Professional Documents
Culture Documents
Performing Welfare
Applied Theatre, Unemployment,
and Economies of Participation
Sarah Bartley
Contemporary Performance InterActions
Series Editors
Elaine Aston
Lancaster University
Lancaster, Lancashire, UK
Brian Singleton
Samuel Beckett Centre
Trinity College
Dublin, Ireland
Theatre’s performative InterActions with the politics of sex, race and class,
with questions of social and political justice, form the focus of the
Contemporary Performance InterActions series. Performative InterActions
are those that aspire to affect, contest or transform. International in scope,
CPI publishes monographs and edited collections dedicated to the
InterActions of contemporary practitioners, performances and theatres
located in any world context.
Performing Welfare
Applied Theatre, Unemployment,
and Economies of Participation
Sarah Bartley
University of Reading
Berkshire, UK
This Palgrave Macmillan imprint is published by the registered company Springer Nature
Switzerland AG.
The registered company address is: Gewerbestrasse 11, 6330 Cham, Switzerland
Acknowledgements
The caring, creative, and politically charged arts practices that intersect
with the welfare state have been a constant source of inspiration through-
out the writing of this monograph. I would like to thank Rebecca
Adamson, Naomi Alexander, Kate Anderson, Alexander Augustus, Richard
Barber, Katherine Chandler, Michael Chandler, Nathan Curry, Anna
Herrmann, Chloe Jones, Kat Joyce, Jess Pearson, Emma Waslin, Sara
Whybrew, and all of the participants I interviewed for their insights and for
allowing me to reproduce them here. Further, I will always be grateful to
Gillian Hewitson and the team at Newcastle Futures whose compassion
for all those seeking work lit the touch paper for this research.
I am enormously thankful to Jen Harvie for helping to dig out the
pockets of creative resistance amid the cruelty of austerity. I am indebted
to her relentless interrogation of social and political inequalities and her
unwavering support of me as a scholar. I am also hugely grateful to
Caoimhe McAvinchey whose boundless knowledge of practice and enthu-
siasm to sit down and talk it all through continue to energise me as a
researcher. You are both exceptional mentors and consistently model the
importance of kind and critical scholarship in equal measure.
The wider research community in the Department of Drama at Queen
Mary University has been hugely stimulating to be a part of; in particular,
I would like to thank Michael Shane Boyle, Amy Borsuk, Bridget Escolme,
Maggie Inchley, Catherine Silverstone, Philip Watkinson, Martin Welton,
Lois Weaver, Pen Woods, Martin Young, and Charlotte Young for their
contributions to both my research process and my teaching practice. Your
wit, activism, and research continue to be an inspiration. My thanks also
v
vi ACKNOWLEDGEMENTS
to the School of English and Drama administrative team for their warmth
and academic support.
I am also thankful to all my former colleagues at the University of
Leeds. I am particularly grateful to Aylwyn Walsh for reading drafts of this
work and for her inimitable comradeship and encouragement, Emma
Bennett for her solidarity and stimulating curiosity about absolutely every-
thing, and Kara McKechnie for keeping me together on even the longest
of days in room 101.
There are many other colleagues whose reflections informed this book,
most significantly Louise Owen and Jenny Hughes generously spent time
with this project and developed my thinking by asking incisive questions
and sharing generative conversations. Cat Fallow and Sarah Thomasson,
for reading drafts of this work, offering stimulating ideas, and for never
doubting it was worthwhile, you both helped with it all in immeasurable
ways. I am indebted to the editorial team at Contemporary Theatre Review,
Maria Delgado, Maggie Gale, Dominic Johnson, Bryce Lease, and Aoife
Monks, from whom I have learned the importance of collegiality and gen-
erosity in scholarship during my time as editorial assistant. Thanks also to
Selina Busby who set me on this path, Saul Hewish for being a mentor and
a friend, Caoimhe Mader McGuinness for her camaraderie and comrade-
ship, Sylvan Baker for always sending exciting things my way, Sue Mayo
for her support and encouragement, and to my hero Lynne McCarthy
who helped me along the journey, then, now, and hopefully always.
