Reform UK's £50 Billion Welfare Plan and the Return of the “Deserving” Disabled Person
There is a question sitting underneath Reform UK's proposed £50 billion reduction in welfare spending that deserves more attention than the headline figure itself.
How disabled must you be before society decides that you deserve support?
Reform UK has proposed one of the most radical restructurings of disability support in recent British politics. Under its proposals, Personal Independence Payment (PIP) for working-age adults would be abolished and replaced with a new Health Security Allowance, with support concentrated on those considered to have the most severe and enduring conditions. The health-related element of Universal Credit would also be abolished. Reporting on the proposals suggests that as many as 2.89 million people could see disability or sickness support removed or changed.
The proposals form part of a much larger attempt to reduce welfare expenditure by approximately £50 billion a year. Reform estimates that around £20 billion of those savings would come from changes affecting disabled and sick people, while another £21 billion would eventually come from restricting most welfare benefits for foreign nationals.
There are legitimate political questions about the sustainability, effectiveness and design of any welfare system. No benefit should be beyond scrutiny simply because its purpose is socially valuable. The government's own recent review of PIP has concluded that the system is not working as it should and requires reform.
But reforming a system is not the same thing as questioning the legitimacy of the people who depend upon it.
And this is where the language surrounding these proposals matters.
The distinction between those who are sufficiently disabled to qualify for continuing financial support and those whose conditions are judged less severe resurrects a very old way of thinking about welfare. It separates disabled people into categories of deservingness.
At one end sits the person whose impairment is severe, visible, permanent and sufficiently incapacitating. This person can be imagined as legitimately dependent. At the other end are millions of people living with chronic illness, fluctuating conditions, neurological conditions, mental distress, pain, fatigue, sensory impairments and other forms of disability whose lives cannot easily be divided into severely incapacitated and capable.
Many disabled people work. Many want to work. Many move between periods of greater and lesser capacity. A person may be able to participate in a meeting and be unable to cook afterwards. Someone may be able to work but unable to use public transport. Someone may walk for a short distance but require a wheelchair for longer journeys. Someone may appear entirely non-disabled during a few hours of public activity while paying for that participation with exhaustion afterwards.
Disability is not an on/off switch.
Yet welfare politics repeatedly attempts to make it one.
This becomes particularly important when disability benefits are discussed through the language of getting people “back to work”, because PIP is not an unemployment benefit. It exists to recognise some of the additional difficulties and costs associated with disability and long-term health conditions. It is not means-tested, and a person can work and receive it.
That distinction matters.
If disability support helps somebody pay for transport because they cannot use a bus, purchase equipment, obtain assistance, heat their home, access prepared food or meet other disability-related costs, removing that support does not automatically make employment more likely. It may make participation harder.
Scope's Disability Price Tag research estimates that disabled households need, on average, an additional £1,095 every month to achieve the same standard of living as comparable non-disabled households. PIP does not come close to eliminating that additional financial burden.
The disability payment, then, is not necessarily the thing keeping somebody outside society.
It may be part of the infrastructure keeping them inside it.
This is where decades of disability scholarship, and particularly the social model of disability, should make us suspicious of any policy that equates support with dependency. Disability cannot be understood simply by looking at what is happening inside an individual's body. People are also disabled by the environments through which they must move.
A person who cannot walk encounters a building with stairs differently from a building with a lift. Someone who cannot drive experiences a town with accessible public transport differently from somewhere in which the only viable alternative is an expensive taxi. A person with fluctuating energy may be able to remain employed because flexible working, technology and practical support make that employment possible.
The body has not necessarily changed. The conditions of participation have.
Money is part of those conditions.
A wheelchair can create mobility. A personal assistant can create independence. Accessible transport can create employment. Technology can create communication. Heating can make a home inhabitable. Practical assistance can enable somebody to conserve limited energy for paid employment, parenting, education or participation in community life.
None of these things removes impairment. They alter the conditions under which somebody lives with it.
This is why the assumption that reducing support necessarily reduces dependency contains such a profound contradiction.
Sometimes support is what makes independence possible.
