Scottish Government

Effective Interventions Unit Moving On: Update Employability And Employment For Recovering Drug Users

Chapter 1: The Concept of Employability

What is employability?

Employability is a concept that has been developed in recent years. It describes the combination of factors and processes that enable people to progress towards or get into employment, to stay in employment and to move on in the workplace. This will generally include some development of skills and capacities relevant to the labour market. Employment may not be full time but could cover a range of "meaningful" work related activities. The term "employability" is now quite widely used, particularly in relation to groups who are seen to have difficulties in entering the labour market. Employability is also the focus of important policy developments including Welfare to Work and New Deal.

In the last 3 or 4 years there have been a number of studies examining the importance of employability and seeking to identify the key elements that help to make an individual employable (Futureskills Scotland 2003; Johnson & Burden 2003; Klee et al 2002; Tamkin & Hillage 1999). These studies have suggested a number of definitions but the key factors that contribute to employability include:

Individual factors

• attributes e.g. enthusiasm and willingness to learn

• assets e.g. skills, qualifications and work experience

• the ability and capability to use those attributes and assets

External factors

• the prevailing local labour market conditions

• wider economic drivers

• employers' recruitment procedures and their attitudes and expectations of employees

All of these factors together make up employability. It is not sufficient to "skill up"

the individual without considering the other factors. DAATs, agencies and service providers planning and delivering services designed to improve an individual's employability must take into account the types of jobs available, the constraints and opportunities of the local economy and the willingness of employers to take on people from groups perceived to be disadvantaged or "difficult". The Moving On Working Group suggested that we should offer a "working definition" to provide a starting point for DAATs and partner agencies to develop a shared understanding of employability. From our review of the evidence and recent reports, we have developed the following definition:

" Employability entails achieving a match between the abilities, attitudes and capabilities of an individual, the needs, expectations and attitudes of employers and the demands of current local labour market conditions".

The diagram from Northern Ireland on the following page offers a useful illustration of the various components affecting employability, including personal attributes, structural aspects and managing in the labour market:

Factors Which Affect Employability In The Northern Ireland Context

Why is employability important?

As outlined in the first 'Moving On' review, research shows that, for individuals, there is a link between positive physical and mental health and employment (Ross and Mirowsky 1995). Recent research shows that the greatest benefits come not merely from gaining but also from sustaining employment (Isaksson et al 2000). 'Improving Health in Scotland: The Challenge' (Scottish Executive 2003) identifies the workplace as a key setting for health improvement.

For employers, employability is important because they need employees who are reliable, willing and competent in order to run their businesses successfully. In turn, this impacts on the local economy and the health and well-being of local communities.

At national level, the Government has an economic motive for helping people to get into employment because of the impact of unemployment on the benefits system and the need to meet skills shortages, as well as the policy objective of economic growth. The Government also has Social Justice objectives to improve access to employment for those who are disadvantaged in the community.

Why is employability important for drug users?

Getting and maintaining employment can be especially challenging for some individuals, including those with disabilities, mental health problems, learning difficulties and problems due to substance misuse. Work in progress by the National Programme to improve the Mental Health and Well-Being of Scotland's population highlights the importance of employment in achieving significant health improvement. For drug users there is some evidence to suggest that employment can aid the process of recovery. Through employment, or employment-focused activities such as education and training, the individual can develop or participate in activities that can "fill the void" that develops when drugs are no longer used (McIntosh and McKeganey, 2001). They can provide recovering drug users with an alternative peer group, new rewards, re-integration into the wider community and create a positive sense of self-worth that helps in maintaining recovery.

'Integrated Care for Drug Users' (EIU 2002) sets out the evidence for including employability provision as a key part of an overall treatment, care and support programme for drug users. A more stable lifestyle, increased confidence, a permanent address and the ending of isolation within drug using sub-groups will all contribute to the individual's ability to benefit from employability activity.

