child poverty impact assessment

CHILD POVERTY

IMPACT ASSESSMENT

1. Contents of these Guidelines The Child Poverty Impact Assessment has been developed from the Office for Social Inclusion, Ireland “Poverty Impact Assessment” guidelines as a part of the work of Save The Children’s Local Authority Child Poverty Project. At a national level there is a need for integration of impact assessments, the Child Poverty Impact Assessment was developed to assist Councils to explore specific child poverty issues and determine for themselves whether this impact assessment is valid for use within their organisational processes. These guidelines are intended to be a practical tool to assist policy makers to carry out Child Poverty impact assessment. Section 2, the main section of the Guidelines, defines the Child Poverty impact assessment and describes when, why and how it should be performed. In order to carry out Child Poverty Impact Assessment effectively policy makers should have an understanding of what is meant by Child Poverty and the associated terminology, as well as Child Poverty measurement. It is also important to have an understanding of the current position with regard to Child Poverty in Wales and the UK. This information is contained in other sections of the online Child Poverty Toolkit which includes definitions of Child Poverty and related terms, and issues associated with Child Poverty measurement, data and indicators. “A Fair Future for Our Children” The Strategy of the Welsh Assembly Government for Tackling Child Poverty” classifies child poverty into three areas: INCOME POVERTY Low income denies children opportunities, and both children and adults agree that better sustainable job opportunities are the main route out of the poverty. PARTICIPATION POVERTY Children from poor families often feel left out of activities others enjoy. This can be even more acute for disabled and ethnic minority children. We are working to ensure that all children can participate fully in play, leisure, sporting and cultural activities as well as the full range of learning opportunities. Our plans are set out in the paper: “Children and Young People; Rights to Action.” SERVICE POVERTY Developing joined up public services that are tailored and integrated to meet the needs of children and young people through strong partnership arrangements. It is important that when conducting the Child Poverty Self Assessment the three areas of child poverty are considered.

2. What is Child Poverty Impact Assessment? Child Poverty Impact Assessment can be defined as: The process by which government departments, local authorities and the public assess policies and programmes at design, implementation and review stages in relation to the likely impact that they will have or have had on Child Poverty and on inequalities which are likely to lead to Child Poverty, with a view to reduce Child Poverty. The primary aim of the process is to identify the impact of the policy proposal on those experiencing Child Poverty or at risk of falling into Child Poverty so that this can be given proper consideration in designing or reviewing a policy or programme. It is not intended that all policies be fundamentally transformed so that they are explicitly targeted at the disadvantaged, but rather that any possible negative impacts be identified and measures put in place to ameliorate them. Likewise it is important that positive impacts are identified so that they can be enhanced if possible. The potential effects of some policy proposals may be ambiguous in the sense that the policy may have a positive effect on some groups and a negative (or no) effect on others. In such cases, all potential effects should be highlighted. When considering the effects on particular groups these should be considered in the context of the research evidence that identifies the following groups regarded as being most at risk of Child Poverty include lone parent families and families with large numbers of children; Travellers; migrants and members of ethnic minorities; families containing an adult with a disability, the homeless; the unemployed; persons living in areas of urban or rural disadvantage etc. However, this list is not exhaustive and there may be other groups who, depending on the policy being assessed and the local issues could be particularly at risk. In carrying out Child Poverty impact assessment it is important to recognise that, while income adequacy is a key aspect of Child Poverty, it is not the sole concern in the development of policies to alleviate Child Poverty. For example, unemployment, education, health and housing policies are also key considerations. While the secondary effects of some proposals (particularly those which are not directly aimed at alleviating disadvantage) may not be immediately apparent, they may still have an impact on those at risk of Child Poverty. It is important for that reason that decisions made in relation to the steps listed in section 2.2 below are supported by appropriate data and indicators.

2.1 When is Child Poverty impact assessment carried out? A Child Poverty impact assessment, based on the template set out in section 2.2 below, could be conducted where new policies or practices are developed, where changes to existing policies, programmes or practices are proposes, when conducting expenditure reviews and programme evaluations, where there are proposals to withdraw services, policies and programmes and business planning . Child Poverty impact assessment should not be considered as something to be performed after a decision has been made but rather as an inherent part of the policy development process.

SUMMARY OF STAGES IN THE CHILD POVERTY IMPACT ASSESSMENT

Child Poverty Impact Assessment: Screening Stage Is the policy, programme or proposal significant in terms of:

Overall national policy; Overall agency policy; The level of expenditure involved; The change it will bring about in an existing policy or procedure; Its relevance to groups regarded as being most at risk of Child Poverty

and social exclusion.

