 29 million in 2006 for the first time; the highest figure performance since comparable records began in 1971. As Chart 4.1 shows, the working age employment
rate is now 74.4 per cent, up from 72.7 per cent in 1997. The International Labour Organisation (ILO) unemployment rate, meanwhile, is 5.5 per cent, down from 7.2 per cent in 1997. The temporary rise in the unemployment rate during 2006 has abated, with the broader ILO measure falling in the final quarter of the year. The UK unemployment rate remains significantly below the EU average of 7.5 per cent.
E M P LO Y M E N T O P P O R T U N I T Y F O R A L L
Chart 4.1: UK employment and unemployment rates
ILO unemployment rate (per cent)
1984 1986 1988 1990 1992 1994 1996 1998 2000 2002 2004 UK employment
Source: Labour Force Survey seasonally adjusted annual averages.
The improvements in labour market performance have been of particular benefit to groups traditionally disadvantaged in the labour market. Since 1997, the employment rate of lone parents has risen by 11.8 percentage points;1 of working age people aged over 50, by 6.4 percentage points; and of people with a health condition or disability, by 9.8 percentage points.2 Since 2001, the employment rate of ethnic minority groups has also risen by 2.5 percentage points and is now over 60 per cent.
Inactivity 4.4
Labour supply growth in 2006 was the strongest in over 20 years due to strong working age population growth and declining inactivity, especially among people with a health condition or disability. The working age inactivity rate decreased by 0.3 percentage points over the year to January 2007, with 71,000 people moving out of inactivity and into the labour market.
Working age 4.5 For the majority of jobseekers, unemployment is a short-term state of transition; benefits around 80 per cent move off benefit within 6 months. Jobseeker’s Allowance (JSA) is designed
to provide financial support in a way that encourages a quick return to work through independent jobsearch. The intervention regime supports, monitors and enforces independent jobsearch for short-term claimants, and provides more intensive support for the minority who fail to find work quickly. The regime has directly contributed to a fall in the claimant count from 1,662,600 in 1997 to 922,200 in February 2007. As Chart 4.2 shows, the rise in the claimant count through 2006 has begun to reverse, and the total has held under 1 million for 73 consecutive months – the longest period below this level since the 1970s.
Under Eurostat regulations the Labour Force Survey has changed from being based on seasonal quarters to calendar quarters. Some figures have therefore changed from those published in Pre-Budget Report 2006 (see Chart 4.5 for details). 2 Change is since 1998 for figures for people with a health condition or disability, as the figures for 1997 are not comparable due to changes in definitions.
D E L I V E R I N G E M P LOY M E N T O P P O R T U N I T I E S F O R A L L The challenge for the next decade Key principles of 4. This now needs to be complemented by an integrated employment and skills agenda and even more effective active labour market programmes.000 500 0 1971 1973 1975 1977 1979 1981 1983 1985 1987 1989 1991 1993 1995 1997 1999 2001 2003 2005 2006 Unemployment beneﬁts1 1 Unemployment Beneﬁt (before October 1996) and Jobseeker’s Allowance (from October 1996).EFSR INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L 4 Chart 4.000 1.2: Unemployment benefit recipients since 1971 3. Budget 2007 83 . The integration of benefits and employment support through Jobcentre Plus has transformed the delivery of welfare to work.500 2. 4. these principles will underpin further reforms over the coming years. and are described in more detail in Box 4. ensuring that everyone has the opportunity to find and progress in work. Informed by the development of active labour market policy over the past decade.500 3. Source: ONS seasonally adjusted monthly claimant count.1.6 The challenge now is to build on the successes of the past decade with further steps welfare reform to deliver employment opportunity for all.7 The Government’s approach to ongoing welfare reform is based on five key principles.000 Total claims (thousands) 2.500 1.
4 INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L EFSR Box 4. social and economic potential. • • • • Integrating benefits and employment support Jobcentre Plus: 4. where appropriate. policy should be tailored to individual needs and integrated with skills. making best use of expertise across the public. the Government has set itself two ambitious and inter-related goals: • to ensure employment opportunity for all. through devolution and local empowerment. in the context of a clear strategy and set of required outcomes. the system should be sufficiently flexible as to allow. This does not. Where possible. it needs to be supported by access to appropriate training. where appropriate. but also on retention and progression. however. Informed by the successful active labour market policies of the past decade.8 The delivery of employment support and benefits services has. over the past five transforming years. retain and progress in work. preclude a focus also on helping people – particularly those at a disadvantage in the labour market – remain and advance in work. incentives and training opportunities. and for this to be effective. a personalised and responsive approach. cities and localities can play an important role in identifying strategic priorities and delivering solutions. health and financial support. giving everyone the opportunity to fulfil their individual. and this should be recognised. the introduction of which customer service marked a key stage in transforming a previously too often passive welfare state into a proactive. including a minimum wage. by action to prevent or remedy discrimination. and to foster a world class skills base. • While substantial progress has already been made in the direction of these goals. through advice. and regions. Jobcentre Plus was launched in April 2002. look for and engage in work. and by measures to make work pay. been transformed by the operations of Jobcentre Plus. information and advice. the Government’s approach to labour market reform over the coming years will be underpinned by five key principles: • rights and responsibilities underpin the welfare reform agenda. a very visible manifestation of the integrated 84 Budget 2007 . equipping everyone with the means to find. Integrating the employment and skills agendas is central to achieving this. private and third sectors. to prepare for. These responsibilities on the part of the Government are matched by the responsibility of individuals. personalised and work-focused service. much more remains to be done. Achieving this requires effective labour market policies set against a background of macroeconomic stability. delivery should be joined up. Everyone should have the opportunity to work. where possible. The New Deals have achieved considerable success by tailoring policy to particular groups. bringing together the Employment Service and those parts of the Benefits Agency that delivered services to people of working age. The resources of each should be focused on where they can add the greatest value. and the ability to adapt to and benefit from a globalising labour market. employment support should be focused not just on job entry. Helping people into work is clearly central to the welfare reform agenda.1 Principles of welfare reform In taking forward its welfare reform agenda.
