11 January 1999

MOTHERS ON BENEFIT – A STUDY OF 1,665 LONE MOTHERS IN NORTHERN IRELAND
Evason, E, Robinson, G and Thompson, K. The Stationery Office, Belfast.

The above report is published today. The findings of this report are
significant coming, as they do, at a time of continuing concern over lone
parents’ demand on benefit expenditure, and the introduction of major
policy changes aimed at increasing their participation in the labour
market. The main objectives of the research were (a) to investigate the
factors impacting on labour market decisions - factors acting as either
barriers or as incentives to work and (b) to examine the circumstances of
lone parents on benefits.

The study covered a number of topics included in previous research carried
out in Great Britain. The data from this study is drawn from claimants and
ex-claimants of family credit and income support, whereas studies in Great
Britain have typically been able to include a complete cross-section of
lone mothers (including those not claiming means-tested benefits).
Nevertheless, some broad comparisons can be made. The main findings are as
follows;

Comparisons with GB studies
In comparison to all lone mothers in Great Britain, those selected in
Northern Ireland had much longer durations both as lone parents and as
benefit claimants.

Factors associated with barriers to employment
Lone mothers on benefits in Northern Ireland were more likely than all lone
mothers in Great Britain to be subject to barriers to employment in that
higher proportions;
(i) had children of pre-school age,
(ii) had three or more children,
(iii) possessed no qualifications or qualifications below ‘A’ level
standard (iv) reported that they themselves or one or more of their
children had a
 long-standing illness or disability.
                                                                       

In addition, a lower proportion of lone mothers in the Northern Ireland
study than in the GB studies was receiving regular maintenance. (Lone
mothers in receipt of regular maintenance are much more likely than others
to be employed).

Comparisons between income support and family credit recipients
The same set of factors were found to differentiate between those Northern
Ireland mothers claiming family credit and those claiming income support.
The income support claimants were twice as likely as those receiving family
credit to face two or more obstacles to employment ((i) to (iv) as
outlined above). The perceived quality of employment available was also an
important element in decisions regarding employment.

Income support recipients
The lone mothers receiving income support appeared to be a very stable
group. The vast majority (84%) of those claiming income support at the
time of interview had spent at least two years in total on the benefit.
Only a small minority were making use of, or ever had made use of, the
earnings disregard to enable them to take up part-time work.

The majority wanted to take paid employment of 16 hours or more per week
but only 10% were currently seeking work. A significant minority said that
this was because they would ‘not be better off’ in employment. However,
the most commonly cited reason for delaying entry into employment was the
‘need to look after children’. Although a small number said that this was
because they had no suitable child-care, the majority stated simply that
their children were young, sick or disabled or that they preferred looking
after their children themselves.

When asked what were the most important factors which would help them work,
respondents referred most often to those relating to children’s needs.
However, good wages were also seen as important. Attitudes towards
employment were mixed, with many mothers expressing a desire for the
advantages of work, and negative feelings about being at home, while at the
same time feeling that their children needed the full-time care of their
mothers.
 Family Credit recipients
Among those on family credit, almost a third (30%) had been employed for
over five years with the same employer. In general, however, the research
pointed to a ‘revolving-door’ rather than an ‘escalator’ pattern with
regard to employment and benefit receipt. Only a very small minority of
women had managed to attain total independence from means-tested benefits
through employment; for most the pattern was one of either long-term
receipt of income support, or of rotating between short spells of
employment and periods on income support.

With the exception of the 16-hour rule, the recent changes in family credit
appeared to have had only a limited effect in increasing participation in
the labour market. Even among family credit claimants themselves,
knowledge of some of the key aspects of the benefit was surprisingly
limited, and in general, there was evidence of lower understanding in
Northern Ireland than in GB. As has been found in other research, family
credit appeared to be more critical in assisting lone mothers to remain in
employment once they had found suitable work and arranged for the needs of
their children, than in actually enabling them to make that transition.

