Tag Archives: UK

Anticipatory Perspectives on the Post-Corona Crisis Economy, Blog, Features

Sandy Smith-Nonini: Energy Crises in the Time of Covid: Precarious Fossil Infrastructures

The spectacle of Russia invading Ukraine has elevated tensions over Europe’s access to natural gas and may herald a sea-change in regional geopolitics of energy. But prior to Putin’s war, energy crises played out across dozens of countries in 2021. Ramped up economic demand in the fourth quarter contributed to many, but there were forewarnings of instability – from rolling blackouts during California wildfires to over 200 bankruptcies of US gas fracking companies since 2015 due to high debt and low prices.

Ironically, Coronavirus lockdowns in early 2020 accomplished in one fell swoop what divestment activists only dreamed of when oil and gas stocks crashed, leading to a write-off of $145 billion in oil/gas assets by year’s end. But outcomes to date do not include greening. The US government rescued the industry with $120 billion in direct and indirect pandemic stimulus funds and benefits. The industry diverted the largess into stock buybacks and dividends, rather than invest in (green or brown) production.

The fragility of gas infrastructure involves more than financial debt. As a surge of Covid-19 cases overwhelmed Texas hospitals in February 2021, a wicked polar vortex and ice storm brought the state to a standstill due to prolonged blackouts caused by frozen gas lines, leaving over 5 million families without heat in the extreme cold, some for up to a week. Temperatures fell to 6° F (-14° C) in Austin, where lows seldom drop below 40° F (4.4° C).  

More crises followed. In June, just weeks after a private consortium took over Puerto Rico’s rickety electric grid, a substation fire and a series of blackouts left a million islanders without power. By fall ongoing grid failures prompted mass protests from a weary public that had only three years earlier gotten the lights back on after an 11-month blackout from Hurricane María.  Prolonged outages also followed Hurricane Ida’s August landfall in New Orleans.

Protesters march down a street, holding signs that say "Luz para Caguas" and "¿Y Caguas pa' cuando? ¡Nuestra gente necesita luz!"
Image 1: Puerto Ricans from dozens of small towns protesting in San Juan for power restoration four months after Hurricane Maria, photo by Marla Perez-Lugo

Then as economic demand rose in the fall, fuel shortages and high coal and gas prices spurred energy crises in Europe (especially the United Kingdom), Pakistan, Singapore, China, India, South Korea and Lebanon, including blackouts and/or steep hikes in electric bills. The high gas prices reflected, in part, low production from collapsed demand in 2020 that left US frackers  dependent on previously drilled wells, while lenders, burned from bankruptcies, were hesitant to extend them credit. Tensions with Russia, source of over a third of EU gas supplies, added to perceived risks. Pandemic economic stresses contributed to energy crises, as did extreme weather and grid fragilities from poor maintenance during decades of utility deregulation.

This essay discusses the social and political costs of energy crisis, with a focus on the Texas and UK cases, based on study of over 150 government, non-profit, academic and media reports, and participation in two panels on the freeze blackout at the University of Texas -Rio Grande Valley.  I draw on other research, including ethnographies on earlier energy crises in Puerto Rico and Greece (Smith-Nonini 2020a, 2020b), to sketch out common patterns and implications for a green transition. 

The Matrix of our Bodies Electric   

The multiple factors behind these crises attest to the complex nature of the grid – simultaneously an aging mechanical infrastructure and cultural artifact, shaped by specific histories and geographies (Bakke 2017) amid a volatile capitalist industrial ecology of fuel flows, climate change, growing inequality and new risks of contagion.

Blackouts often result from the convergence of unusual weather, poor regulation and incentives that reward profit-seeking at the expense of grid maintenance or equitable rates. Prolonged grid breakdowns contribute to energy poverty, or lack of access to energy, which affects 25% of humanity and is both a cause and result of “underdevelopment.”(Sovocool and Dworkin 2014).

But recent energy crises highlight “new energy poverty” in industrialized countries. Most low-income US families qualify as energy poor (i.e., over 10% of incomes spent on utilities) (Mohr 2018), while over 50 million Europeans struggle to pay utility bills – especially in the UK, Eastern Europe, and Mediterranean area (Bouzarovski 2014).