as Chart 4.3 illustrates. By facilitating more effective delivery and improved customer service. followed by – for JSA claimants – mandatory full time training or subsidised employment to ensure that no claimant remains indefinitely and passively on benefit. The Government will also take steps to improve the vertical and horizontal coordination across government and between government. Budget 2007 85 . Jobcentre Plus has made a substantial contribution to tackling poverty. business and the private and third sector to help the low-skilled enter. The process of modernising Jobcentre Plus processes and operations is. published on 5 December 2006.9 million jobs for participants. Over the last decade. remain in and advance in the labour market. however. the New Deal has found 1. Jobcentre Plus is also boosting the capacity of its contact centres and investing in a new network of Benefit Delivery Centres to streamline the delivery of its services. This success has contributed to a nearly two-thirds reduction in the long-term claimant count since 1997. reducing worklessness. continuing.000 for young people and 298. The roll out of the new Jobcentre Plus network is now almost complete with over 850 of 865 sites rolled out. 4. extend to helping that person stay in and progress in work.12 The New Deal has been fundamental to the success of the Government’s labour the New Deal market policies. providing individuals with the flexibility that delivers agenda genuine economic security. including the establishment of the Commission for Employment and Skills.11 Building on the success of the New Deal Strengthening 4. including 858. This requires both Jobcentre Plus and the Learning and Skills Council to work together on longer term support and retention and advancement – delivering a seamless service that enables low-skilled individuals to get the skills they need to build a career.EFSR INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L 4 rights and responsibilities agenda that underpins the Government’s approach to welfare reform. support should not necessarily be confined to helping someone into work. The Government will consider the incentives given to both organisations to ensure that there is a sufficient focus on retention and progression. and promoting growth and opportunity. where appropriate. but should also. As the Leitch Review of Skills. 4.9 Integrating the employment and skills agenda Implementing 4. recommended. It provides support from Personal Advisers.000 for unemployed adults. (Chapter 3 sets out the plans for the Government’s response to the Leitch Review’s recommendations).10 In a global economy. skills become increasingly important in enabling people to the Leitch adapt to and benefit from change. Prosperity for all in the global economy – world class skills. The Agency’s organisation has been redesigned to focus resources on customer facing services.
8 As the labour market evolves over the next decade. The National Institute of Economic and Social Research (NIESR) concluded in 20003 that the level of long-term unemployment would have been twice as high without the New Deal for young people (NDYP). R.13 4.3: Long-term claimant count for young people and adults 1975 1977 1979 1981 1984 1986 1988 1990 1993 1995 1997 1999 2002 2004 2006 Youth (aged 18-24) claiming JSA 6 months+ Aged 25+ claiming JSA 18 months+ Source: DWP (before April 1994) and ONS (from April 1994) Claimant Count (4 point moving average). Policy Studies Institute.Card. J. 3 4 86 Budget 2007 . The challenge for the New Deal is to ensure that those without the basic level of skills needed to compete in the labour market. 8 ibid 9 The first stage of the New Deal for young people. Blundell. Costa Dias. with globalisation. Northern Ireland Economic Research Centre. NIESR. in Seeking a premier league economy. and that the economy as a whole was richer by £500 million as a result of NDYP .000. Freeman.7 and the social benefits of NDYP outweigh the costs.5 young men are now 20 per cent more likely to find work as a result of NDYP. How well has the New Deal for Young People worked in the UK? McVicar and Podivinsky. Independent evaluations have repeatedly highlighted the New Deal’s success and cost effectiveness. D. 5 New Deal for young people: evaluation of unemployment flows.4 overall youth unemployment has been reduced by between 30. June 2004.4 INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L EFSR 900 800 Total claims (thousands) 700 600 500 400 300 200 100 0 Chart 4. in Journal of the European Economic Association.000 and 40. Meghir. Blundell. can access the training they need. J.14 The New Deal for Young People: implication for employment and the public finances. Any young person who fails to find work in the early stages of the New Deal ‘Gateway’9 should have the opportunity to build up his or her skills in a workplace environment. 4. June 2004. C.6. the New Deal will also need to evolve to respond to the changing needs of the unemployed. Van Reenan. More recent studies show that: NDYP has significantly increased exit rates from unemployment in all regions. December 2000.Van Reenan. and improves their prospects of staying and progressing in work. 2003 6 Evaluating the employment impact of a mandatory search program. This should be done in a way that both increases the number of people moving into employment. M.Wilkinson. 7 Active labour market policies and the British New Deal for unemployed youth in context. April 2003. and the increasing use of technology shifting labour demand further towards the higher skilled. (eds) University of Chicago Press. R. R. D.
been declining over recent years. The Government will therefore test the impact of: • • restricting the choice of options for those who already have the basic level of skills needed to compete in the labour market. and review their application processes to ensure that local benefit claimants are not inadvertently excluded by. 4. it is important to make sure that New Deal participants are able to access appropriate support once they move into work.16 Running alongside these changes to New Deal itself. and enabling low-skilled NDYP participants to return to mainstream education and training leading towards a first level 2 qualification.18 A number of large retail employers have agreed to work in partnership with Jobcentre Plus at a local level. to help the long-term unemployed and economically inactive back to work. • • Budget 2007 87 . increasing the number of subsidised employment places available to New Deal participants. and agreeing in turn to guarantee interviews or jobs to local benefit claimants who complete this training. to help prepare them for work. The ease with which New Deal participants can enter Train to Gain is a key element in ensuring that the New Deal is not simply a gateway into a job. This Partnership agreement incorporates steps which employers will take to help Jobcentre Plus in supporting benefit claimants into work. The Government will therefore test changes to NDYP that will improve performance of the education and training offered through the New Deal. while that of a less effective option – Full Time Education and Training (FTET) – has been rising. and increase the proportion taking up more successful options. ending the separate FTET provision procured by Jobcentre Plus. The Government will therefore develop and test measures to ensure that New Deal advisors and Train to Gain brokers together provide a seamless link from New Deal to inwork training. requirements for qualifications or overly complicated procedures. for example. but a gateway into both work and training. Participation in this option has. Wo r k i n g i n p a r t n e r s h i p Local 4. Partnership working between Jobcentre Plus and employers at a local level is critical to making this happen. ‘Subsidised Employment’ is by far the most successful New Deal option. These measures will include one or more of: • • • offering two to four week work trials to a number of local benefit claimants.EFSR INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L 4 4. to ensure that the support delivered provides the long-term unemployed and the partnerships economically inactive with the preparation and training that enables them to meet employers’ expectations and requirements. helping Jobcentre Plus and partners design pre-employment training programmes that meet employers’ needs.15 One way of improving the New Deal’s performance is to examine and focus on its most successful elements. The signatory employers will encourage their managers to enter into a Local Employment Partnership with Jobcentre Plus. 4. however. encouraging their employees to volunteer to provide mentoring for long-term benefit claimants.17 Effective design and operation of the New Deal needs real engagement from employment employers.