In addition, there is some emerging evidence showing that drug users who were also offending were less likely to re-offend if they were in employment. An evaluation of the Drug Treatment Alternative to Prison (DTAP) Programme in Brooklyn, New York found a lower rate of re-offending among prisoners who were in employment compared to those who had completed a treatment programme but were not in employment (Crossing the Bridge, March 2003). An interim report by Apex Scotland shows that attending employability programmes has a positive impact on rates of re-offending.

Many drug users want to work. But the evidence suggests that the majority will not be able to go straight into a full-time job even if they have completed a treatment programme or are stabilised on a substitute prescription. The reasons for that include low educational qualifications, lack of work experience, low levels of confidence and the "benefit trap". This is where employability provision comes in. It can cover a range of activities that form a 'pathway' to employability and ultimately to some form of employment. Such activities can include confidence building, personal development and social skills, anger management, basic skills (literacy and numeracy), education, training and work-related activities (work tasters, placements, voluntary work). They may also increase the individual's belief in their own capacity to gain and maintain employment.

From employability to employment

In recent years the unemployed population has been reduced to a 'hard core' of people, including drug users, the homeless and people with mental health problems, who have exceptional difficulties and multiple barriers to overcome (Klee et al 2002, South et al 2001). The introduction of Jobcentre Plus, merging the Employment Service with Working Age elements of the Benefit Agency, offers new and enhanced levels of service for recipients of working age benefits. Support previously offered only to claimants of Job Seekers Allowance is now available to all claimants of working age benefits.

However, many recovering drug users find that even when they have completed training programmes and obtained some qualifications and experience, employers are still reluctant to employ them. This may reflect the reality that opportunities in the labour market are not equal and that certain groups face exclusion from the labour market or from employment (Klee et al 2002). This is linked to a range of barriers but is also often clustered in areas suffering from social exclusion (Futureskills Scotland 2003)

By and large both the individual and institutional barriers to employment faced by recovering drug users remain the same as those identified in the first 'Moving On' review. Some of these barriers are not unique to recovering drug users and may be experienced by other disadvantaged groups.

The identification of barriers helps to describe the distance from employment and the path individuals need to go along in order to become employed. They also describe factors that may affect their ability to sustain employment.

The individual barriers may include:

• a range of social problems, poor living conditions and financial deprivation ( including debt) brought about by months or years of unemployment

• a criminal record as a result of activities to fund their habit

• lack of school and work-related qualifications, as well as minimal previous experience of training and employment

• low self-esteem leading to fear of failure when facing the difficult challenge of job-hunting

• lack of motivation

• mental and physical health problems.

In addition, many individuals face institutional barriers. These include:

• supervised prescribing of methadone: The need to attend a pharmacy on a daily basis can impede employment opportunities (McIntosh and McKeganey, 2001). At the same time, by reducing risk behaviour, criminal activity and increasing overall stability, prescribed methadone can have a positive impact on the employment prospects of recovering drug users.

• benefits rules: Income from employment, particularly with entry level or part-time jobs, can be lower than income from benefits. Rules about working while claiming benefits discourage people from seeking employment. Benefit recipients, especially those on Incapacity Benefit, are often reluctant to give up benefits because relapse once in employment can mean having to renegotiate benefits and a substantial drop in income (Klee et al 2002).

• informal economic activity: Informal economy jobs can provide an adequate income when supplementing benefits and may appear more financially rewarding than finding a job in the formal economy.

• legislative change: New regulations of the disclosure of criminal activities gives employers greater access to past criminal activities of employees and can increase discrimination against offenders in the labour market ( further information on the changes in legislation and the implications, from Disclosure Scotlandwww.disclosurescotland.co.uk or Apex Scotland 0131 220 0130or Apex Scotland 0131 220 0130www.apexscotland.org.uk ).

• service provision: Although there has been an expansion, employability-related service provision available to recovering drug users can be patchy and inconsistent. Often services are not geared to addressing the individual needs of clients

There are also barriers within the labour market:

• employers' attitudes: Many employers are reluctant to employ recovering drug users, although some will unknowingly be employing drug users. Specific barriers reported in a recent survey included employers' fears that recovering drug users may relapse, not be telling the truth or have negative effects on customers (Scott & Sillars 2003).