As regards the entry into work, although the majority of claimants found
themselves ‘much’ or ‘a bit’ better off than when on income support, many
family credit claimants had not anticipated the reductions in housing
benefit and loss of free school meals incurred on leaving income support.
Nearly one quarter (22%) also said that their family credit entitlement
turned out to be lower than they expected. However, despite this and the
fact that many experienced difficulties in combining work with home and
child-care responsibilities, most women expressed very positive views about
working.

The study also aimed to examine the experience of lone mothers claiming
benefits. In general, there was satisfaction with the administration of
benefits, although in some cases (10% of those receiving income support
and 27% of those receiving family credit) delays in processing claims had
led to difficulties.

Impact of the Child Support Agency
Among the lone mothers interviewed, three quarters (76%) were in contact
with the Child Support Agency (CSA) and the level of compliance with
procedures was high. However, only a minority of women (20%) had reached
the point of being notified of their assessment and only 12% were actually
being paid this amount either directly or through the Department. A
quarter of all assessments were for ‘nil’ amounts, and more than a third
(36%) of those being paid or awaiting payment were for less than £6. In
total, including all CSA assessments, court orders and voluntary
agreements, only a quarter (26%) of mothers were receiving regular
maintenance.

More than half (56%) thought that the amount awarded was less than it
should have been. A minority of women felt that relationships between
their partners and themselves (14%) or their children (9%) had deteriorated
since contact with the CSA. However, there was a noticeable divergence in
overall opinions regarding the CSA with almost two-fifths (39%) stating
dissatisfaction with the agency, but a third (34%) saying that they were
‘quite’ or ‘very’ satisfied.

Health
The data suggest that among lone mothers in Northern Ireland, ill-health,
disability and care-giving are associated with continuing dependence on
income support. Lone mothers on income support were much more likely than
those on family credit to report that their capacity to work was limited by
ill-health or disability in either themselves or their children, and/or
caring responsibilities for others. Self-reported levels of ill-health
and disability appeared generally higher among lone mothers on benefits in
Northern Ireland (28%) and their children (33%) than among all lone parents
(21%) and their children (18%) in Britain.

Levels of self-reported mild psychological distress were much higher than
those found in other studies carried out in Northern Ireland and were
strongly associated with material hardship. Substantial numbers of
respondents reported financial problems, and said that they lacked
essential items for themselves, their children or the home.

Accommodation
Two-thirds (66%) of those interviewed were in Housing Executive
accommodation. There was a high level of satisfaction generally with
housing accommodation.


General Summary
In summary, the factors exerting most influence on entry into the labour
market appeared to be those related to children’s needs and to the
employment opportunities and wage levels available. Benefit system
incentives became important once lone mothers had already secured
employment. Child-care facilities appeared to be less critical to these
mothers than anticipated, suggesting that increased provision in this area,
although valuable to many lone mothers, may not be as significant as has
been envisaged. Of those in employment, only a minority made use of formal
child-care. For many of the others, their roles and responsibilities as
mothers seemed to be of prime importance - they assumed that having young
children was an obvious reason for not working, and expressed preferences
for providing for their children’s needs at this stage.

Although those in employment largely expressed positive views about their
work, some had benefited less in financial terms than they expected. In
addition, almost a quarter (24%) of those in receipt of income support felt
that they were not likely to be better off in employment. Although
satisfaction with the administration of benefits appeared encouragingly
high, the authors of this report recommend a more holistic approach to
administration, with information being provided on all the benefits that
claimants are or could be entitled to, both in and out of work, and on the
interaction between benefits. In this way, claimants could more
accurately assess what they could reasonably expect to gain, in financial
terms, from employment.


For information contact Eileen Evason tel: 01232 793563
email:[log in to unmask]


Gillian Robinson Tel: +44(0) 1504 375502
Research Director Fax: +44(0) 1504 375510
INCORE Email: [log in to unmask]
Aberfoyle House URL: http://www.incore.ulst.ac.uk/
Northland Road
Londonderry
N.Ireland
BT48 7JA


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