My thinking and enthusiasm for this project was nourished by working
with students, particularly those undergraduates on Collaborative Project
and our partners at the Wakefield Youth Association, whose exploration of
youth unemployment offered fresh perspectives and helped me to think
through many of the arguments made here. Further, the MA Applied
Theatre students at Leeds, Goldsmiths, and Central School of Speech and
Drama always offered thoughtful and passionate discussions that chal-
lenged and solidified the ideas that fill these pages.
I am thankful to Elaine Aston and Brian Singleton for their time and
support during the process of writing this monograph, particularly for the
insightful, encouraging, and thoughtful feedback Elaine offered on the
first draft of the manuscript which significantly expanded the reach of this
project. Thanks also to the excellent editorial team I have worked with at
Palgrave Macmillan, Tomas René, Vicky Bates, Shaun Vigil, Eileen
Srebernik, and Jack Heeney. Your careful guidance, patience, and atten-
tion to detail have been a great help.
ACKNOWLEDGEMENTS vii
“Sarah Bartley’s insightful investigation brings current debates about applied the-
atre and participation into dialogue with discussions of welfare in neoliberal societ-
ies. Empathetic and engaging, this study asks challenging questions about theatrical
representations of the unemployed, and considers how far theatre projects designed
for people experiencing joblessness are enmeshed in iniquitous ideas about pro-
ductivity and labour. This book addresses vital issues for our time, and positions
Bartley as a distinctive and important voice that must be heard by students, schol-
ars and theatre-makers.”
—Professor Helen Nicholson, Royal Holloway, University of London
“Performing Welfare dissects the vicious rhetoric, policy, and media and state prac-
tices of this era that violently punished so many of its most disadvantaged citizens.
It then examines an array of applied theatre practices, from large-scale extravagan-
zas to intimate installations, that, by contrast, compassionately partnered with
people who were unemployed to explore the true stories of their lives – their awful
precarity, their ambitions, and their heartfelt dreams.
Sarah Bartley’s Performing Welfare is an urgently timely book of compassion,
hope, and care by a writer paying forensic while sensitive attention to both social
injustice in the age of austerity, and the poignant reparative potential of applied
theatre.”
—Jen Harvie, Queen Mary University of London
Contents
xi
xii Contents
Afterword255
Index261
List of Figures
xiii
CHAPTER 1
It might seem to some observers that the Department of Work and Pensions
has been tasked with designing a digital and sanitized version of the nine-
teenth century workhouse, made infamous by Charles Dickens, rather than
seeking to respond creatively and compassionately to the real needs of those
facing widespread economic insecurity in an age of deep and rapid transfor-
mation brought about by automation, zero-hour contracts and rapidly
growing inequality.4
The unemployed figure is increasingly deployed by the state and the media
in ways that resonate with Victorian notions of the ‘deserving’ and ‘unde-
serving’ poor. Benefit claimants are utilised as a divisive tool, a way to
scapegoat the allegedly welfare-bloated state as partly culpable for this
period of austerity.5 In the chapters that follow, I draw attention to the
1 INTRODUCTION: PERFORMING WELFARE 3
individual, and the arts in a context where social systems of support are
being dismantled. The practices I investigate are conceptually layered and
heterogeneously realised. In order to attend to the richness of this kalei-
doscopic arts landscape, I consider the overlapping and divergent fields of
applied theatre, community arts, and participatory performance. Sally
Mackey has noted the absence of applied and social theatre in discourse
surrounding ‘the social turn’ in visual arts and participatory performance
practices.11 This book in part redresses this absence. Further, while applied
theatre, community arts, and participatory performance intersect and
inform one another, each area interacts with the context and experience of
unemployment in distinct ways. Applied theatre offers a body of scholar-
ship that addresses the instrumentalisation of arts practices in service to
social and political agendas. Prevalent discourses of inclusion/exclusion
and collective/individual operating within community theatre provoke
pertinent questions in practices addressing unemployment. Finally, the
parallel emergence and emphasis on participation, in both the labour mar-
ket and contemporary arts practice, evidences the utility of offering an
analysis that holds unemployment and performance alongside one another.