• standard recruitment practices: The requirement to fill in application forms or produce CVs can cause problems when an individual has had little or no job experience especially in competition with people who have a job history. There may also be problems with literacy. The nature and formality of the interview process, which requires a level of confidence and ability to communicate under pressure, can also be a hurdle. Some drug users, including recovering users who are on substitute prescriptions, may also encounter difficulties with health and safety regulations, e.g. when a job requires them to operate machinery.

• lack of knowledge of the current demands of the local labour market: This can lead to unrealistic aspirations about the type and level of work that might be attained; and the pursuit of skills or qualifications for jobs that are not available. Lack of knowledge of the labour market can be an issue for both the individual and the service providers.

• lack of suitable jobs : The overall situation of the job market, especially at times of high unemployment, can be a barrier to any disadvantaged groups: for example, high unemployment can mean employers are not motivated to consider employing individuals from disadvantaged groups, or the available jobs require specific skills.

What kind of employment?

Very often, recovering drug users are some distance away from being able to adapt to the general demands and basic discipline of training and employment. The transition to 'job readiness' and employment is not a smooth and linear progression. Different barriers emerge at different stages which means some people may settle at a point other than full-employment that is best suited to their situation. For some, the goal of full employment may be unattainable.

Bearing in mind the barriers to employment (outlined above), recovering drug users can experience ' poor' or 'below average' employability prospects. This can lead to less rewarding and less secure employment involving high risk of redundancy and low pay. However, certain labour market conditions can have a positive impact on their situation. During periods of shortages in the pool of people available within the labour market, employers may be more willing to employ groups who are usually seen as 'harder to employ'. The drawback is that even during such periods vacancies are likely to be at the low-paid, low skill end of the spectrum (Futureskills Scotland 2003). The challenge for DAAT partner agencies and service providers is: how to balance the aspirations of the individuals with the realities of the labour market.

The process of increasing employment prospects can be slow and frustrating for recovering drug users. Taking slow manageable steps along the way can help individuals measure their own progress and encourage them to move on. An example of the range of steps that can be taken towards full employment is provided by the 'Mind the Gap' report (although the report focuses on people with mental health issues, the example seems to be applicable for recovering drug users).

Job Readiness: What does it mean?

Within the wider context of employability, ' job readiness' is a central component. One of the main findings from studies with employers is that they want potential employees to be ' job ready'. In recent years, there has been an increase in the range of provision such as New Futures Fund projects and Progress2Work to help individuals to become 'job ready'. There are 3 key aspects to address:

• understanding what employers mean by employability and what value they place on different employability attributes (Johnson and Burden 2003). These cover not only skills and work experience but attitude and motivation.

• drug users are a diverse group. The severity of employment barriers will vary and this in turn will impact on the level of employability attained by individual clients (EIU 2001). Reaching a shared understanding of what that means for drug users trying to enter the job market is a crucial issue for the individual, for service planners and providers and for employers themselves.

• the local labour market. The number and type of jobs available, the number of vacancies, the nature of the shortages and the buoyancy (or otherwise) of the local economy will all influence the prospects of people at a disadvantage in the job market.

A key finding from the first Moving On review was that the majority of clients who had gone through active project based support would still go through interim stages to gain experience or qualifications. There seemed to be 3 broad categories:

• those who are job-ready (or almost)

• those not job ready but who have the potential to become so with further support

• those with multiple problems for whom employment is not a short or medium possibility.

A number of options were identified that would help clients to improve their job readiness and we have slightly revised that list in light of further consultation:

• education and/or training

• work tasters or placements

• supported employment

• voluntary work

• intermediate labour market (ILM) projects

• a combination of these options

All the evidence points to the need for a pathway that takes the individual through employability to employment. Progress along the pathway may be slow and sometimes frustrating. However, the experience of NFF and P2W is showing how that can be achieved.