Automating Social Security in the UK: A Study on Incorporating Claimant Voices in the Design of Universal Credit
Lead Research Organisation:
University of Edinburgh
Department Name: Science Technology & Innovation Studies
Abstract
Governments around the world are adopting algorithmic systems to deliver fundamental social services, from policing to fraud detection to child welfare. While a growing set of research investigates the designs of these systems - their underlying policy goals and effectiveness - there is a gap in the literature on how automation impacts users and how user perspectives could democratically inform these system's technical, legal and administrative design.
This project sets out to achieve a wider understanding of the emergence of automated social services and their effects on claimants through a study of the UK's Universal Credit scheme. The proposed project will examine the automation of social security benefits in the U.K. through two sets of research questions.
(1) What political values and policies drive the technical systems that comprise Universal Credit? By interviewing DWP staff and through document analysis, the project will illuminate Universal Credit's wider political context and be among the first academic studies to map the system's technical dimensions.
(2) How do claimants interact with automated components of Universal Credit and does automation in social security harm certain populations? Through interviews with NGOs that work with claimants and workshops with claimants themselves, I will examine whether and how automated features of Universal Credit may embed certain biases or harms that impact people differentially. The user workshops will explore accountability processes that encourage claimants to offer feedback on the design of the system itself; these events will provide templates for evidence-based consultations with users to shape algorithmic social services.
The research will involve mixed methods, including document analysis, fieldwork, interviews, and user design workshops:
(a) Document analysis will reveal Universal Credit's wider political context and history of development. The project will draw on public documents such as legislation and decrees, departmental reports, websites, guidelines, parliamentary committee reports, and audits, as well as public records requests to gain access to technical specifications of the system, such as vendor contracts and designs of specific automated functions. (b) Interviews will further illuminate the design of UC and its differential impacts on claimants, including approximately 15 interviews with DWP staff, reaching out to project partners on the DWP's UC User Research team, as well as the Universal Credit digital services team and the DWP's Benefits and Pensions Digital Technology Services; and 25 interviews with staff at Scottish NGOs that work with or on behalf of claimants. c) Through placement in a Citizen Advice Bureau local to the Edinburgh region, I will conduct fieldwork one day a week for 12 months to observe how often problems with Universal Credit relate to automated features of the system. d) Finally, I will hold six design workshops, focusing on a sample of digitally excluded claimants in the Scottish context, a group that the DWP's UC User Research team has found particularly difficult to reach for user testing, as well as a comparison group of claimants who are confident in their digital skills.
Automation in UC is a complex topic that spans several knowledge domains and therefore demands an integrated approach, combining multiple perspectives on the politics, designs, and oversight of automated social security. The study particularly addresses a lack of literature on the experiences of claimants as they interact with automated systems. Through public reports, public events and media dissemination, the project will spark discussion on the problems claimants face while using these systems and explore how claimant voices can feed into their future modifications.
This project sets out to achieve a wider understanding of the emergence of automated social services and their effects on claimants through a study of the UK's Universal Credit scheme. The proposed project will examine the automation of social security benefits in the U.K. through two sets of research questions.
(1) What political values and policies drive the technical systems that comprise Universal Credit? By interviewing DWP staff and through document analysis, the project will illuminate Universal Credit's wider political context and be among the first academic studies to map the system's technical dimensions.
(2) How do claimants interact with automated components of Universal Credit and does automation in social security harm certain populations? Through interviews with NGOs that work with claimants and workshops with claimants themselves, I will examine whether and how automated features of Universal Credit may embed certain biases or harms that impact people differentially. The user workshops will explore accountability processes that encourage claimants to offer feedback on the design of the system itself; these events will provide templates for evidence-based consultations with users to shape algorithmic social services.