Remove the infrastructure of participation and then instruct somebody to participate, and we should not be surprised when participation becomes harder.
But disability is only one boundary being redrawn in Reform's welfare proposals. Another concerns nationality.
The proposal has been described as preventing “foreign nationals” from accessing most welfare benefits. That phrase needs examining carefully, because it can easily conjure an image of someone who has recently arrived in Britain and immediately begun claiming benefits. That is not an adequate description of what is being proposed.
Many people living in Britain on temporary immigration routes are already subject to No Recourse to Public Funds and therefore cannot access most mainstream benefits. Reform's proposal goes considerably further. Reporting indicates that its restrictions would extend to people with permanent settlement rights and even EU citizens with settled status — people who may have lived, worked, paid taxes, raised children and built their lives in Britain for many years.
A person can therefore be permanently settled in Britain and still be classified, for the purposes of this proposal, as a “foreign national”.
That changes the nature of the argument.
The question is no longer simply whether newly arrived migrants should have immediate access to the welfare state. It becomes a question about whether nationality itself should determine access to collective protection even after the state has granted somebody permanent membership of British society.
And here disability and migration begin to illuminate something larger.
They are not identical experiences, and intersectional analysis should never pretend that they are. But both reveal the politics of deservingness.
The disabled person must demonstrate sufficient incapacity.
The migrant must demonstrate sufficient belonging.
The unemployed person must demonstrate sufficient willingness to work.
Different groups encounter different tests, but beneath them sits a remarkably similar question:
What must you prove before society accepts that you deserve its support?
For somebody who occupies more than one of these categories, a disabled migrant, for example, those boundaries do not remain neatly separate. A person can simultaneously confront questions about whether their disability is severe enough to deserve support and whether their nationality makes them sufficiently entitled to receive that support in the first place.
That is precisely why welfare policy requires an intersectional lens. Policies written as though “disabled people”, “migrants” and “workers” are entirely separate populations fail to recognise that real human beings inhabit several social positions at once.
Reform's proposal that some long-term benefit claimants deemed capable of employment should undertake around 20 hours of community activity each week or risk losing support raises another version of the same question. There is an important distinction between creating meaningful routes into employment and requiring somebody to perform visible social usefulness in exchange for the material conditions of survival.
The latter tells us something about how we have come to understand citizenship itself.
Perhaps one of the most revealing phrases in the debate is Robert Jenrick's criticism of what he calls “suicidal empathy”.
It is an extraordinary political formulation because it transforms compassion from a social virtue into a potential national danger.
Of course governments have finite resources. Of course welfare expenditure requires choices. And of course poorly designed systems should be changed.
But there is something troubling about a politics in which the danger is imagined to be that society has become too compassionate towards people who require support.
Human dependency is not an aberration. It is part of being human.
Children are dependent. People who become ill are dependent. Many older people become dependent. People recovering from accidents become dependent. Parents depend upon childcare. Workers depend upon transport systems, healthcare and public infrastructure. Businesses depend upon roads, educated employees, courts, policing and functioning financial systems.
None of us is entirely independent.
We have simply constructed some forms of dependency as ordinary and others as moral problems.
Disabled people have repeatedly been required to justify theirs.
There is a legitimate debate to be had about PIP. There is a legitimate debate about assessments, employment, welfare expenditure and how governments can support more disabled people who want to work.
But the starting point cannot be that disability must become catastrophic before its additional costs become legitimate.
That misunderstands disability.
It misunderstands work.
And, perhaps most importantly, it misunderstands independence.
A society committed to disability inclusion should not ask:
How little support can we provide before somebody falls?
It should ask:
What support allows this person to participate as fully as possible?
Those questions emerge from fundamentally different understandings of disability.
One treats support as evidence of dependency.
The other understands that appropriately designed support can create autonomy, participation and contribution.
And that is why the debate about Reform UK's welfare proposals cannot ultimately be reduced to £50 billion on a spreadsheet.
It is a debate about something much more fundamental.
Who do we believe deserves support?
And how disabled — or how British — must somebody become before we are willing to give it?