These sectors have also made a key contribution to the delivery of the New Deal for disabled people. Action Teams and Working Neighbourhood pilots.21 Broadening the role of the private and third sectors in the provision of employment support opens up new opportunities. experience and skills. Jobcentre Plus sector expertise already contracts out a significant proportion of its labour market provision. Since 2000. increasing opportunity. An independent report to the Department for Work and Pensions. allowing Jobcentre Plus to target its own resources where these have the highest value added. providing security and support so that people can cope with change. allowing shocks to be accommodated and their costs in terms of lost output and jobs.23 Flexibility describes the capacity of individuals. Labour market 4. The Government’s labour market policies ensure that flexibility goes hand in hand with fairness. including making best use of local delivery partners’ resources in delivering the more holistic. 4. options for the future of welfare to work. and to lone parents. 88 Budget 2007 . Labour market flexibility is central to the performance of the UK economy. the Government has been systematically testing the impact of opening up the design and delivery of labour market support to competition.4 INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L EFSR Benefiting from 4. as Chart 4.19 Private sector and third sector organisations can bring a distinctive approach to private and third service delivery based on their specialist knowledge. 5 March 2007. Flexibility and regional performance 4. around a third of Jobcentre Plus expenditure is directed towards contracted-out provision. David Freud’s report9 to the Department for Work and Pensions (DWP) proposed greater private and third sector involvement in service delivery.20 4. Thirteen Employment Zones have been providing support to unemployed adults. with sufficient flexibility to enable local managers and front line staff to direct support where it is most needed. both in delivering mainstream programmes and in testing out different models of delivery. For example. 9 Reducing dependency.2 below. a more flexible and efficient labour market has the ability to adapt more rapidly.24 The benefits of improved labour market performance have been spread widely across performance the country. firms and markets to respond to flexibility economic change efficiently and quickly. In every region. David Freud. using outcome-based contracts.4 shows. The reasons for this are considered in Employment opportunity for all: tackling worklessness in London. intensive support necessary to help the most disadvantaged claimants into work. employment rates today are higher than in and London 1997. the employment rate in London is below that of all other UK regions and has shown the least improvement since 1997. Regional 4.4 also demonstrates. minimised. published today and summarised in Box 4.22 Delivery of welfare to work support through Jobcentre Plus needs to combine a standard and appropriate level of service for everyone. to young people who have already been through the New Deal. The progress the Government has made in promoting labour market flexibility and helping achieve economic stability is outlined throughout this chapter. Effective delivery needs also to take account of the different needs and opportunities in local and regional labour markets. As Chart 4.
EFSR INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L 4 Chart 4. Nov-Jan 2007 Budget 2007 89 .4: Employment rates across the UK 80 78 Employment rate (per cent) 76 74 72 70 68 66 64 62 60 N Ire d n d s st st er ds ds lan h Ea Wale ondo otlan We umb idlan idlan t h c L r S rt M d H st M No st No an e Ea s W k Yor st st st m Ea We th Ea ngdo h i t u K u o S d So ite Un Feb-Apr 1997 Source: LFS seasonally adjusted averages.
and child poverty rates are higher than other regions (on an after housing costs measure). local partners (including local authorities. November 2006. published today sets out to inform the analysis of the issues and help in developing a consensus around the necessary steps towards meeting it. is important to coordinate policy in line with the recommendations in the document. alongside sufficient operational flexibility at the appropriate levels to implement these approaches effectively but systematically. Economic growth provides the essential foundation to address poverty and worklessness. working with relevant partners – is to combine this economic strength with greater economic inclusiveness.2 Employment opportunity for all: tackling worklessness in London There has been strong growth in the number of jobs and in the level of employment in London since 1997. parents: in line with the findings of the Harker Report. many cities have lower employment rates than their surrounding regions. The document makes recommendations as to the areas where future policy should be directed to meet these challenges: • first. Jobcentre Plus. which reduces employment chances both for low skilled people in general. and third. London’s employment rate is lower than both the national rate and that of every other UK country and region. and together control over £42m with which to commission services tailored to meet local needs. that there is strong competition for lower-skilled jobs in London’s labour market. at just under 70 per cent. However. Cities Strategy 4. and the Learning and Skills Council) have formed consortia in 15 cities or city regions. A strategic London-wide approach.25 As Employment opportunity for all: tackling worklessness in London shows. Addressing the localised pockets of worklessness found in many cities requires strategic coordination and joined up working across a range of agencies and employers. city and local. Employment opportunity for all: tackling worklessness in London.4 INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L EFSR Box 4. a Delivering on Child Poverty: What would it take? Lisa Harker. The issues identified by the report are that a relatively large share of London’s population is disadvantaged in the labour market by their individual circumstances. second. Under DWP’s Cities Strategy.a policies should have a clearer focus on the employment needs of parents in London. bringing together all levels of government and other partners. They are working with Jobcentre Plus to ensure best use is made of the flexibilities available to Personal Advisers to provide tailored support to individuals. third sector organisations. These consortia are pooling funding streams and rationalising and joining up services. The institutional arrangements that would be best suited to implementing these changes should now be considered. and that parental employment rates in London are low underpinning relatively high rates of child poverty in the capital. To this end. including efforts to improve further the functioning of the childcare market. private businesses. The challenge for government at all levels – national. 90 Budget 2007 . the labour market: there should be an explicit focus on policies to relieve the congestion in London’s low-skilled labour market that reduces the employment chances of many Londoners. Many Londoners are not sharing the gains generated by the capital’s economic strength. employment programmes: a more strategic London-wide approach to identifying the most appropriate solutions to the capital’s problems is required. • • Local autonomy is important to allow the flexibility to address area specific problems. but also for young people and mothers.