Full Child Poverty Impact Assessment Step 1 – Consultation Step 2 – Define policy aims and target groups Step 3 – Identify available data and research Step 4 – Assess impacts and consider alternatives Step 5 – Make decision and arrange monitoring

2.2 How to carry out a Child Poverty Impact Assessment Stage 1 of the process is the screening stage, during which the screening tool explained below should be used to determine whether it is necessary for the policy or programme to be subjected to a full Child Poverty impact assessment. The screening tool asks whether the programme or policy is significant (or likely to be significant) in terms of overall national or departmental policy; the level of expenditure involved; the change it will bring about in existing policies or procedures and its relevance to those groups identified as being most vulnerable. Where it is found that the programme or policy is likely to be significant in any of these areas the policy maker should proceed to Stage 2 which is the full Child Poverty impact assessment. Stage 2 is the full Child Poverty impact assessment which consists of the following five steps:

1. Formal consultation; 2. Definition of policy aims and target groups; 3. Identification of available data and research; 4. Assessment of impacts and consideration of alternatives; 5. Decision making and arrangement of monitoring;

It should be noted that, although listed separately above, there may be some overlap between these steps. In answering the questions set out in the following pages, policy makers should include the basis of the assessment, for example, administrative data sources, performance information, working group or task force reports etc. The indicators which will be used to measure progress of the proposed policy should also be specified. When considering impacts, particular attention should also be paid to other inequalities which compound Child Poverty. These could arise in the context of gender; marital status; family status; age; disability; race; sexual orientation; religious belief; or membership of the Traveller community. The steps to be followed in carrying out Child Poverty impact assessment are set out in detail in the following pages. In answering the questions set out in these steps policy makers should refer to the information in Section 3 on Child Poverty Issues.

STAGE 2 Full Child Poverty Impact Assessment – Summary

Step 1: Consultation To ensure the process is transparent and that Child Poverty impact assessment is integrated into the policy making process it should be incorporated into the consultation process. Stakeholders may include staff in other departments or agencies, non-governmental organisations or individuals who may be directly affected by the policy or programme. Step 2: Define Policy Aims and Target Groups 2.1 What is the primary objective of this policy / programme / expenditure proposal? 2.2 Who is the proposal aimed at and how will the proposal affect those persons or groups? 2.3 What are the differences within the target group/between the target groups which might lead to them benefiting from the policy/programme in different ways and how could these be addressed? Step 3: Identify Available Data and Research Consider what data is available within own organisation, other departments or agencies or from alternative sources. Identify data or indicators against which progress can be measured. Step 4: Assess Impacts and Consider Alternatives 4.1 What type of impact on Child Poverty (either in terms of numbers in Child Poverty or level of Child Poverty) would the proposal have, in particular for the vulnerable groups identified?) 4.2 If the proposal would have no effect on Child Poverty what options might be identified to produce a positive effect? 4.3 If the proposal would have a positive effect would it help to prevent people falling into Child Poverty, reduce the level (in terms of numbers and depth) of Child Poverty or ameliorate the effects of Child Poverty? (Specify). Explain how these positive effects are achieved and consider whether the position could be improved upon. 4.4 If the proposal would have a negative effect (i.e. it would increase either the numbers in Child Poverty or the level of Child Poverty experienced) what options could be considered to ameliorate this effect? 4.5 Would the proposal contribute to the achievement of the Welsh Assembly Government Child Poverty goals and targets http://cymru.gov.uk/dsjlg/publications/childrenyoung/implementplanphase1/report?lang=en. If yes, explain how this is the case and whether the position can be improved further. If no, can anything be done so that it does contribute to the goals and targets?

4.6 Would the proposal address the inequalities which may lead to Child Poverty? If not, can anything be done to address inequalities? Consider also any potential negative implications for any group named under equality legislation to ensure that the policy does not adversely affect these groups or discriminate against them. If it is found to adversely affect these groups can anything be done to ensure this is not the case? Step 5: Make Decision and Arrange Monitoring 5.1 Will this proposal be adopted? If the proposal needs any amendment then such changes should be Child Poverty impact assessed to ensure that the alteration is now effective. (Proposal may be adopted without change, after necessary change or not at all, based on findings of the PIA) 5.2 If the proposal is to be adopted, how will its impact on Child Poverty be monitored?