It is essential for socially committed performance practices, which are reg-
ularly concerned with creative production and active participation, to
reflect on its relationship to the destabilising of social security contracts,
the intensification of models of productivity, and the pervasive rhetoric of
individual responsibility. My examination of the unique economies of par-
ticipation that operate within socially committed performance—by which
I mean models of participant remuneration, systems of production, and
divergent funding strategies—asserts how this mode of performance
might disrupt established organisations of labour and capital under neolib-
eralism. Such performance risks validating these hierarchical systems of
power and yet it is uniquely positioned to critique them through the aes-
thetic strategies deployed by practitioners and participants and the collec-
tive production practices it can utilise.
bestows upon us, bound up as it now is with our identity. The detrimental
impact here for unemployed people is clear; they are both denied access to
the collective identity of the working class and also unable to signify their
individual identity and value. My engagement with this area is inflected
with Weeks’ assertion that work is not just championed through economic
necessity and social responsibility, ‘it is widely understood as an individual
moral practice and collective ethical obligation’.16 I explore how the
unemployed are constituted as a collective, interrogate the ways in which
this collective is rendered ‘legible’, and consider the social and political
stakes of doing so.
The UK Office for National Statistics utilises the following Labour
Force Survey definition of unemployment in order to delineate between
the working, economically inactive, and unemployed17:
those without a job who have been actively seeking work in the past 4 weeks
and are available to start work in the next 2 weeks. It also includes those
who are out of work but have found a job and are waiting to start it in the
next 2 weeks.18
the foreground of analysis despite the fact they usually occupy the back-
ground of experience’.30 Jackson proposes such a foregrounding will,
rather than echoing the ongoing binary discourse of efficacy versus aes-
thetic quality, provoke a heightened ‘awareness of our enmeshment in
systems of support’.31 Similarly, I examine how the welfare state, and its
erosion, is performed and experienced in socially committed arts practices.
This prioritises the intersection of arts practice and social systems; rather
than an emphasis on arguing for the value of specific aesthetic or social
agendas, I examine what occurs when these fields overlap. I investigate the
particular character of state sociality through the lens of the collective and
collaborative practices. Jen Harvie explores how the welfare state might
potentially incubate or challenge relational arts practice in the UK asking
‘how do these potentially socially democratic art practices and neoliberal
capitalist ideologies produce, inform, challenge and/or undermine each
other?’32 Such an investigation encourages a critique of the problematic
economic and social relations that arts projects might engender and embed
while also pointing to the potential of such arts practices to highlight the
labour dynamics which proliferate in our contemporary context.
In progressively precarious social and economic contexts, Jackson and
Harvie illuminated the position of art and performance within models of
social governance. While critiquing potential issues surrounding such rela-
tionally intentioned practice, both advocate for art forms which foster
interdependence and collective support systems, be they state-led or oth-
erwise, in contexts of receding social security. In its attentiveness to the
social context and political structures, out of which art practices emerge,
Performing Welfare locates itself in the theoretical lineage of Harvie and
Jackson. Representations of welfare in socially committed arts practices
offer an opportunity to interrogate notions of representation, depen-
dence, and production among unemployed individuals and communities.
Further, attending to arts projects engagement with unemployed partici-
pants illuminates how arts practice directly intervenes in, responds to, and
reproduces welfare policy.
As political theorist Isabell Lorey evidences, precarity is increasingly
engendered by the state through the destruction of social security. This is
justified by governments due to its apparent inevitability: ‘[i]n the course
of the dismantling of the welfare state and the rights associated with it, a
form of government is established that is based on the greatest possible
insecurity, promoted by proclaiming the alleged absence of alternatives’.33
Welfare contracts are disintegrating and political reforms continue to
12 S. BARTLEY
In the UK, austerity has been deployed to disinvest in the poorest in our
society, to encourage the shift of public services into private ownership,
and enable the transfer of wealth to an increasingly small elite.