The Government’s support for lone parents focuses on ensuring that work pays. Department for Work and Pensions.9 percentage points. Of those children living in a workless households.000 lone parents into work. such as employment.11 New Deal for lone parents: Second synthesis report of the national evaluation. a key cause employment of which is adult worklessness. and the scope for this will be explored as part of the Comprehensive Spending Review process.30 There are now over 1 million lone parents in work – over 310.10 4. A move into employment is the best route out of poverty for individuals and their children.000 fewer children in workless households than in 1997. skills and health. this may entail pooled funding streams to deliver services that cross traditional organisational boundaries. E X T E N D I N G E M P LOY M E N T O P P O R T U N I T Y T O A L L Lone parents Lone parent 4. through Work-Focused Interviews (WFIs) with skilled Personal Advisers – of the employment opportunities available to them.26 Cities Strategy consortia will focus on disadvantaged groups such as lone parents and incapacity benefit claimants. the lone parent employment rate has increased by 11.27 Individuals should be able to receive a personalised service that meets their specific needs.29 4. that barriers to employment are addressed and that lone parents are made aware – in particular. closer working between the key partners can be even more important. and the best means of improving an individual’s life chances.7 million children living in households where no one works.000 more than in 1997. Where appropriate. The New Deal for lone parents (NDLP) has so far helped over 480. such as people with drug or alcohol dependency.5 per cent. 11 Under Eurostat regulations the Labour Force Survey has changed from being based on seasonal quarters to calendar quarters. June 2003. For those with the greatest barriers to work.28 The Government is committed to the eradication of child poverty by 2020. and the experience of the Cities Strategy will provide important information on how this can be achieved. as Chart 4. and. with independent evaluation suggesting that participating in NDLP doubles an individual’s chances of finding employment. there are still 1. but which operates to high quality standards and is joined up across the public sector.EFSR INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L 4 4. Since spring 1997.6 to 14. 10 Budget 2007 91 . Some figures have therefore changed from those published in Pre-Budget Report 2006 (See Chart 4. the gap in the employment rates of lone parents and partnered mothers has narrowed from 23. 68 per cent live in a lone parent household.5 for details). Although there are now 440.5 shows.8 percentage points to 56. 4.
400 Lone parent employment (thousands) 80 70 Employment rate (per cent) 60 50 40 30 20 10 0 1. Data for 1998 and 2000 are based on seasonal quarter observations (March to May) since the new calendar quarters (based on responses in April to June) are not yet available. for their first 12 months back in work.33 Since April 2004. coherent package of support to lone parents including enhanced adviser support. this Budget announces that the IWC will continue to be available to eligible lone parents in the current pilot areas until June 2008.600 1. 12 13 92 Budget 2007 . Employment Zone providers are incentivised to help both unemployed and lone parent clients into work within a specific time period. In five areas. financial incentives. the IWC will be offered in London at a higher rate of £60. North London. Introduced in 2005. and in their existing five locations13 for a further two years to 2008.14 lone parents are still more likely to leave their job than are non-lone parents and single childless women. Source: Department for Work and Pensions. 4.200 1. a £40 per week payment for lone parents who have been on income support for more than 12 months. some may be further from 15 4.5: Lone parent employment 1. Dudley and Sandwell. benefiting over 250. to address the higher costs of living in London and the consequently reduced returns to work.4 INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L EFSR Chart 4. 14 Lone parents cycling between work and benefits.32 While the probability of lone parents leaving work has fallen from 14 per cent in 1992 retention to around 10 per cent in 2003.34 Edinburgh. the Government has piloted the In-Work Credit (IWC).000 lone parents. and events to build personal confidence. While. DWP research report 217.000 800 600 400 200 0 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 Lone parents employed1 Lone parent employment rate 1 Lone parents not employed1 Partnered mothers employment rate Under Eurostat regulations the Labour Force Survey has changed from being based on seasonal to calendar quarters. Brent and Haringey. lone parents receive support through Employment Zones rather than NDLP . Southwark.31 The New Deal Plus for lone parents (NDLP+) pilots are testing the impact of a widefor lone parents ranging. Leicestershire. 15 Tower Hamlets and Newham. and the former Cardiff and Vale sites within the new SE Wales district. Skills and 4. The IWC provides a clear financial benefit from a move into employment and is helping lone parents move away from benefit dependency. London South East. help to find work as soon as possible is the most appropriate approach. initiatives such as childcare ‘tasters’ that aim to reassure parents of the benefits of formal childcare provision. To provide further help to lone parents to stay in employment. the NDLP+ pilots were extended to two further Jobcentre Plus districts in Scotland and Wales12 from October 2006. New Deal Plus 4. Household Labour Force Survey. September 2004. This Budget also announces that. Lothian and Borders. Bradford. for most lone parents. Consequently the data for 1998 and 2000 are not directly comparable with the other years shown.
Flexible working practices are increasingly being adopted.EFSR INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L 4 the labour market and need longer periods of training in order to develop the skills and confidence to move back into work. 4.36 The Government has significantly improved support for lone parents since 1997. an exemplar employer initiative in which employers give a commitment to reduce the gender pay gap. and the ten-year strategy for childcare18 which aims to provide highquality. and £10 million for the Women and Work Sector Pathways initiative to support innovative ways of helping women advance in their careers. Government Action Plan: Implementing the Women and Work Commission recommendations. 4. part-time work.17 including: a £500. work-focused approaches to provide training in English as a second or other language (ESOL) in the London Cities Strategy pathfinders for parents on benefits or tax credits. affordable childcare for all parents who need it. February 2006. From April 2005.20 This Budget announces that the Government will trial short. the Government introduced new reforms to encourage employer supported childcare. This programme provides support and encouragement to partners of benefit claimants to acquire the skills and confidence they need to move into work. been able to access a similar level of support to that provided to lone parents through a targeted WFI regime and the relaunched New Deal for partners (NDP). 16 17 Budget 2007 93 . Since April 2004. not being able to speak English increases the chances their children will be in poverty. for parents. and the Childcare Act 2006 introduced a new duty for local authorities to work with childcare providers to secure sufficient childcare supply in their area. provide the opportunity better to balance work and family life. Around a fifth of Londoners do not speak English as a first language.000 programme to increase the availability of quality. Data Management and Analysis Group 2006/26. September 2006. and maternity pay and child benefits have been increased. Spence. The Government is reviewing the system of work-focused support available to partners of benefit claimants and couple parents. the Government is increasing the frequency of compulsory WFIs for those who have been on Income Support for at least a year to a minimum of once every 6 months. 20 A Profile of Londoners by Language: An analysis of Labour Force Survey data on first language. 19 As announced in Budget 2006.300 job entries have been recorded for partners who have either attended a WFI or joined NDP . and responsibilities continues to develop employee rights in the workplace. 18 Published alongside the 2004 Pre-Budget Report. Shaping a Fairer Future. over 4. These reforms.37 Childcare Partnership Managers act as a focal point in each Jobcentre Plus district for the resolution of childcare issues and provide Personal Advisers with information about local childcare and Sure Start programmes. Rights and 4. since 2004. L.19 Couple parents 4.39 The ability to speak English can be an important step towards finding work. and 40 per cent of London’s workless parents have English as a second language. Greater London Authority. Links with Children’s Centres are continuing to be developed. The Government will explore ways of encouraging Employment Zone providers to improve lone parent skills. from April 2007.35 The Government recently announced16 steps to meet commitments made in response to the Women and Work Commission recommendations.38 Partners of benefit claimants have. To ensure that lone parents are fully informed of the help and support available to them. 4. September 2006. Progress will be published in a report to mark the first anniversary of the Women and Work Commission’s findings. Women and Work Commission.