STAGE 2 Full Child Poverty Impact Assessment – Summary 2/2

Step 1: Consultation

Consultation with stakeholders is an important part of policy or programme development and review. In order to ensure that Child Poverty impact assessment is integrated into the policy making process it should be incorporated into the consultation process. Although listed as a first step consultation can also take place during other stages of the process. Stakeholders may include staff in other departments or agencies, non-governmental organisations and the individuals who are likely to be directly affected by the programme or policy. The consultation could take the form of a seminar, workshop or focus group, questionnaires could be circulated or submissions could be requested. The effective benefits of consultation are that it can assist with defining policy objectives and impacts, and ensuring that the process is as transparent as possible. Consultation should not be seen in isolation but rather as a mechanism to inform the other steps in the process. It may not be necessary to arrange a separate specific consultation process but likely impacts on Child Poverty as well as procedures to mitigate any possible negative effects could be considered specifically in the general consultation process which would normally be held during development of the policy or programme.

Step 2: Define Policy Aims and Target Groups 2.1 What is the primary objective of this policy / programme / expenditure

proposal? Consider its intended outcomes. 2.2 Who is the proposal aimed at and how will the proposal affect those

persons or groups? Who is the proposal primarily aimed, list persons or groups, and what are the expected outcomes for these persons? 2.3 What are the differences within the target group/between the target groups which might lead to them benefiting from the policy/programme in different ways and how could these be addressed? It is important to recognise the diversity that may exist within the target group as this will have implications for an individual’s capacity to access the programme or benefit from the policy. In some cases there will be more than one target group and they may be reached in different ways and to different extents. For example, in the case of an educational programme specifically targeted at young adults

those with children may need additional services in order to participate, migrants may need additional language supports; those with literacy problems may also need additional supports. Consideration should be given to any measure which could be put in place in order to improve the position of those target groups which may not receive the full benefit of the programme or policy as it is currently designed. Step 3: Identify Available Data and Research 3.1 Importance of Data Access to adequate, appropriate and up to date data is necessary if Child Poverty impact assessment is to be carried out effectively. There is no doubt that the absence of appropriate data and disaggregated (e.g. by gender/age) data in particular is often a problem in policy development or review and Child Poverty impact assessment is no exception in this regard. In addressing the questions outlined in Step 4 below the basis of the assessment should be made clear. 3.2 Data Sources The public sector holds a vast amount of data about their own organisation and their clients. WAG report Eradicating Child Poverty – Measuring Success’ highlights Some useful data sets relating to child poverty. Useful web sites holding data include Stats Wales, Local Government Data Unit - Wales, and the Department for Works and Pensions. Appendix 1 highlights some useful data sets. Previous research such as working group reports or expenditure reviews may also be a useful source of information. 3.3 Indicators It is important that indicators against which progress will be measured are specified. Indicators do not necessarily have to relate simply to earnings or income. Examples of indicators include: employment rates for various age groups; numbers of early school leavers participating in training programmes; number of homeless people; low birth weight babies; and attainment at key stage 2. Step 4: Assess Impacts and Consider Alternatives Consider whether the proposal has any impact on Child Poverty, e.g., on the numbers of people at risk of Child Poverty, numbers of individuals suffering from Child Poverty, or the depth of Child Poverty experienced. It is important to remember that it is not just monetary effects in terms of Child Poverty but, because of the Welsh Assembly Government definition of Child Poverty used, there are wider aspects that should be considered. In that regard it should also be remembered that some effects may not be immediate but could occur in the medium to long term and so it is important to take a long-term view. For example facilitating access to educational services could have a positive impact in the medium to long term in that the beneficiaries of such a programme

would be expected to be more likely to find employment than they would otherwise have been. 4.1 What type of impact on Child Poverty (either in terms of numbers in Child Poverty or level of Child Poverty) would the proposal have in particular for the vulnerable groups identified?

CHILD POVERTY IMPACT ASSESSMENT

STAGE 1 SCREENING FORM – This will inform the policy maker as to whether or not it is necessary to carry out a full Child Poverty impact assessment. A brief overview or background of the proposal should be set out at this stage.

Screening Tool Is the policy, programme or proposal significant in terms of:

YES NO POSSIBLY

Overall National/Departmental Policy The level and/or proportion of expenditure involved.

The change it will bring about in an existing policy or procedure (specify).

Its relevance to those groups who have been identified as being most vulnerable to Child Poverty e.g.