The research will involve mixed methods, including document analysis, fieldwork, interviews, and user design workshops:
(a) Document analysis will reveal Universal Credit's wider political context and history of development. The project will draw on public documents such as legislation and decrees, departmental reports, websites, guidelines, parliamentary committee reports, and audits, as well as public records requests to gain access to technical specifications of the system, such as vendor contracts and designs of specific automated functions. (b) Interviews will further illuminate the design of UC and its differential impacts on claimants, including approximately 15 interviews with DWP staff, reaching out to project partners on the DWP's UC User Research team, as well as the Universal Credit digital services team and the DWP's Benefits and Pensions Digital Technology Services; and 25 interviews with staff at Scottish NGOs that work with or on behalf of claimants. c) Through placement in a Citizen Advice Bureau local to the Edinburgh region, I will conduct fieldwork one day a week for 12 months to observe how often problems with Universal Credit relate to automated features of the system. d) Finally, I will hold six design workshops, focusing on a sample of digitally excluded claimants in the Scottish context, a group that the DWP's UC User Research team has found particularly difficult to reach for user testing, as well as a comparison group of claimants who are confident in their digital skills.
Automation in UC is a complex topic that spans several knowledge domains and therefore demands an integrated approach, combining multiple perspectives on the politics, designs, and oversight of automated social security. The study particularly addresses a lack of literature on the experiences of claimants as they interact with automated systems. Through public reports, public events and media dissemination, the project will spark discussion on the problems claimants face while using these systems and explore how claimant voices can feed into their future modifications.
Organisations
Publications
Bennett H
(2022)
Scottish Choices: Research Report
Currie M
(2022)
Childcare and Universal Credit
Currie M
(2023)
Studying Lived Experience and Automated Systems: The Case of Universal Credit
in Proceedings of the Association for Information Science and Technology
Currie M
(2022)
Design Prompts for User Feedback on Universal Credit
Podoletz L
(2024)
Automating universal credit: A case of temporal governance
in First Monday
Stiefel L
(2024)
Preface
in First Monday
Description | Our research studies the automated and digital aspects of Universal Credit, a social security benefit in the UK. Universal Credit is a digital-by-default benefit which means that recipients mainly interact with the system and Universal Credit staff through an online account. The system uses a means-tested, automated system to calculate the amount of entitlement a claimant receives in a month, based on factors such as monthly income and personal circumstances. 1. Our study uses qualitative longitudinal research (QLLR) to understand the lived experiences of Universal Credit recipients with the automated and digital aspects of this benefit. The novel methodology used in this study (entry and exit interviews combined with prompted weekly updates from participants on their interactions with Universal Credit) is a powerful tool in the understanding of the impact of automated decision-making systems on the lives of users and data subjects. We demonstrate this by highlighting how QLLR can provide in-depth information on the complex nature of digital assemblages, how it can capture real-time, affective experiences, and how it offers an iterative, flexible method that suits the dynamism of automated decision-making. 2. Universal Credit creates temporal mandates by applying a fixed, monthly assessment period of earnings for working claimants. These assessments are then used to determine the amount of entitlement the recipient gets, resulting in a dynamic pay that can change the Universal Credit award every month. This monthly period creates problems for certain claimants, such as ones who are paid their wages on a weekly/bi-weekly, causing a misalignment between their wage-payment cycles and UC assessment cycles. Due to the rules of calculation within the system, this misalignment may lead to the loss of entitlement. We developed the concept of temporal punitiveness to describe this phenomenon. 3. We contribute to research on Universal Credit by developing the concept of distributive administrative burdens - how features of an administrative system can prove to be burdensome for some but not necessarily to all - and argue that literature on welfare policy has paid little attention to the burdens produced by their technical dimensions. We also develop a novel typology of costs that citizens may experience when accessing their entitlement. As opposed to most literature which distinguishes between learning, compliance and emotional costs (a typology that has been subject to criticism in the past), we develop a new typology based on the nature of the cost people "pay" when dealing with administrative processes: temporal, financial and emotional. |