41 During the 1980s and early 1990s. and Derbyshire.6: Six month off-ﬂows from incapacity beneﬁts 50 Start of Pathways Phase 1 45 Off-ﬂow rate (per cent) 40 35 30 Start of Pathways Phase 2 25 20 Ap 1 1 1 3 2 2 2 2 6 3 3 3 5 5 5 5 4 4 4 4 r-0 Jul-0 ct-0 an-0 pr-0 Jul-0 ct-0 an-0 pr-0 Jul-0 ct-0 an-0 pr-0 ul-0 ct-0 an-0 pr-0 Jul-0 ct-0 an-0 J O J O J O J A O J O J A A A Month of beneﬁt start Non-Pathways pilot districts 1 2 Phase 1 districts1 Phase 2 districts2 The three phase 1 districts are: Bridgend. Income Support on the grounds of incapacity. • • Chart 4. the welfare system did little to support people with incapacity a health condition or disability back to work. Renfrewshire. Ensuring that many more are able to take up the opportunity to work is central to extending employment opportunity to all. help with identifying and moving into employment. 4. for example: • • access to early and ongoing work–focused advice from Jobcentre Plus. Support for a 4. only around half are in employment. the number of incapacity benefits claimants21 in the UK more than trebled between the early 1980s and mid 1990s. and improved opportunities to participate in society.4 INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L EFSR Pe o p l e w i t h a h e a l t h c o n d i t i o n o r d i s a b i l i t y Of the nearly 5. Source: Department for Work and Pensions.40 Growth in 4. Essex. Reforms to the system of support mean that incapacity benefits claimants now receive active encouragement and support to plan their return to work. despite the fact that as many as 90 per cent of people expect to return to work when they start a claim for incapacity benefits. Rhondda.6 million people of working age with a disability. through. and measures to ensure that work pays through the Working Tax Credit and National Minimum Wage. As a consequence. as discussed in Chapter 5. Gateshead and South Tyneside. a return to work is possible with appropriate return to work help and support. steps to tackle discrimination through the Disability Discrimination Act 2005. many drifted into long-term benefit benefit claims receipt. Inverclyde. As a result. despite improvements in general health and life expectancy. 94 Budget 2007 . By August 2006. Cynon and Taff. the New Deal for Disabled People (NDDP) had found over 152. and Somerset. and Severe Disablement Allowance. 21 The current system of incapacity benefits includes: Incapacity Benefit. Argyll and Bute.42 For many incapacity benefits claimants.000 jobs for people with a health condition or disability. The four phase 2 districts are: East Lancashire.
on behalf of the Department for Work and Pensions. Building on this.43 The Government’s Pathways to Work pilots are testing a new framework that combines ongoing mandatory contact with highly skilled Personal Advisers at Jobcentre Plus. Notwithstanding recent and considerable success.68 million. 2005. In February 2005.45 The success of the Pathways to Work pilots has demonstrated that. and the total number of claimants in Wales.000 in the last five years. • • • 4. the total number of incapacity benefits claimants in August 2006 was over 40. The incapacity benefits claimant rate is falling fastest in the regions where it was highest during the 1980s and 1990s.44 These reforms have started to change attitudes and expectations. but wish to do so. The off-flow rates presented are produced from the Working Age Statistical Database (WASD). and high quality employment. Economic Survey of the United Kingdom. WASD does not include a proportion of short-term incapacity benefit claims.500 referrals to the new Condition Management Programmes. the Government extended a mandatory WFI regime to some existing claimants. This includes NDDP and the Condition Management Programmes. however. the Welfare Reform Bill. many people on incapacity benefits can move back into work. there is more to be done to ensure that everyone receives the appropriate support. June 2006. alongside a new Job Preparation Premium of £20 per week to encourage steps towards finding work. therefore the off-flows presented will be lower than actual rates. the North West and Scotland has fallen by almost 100. The longstanding rising trend in the number of claimants has stopped and the caseload is now beginning to fall. and the composition changed (with a growing proportion of claimants citing a mental health condition as the primary cause of their incapacity). makes provision for a new integrated and simplified Employment and Support Allowance (ESA) to replace the current system of incapacity benefits for new claimants from 2008.22 and this is demonstrated by: • a significant increase in flows off incapacity benefits after six months of a claim (Chart 4. Annual inflows to the benefits have fallen by a third since the mid 1990s. ten and a half months after an initial enquiry to claim benefits. the average duration of claims has increased. an eight percentage points increase in people leaving benefits in Pathways areas compared to matched non-Pathways areas. Institute of Fiscal Studies. 22 23 Budget 2007 95 . Welfare 4. with over 12.000 lower than the previous year.500 job entries through the Pathways to Work pilots by June 2006. and one in fifteen participants being longer-term claimants who are not required to participate in the programme. around 21 per cent of claimants taking up elements of the Choices package25 following their initial WFI. OECD. and at 2. health and financial support. 25 The Choices package is a range of provision aimed at improving labour market readiness and opportunities. Within a declining total. 24 Early quantitative evidence on the impact of Pathways to Work pilots.23 Independent evaluation by the Institute for Fiscal Studies24 found. presented to Parliament in July 2006. with the right help Reform Bill and support. the North East.6). over 26. The Organisation for Economic Co-operation and Development has described Pathways to Work as a “considerable success”.EFSR INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L 4 Pathways 4.
The review’s consultations have identified the need for a holistic approach. the number of incapacity benefits claimants citing mental health and employment conditions as the primary cause of their incapacity has increased significantly over the last 10 years. Budget 2006 announced a review’ of the policies needed to improve mental health and employment outcomes. Mental health 4. For most people. an agreed action plan.3 below.000 1. full receipt of the new benefit will require: attendance at WFIs.000 in 1996 to over one million in 2006.46 The new ESA will have a clearer balance of rights and responsibilities than the current system.000 500 0 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 Mental & behavioural disorders Circulatory & respiratory Diseases of the nervous system Source: Department for Work and Pensions. 3.47 As Chart 4.500 Caseload (thousands) Chart 4. The Personal Capability Assessment (the eligibility test conducted at the start of an Incapacity Benefit claim) will be reformed to focus on what a person can.000 2. set out in Box 4. People with the most severe health conditions and disabilities will be supported by ESA at a higher level with no requirement for work related activity. and. rather than cannot. although they will still be able to take up programme support on a voluntary basis. To inform the 2007 Comprehensive Spending Review.7: Incapacity benefits caseload by primary health condition or disability 2.4 INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L EFSR 4. as resources allow.500 1. annual spring quarters. do. Musculoskeletal Injury & poisoning Other 96 Budget 2007 . engagement in work related activity. from 645.7 shows.