Lone parent families

Families with large numbers of children

Families with an adult who has disabilities children in couple families where one

adult works part-time

Workless and Unemployed Families

Families with Mothers who have no qualifications

People experiencing rural disadvantage

People experiencing urban Child Poverty

Homeless families and young people

Migrants and Ethnic minorities • Others … specify ADD

If the answer is NO in all cases then it is not necessary to carry out a full Child Poverty impact assessment.

If the answer is YES or POSSIBLY to any of the above a full Child Poverty impact assessment should be carried out following the steps outlined in Stage 2.

STAGE 2: FULL CHILD POVERTY IMPACT ASSESSMENT FORM

Where it has been determined (following the screening stage) that is necessary to carry out a full Child Poverty impact assessment, the seven steps described in the following pages should be followed.

STEP 1: Consultation

STEP 2: Define Policy Aims and Target Groups

2.1 What is the primary objective of this policy / programme / expenditure proposal? Consider its intended outcomes.

2.2 Who is the proposal aimed at and how will the proposal affect those persons or groups? Who is the proposal primarily aimed, list persons or groups, and what are the expected outcomes for these persons?

2.3 What are the differences within the target group/between the target groups which might lead to them benefiting from the policy/programme in different ways and how could these be addressed?

STEP 3: Identify Available Data and Research

3.1 Importance of Data 3.2 Data Sources 3.3 Indicators

STEP 4: Assess Impacts and Consider Alternatives

4.1 What type of impact on Child Poverty (either in terms of numbers in Child Poverty or level of Child Poverty) would the proposal have, in particular for each of the vulnerable groups listed in the table? Vulnerable Group

Likely impact of the programme/project in terms of Child Poverty

None See Q.4.2

Positive See Q.4.3

Negative See Q.4.4

Lone parent families

Families with large numbers of children

Families with someone who has a disability

Workless and Unemployed Families

children in couple families where one adult works part-time

Families with Mothers who have no qualifications

People experiencing rural disadvantage

People experiencing urban Child Poverty

Homeless families and young people

Migrants and Ethnic minorities

4.2 If the proposal would have no effect on Child Poverty what options might be identified to produce a positive effect? Consider whether any changes could be made so that it would have a positive effect

4.3 If the proposal would have a positive effect would it help to prevent people falling into Child Poverty; reduce the level (in terms of numbers and

depth) of Child Poverty and/or ameliorate the effects of Child Poverty? Explain how these positive effects are achieved and consider how the position could be improved upon. 4.4 If the policy/programme/proposal would have a negative effect (e.g., by increasing the numbers in Child Poverty or the level of Child Poverty experienced) what options could be considered to ameliorate this effect? Explain how the negative effects occur and consider whether it would be possible to amend the proposal in order to prevent these negative effects or whether additional measures could be put in place to counteract the negative effects.

4.5 Would the policy/programme/proposal contribute to the achievement of the Community Plan aims and targets? If it does contribute to the achievement of the targets, explain how this is the case and

consider whether the position can be improved further. If it does not, consider whether anything can be done to reverse the position. In this regard, consideration should be given as to whether the programme is specifically aimed at groups experiencing Child Poverty or at risk of Child Poverty, i.e., whether it is intended as an anti-Child Poverty measure. 4.6 Would the programme/policy/proposal address the inequalities which may lead to Child Poverty? The relationship between Child Poverty and inequality is quite a complex one (see also Section 3.3). Equality legislation in Wales recognises that inequality can occur under any of the following grounds: gender, family status, marital status, age, disability, sexual orientation, race, religion, and membership of the Traveller community etc. Consideration should be given to whether the programme or policy has a particular relevance to people in any of these categories, whether it could increase inequality or discrimination experienced by them, and, if so, whether the policy can be amended or refocused to address this.

STEP 5: Make Decision and Arrange Monitoring

5.1 Will this proposal be adopted? When the impacts of the proposed options have been assessed and alternatives considered to counteract any negative effects have been identified a decision can then be made as to whether or not to proceed with the policy or programme. Where changes to the policy have been made these should also be subject to a Child Poverty impact assessment.

5.2 If the proposal is to be adopted, how will its impact on Child Poverty be monitored? Arrangements should be put in place to monitor whether (and to what extent) the expected impact is actually occurring. The indicators against which progress will be monitored should be specified here. This section should also make clear which office/unit will be responsible for the monitoring. The frequency with which the indicators will be monitored should also be noted. If a programme or policy is being put in place to counteract any negative impacts resulting from the original programme it should also be monitored and details of how that will be undertaken should also be included here.