Exploitation Route | 1. The research method we used can assist in the further understanding of the impact of automated decision-making on the lives of users and data subjects. 2. The concept of temporal punitiveness can help in understanding and conceptualising the consequences of mandatory temporal frameworks. It can also be applied outside of the study of automated social services. 3. The concept of distributive administrative burdens and the typology of related costs (temporal, financial and emotional) can be applied to the further study of administrative burdens and used as a framework in the understanding the impact of administrative processes. |
Sectors | Communities and Social Services/Policy,Government, Democracy and Justice |
URL | https://automatinguc.co.uk |
Description | Three of our reports have been sent to the Department for Work and Pensions (DWP). They have been uploaded to the DWP's directory of relevant external research, which is available for everyone on the Universal Credit programme and is used for desk research. The report "Childcare & Universal Credit" contributed to an ongoing internal project about understanding the barriers to work that UC claimants face. The report "Design Prompts for User Feedback on Universal Credit" was reviewed during the iteration of a user research invitation banner that is used within the UC Service. Findings from the report "Confused about Universal Credit?" were documented as further evidence to known problem statements with how caseloads and claims are managed in relation to Universal Credit. |
First Year Of Impact | 2022 |
Sector | Communities and Social Services/Policy |
Impact Types | Policy & public services |
Description | Contribution to the Scottish Government's Social Justice and Social Security Committee Inquiry on Addressing child poverty through parental employment |
Geographic Reach | National |
Policy Influence Type | Contribution to a national consultation/review |
Description | Interview with the Huck Magazine |
Form Of Engagement Activity | A press release, press conference or response to a media enquiry/interview |
Part Of Official Scheme? | No |
Geographic Reach | International |
Primary Audience | Media (as a channel to the public) |
Results and Impact | Dr Morgan Currie was interviewed by the Huck Magazine in relation to disability benefits and fraud investigations. |
Year(s) Of Engagement Activity | 2022 |
URL | https://www.huckmag.com/perspectives/disabled-benefits-claimant-are-being-unfairly-investigated/ |
Description | Participation in the 'Critical Codes Roundtable' |
Form Of Engagement Activity | Participation in an activity, workshop or similar |
Part Of Official Scheme? | No |
Geographic Reach | International |
Primary Audience | Other audiences |
Results and Impact | Dr Morgan Currie and Dr Lena Podoletz attended the 'Critical Codes Roundtable' event on the 18th November 2022. The event was organised by the University of Edinburgh and focussed on Ethical Codes of Conduct and their role in the governance of emerging technologies. |
Year(s) Of Engagement Activity | 2022 |
Description | Participation in the 'Just AI' workshop titled 'Beyond Critique to Repair' |
Form Of Engagement Activity | Participation in an activity, workshop or similar |
Part Of Official Scheme? | No |
Geographic Reach | National |
Primary Audience | Other audiences |
Results and Impact | Dr Lena Podoletz attended the 'Just AI' workshop titled 'Beyond Critique to Repair' on the 14-15th July 2022. The workshop was organised by the London School of Economics and Political Science and focussed on strengthening research connections around the topic 'Deep Sustainability and AI ethics' |
Year(s) Of Engagement Activity | 2022 |
Description | Participation in the 'Just Digitalisation' book workshop |
Form Of Engagement Activity | Participation in an activity, workshop or similar |
Part Of Official Scheme? | No |
Geographic Reach | International |
Primary Audience | Other audiences |
Results and Impact | Dr Morgan Currie attended the 'Just Digitalisation' book workshop as an invited contributor on the 29th June 2022. |
Year(s) Of Engagement Activity | 2022 |
Description | Presentation given at the ECREA (European Communication Research and Education Association) Pre-Conference 'Datafied Welfare States' |
Form Of Engagement Activity | A talk or presentation |
Part Of Official Scheme? | No |
Geographic Reach | International |
Primary Audience | Other audiences |
Results and Impact | Dr Morgan Currie and Dr Lena Podoletz gave an online talk titled 'Automating Universal Credit: A case of temporal punitiveness' at the ECREA (European Communication Research and Education Association) Pre-Conference 'Datafied Welfare States' on the 18th of October 2022. The presentation focussed on how timeframes and deadlines may create a punitive effect for some claimants of Universal Credit. the impact of this activity was knowledge exchange with academics from European and UK universities, such as University of Copenhagen (Denmark), Tampere University (Finland), Stockholm University (Sweden), Marie Curie Sklodowska University (Poland) and King's College London (UK). |
Year(s) Of Engagement Activity | 2022 |