To best achieve this. more likely to be unemployed or economically inactive than are those with good mental health. such conditions can also adversely affect economic outcomes. many individuals do not even seek treatment. While many people with common mental health conditions are employed. Supporting people to manage their health condition and remain in. such as depression and anxiety. and unemployment. The Review is considering options for the way that people with a mental health condition are supported and treated. such as addressing stress and encouraging flexible working. Not only is this important to the Government’s long-term aspiration of an employment rate equivalent to 80 per cent of the working age population. and crucial to reducing the numbers on incapacity benefits. has been shown to be bad for mental health. Budget 2007 97 . is therefore key for health outcomes. which includes additional support for people aged over 50. the Government introduced legislation in October 2006 to outlaw age discrimination in employment and vocational training.3 Review of Mental Health and Employment Outcomes Common mental health conditions. in turn. Many GPs recognise that employment is an effective part of the rehabilitation process. Pathways to Work and the Condition Management Programme are showing promising signs of improving employment outcomes for those on incapacity benefits. The financial incentive to work. and many employers have strong programmes that help people to manage their condition and stay in work. Over 40 per cent of all incapacity benefits claimants report a mental health condition as their main health concern. affect around 1 in 6 adults at any one time. The consultations have identified the need for a holistic approach that changes the way common mental health concerns are addressed across the spectrum. GPs are trusted by people with mental health conditions and are often a first point for those seeking help and advice. work. prolonged periods out of work can worsen mental health. the Review has found four key groups that are important in helping those with mental health conditions realise their full potential in the labour market: • employers currently employ 4 million people with a common mental health condition. however there may be even more that we can do for long term or repeat benefit claimants with common mental health conditions. In line with the European Employment Directive. and of those that do. has been enhanced through the Working Tax Credit. and the role of employment programmes and the benefit system. not all receive the most modern effective treatments. Budget 2006 announced a Review of the policies needed to improve mental health and employment outcomes. or move back into. Older workers 4. • • • The Review will report as part of the 2007 Comprehensive Spending Review. As well as causing distress and reducing people’s quality of life.48 The Government is committed to ensuring that everyone who wishes to extend his or her working life should have the opportunity to do so. individuals in this group are in general.EFSR INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L 4 Box 4. meanwhile. but evidence also suggests that remaining in work can increase social inclusion and improve health.
for example. The increase in the UK female state pension age from 60 years to 65 years between 2010 and 2020 is expected to lead to significant growth in female labour market participation rates. 4. not seasonally adjusted spring quarters. 26. Ethnic Minority Groups The employment rate for people from ethnic minority groups rose to over 60 per cent in October-December 2006 and.000 Caseload (thousands) 7.000 2.1 per cent. and for women of Bangladeshi origin.2 per cent. Furthermore. however. 26.50 98 Budget 2007 .000 6. the gap between it and the overall national employment rate has narrowed. in a strong and stable economy.49 These measures have.0 per cent. the diversity of labour market outcomes across different ethnic minority groups. the employment rate of people aged between 50 and State Pension Age has risen from below 65 per cent to over 70 per cent. 2002 2003 Over SPA1 2004 2005 2006 4.1 per cent.2 million people over state pension age in employment. The employment rate for women of Pakistani origin is.4 INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L EFSR Chart 4.000 8.000 5.000 4. Microdata. Since 1997.9 illustrates.000 3. there are now more than 1. This compares with an average employment rate for women from other ethnic minority groups of 52. Source: LFS. and a national female employment rate of 70.8: Employment of older workers 9. as Chart 4. delivered impressive results.000 0 1997 1998 1999 2000 2001 50 – SPA1 1 SPA=State Pension Age.000 1. The chart also shows.
53 Around 850. the Chancellor announced that he would ask a group Commission of private sector leaders to advise on policies and practical measures to increase the recruitment.9: Ethnic minorities employment rate. Other White and Other Black. who were neither working nor on benefit. Of the remainder. The National Employment Panel’s Business Commission on Race Equality in the Workplace. London and Manchester. and have no visible means of support. Leeds. These individuals are at risk of long-term detachment from the labour market. this is a short-lived experience. some 25 per cent of NEETs move into education or employment within three months. however. Leicester.000) are living with their partner and looking after young children. employment or training (NEETs). the large majority are claiming benefits. Business 4.000 jobs. Yo u n g Pe o p l e N o t i n E d u c a t i o n . Tr a i n i n g o r E m p l o y m e n t 4. Source: LFS not seasonally adjusted calendar quarters.000 18-24 year olds are not in education.54 There are. Partners Outreach provision is located in deprived areas with high ethnic minority group populations in Birmingham. 4. will publish its final report in the summer.52 In the 2005 Pre-Budget Report. supported through organisations such as the youth volunteering charity V. and receive work-focused support through Jobcentre Plus.EFSR INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L 4 Chart 4. Bradford. a small number of people who are not receiving support through Jobcentre Plus and who have been NEET for over six months. winter 2001 and winter 2006 80 70 Employment rate (per cent) 60 50 40 30 20 10 0 W xe d2 Ot he Mi Pa Bl ac k B lac k Ca Ot he Ba ng Ethnic Group October-December 2001 1‘Other ’ 2‘Mixed’ October-December 2006 comprises the following groups from the Labour Force Survey: Other. Others (around 100. Ch in te hi an di In t kis an r1 es i ri Af ca n b rib ea n s rA ian e lad sh i te Ra in t en rita in ym t B cM o i pl rea hn Et Em in G it or ies e Budget 2007 99 . In the 2005 Pre-Budget Report the Government announced new private and third sector led employment outreach services to help partners of people on low income. retention and progression of ethnic minorities in the private sector. For many. chaired by Gordon Pell. White and Black African. White and Asian and Other Mixed.51 DWP employment programmes have helped people from ethnic minority groups into Outreach over 245. comprises the following groups from the Labour Force Survey: White and Black Caribbean. Partners 4. Voluntary activity.