Appendix 1 Data Sets (source Local Government Data Unit)

Eradicating Child Poverty - Measuring Success

TARGET TARGET SOURCE DATA SOURCE PUBLICATION DATE

1. INCOME & WORK

The number of children in relative low-income households New Possible from Living in Wales surveys - if precise

definition. Probably only available at Wales level.

Data for 2004, 2005 currently available: 2006 by July/Aug 2007; 2007 by Jun 2008; 2008 by Jun 2009.

The percentage of children living in workless households New Possible from Living in Wales surveys - if precise

definition. Probably only available at Wales level.


The number of people reliant on incapacity benefit in Wales

DWP's Incapacity Benefit Reform paper

The number of lone parents who receive help and support into work in Wales


The number of lone parents in employment in Wales


Labour Force Survey

The number of children with a parent in employment in Wales


Possible from Living in Wales surveys - if precise definition. Probably only available at Wales level.



The number of children lifted out of poverty in Wales


The number of 2 year-old children living in the areas of greatest disadvantage in Wales provided with high quality part-time care

New

The number of children who have access to a free part-time education nursery place from the term following their third birthday

New

The number of childcare places in the West Wales and the Valleys Objective 1 Convergence area New

2. EDUCATION

The percentage of pupils achieving the core subject indicator (Welsh or English, Maths & Science in combination) through teacher assessment by age of 11

The Learning Country 2

National Indicator EDU/003 - % of pupils eligible for assessment at end of KS2, not % of all 11 year olds. OR: WAG school stats annual bulletin - most recent SDR130/2006

2006/07 data to be published in October 2007. OR October 2006


The percentage of pupils achieving the core subject indicator through teacher assessment by the age of 14


National Indicator EDU/004 - % of pupils eligible for assessment at end of KS3, not % of all 14 year olds OR: WAG school stats annual bulletin - most recent SDR130/2006

2006/07 data to be published in October 2007. OR October 2006

The percentage of 15 year olds achieving 5 GCSEs or vocational equivalent at grades A*-C


WAG School stats annual bulletin - most recent SDR164/2006. N.B. % of pupils not all 15 year olds. Nov-06

The percentage of pupils who left full time education with no recognised qualification


WAG school stats annual publication - most recent is bulletin SDR178/2006

Dec-06

The percentage of 15 year olds achieving the core subject indicator


WAG School stats annual bulletin collects '% of pupils in final year of compulsory education who achieved grades A*-C in each of the core subjects' - most recent SDR164/2006

Nov-06

The percentage of 16-18 year olds in employment, education, or training


WAG DELLS annual bulletin - most recent SDR53/2007 Apr-07

The percentage of young people by the age of 25, to be ready for high skilled employment and/or further or higher education



The percentage of working age adults with level 1 or above functional basic skills in literacy


The percentage of working age adults with level 1 or above functional basic skills in numeracy


The percentage of adults of working age with a qualification equivalent to an NVQ Level 2 or above


WAG Post 16 education stats annual bulletin - most recent SDR 79/2006 (see NQF level 2) Dec-06, revised Jan-07

The percentage of adults of working age with a qualification equivalent to an NVQ Level 3 or above


WAG Post 16 education stats annual bulletin - most recent SDR 79/2006 (see NQF level 3) Dec-06, revised Jan-07

The percentage of adults of working age with a qualification equivalent to an NVQ Level 4


WAG Post 16 education stats annual bulletin - most recent SDR 79/2006 (see NQF levels 4-6)

Dec-06, revised Jan-07

3. HOUSING

The number of families with children living in temporary accommodation in Wales

National Homelessness Strategy

Data collected in WHO12 form - brokeb down by a number of categories with children, but could be amalgamated to 'with children'

Quarterly

The number of families with children living in B&B accommodation in Wales

National Homelessness Strategy

National Indicator HHA/001a - data is collected according to peeople having used it during the year rather than currently living in it. Also collected on the WHO12 form - by various categories

2006/07 data to be published in October 2007. Quarterly

The number of children living in overcrowded conditions in Wales Living in Wales survey

Relevant data first collected on 2004 Living in Wales survey but not analysed - this only became a requirement last year. The 2007 survey also collects the relevant data and will be available for analysis around the middle of 2008.

child poverty impact assessment

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