The City Strategy (CS) concept was first announced in the 2006 Welfare Reform Green Paper – A new deal for welfare: Empowering people to work. CS was designed at a time of growth in the national economy to combat enduring pockets of entrenched worklessness and poverty in urban areas by empowering local institutions to come together in partnerships to develop locally sensitive solutions. It was premised on the idea that developing a better understanding of the local welfare to work arena would allow partnerships to align and pool funding and resources to reduce duplication of services and fill gaps in provision. The ‘theory of change’ underlying CS suggested that such an approach would result in more coordinated services which would be able to generate extra positive outcomes in terms of getting people into jobs and sustaining them in employment over and above existing provision.
CS was initially set to run for two years from April 2007 to March 2009 in 15 CS Pathfinder (CSP) areas, varying in size from five wards in one town through single local authority areas to subregional groupings of multiple local authority areas, across Great Britain. In July 2008, the Secretary of State for Work and Pensions announced an extension for a further two years to March 2011. In April 2009, two local areas in Wales, which were in receipt of monies from the Deprived Areas Fund (DAF), were invited by the Department for Work and Pensions (DWP) to form local partnerships with a similar remit to the CSPs, albeit more limited in scope – to develop locally sensitive solutions to economic inactivity, to the CSPs.
During the period that the CS initiative was operational, economic conditions changed markedly with a severe recession, followed by fragile recovery. The CSPs had to cope with ongoing changes in policy throughout the lifetime of the CS initiative, including a General Election and a new Coalition Government at Westminster early in the fourth year. While policy changes are a fact of life for local practitioners operating in the welfare to work arena, the global recession in 2008/09 marked a fundamental change in the context in which local partnerships operated