and to the Government’s 2010 target to reduce the number of households in temporary accommodation. as this influences the mobility and employment choices of claimants. local authorities took an average of 57 days to process a new HB claim. develop enhanced data links between DWP and local authorities. Structural 4.57 The Government is keen to ensure both that tenants continue to receive appropriate levels of HB. The Government is therefore continuing to reform HB through administrative improvements. and is a simpler and more transparent way of administering HB. the Government is investing in further IT development to: improve information gathering processes in Jobcentre Plus and The Pension Service. This makes it easier for tenants to find out in advance how much rent can be covered by HB. which will streamline rules on: benefit payment periods.58 The Government is taking forward structural reform of HB through the flat-rate Local reform Housing Allowance (LHA).59 The Government intends to work closely with local authorities on future structural changes to HB arrangements for temporary accommodation. and steps to streamline and aligning benefits. and are published monthly.55 Over four million low income tenants receive help with their rent costs from Housing reform Benefit (HB). By the third quarter of 2006-07 this had been reduced to an average of 34 days. and that fraud and error in the administration of the benefit is reduced. the backdating period for Disability Living Allowance and Attendance Allowance forms. It is important that HB claims are dealt with quickly and accurately. allowing them to make more informed housing choices. Administrative 4. Chapter 5 announces Activity Agreements for 16-17 year old NEETs in receipt of JSA (severe hardship). This Budget announces a package of alignment measures. It will also contribute both to improved work incentives for tenants. Building on the considerable investment already made in this area. the benefit delivery Government continues to explore ways of further simplifying the system and thereby and accuracy reducing error further. In the first quarter of 2002-03. thereby increasing financial inclusion and helping develop budgeting skills as a step towards employment. The London Development Agency. 4.58 Although the vast majority of benefits (just under 98 per cent) are paid correctly. structural reform. LHA is normally paid direct to tenants. Benefit simplification Improving 4.56 Government investment in local authorities’ IT has led to considerable improvements improvements in processing times. and termination payments. with the 60 worst performing local authorities reducing processing time by an average of 44 days. will also be taking steps to help these disadvantaged young people participate. BENEFIT REFORM Reforming Housing Benefit Housing Benefit 4. LHA rates are based on household size and area. 4. the treatment of rental income. 100 Budget 2007 . Identifying and separating out reasonable costs for the rent and management of temporary accommodation will improve transparency and value for money. through its Pre-Volunteering Programme for the 2012 London Games. LHA was first piloted in nine local authorities from November 2003 and in a further nine from April 2005. and extend the collection of fraud and error data.4 INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L EFSR can provide an important stepping-stone from inactivity to employment.
EFSR INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L 4 M A K I N G W O R K PAY 4. HM Revenue & Customs will introduce a four-week run-on in run-on in WTC entitlement to WTC from the day a claimant ceases to work over 16 hours. This will reduce the number and value of overpayments – occurring when people are late in reporting that they are no longer entitled to WTC. Four-week 4. over 2.200.65 The 2006 Pre-Budget Report announced. the earnings disregard in HB and Council Tax Benefit would be raised in line with inflation to £15. Table trap 4. the Government announced that the resources devoted to National Minimum Wage enforcement would be increased by 50 per cent in order to raise standards of enforcement. will rise to £4.52 per hour from October 2007. Budget 2007 101 . and the development rate for 16 and 17 year olds. the Government has boosted in-work incomes. to £6.40. 4. The youth rate. that in order to ensure that people claiming HB or Council Tax Benefit would gain from the increases in the rates of WTC. from this April. to £3. and is committed to making work pay by improving incentives to participate and progress in the labour market. claimants are subject to a four-week mandatory reporting period when they cease work or have other changes of circumstances.63 The Working 4. It also reflects the fact that.67 From April 2008 the income threshold below which WTC is received in full will threshold from increase by £1.66 From April 2007.60. This will come into effect in April 2007. This will come into force from April 2007. and will increase the gain to work for many low-income households. In the 2006 Pre-Budget Report.1 shows that.25 million families with children and over 323. Increasing WTC 4. This will be introduced alongside a wider package of April 2008 reforms to the personal tax and tax credit system announced in Chapter 5. over double the number who received support through its predecessor. Some 103.64 The WTC provides financial support on top of earnings for households with low Tax Credit incomes. since the introduction of the National Minimum Wage in April 1999. The National 4. thereby improving financial incentives to work and tackling poverty among working people.000 households without children were benefiting from the WTC.000 families benefited from the disabled workers element of WTC. the Disabled Person’s Tax Credit.61 The Government believes that work is the best route out of poverty.62 The National Minimum Wage guarantees a fair minimum income from work.420 per annum. for workers aged between 18 to 21.68 The unemployment trap occurs when those without work find the difference between unemployment in-work and out-of-work incomes too small to provide an incentive to move into work. 4. Through the Working Tax Credit (WTC) and the National Minimum Wage. thereby reducing this problem. Tackling the 4. the Government has increased the minimum income that people can expect on moving into work.45. The Minimum Wage Government has accepted the Low Pay Commission’s recommendations to increase the adult rate to £5. In December 2006.
1: Weekly Minimum Income Guarantees (MIGs) April 1999 Family1 with one child. which allows income to rise between one year and the next by up to this amount before tax credits begin to be withdrawn. and the head of the household is not claiming the disabled worker element of WTC. Marginal deduction rates (MDRs) measure the extent of the poverty trap by showing how much of each additional pound of gross earnings is lost through higher taxes and withdrawn benefits or tax credits. They also do not include the effect of the £25. for example. Part-time work is assumed to be 16 hours.2: The effect of the Government’s reforms on high marginal deduction rates Marginal deduction rate1 Over 100 percent Over 90 percent Over 80 percent Over 70 percent Over 60 percent 1 Before Budget 1998 5.000 130. no children. 25 or over. full-time work Couple. Note: Figures are cumulative. about half a million fewer low income households face MDRs in excess of 70 per cent now than in April 1997.2 shows that.000 disregard in tax credits. including low income working people without children.000 2007-08 system of tax and benefits 0 50.4 INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L EFSR Table 4.000 740.69 The poverty trap occurs when those in work have little incentive to move up the poverty trap earnings ladder because of only limited net gains. 4. Table 4. which have extended financial support so that a larger number of families benefit. This means that the actual marginal deduction rates for many families will in practice be significantly lower. full-time work Family with one child. 2 Projections are based on RPI and AEI growth taken from HM Treasury ’s economic forecast. however. that these figures do not take account of any likely behavioural changes caused by a rise in income (changes in.000 Marginal deduction rates are for working heads of households in receipt of income-related benefits or tax credits where at least one person works 16 hours or more a week. 4. Table 4. estimates for the 2007-08 system of tax and benefits are based on caseload and take-up rates in 2004-05.000 760. labour market participation or hours worked). Tackling the 4.000 300. part-time work 1 October 2007 £276 £217 £180 £212 £224 £165 April 20082 £290 £225 £186 £220 £228 £168 £182 £136 £113 £117 £139 £109 Single person. 102 Budget 2007 .680. as a result of these reforms.71 It is important to note. 25 or over. at least in the first year.000 210.000 1. Full-time work is assumed to be 35 hours.000 170.70 The Government’s reforms are ensuring that workers have improved incentives to progress in work. Before Budget 1998 figures based on 1997-98 estimated caseload and take-up rates. full-time work Single disabled person in full-time work Single disabled person in part-time work Assumes the prevailing rate of NMW and that the family is eligible for Family Credit/Disability Working Allowance and Working Tax Credit/Child Tax Credit. 1 Applies to lone parent families and couples with children alike. The increase in the number of households facing MDRs of between 60 and 70 per cent is due primarily to the introduction of tax credits.
