CPP Lecture by Hilary Cottam: The Role of Emotions in Public Policy

This report was written by Kate Owen

But the Spell Remains: The Role of Emotions in Public Policy

Hilary Cottam, design strategist and founder/principal partner of Participle, delivered the CPP Lecture on 18 November 2013

Dr Cottam’s talk focused on why public policy fails and why policy issues that seem to have been “solved” often re-emerge in a different form at a later date. The importance of different perspectives in policymaking was discussed and it was argued that policymaking often adheres to rigid categories when the reality is that issues are highly mobile, and the lines more blurred, than first appears. In particular, policymaking needs to be more emotionally intelligent and take into account people’s senses, feelings, secrets and desires. Failure to do so leads to “broken” policymaking and has a significant effect on people’s lives.

Dr Cottam argued that although Beveridge’s vision of a welfare state is broken as a result of unforeseen demographic changes, this represents an opportunity to reconsider the way in which public policy is devised and delivered.

Dr Cottam made extensive use of case studies from Participle’s work to illustrate the importance of stories behind stories. She made three key points in this respect:

1. Early segmentation of need does not aid the policy process. An example cited was adult social care, where people are considered in the context of how frail they are physically and how much money they have. A broader approach should be adopted.
2. People’s needs are episodic yet too often public policy delivery does not reflect this.
3. Britain’s population is highly mobile, families want to be able to support each other but have to take into account the constraints of distance.

Participle found that there was demand for a service that helped to organise practical matters for over 50s, helped people to get and maintain a social life and to live a life with purpose. A period of paper prototyping was carried out, with a service being designed on paper and tested in practice so that real life responses could be measured. Many important lessons were learnt this way, particularly the importance of failing early, cheaply and moving on. The product of this prototyping was Southwark Circle a membership organisation which gives over 50s access to an 0800 number, free events, volunteers to help with tasks and signposting to other events. It is entirely demand driven and uses the database programme CRM to find what people want at the moment that they need it and then connect them. Southwark Circle grew quickly and now has around 5000 members.

Dr Cottam moved on to consider the difficulties of outcome measurement. Southwark Circle, for example, is measured against statutory outcomes and a core set of capabilities such as relationships, working and learning and the ability to be part of the community.

Dr Cottam argued that there should be a more granular approach to policymaking. A consideration of different cultures should underpin the way in which services operate with service delivery being more homegrown and focusing on relationships. As services are upscaled the focus should continue to be on relationships rather than a more transactional approach. Policy fails because policymakers fail to understand the emotional relationships which lead people to behave in unexpected ways.

Dr Cottam focused particularly on unemployment policy. Citizens are expected to act as rational economic maximisers with little known about the social and cultural factors that underpin economic relationships. Participle set up Backr-a programme that is based on emotions and looks at how to build relationships that help people to find work and then move up the skills curve. Dr Cottam argued that relationships can play a key part in unemployment policy both in the networks people form and those formed by employers, especially those from small and medium enterprises. Backr groups people according to their social networks and runs themed events to meet their needs with reflectors supporting people to find work. This programme has had positive results and is being scaled up in South London.

Dr Cottam concluded with the point that the solutions to challenges such as unemployment and an ageing population will not be found in the current centre based approach. Instead, we should look towards a more responsive welfare state that values and builds relationships.

Main points from the Q & A session:

• Circle is member driven and reacts to the demands and needs of its members.
• There needs to be a different way for Britain to work at a local level. The Circle model is adaptable, with different Circles operating in different ways. Participle wants to build around what is already in existence. Some of its most interesting work in this respect is in the Far East.
• There are issues around funding this type of project in the UK. Most funding opportunities are around the £50,000 mark which is not sufficient for upscaling a programme such as Circle.
• There is a significant demographic power base amongst the over 60s but this is not being effectively harnessed.
• People have different opinions on the most effective means of measurement. The capability approach has much to offer. Dr Cottam is particularly interested in what a programme fosters in people rather than general outcomes.