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CHAPTER ONE INTRODUCTION: TOWARDS AN EVALUATION OF CLOSING THE OPPORTUNITY GAP ( CTOG)
FROM THE SOCIAL JUSTICE STRATEGY TO CLOSING THE OPPORTUNITY GAP
1.01 Closing the Opportunity Gap lies at the heart of the Scottish Executive's desire to build a better Scotland. With a focus on social inclusion, as opposed to exclusion, sensitivity to local circumstances 1, and the commitment to tackle complex, multi-faceted problems by working in partnership across departmental boundaries and Ministerial portfolios 2, 'Closing the Opportunity Gap' has emerged as one of the defining features of the Scottish Executive's approach to fulfilling its devolved responsibilities.
1.02 Closing the Opportunity Gap is, however, not only conceived as an overarching strategic goal for the Scottish Executive; it is also the name that has been given to a set of transparent, specific Objectives and Targets 3. As far back as October 2002, Scottish Ministers used the descriptor 'Closing the Opportunity Gap' to detail how the Scottish Budget for 2003-2006 would "tackle poverty, build strong, safe communities and create a fair and equal Scotland" 4, identifying 70 targets for 30 objectives across 11 domains (corresponding with Ministerial Portfolios). However, current use of 'Closing the Opportunity Gap' is more closely associated with the Social Justice Strategy , the Scottish Executive's initial approach to promoting social inclusion, which comprised ten long-term Targets and twenty-nine milestones across five population groups 5, which were monitored on an annual basis between 1999 and 2003 67.
1.03 Closing the Opportunity Gap ( CtOG) as it is now conceived 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 ten CtOG Targets were announced in December 2004 8. The entire strategy is defined by three overarching Aims: poverty prevention, provision of routes out of poverty, and enabling the Scottish population to sustain poverty-free lives. 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.
CLOSING THE OPPORTUNITY GAP: POLICY AREAS, OBJECTIVES AND TARGETS
1.04 Each of the six CtOG Objectives corresponds to a broader field of policy:
1. To increase the chances of sustained employment for vulnerable and disadvantaged groups - in order to lift them permanently out of poverty; ( Employability)
2. To improve the confidence and skills of the most disadvantaged children and young people - in order to provide them with the greatest chance of avoiding poverty when they leave school; ( Pre-school and School Age Education)
3. To reduce the vulnerability of low income families to financial exclusion and multiple debts - in order to prevent them becoming over-indebted and/or to lift them out of poverty; ( Financial Inclusion)
4. To regenerate the most disadvantaged neighbourhoods - in order that people living there can take advantage of job opportunities and improve their quality of life; ( Community Regeneration)
5. To increase the rate of improvement of the health status of people living in the most deprived communities - in order to improve their quality of life, including their employability prospects; ( Health Inequalities) and
6. To improve access to high quality services for the most disadvantaged groups and individuals in rural communities - in order to improve their quality of life and enhance their access to opportunity. ( Rural Inclusion)
1.05 However, although each CtOG Objective can be aligned to a specific policy field, the impacts of individual Objectives are likely to extend beyond their 'core' policy fields. For example, Objective two not only enhances educational attainment, but may also improve employability prospects, thereby increasing the likelihood of avoiding financial exclusion. Furthermore, CtOG Objectives three through six all aim to enhance both employability prospects and to improve quality of life as a means to achieve their own distinct purposes.
1.06 CtOG Objectives are to be achieved through ten specific Targets:
A. Reduce the number of workless people dependent on DWP benefits in Glasgow, North & South Lanarkshire, Renfrewshire & Inverclyde, Dundee, and West Dunbartonshire by 2007 and by 2010.
B. Reduce the proportion of 16-19 year olds who are not in education, training or employment by 2008.
C. Public sector and large employers to tackle aspects of in-work poverty by providing employees with the opportunity to develop skills and progress in their career. NHS Scotland will set an example by providing 1000 job opportunities, with support for training and progression once in post, between 2004 and 2006 to people who are currently economically inactive or unemployed.
D. To reduce health inequalities by increasing the rate of improvement for under 75 Coronary Heart Disease mortality and under 75 cancer mortality (1995-2003) for the most deprived communities by 15% by 2008.
E. By 2008, ensure that children and young people who need it have an integrated package of appropriate health, care and education support.
F. Increase the average tariff score of the lowest attaining 20 per cent of S4 pupils by 5% by 2008.
G. By 2007 ensure that at least 50% of all "looked after" young people leaving care have entered education, employment or training.
H. By 2008, improve service delivery in rural areas so that agreed improvements to accessibility and quality are achieved for key services in remote and disadvantaged communities.
J. To promote community regeneration of the most deprived neighbourhoods, through improvements by 2008 in employability, education, health, access to local services, and quality of the local environment.
K. By 2008 increase the availability of appropriate financial services and money advice to disadvantaged communities to reduce their vulnerability to financial exclusion and multiple debts.
1.07 Each CtOG Target has a designated lead officer, the Target Owner, within a Scottish Executive department who is responsible for monitoring the Target.
1.08 There is not a precise map between the policy areas and the Targets, with some issues that could be considered to be within the remit of the wider policy theme not given specific consideration within the corresponding Target. For example, Target A (Employability) does not provide for any consideration of low pay.
AIMS OF THIS REPORT
1.09 The aims of this report are twofold.
1.10 First, to advise on the content of a synthesis report on CtOG progress. While appraisal of the impact of 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 the six higher level CtOG Objectives.
1.11 Second, to present a framework for evaluating the impact of CtOG, with particular emphasis on the six CtOG higher-level Objectives and on CtOG's overarching Aims. 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 considered 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).
METHOD
1.12 The research on which this scoping study is based comprised three distinct bodies of work.
1.13 First, a mapping of datasets was undertaken to ascertain the availability of robust data that would provide contextual information that was pertinent to the CtOG programme.
1.14 Second, interviews were conducted with each of the ten Target Owners. Survey schedules are presented in Annexes 1 and 2. In these interview some Target Owners were accompanied by data analysts. These interviews sought to provide contextual information on the workings of CtOG at Target level and to generate insights that would shape the form of the evaluation framework and synthesis report.
1.15 Finally, desktop research was undertaken throughout the project to familiarise the research team with the policy environment within which CtOG operates.
REPORT STRUCTURE
1.16 This report is structured into five substantive sections, followed by a conclusion.
- Chapter 2 summarises key findings from the mapping of datasets. This complements a full analysis of all the identified datasets, which is provided in the Annex 3 of this report. Chapter 3 summarises the insights gleaned from interviews undertaken with Target Owners and support staff. Together chapters 2 and 3 present a summary of the evidence base that enabled the aims to be met.
- Chapter 4, the first of the two chapters that deals directly with the aims of the exercise, sets forth recommendations for the design of the synthesis report. Chapter 5 progresses to present a series of options for the overall evaluation of CtOG.
- Prior to the conclusion of the report in chapter seven, and given that CtOG is predicated on the participation of local authorities and those working with, and on behalf of, local communities, chapter 6 gives consideration to the roles in CtOG played by local and national organisations outside the Scottish Executive.
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