Most of these families face an MDR of around 70 per cent. To the extent that workers pay for general training through lower wages. Vol. reflecting the lower withdrawal rate of in-work support under tax credits. 3. The effect of the Working Families’ Tax Credit on labour market participation. M. The characteristics of this group are typical of tax credit claimants: over 80 per cent have children. in reality. assuming the National Minimum Wage rate. Chart (a) shows marginal deduction rates (MDRs) by gross income for a lone parent with two children under the 2007-08 and indexed 1997-98 tax and benefit systems.000. A number of published studies have assessed the labour market impacts of the Government’s tax and benefit reforms. perhaps reflecting enhanced incentives to cross 16 and 30 hour tax credit thresholds. (2005). 26. this shows a reduced MDR at low income levels. which allows people to increase their income without having their tax credits withdrawn. Box 4. average hours are estimated to have risen for lone mothers. wages and wage growth.000 disregard in tax credits. for example. Chart (a): Lone parent with 2 children 250 Chart (b): Families facing MDRs between 60 and 70 per cent Marginal deduction rate (%) 200 100 50 500 600 0 0-5 5-10 10-15 15-20 20-25 25-30 30-35 Gross family income (£000 per annum) Couple parents 35-40 >40 1997/98 Lone parents Families without children Chart (b) shows the distribution of those families likely to be facing MDRs of 60 to 70 per cent in 2007-08. such as the effect of the £25. Evidence on incentives to acquire skills or move into better paid jobs is less comprehensive. but one studyb argues that the impacts are not clear-cut. due to now more generous support overall. Welfare-to-work. higher MDRs also mitigate such costs. An overview of these studies is provided in Brewer. This study finds an increase in short-term wage growth for those groups facing increased MDRs under tax credits. by gross income and family type. The changes to income tax and tax credits announced in this Budget do not materially affect these conclusions.000 and £25. R. They also look at very small changes in income. They provide no evidence of any reduction in hours worked for working parents.a These studies suggest that the reforms have increased the lone parent employment rate by around 5 percentage points. J. and three quarters have gross incomes between £10. and Browne. MDRs suffer a number of limitations that make interpretation difficult. 69.3 Marginal Deduction Rates 120 100 80 Thousands 150 60 40 16 hours at NMW 20 0 0 100 200 300 400 Gross income (£pw) 2007/08 Source: HM Treasury estimates Source: HM Treasury estimates. changes in income are larger and can move people off the tax credit taper or bring them into eligibility for additional support (through.EFSR INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L 4 Box 4. This pattern is typical for single earner families with children. In fact. This means that it may be more useful to look at empirical studies.2. reflecting basic rate income tax and employee NICs combined with the withdrawal rate for tax credits. (2006). No. Consistent with Table 4.4: The effect of Government reforms on marginal dedication rates. b Lydon. and Walker. IFS Briefing Note No. but with withdrawal of support now extending further up the income scale. They ignore some key features of the tax and benefit system. the 30 hours element). Fiscal Studies. a Budget 2007 103 . I.
3: Allocation of the Windfall Tax £ million Spending by programme New Deal for 25 plus New Deal for over 50s New Deal for lone parents New Deal for disabled people 4 New Deal for partners Childcare 5 University for Industry 6 Workforce development 7 ONE pilots 8 Action Teams Enterprise development Modernising the Employment Service Total Resource Expenditure Capital Expenditure 1 2 1997-98 1998-99 1999-00 2000-01 2001-02 2002-03 2003-042 2004-05 2005-06 TOTAL 1 New Deal for young people 3 50 0 0 0 0 0 0 0 0 0 0 0 0 50 90 2. an element of the November 1998 announcements on welfare reform. the programme has since 2003-04 been funded from resources allocated to DWP through the spending review process as the Windfall Tax receipts have been exhausted. Table 4.3 sets out that element of the welfare to work programme. 3 Includes funding for the Innovation Fund. 104 Budget 2007 . 9 Includes capital spending on renewal of school infrastructure. 6 Start up and development costs. The costs of the 1997 Budget improvements in childcare through Family Credit are included from April 1998 to October 1999. Constituent elements may not sum to totals because of rounding. after which the measure was incorporated within the Working Families’ Tax Credit.200 9 Windfall Tax receipts In year figures rounded to the nearest £10 million. 7 Includes £219 million funding for Employer Training Pilots.72 The welfare to work programme is delivered by DWP. 5 Includes £30 million for out-of-school childcare. Originally funded by the Windfall Tax on the excess profits of the privatised utilities. to help raise standards. funded from the Windfall Tax. 8 Funding for repeat interviews.530 770 60 280 100 40 35 5 320 10 150 40 40 3. Table 4.600 310 90 5 40 20 5 10 0 0 0 0 0 0 480 260 300 110 20 40 10 10 5 0 0 5 10 10 40 560 750 240 200 10 40 10 10 0 0 0 5 40 20 0 570 450 260 210 10 80 30 10 0 0 40 0 50 10 0 700 0 170 150 10 60 30 10 0 0 50 0 50 0 0 530 0 0 0 0 0 0 0 0 0 150 0 0 0 0 150 0 0 0 0 0 0 0 0 0 80 0 0 0 0 80 0 1. Other funding is from the Invest to Save budget. Remaining in-year expenditure will be topped up with general Government revenues. Windfall tax expenditure on welfare to work programmes is reduced from 2003-04 onwards as windfall tax resources are exhausted. Further detail of expenditure on welfare to work programmes can be found in the DWP Departmental Report. and other programmes.820 5.4 INCREASING E M P LO Y M E N T O P P O R T U N I T Y F O R A L L EFSR F U N D I N G F O R W E L FA R E F O R W O R K 4. 4 Includes £10 million in 1999-2000. (except where expenditure is less than £5 million).600 200 10 0 20 5 0 20 5 0 0 0 0 0 260 270 2.380 1. Other costs of the University for Industry are funded from within Departmental Expenditure Limits.
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