2 March 2010 – Publication of DWP research report 631: Employment and Support Allowance: early implementation experiences of customers and staff

This report represents the first stage of the evaluation of Employment and Support Allowance (ESA) and presents the findings from an early implementation study. It is based on fieldwork carried out between May and July 2009 in four Jobcentre Plus districts across Great Britain. Approximately 40 staff working on ESA, and 40 customers who had applied for ESA, were interviewed.

As a qualitative study, this report does not seek to comment on the extent to which particular experiences and outcomes were occurring – its aim was to explore the variety and range of customer and staff experiences, and explore the factors underlying these. However, the high degree of congruence between staff and customer accounts indicates it provides a valid representation of the nature and range of early implementation issues.

The research was carried out by Helen Barnes, Paul Sissons, Jane Aston, Sara Dewson, Helen Stevens, Ceri Williams and Ruth Francis from the Institute for Employment Studies.

Key findings

• Staff were generally very positive about the policy intention of ESA. However, they felt their day-to-day work was affected by a range of problems, primarily delays in processing claims, computer system problems, and the unexpectedly severe perceived health problems of some customers assigned to the Work-Related Activity Group. Action to reduce delays and address computer system problems has been taken since the time of the research.
• Customers generally knew little about ESA before claiming, which is unsurprising as it is a new benefit. They found making an initial claim relatively simple, but some were confused by a lack of information on the claim process, or frustrated by delays. Some customers reported struggling to complete the ESA 50 form, a questionnaire which asked about how their illness or disability affected their ability to complete everyday tasks.
• Most customers placed in the Support and Work-Related Activity Groups at the Work Capability Assessment did not understand the ESA groupings, or that they had been placed in a particular group. Support Group customers were generally satisfied with their ESA claim outcome.
• Views of customers in the Work-Related Activity Group were mixed. Some customers welcomed the support offered in Work-Focused Interviews, felt the advisers were sensitive and sympathetic, and welcomed discussion of potential alternative occupations. Others – those who felt too ill to ever work again, or felt that their age, skill level or local demand for labour were unfavourable – viewed Work-Focused Interviews as inconsequential.
• Some customers who were found to be Fit for Work at the Work Capability Assessment were highly critical of this decision, although others accepted it.

Notes to Editors:

1. This report is published on 2 March 2010 in the DWP research report series (report number 631). It can be found on the internet at http://research.dwp.gov.uk/asd/asd5/rrs-index.asp.
2. This project was carried out by an independent research organisation, the Institute for Employment Studies. The report authors were Helen Barnes, Paul Sissons, Jane Aston, Sara Dewson, Helen Stevens, Ceri Williams and Ruth Francis.

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