Grid fragility has been exacerbated since the 1990s by pressures to break up and privatize profitable assets of public utilities, a trend associated with rate increases, service cuts, and increased utility debt, especially in indebted countries where privatization is a condition of loan agreements and utility regulation is often weak (Luke 2010, Palast et. al 2003).  

Nearly ubiquitous access to electricity in wealthy countries obscures the magnitude of fossil fuel dependence that underwrites modernity.  Hurricane María’s 2017 destruction of Puerto Rico’s grid plunged residents into the worst blackout in US history. “The country was upside down,” a local activist observed, noting that while power is not considered a basic need like water, “people cannot afford to be in this society — a high energy society — without electricity” (Smith-Nonini 2020a).  

The storm laid bare electricity’s role as routine conduit for basic needs. Around 3000 people died, including many reliant on power for medical therapies. A million lost water service. Residents stood in long lines for food, which grew scarce, and had to survive for weeks with cash on hand for lack of bank machines (Smith-Nonini 2020a).

Inside Pandemic-related Energy Crises

The February 2021 Texas Freeze Blackout 

The Texas freeze caused over 700 deaths and blacked out 4.5 million households. COVID patients could not access care and stores ran out of food. Republican Governor Greg Abbot blamed frozen windmills, but had to walk this back once it was clear that frozen gas lines supplying power plants caused 55% of the outages. The news was a shock to this petro-“state” where fracked gas and oil are credited with restoring US global economic clout since the 2008 financial crisis.  

A failure to weatherize the grid was widely blamed for the debacle. Unlike some islands (e.g., Puerto Rico) that lack options for grid sharing to shore up reliability, Texan politicians voluntarily isolated their grid from other states after an earlier 2011 freeze to evade federal weatherization rules (Busby, et al. 2021). Two cold snaps in early 2022 that reduced gas flow highlighted the fact that weatherization of gas lines remains only partially completed.

During the 2021 freeze, administrators of the largely deregulated grid marked up the wholesale electricity price to $9,000 per MWh (vs. a $22 per MWh average in 2020) in a failed bid to incentivize more gas production. This led to an estimated $50 billion in charges over five days to energy retailers and ratepayers, causing many suppliers to incur large debts and bankrupting three utilities.  Meanwhile, other energy generators and suppliers with “variable contracts” earned billions because they were allowed to pass the astronomical rates to ratepayers, most of them unaware they could be hit with a monthly bill of $10,000 or more due to factors outside their control (Busby, et. al 2021).

Rather than cancel what some would call “odious debt,” Republican state legislators later socialized the debt, offering long-term payment plans to customers and issuing state-backed bonds for $7 billion in low-cost loans to impacted energy companies. Many lawsuits remain pending. One involves Energy Transfer Partners (ETP), a large gas company that earned $2.5 billion during the storm, and later contributed $1 million to Gov.  Abbott’s campaign chest. $300 million of ETP’s profits were billed to San Antonio’s municipal utility, whose residents now face a surcharge to cover the tab. The city has sued ETP.  

Overall, gas companies took home $11 billion; other winners in the Texas “power pool” included speculators—banks and energy trading companies—which placed lucrative bids on prices while Texans burned furniture to stay warm, but had no role in actually supplying energy. 

The 2021 British (and European) Energy Crisis

In October, a five-fold rise in natural gas prices in Europe, along with a drop in wind power and Brexit complications, led to steep price hikes for British wholesale electricity and warnings from National Grid, the system’s corporate operator, of possible winter power cuts. The inflation was linked to shortages of Liquified Natural Gas (LNG), in part from ramped up Chinese demand, and speculation over geopolitical tensions, given the EU’s heavy reliance on Russian gas. UK electricity is 40% dependent on gas, roughly double the level for the EU.  

Regulators raised the UK public cap on electric rates by 12%, and it goes up another 54% in April, the largest cost of living increase in a quarter century.  An early 2022 government aid package will offset costs for low-income families, and allow extended payments, but regulators warn the cap may rise further. An astounding 29 utilities (mostly small, poorly vetted retailers) in the UK’s “power pool,” went bankrupt since the cap forced them to absorb extra costs, leaving millions of ratepayers without service. One large utility, Bulb, was bailed out by the government, which failed to take wider action. Meanwhile, North Sea oil and gas firms, long-term heavy donors to Tory politicians, took home windfall profits, leading to calls for new taxes on the sector.

