This post is by Jennifer Wallace,
Policy Manager at the
Carnegie UK Trust and author of ‘Shifting
the Dial: From Wellbeing Measures to Policy Practice’
Speaking
at the OECD World Forum last year Professor Stiglitz used his platform to
highlight three countries that were leading the way on measuring wellbeing:
Canada, with its Canadian
Index on Wellbeing; Bhutan with Gross National
Happiness and Scotland.
While the first two are well known in the international debate on
measuring wellbeing, Scotland Performs is not often referred to. Mention wellbeing in a UK context and most
people will automatically assume you are referring to the Office of National
Statistics Measuring
National Wellbeing programme.
So what is
a small country, a devolved government within the United Kingdom, up to? Why haven’t more people heard about it? And why did Professor Stiglitz single it out?
The
Scottish experience of measuring wellbeing began in 2007. A new minority government had been formed by
the Scottish National Party and they were keen to find a different way of doing
things. They implemented a range of
changes which became known as the ‘Scottish
model of government’. These
included the removal of horizontal departments in central government and, at a
vertical level, the freeing up of local government. The links between sectors and layers of
government were to be held together by a new National Performance Framework (NPF)
focused on the outcomes that the Scottish Government wanted to achieve for the
people of Scotland. The NPF is headed up
by a purpose statement (to focus government on ‘creating a more successful
country, with opportunities for all of Scotland to flourish, through increasing
sustainable economic growth’), underpinned by 16 national outcomes and 50
national indicators. The indicators
include measures covering health, education, environment, income, housing,
personal security and subjective wellbeing.
It is a whole-of-government framework and as such applies to all
services and all layers of government.
Originally
the NPF was not referred to as a wellbeing measurement initiative. It was seen as a performance management and
accountability tool. But the use of the
word ‘flourishing’ in the Framework shows the link with the work of Professor
Seligman in the USA. By 2011, and following
the Carnegie
Roundtable on Measuring Economic Performance and Social Progress, the
Scottish Government (now re-elected with a majority) were clearly articulating
the National Performance Framework and Scotland Performs (its public facing
website) as a wellbeing initiative.
This
history explains why few people in the measuring wellbeing world appear to have
heard about Scotland
Performs but there are other reasons. Unlike most of the international examples of
good practice, the Scottish initiative did not directly engage members of the
public in a conversation about what wellbeing is to them. Similarly, alongside many international
examples that we found in our earlier case studies for Shifting
the Dial, the Scottish initiative struggles to find ways to
communicate with the public about its findings.
What the
Scottish approach does excel at though is its impact on policy
development. This is the area that
wellbeing initiatives struggle most with.
In particular, the Scottish NPF has helped with two key areas of policy
development:
·
Shifting to prevention: The
wellbeing perspective has encouraged decision-makers to look for creative ways
of improving wellbeing by focusing ‘up-stream’.
In Scotland the NPF has supported the development of initiatives such as
the Early Years Collaborative, which focuses on improving early childhood
services and initiatives such as the Violence Reduction Unit in Glasgow which
seek to reduce the level of offending in high-risk groups.
·
Joined
up solutions: the National Performance Framework provides government with a
holistic view of the impact of current policies. This was followed by a renewed emphasis on
finding joined up solutions and overcoming the dominant, silo-based way of
working, for example through the integration of health and adult social care.
These
developments are still at an early stage and it is unclear the extent to which
they amount to a whole-scale wellbeing approach to public policy. In the ‘black
box’ of policy making it is also unclear the extent to which these policy
changes were developed because of the NPF, supported by it, or
merely just parallel initiatives.
Despite
these caveats, we believe there is something interesting happening in
Scotland. We are working with Oxfam
Scotland and Scottish Environment Link to encourage the Scottish Government to
review the framework, bringing it more in line with international best practice
on wellbeing measurement.
With
international agreement that we must measure what matters, the focus must now
transfer to how to use this in a policy context. Here, despite starting from a different
place, Scotland may well be ahead of the game.
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