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SUMMARY
CONTEXT
Closing the Opportunity Gap ( CtOG) lies at the heart of the Scottish Executive's desire to build a better Scotland. As with the focus on social inclusion, as opposed to exclusion, sensitivity to local circumstances, and the commitment to tackle complex, multi-faceted problems by working in partnership across departmental boundaries and Ministerial portfolios, 'Closing the Opportunity Gap' has emerged as one of the defining features of the Scottish Executive's approach to fulfilling its devolved responsibilities.
However, CtOG is not only conceived as an overarching strategic goal for the Scottish Executive; rather, it is the result of a cross cabinet review of the Social Justice Strategy ( SJS) led by the Minister for Communities. Six CtOG Objectives were announced in July 2004, and 10 CtOG Targets were announced in December 2004. The development of CtOG from the SJS reflects the desire for the Scottish Executive to focus on the most important issues and activities - for which the Scottish Executive has responsibility - that will overcome poverty in Scotland. CtOG thus aims to prevent poverty, provide routes out of poverty, and to sustain poverty-free lives.
RESEARCH AIMS
The aims of this scoping study are twofold.
First, to design a framework for evaluating the impact of CtOG, with particular emphasis on the six CtOG higher-level Objectives and on CtOG Aims as a whole. CtOG comprises ten specific lower-level Targets, each of which is to be evaluated using one or more tightly defined indicators. In so doing, this scoping study has taken note of on-going work within the Scottish Executive, data issues (including data quality, availability and timing), and measurement issues (the multi-dimensional impact of CtOG activity).
Second, to advise on the content of a synthesis report on CtOG progress. While appraisal of progress towards the target indicators (for the ten CtOG Targets) will be a key element of such a report, this scoping study also advises on data, which is external to the CtOG programme, that provides contextual information pertinent to assessing progress towards the six higher level CtOG Objectives.
METHOD
The research on which this scoping study is based comprised three distinct bodies of work.
First, a mapping of datasets was undertaken to ascertain the availability of robust data that would provide contextual information that was pertinent to all aspects of the CtOG programme. The systematic appraisal and critical evaluation of this existing survey data led to the identification of possible sources of data to inform progress assessments for each level of CtOG, i.e. ten Targets, six Objectives and three overarching Aims.
Second, interviews were conducted with each of the ten Target Owners. In these interviews some Target Owners were accompanied by data analysts. For each of the ten CtOG Targets' work programmes the relationship of work to achieve the Target and the wider work of the Department was considered. In addition Target Owners' awareness of relevant work beyond their direct responsibility, delivery responsibilities, timescales and the targeting of CtOG resources were each reviewed. A range of issues relating to the monitoring of the CtOG Targets were also considered. These included baseline data availability, on-going monitoring and evaluation, prospects for achieving CtOG Targets and the role of each CtOG Target within the wider CtOG programme. Finally, the links between the CtOG Targets, the Targets and Objectives, and the overall CtOG Aims were all considered. The insights informed the form of the proposed overall evaluation framework and the synthesis report.
Finally, desktop research was undertaken throughout the project to familiarise the research team with the policy environment within which CtOG operates.
DESIGN OF SYNTHESIS REPORT
The synthesis report will inform the CtOG evaluation. The data that is utilised in the synthesis report will be an integral part of the evaluation of the three tiers of CtOG activity (Targets, Objectives and Aims). However, the objective of the synthesis report is to inform, whereas the evaluation aims to appraise; thus although utilising (at least in part) the same information, the presentation and focus of both reports will differ. The emphasis in the synthesis report will be on the effective communication of key findings.
It is recommended that the synthesis report take three formats. First, a periodic, detailed analytical report, with contributions authored by key staff / subject experts. We recommend that, to ensure independence, an external consultant edits the report, and that the overall process is managed by an independent CtOG evaluation steering group. This report would be targeted at key and active stakeholders in CtOG in Scotland. Second, a series of annual thematic digests (of key findings from the synthesis report) which communicate the salient points of the report to a wider audience of stakeholders in Scotland (e.g. delivery agencies, practitioners the voluntary and community sectors). Third, consideration should be given to disseminating these findings in modes in which groups who are often marginalized are likely to engage, for example ethnic minority communities and disabled people. Findings should also be produced in a mode with which children are likely to engage.
EVALUATION OF CTOG, THE PROGRAMME AS A WHOLE
It is recommended that the evaluation of CtOG as a whole comprises three elements: evaluation of poverty dynamics in Scotland, evaluation of change to CtOG Objectives and evaluation of CtOG as a process. It is recommended that the evaluation comprise both quantitative (extensive) and qualitative (intensive) analysis.
CONSULTATION AND PARTICIPATION
Consultation and indeed, participation of bodies outside government is integral to the success of CtOG. CtOG is predicated on the participation of local authorities and those working with, and on behalf of, local communities. Toward the end of the report, consideration is given to the roles played in CtOG by local and national organisations outside the Scottish Executive. The potential role of an independent evaluation steering group is also discussed.
SUMMARY
CtOG is central to the work of the Scottish Executive. Holistic understanding of the work that is conducted at the behest of CtOG, robust evaluation of the effectiveness of CtOG and an appreciation of the changes in Scottish society that may result from CtOG must be an integral part of the CtOG work programme. This scoping study has sought to advise on best possible options and best practice to achieve each of these goals.
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