Title
Contents
Acknowledgements 7
The Authors 8
Abbreviations and acronyms 9
Summary 11
1. Introduction 22
1.1 Background to the Pathways to Work Incapacity Benefit pilots 22
1.1.1 Summary of the evaluation programme 24
1.2 The Pathways to Work sanction regime 24
1.3 An overview of existing research on sanctions and non-compliance 25
1.4 Aims and objectives 26
1.5 Research design and conduct 27
1.5.1 The primary research 27
1.6 Sample 29
1.6.1 Jobcentre Plus districts 29
1.6.2 Sample characteristics 30
1.6.3 The secondary analysis 32
1.7 Structure of the report 32
2. Awareness and understanding of sanctioning 33
2.1 Level of awareness 33
2.1.1 Awareness of the mandatory nature of WFIs 33
2.1.2 Awareness of the implications of sanctioning 34
2.1.3 Understanding of the purpose of WFIs and the role of sanctioning 35
2.2 Sources of awareness 36
2.2.1 Jobcentre Plus letter 37
2.2.2 Telephone contact with an IBPA 38
2.2.3 Contact Jobcentre Plus staff when first making a claim 39
2.2.4 Previous experience of the benefits system 39
2.3 Summary 40
3. Impact of sanctioning on attendance at Work Focused Interviews 41
3.1 Reasons for Failure to Attend WFI meetings 41
3.1.1 IBPA views about reasons for failure to attend 42
3.1.2 Reasons for failing to attend given by customers 42
3.2 The impact of sanctioning on attendance 46
3.2.1 Incapacity Benefit Personal Adviser views about the impact of sanctioning on attendance 46
3.2.2 Overall impact on customer attendance 46
3.2.3 Impact of sanctioning on attendance for different types of customers 47
3.3 Summary 53
4. Experiences of the sanctioning process 55
4.1 General attitudes and practices towards imposing sanctions 55
4.1.1 IBPA attitudes and practices in relation to sanctions 56
4.1.2 Customer views about the fairness of sanctioning benefits for people on Incapacity Benefit 56
4.2 Customer experiences of referral and sanctioning 57
4.2.1 Customers referred but not sanctioned 57
4.2.2 Sanctioning related to breakdowns in communication 60
4.2.3 Sanctioning related to failures to show 'good cause' 62
4.3 Nature of sanctions imposed 64
4.3.1 Amount and duration of the sanctions 64
4.3.2 Awareness and understanding of the sanction 65
4.4 Customer views about the fairness of their own sanction 66
4.4.1 Communication breakdowns 67
4.4.2 The provision of warning about sanction imposition and opportunities to show 'good cause' 68
4.4.3 Perceived legitimacy of reasons for failing to attend 69
4.4.4 Reimbursement of benefits where sanctions were incorrectly applied 71
4.5 Summary 72
5. The impacts of being sanctioned 73
5.1 The impacts of sanctioning on engagement 73
5.1.1 Impacts of sanctioning on engagement with Pathways to Work 74
5.1.2 Impacts of sanctioning on relationships with Incapacity Benefit Personal Advisers 75
5.2 Engagement with Pathways provision and progress towards work 78
5.2.1 Factors leading to disengagement 78
5.2.2 Factors promoting further engagement 81
5.2.3 Engagement with Choices and other provision 81
5.2.4 Impact of attendance and engagement on views about work 82
5.3 Impacts on finances, relationships and health 84
5.3.1 Impacts of sanctioning on finances 84
5.3.2 Impact of sanctioning on others 86
5.3.3 Impact of sanctioning on health 87
5.4 Summary 89
6. Discussion and conclusions 91
6.1 Discussion of the findings 91
6.1.1 Awareness and understanding of the sanctions regime and process 91
6.1.2 Understanding the role of sanctions in customer attendance and engagement in the pilots 93
6.1.3 Why do people fail to engage with the programme? 94
6.2 Learning for future policies and programmes 100
Appendix. Topic guide 102
1. Introduction 103
2. Personal Circumstances 103
3. Overview of contact with Jobcentre Plus 104
4. Initial contact and information received 104
5. Attendance at Work Focused Interviews 105
6. Consequences of failing to attend WFI(s) 106
7. Personal and financial impacts of sanction(s) 107
8. Reflections on sanctioning policy 107
Table 1.1 Sample profile 30
Table 1.2 Range of health conditions found among participants 31