Ironically, after long delays on renewables, in 2019 the UK had expanded wind power to a remarkable 28% share of electric power, but a rare calm weakened the turbines’ output in mid-2021.  Also, a fire in a trans-channel electric cable and new Brexit rules disrupted a promising system of cross-border undersea cables aimed at mitigating supply shortfalls.  

Competition with China over LNG gas helped drive prices up. China had phased down coal due to an economic slump, climate goals and Olympic optics, but encountered an energy shortage as demand ramped up in the fall. To compensate, officials reversed a Trump-era ban on US gas imports and Sinopec signed long term contracts for LNG offering higher prices than EU importers, which diverted many LNG tankers to Asia.  

Prices peaked in Europe at a record 171.40 euros/MWh just before Christmas due to tensions over lower-than-normal Russian gas flow to Europe and the Nord Stream 2 pipeline. They moderated, then soared again in late February as Russia invaded Ukraine.

Patterns of Grid Fragility behind Energy Crises

Extreme weather was a factor in many 2021 crises – deadly storms, shifting winds, and Asian floods (which cut coal production). Also, rapid growth in electricity demand year over year (e.g. video streaming, Bitcoin mining) has put pressure on power plants, feeding a narrative from conservatives and business critics that the green transition is the problem, and more gas plants the solution. 

But many crises have deeper roots. Since the 1980s, 18 US states and over 35 countries, (including the UK and much of the EU), have partly or fully deregulated electricity. Neoliberal policies favoring such “unbundling” have resulted in privatization of profitable assets, widespread layoffs of utility workforces and neglect of grid maintenance (often left to state authorities). The reforms enabled renewable energy on the grid, and promised lower rates, but hurt public oversight (Oppenheim 2016), while favoring extraction of profits and speculation through energy trading. California’s 2000 Enron debacle, Puerto Rico’s 2021 grid failure after a hasty privatization, steeply priced electricity in Central and Eastern Europe –where energy poverty is high — (Bouzarovski 2014) and are examples of deregulation’s downsides.

In many places, including the UK and Texas, large corporate players dominated the deregulation process, precluding actual competition and setting the stage for steep consumer fees and rates that outweigh earlier cuts in rates. This corporate control enabled the 2021 price gouging of Texas and UK ratepayers and the string of British utility bankruptcies.

During earlier energy crises in Greece and Puerto Rico, steep price hikes for electricity tied to austerity over public debt, left many consumers unable to pay bills, with some turning to energy theft (an option aided by organized anti-debt advocates in Greece). Loss of revenues fed back on public utilities causing institutional debt and providing a rationale for privatizations that benefitted hedge funds and foreign investors more than ratepayers (Smith-Nonini 2020a, 2020b).   

These energy crises expose the socio-material path dependency embedded in grid infrastructures which creates friction, slowing green transitions, while creating scalar vulnerabilities to disruption that are difficult to predict and have complex repercussions (Boyer 2017).  A key question is whether the 2021 crises are short-term, or evidence of a long-term mismatch between supply and demand rooted in resource limits intertwined with capitalist contradictions.

Notably, growth in conventional global oil/gas production has been tepid since 2005, and unconventional extraction (e.g. fracking and deep-sea drilling) is not profitable without high debt and large state subsidies. Also, volatile energy markets often fail to satisfy both consumer needs for affordability and corporate needs for growth, provoking new crises.

In late 2021 the International Energy Agency reported that growth in renewables won’t supplant fossil fuels in time to keep global heating below 1.5°C, and the gap – as electric grids expand and fossil energy is phased out (or loses profitability) — will feed destructive cycles of volatility in markets for energy and energy-intensive goods, including food. The current spike in natural gas prices has driven up fertilizer costs, which is likely to exacerbate regional food crises.  

An understudied problem is how divestment and pandemic capital destruction will affect the green transition. Can energy crises stimulate degrowth innovations?  Might fledgling movements for community solar (e.g., as exist in Cuba, Hawaii, and Puerto Rico) help solve energy poverty and climate goals at the same time?    