In conjunction with the economic and social precarity identified by
Lorey, I also consider the material and embodied vulnerability of distinct
communities. Judith Butler posits the concept of ‘precarious life’ in a
post-9/11 American context of censorship and violence.37 Two central
tenets of Butler’s conception of ‘precarious life’ are that humans are
implicitly interdependent and vulnerable and that some are more exposed
to that vulnerability than others. These articulations of differently vulner-
able individuals and interdependent communities are vital to my consider-
ation of social security and discourses of community arts practice.
Foundational to this project is Butler’s acknowledgement of ‘normative
schemes of intelligibility [that] establish what will and will not be human,
what will be a liveable life, what will be a grievable death’.38 I identify how
and where these ‘normative schemes’ operate in and around the context
of participatory arts practice. Such a consideration reflects the material and
1 INTRODUCTION: PERFORMING WELFARE 13
The Report set the stage for a generation of impact studies, and other analy-
ses […] which sought to document and argue the case for the role of the arts
and creative industries as important agents for economic development and
urban renewal, and begin to measure this impact in quantitative terms.59
18 S. BARTLEY
The first to engage with economic discourse, the report repositioned the
arts in terms of investment, multipliers, and indicators, thus shifting
vocabularies in the field from the aesthetic and social to the economic,
appealing to the sensibilities of the burgeoning neoliberal order.
Employment was a central tenet of this argument for the arts: evidence of
job creation throughout the sector was a powerful signifier of the impor-
tance of the industry in a context of receding industrial employment. The
narrative of the arts as a valuable employer has since threaded through
cultural policy from Myerscough to the present day.
New Labour came to power in 1997 with a landslide victory under-
pinned by their Third Way ideology, an attempted synthesis of market-
oriented economic approaches and communitarian social and cultural
policies. Their policy approach was characterised by efforts to achieve
social equality, increase representation and community cohesion, and pro-
mote economic prosperity in a globalised marketplace. Inflected by these
plural objectives, the government installed their flagship employment pol-
icy New Deal as soon as they took office. The policy was considered highly
successful, bringing unemployment below one million for the first time in
25 years by March 2001.60 New Deal targeted groups who were deemed
as having multiple obstacles to accessing the labour market; there were
specific strands for young people, lone parents, disabled people, those who
were classified as long-term unemployed, and people over 50. This pro-
gramme is indicative of the wide-reaching and targeted support offered by
New Labour; however, underpinned by the Third Way ideology, New
Deal also emphasised a rebalancing of ‘rights and responsibilities’. Where
previously as a citizen you had a right to social security, New Labour fur-
ther engrained rhetoric that asserted claimants had to demonstrate them-
selves responsible to the state in order to earn their benefit. Aligned with
this, and directly building on the policies of the previous Conservative
government, New Labour established the Jobseeker’s Allowance and
accompanying Jobseeker’s Agreement. This agreement introduced finan-
cial sanctions of varying severity that could be imposed on claimants who
refused ‘suitable’ employment, failed to actively seek work, or became
unavailable for work. Towards the end of the New Labour government,
the Welfare Reform Act 2009 signified a further drive towards workfare
schemes and a push for a tougher sanctioning process.61 This Act was the
culmination of the decade-long emphasis on responsibility over right by
New Labour. An ideological stance subsequently advanced by both the
Coalition and Conservative governments.
1 INTRODUCTION: PERFORMING WELFARE 19
From the outset, Labour leader Tony Blair made apparent his aim to
put the arts to work as part of his government’s cultural strategy.62
Characteristic of New Labour’s policy initiatives was the reframing of arts
and culture through a rhetoric of social inclusion.63 Social inclusion poli-
cies sought to tackle deep rooted and interdependent modes of exclusion
such as high levels of unemployment, crime, ill-health, and poor educa-
tion.64 The publication of François Matarasso’s ‘Use or Ornament’ in
1997 provided a methodological approach for examining social impact in
the arts and arguing beyond the financial for ‘economics in its deeper
sense’.65 Seven of the 50 social impacts of participation in the arts outlined
by Matarasso were directly related to employment/employability; if soft
skills development is included, this adds a further four.66 This spoke to the
appetite for marrying social inclusion and economic productivity within a
Third Way Model and identified the arts value within such a framework.