But scaling up, for society to transition we need stable grids. As an environmental advocate once told me, “We need to burn some fossil fuels to get to where we don’t need to.” If electricity is to be the centerpiece of a renewable future, we have much work to do. We should start by demanding accountable public oversight of electric systems.

Sandy Smith-Nonini is a research assistant professor of anthropology at the University of North Carolina, Chapel Hill. She produced “Dis.em.POWER.ed: Puerto Rico’s Perfect Storm,” a film on the causes of the longest blackout in US history, and is the author of Healing the Body Politic .  

References

Bakke, Gretchen. 2017. The Grid: The Fraying Wires between Americans and Our Energy Future. Bloomsbury.

Boyer, Dominic. 2017. “Revolutionary Infrastructures” Infrastructures and Social Complexity, eds: P. Harvey, et. al.  CRESC.

Bouzarovski, Stefan 2014 “Energy poverty in the European Union: landscapes of vulnerability.” WIREs Energy and Environment 2014, 3: 276–289.

Busby, Joshua W. et al. 2021 “Cascading risks: Understanding the 2021 winter blackout in Texas.” Energy Research & Social Science, 77: 102-106.

Luke, Timothy. 2010. Power Loss or Blackout: The Electricity Network Collapse of August 2003 in North America, 55-68, in Disrupted Cities: When Infrastructure Fails, ed. S. Graham, Routledge.

Mohr, Tanga M. 2018. “Fuel poverty in the US: Evidence using the 2009 Residential Energy Consumption Survey.” Energy Economics 74: 360–369.

Oppenheim, Jerrold 2018. “The United States regulatory compact and energy poverty.” Energy Research & Social Science 18 (2016) 96–108.

Palast, Greg et. al. 2003. Democracy and Regulation: How the Public Can Govern Essential Services. Pluto Press.

Smith-Nonini, Sandy. 2020a. “The Debt/Energy Nexus behind Puerto Rico’s Long Blackout: From Fossil Colonialism to ‘New’ Energy Poverty.” Latin American Perspectives 232: 47(3): 64–86.

Smith-Nonini, Sandy. 2020b. “Networked Flows through a ‘Porous’ State: A Scalar Energo-political Analysis of the Greek Debt Crisis”, in The Tumultuous Politics of Scale, eds: D. Nonini and I. Susser, Routledge Press.

Sovocool, Benjamin and M. Dworkin. 2014. Global Energy Justice: Problems, Principles, and Practices. Cambridge University Press.

Cite as: Smith-Nonini, Sandy. 2022. “Energy Crises in the Time of Covid: Precarious Fossil Infrastructures.” FocaalBlog, 21 March. https://www.focaalblog.com/2022/03/21/sandy-smith-nonini-energy-crises-in-the-time-of-covid-precarious-fossil-infrastructures

Features, Urban Struggles

Janne Heederik: The Voluntarisation of Welfare in Manchester: A Blessing and a Burden

This post is part of a feature on “Urban Struggles,” moderated and edited by Raúl Acosta (LMU Munich), Flávio Eiró (Radboud University Nijmegen), Insa Koch (LSE) and Martijn Koster (Radboud University Nijmegen).

As a result of welfare reform and continuing budget cuts, social service agencies in the UK have struggled to make ends meet and match the still-growing demand on their services. Local councils and the voluntary sector have both suffered cuts. The former are increasingly looking to the voluntary sector for help, while the latter used to rely heavily on grants from statutory bodies and suffers from increased funding restrictions. In the context of welfare reform, a model of active citizenship and participation has emerged. This model focuses on decreasing citizen dependence on welfare and social services while encouraging the ‘responsibilisation’ of citizens (Verhoeven & Tonkens, 2013). This policy agenda, supported by successive UK governments, has painted a picture of the ‘active citizen’ as a solution and improvement to the budget cuts in the voluntary sector. Citizens are encouraged to ‘take more responsibility’ instead of ‘depending on remote and impersonal bureaucracies’. As part of this responsibilisation, volunteers have taken center stage and their positive impact on communities is emphasized and celebrated (Schinkel & Van Houdt, 2010). Volunteers play an increasingly crucial role in welfare provision and the welfare system relies heavily on their work.