Alongside this, the government established 18 Policy Action Teams
(PATs) to research and implement solutions in specific areas of social
exclusion. Having begun to demonstrate and document its social impact,
PAT 10 was established in order to explore how best to utilise arts, sport,
and leisure to challenge poverty. In 1999, the PAT 10 report concluded
that arts, sports, cultural, and recreational activity ‘can contribute to
neighbourhood renewal and make a real difference to health, crime,
employment and education in deprived communities’.67 Within the same
year, the Scottish Arts Council found ‘art plays a critical part in empower-
ing communities, providing jobs, skills and training’.68 The arts were thus
recognised as successful providers of skills, training, and employability
provision. In addition to aligning with discourses of social inclusion
throughout the New Labour years, the arts and cultural sector maintained
a focus on productivity and employment provision. The inception of the
Creative Industries in the UK coincided with New Labour coming to
power.69 The Creative Industries Task Force was conceived in 1997, work-
ing across government departments it sought to evaluate and strategise
performance throughout the creative industries in order to maximise
effectiveness. Producing Creative Industries: 1998 Mapping Document and
later repeating the evaluation in 2001, the Creative Industries Task Force
signalled its focus on statistical analysis of employment in the sector,
thereby providing a justification for the arts that was reliant on its capacity
for job creation. This served to further entwine the value of arts practice
with the promise of employment.
20 S. BARTLEY
When the Coalition government came to power in 2010 (and later the
Conservatives in 2015), they introduced increased conditionality for those
claiming unemployment benefits, and subsequent increase in sanctioning,
implemented through the new Claimant Commitment.70 This has resulted
in a more punitive and disciplinary system of welfare. In 2016 the govern-
ment introduced a four-year freeze across Jobseeker’s Allowance,
Employment Support Allowance, and Universal Credit, meaning that they
would not rise in line with inflation and resulting in a 6.5% real terms cut
in financial support.71 An increased vulnerability to economic hardship
and financial crisis for those relying on state assistance has characterised
welfare reform introduced by governments since 2010. In part this has
been due to the faltering and costly introduction of Universal Credit, the
most ambitious attempt at a system and culture change within the state
welfare structure. Universal Credit aims to assimilate all six working-age
benefits and intends to revolutionise the manner in which people encoun-
ter unemployment and receive financial support from the state.72 Further,
it intends to enable claimants to roll on and off benefit if they undertook
short-term or zero-hour contracts. Universal Credit was due to be nation-
ally in operation by 2017; however, beset by system and IT failures, it has
been rescheduled seven times and is forecast to be fully rolled out by 2022
at a cost of £15.8 billion.73 Further, cuts to Universal Credit by the trea-
sury in 2016 mean the benefit will be significantly less than its predecessor
with 1.2 million families on Universal Credit set to receive an average
reduction of £41 a week in financial support.74 This shift not only affects
the unemployed but the working poor with 1.3 million working families
currently entitled to support in the tax credit system no longer entitled to
any in-work support, leaving them on average £42 a week worse off.75
Additionally, claimants have to wait five weeks between applying for
Universal Credit and receiving any financial support. The Advanced
Payment facility enables claimants to access a government loan from the
point of making their claim; however, this often leaves people with little
money left once their government loan repayment is deducted each
month. MPs launched an inquiry in 2017 into the roll out of the service
as claimants faced lengthy delays in payments, resulting as Labour MP
Frank Field states ‘claimants falling into debt and rent arrears, caused
health problems and led to many having to rely on food banks’.76 The
system has been widely condemned across the political parties, the charity
sector, support services, and by the United Nations due to it regularly
1 INTRODUCTION: PERFORMING WELFARE 21
I come to you today and ask you to help me reframe the argument: to ham-
mer home the value of culture to our economy […] some simply want
money and silence from Government, but in an age of austerity, when times
are tough and money is tight, our focus must be on culture’s eco-
nomic impact.79
Notes
1. But I’m Here for Mental Health notably preceded Ken Loach’s much her-
alded 2016 film drama I, Daniel Blake that also represented the disability
benefits process in the same area of Tyneside.
2. MindFULL participant interview with the author, Gateshead, 11
August 2015.
3. Office for National Statistics, ‘UK Labour Market Statistics: Dec 2011’,
WebArchive, December 2011, http://webarchive.nationalarchives.gov.
uk/20160105160709/http://www.ons.gov.uk/ons/rel/lms/labour-
market-statistics/december-2011/statistical-bulletin.html (accessed 10
March 2017); Office for National Statistics, ‘UK Labour Market:
Jan 2018’, ONS, January 2018, https://www.ons.gov.uk/employ-
mentandlabourmarket/peopleinwork/employmentandemployeetypes/
bulletins/uklabourmarket/january2018#unemployment (accessed 2
February 2018).
4. Philip Alston, ‘Visit to the United Kingdom of Great Britain and Northern
Ireland’, United Nations Rapporteur on Extreme Poverty and Human
1 INTRODUCTION: PERFORMING WELFARE 29
*****
»Ida Aalbergin vierailu oli hyvin onnistunut, se oli aivan toista kuin
viime vuonna, jolloin yleisö kohteli häntä kylmästi. Kaikki hänen
monet tuhmuutensa olivat silloin liian tuoreessa muistissa, mutta nyt
ne oli kutakuinkin unohdettu.» —
Terry vetoaa hänkin Mrs. Siddonsiin. Hän kyllä tietää, että tämän
Lady Macbeth on ollut miehekäs ja lujatahtoinen ja
voimakasryhtinen, mutta nuo ominaisuudet johtuivat siitä, ettei
näyttelijätär, jolla oli kyömynenä, sysimusta tukka ja komentajan
käytös, voinut muuta olla. Terry vetoaa Siddonsin muistiinpanoihin,
joissa tuo näyttelijätär sanoo, että Lady Macbethin pitäisi olla
»kaunis, naisellinen, ehkäpä suorastaan hento ja hauras.» Tiedetään
myöskin, ettei Mrs. Siddons katsonut itseään oikein sopivaksi tuohen
osaan. —
*****
»Herra Johtaja!
UUSI KOULU.
Lauri Kivekäs oli tavallaan ollut eetillinen filosofi hänkin — hän oli
omaksunut maailmankatsomuksen, jonka tunnussana oli
kansallisuusaate. Hänen filosofiansa lähti elävästä elämästä
semmoisenaan, ja sillä oli selvät, joskin rohkeat ja hyvin
käytännölliset päämäärät. Lauri Kivekäs oli tyypillinen suomalaisen
luonteen edustaja, raju, häikäilemätön, rohkea, kiihkeä, jos oli
kysymys taistelusta, mutta pehmeä kuin vaha, helposti ohjattava,
empivä, jos hänelle haasteltiin lemmen kieltä. Tälle miehelleen Ida
Aalberg puhui melkein aina rakkauden sanoja, ja heidän
avioliitossaan ei ollut syviä, ainakaan maailmankatsomukseen ja
luonteitten erilaisuuteen perustuvia ristiriitoja. Heidän ristiriitansa
olivat tavallisen todellisuuselämän ristiriitoja, niistä puuttui
teoreettinen pohja.
Alexander Uexküll-Gyllenband oli ikivanhan saksalaisen suvun
jäsen. Hän tunsi itsensä germaaniksi, mutta hänen esi-isänsä olivat
lähes parisataa vuotta toimineet slaavilaisuuden päämaassa,
Venäjällä. Kansallisuusaate ei hänelle muodostunut miksikään
kipeäksi persoonalliseksi kysymykseksi, siihen nähden olivat jo esi-
isät saaneet tehdä ne kompromissinsa, joita yksityisen ihmisen
elämänonni edellyttää. Ida Aalbergin toinen mies, vapaaherra
Alexander Uexküll-Gyllenband, oli kaikilta taipumuksiltaan
kosmopoliitti. Hän katsoi elämää ja sen ilmiöitä yleisinhimilliseltä
näkökulmalta.
*****