The extent of this reliance became clear during my fieldwork in Manchester in 2018 – 2019. I conducted ethnographic fieldwork in Manchester for 16 months, during which I worked with several advice centers in Greater Manchester. In November 2018, I attended a ‘Volunteer Day’ organized by the advice center I had been volunteering at for the past year. This annual event celebrates volunteers and gives paid staff and management a chance to thank volunteers for their work and commitment. The day was opened by a speech from Jack Puller, member of the charity Manchester Alliance for Community Care (MACC), who ‘supports and encourages local people to be active citizens through volunteering and other forms of participation’. His speech focused on impact and how to measure it. In numbers, he states that more than 110,000 people in Manchester volunteer, putting in a total of 278,000 hours of work each week, and having a total worth of 252 million pounds. Puller also mentioned that impact cannot be measured in numbers alone. Volunteers are vital to social services, arguing that they reflect the spirit of Manchester and are crucial to the existence of places like the advice center.

While this still presents a positive image of the impact of volunteering, the reality is that many advice centers can no longer survive without volunteers and there is a constant need for more volunteers to fill the gaps in advice services. Advice centers, along with other social services, have suffered from a ‘double squeeze’:  a withdrawal of public services has led to an increase in demand, while they simultaneously have to work with shrinking budgets (Evans, 2017). As a result, many depend on the work of volunteers more than before and even then, many fail to meet the demand and have to send people looking for their help away on a daily basis, as I experienced during fieldwork. Voluntarism in British welfare provision is thus not as straightforward and romantic as Puller depicted it, and both volunteers and paid advisers often struggle to navigate their workload and the relationship between them. The double squeeze on advice centers has not only made them more dependent on volunteers but has also changed the role of volunteers, who have become central more in the advice centers. In this contribution, I further analyze how the dependence on volunteers has changed their role within advice centers, showing how this affects the relationships between paid advisers and volunteers and analyzing how narratives of active citizenship often translate into different realities. Specifically, I lay bare how a politics of austerity has resulted in a paradoxical relationship with volunteers, where they are perceived as both a blessing and a burden.

Many social services, including advice centers, have aimed to bridge the growing gap between demand and capacity by relying more heavily on the work of volunteers, with some advice centers I worked with even being completely volunteer-run. This gap is usually characterized as a gap in more professional work, where paid advisers can no longer cover all their tasks due to lack of time and resources. As a result, the growing reliance on volunteers in the provision of social services is also characterized by the increasingly professional nature of the work volunteers do. As Verhoeven and Bochove note, volunteers are now expected to do more than provide complimentary work to the work paid advisers do, they are increasingly expected to take over parts of the paid advisers’ responsibilities, referred to as the ‘volunteer responsibilisation’ (Verhoeven & Van Bochove, 2018). However, my fieldwork showed that many volunteers are underprepared when they first start their work and are not able to carry out those responsibilities, which complicates the working dynamics at the center. At an advice center in the North of Manchester, where about two thirds of staff members are volunteers, all prospective volunteers must attend a training program to prepare them for volunteer responsibilities. I volunteered here as well and attended the 9-week training program, with one training day a week. The training aimed to prepare volunteers for both the practical and emotional labor ahead of them, but often proved insufficient once volunteers started their voluntary activities at the advice center. The large majority of volunteers felt underprepared for the complexities and intensities of advice work. For example, a former volunteer named Susan told me that she enjoyed helping clients with more straightforward form-filling, but struggled with more complex cases. For her, it resulted in high levels of anxiety and guilt, to the extent that she eventually stopped volunteering as an adviser. ‘It felt like I was just sitting there with my hands cut off, watching someone in front of me die’, she told me.

Figure 1: Volunteers during their weekly training on the welfare system and advice sector (photo: Janne Heederik, 2018)

Welfare advisers often have to deal with difficult and complex situations, with their clients struggling to make ends meet and often coming to the advice center feeling desperate and upset. It is the task of advisers to guide their clients through the welfare system, approach authorities on their behalf, and manage benefit outcomes to their best ability. However, the welfare system has grown increasingly complex, and advisers often have to engage in a ‘complex web of relations’ to assist their client (Forbess & James, 2014:80). For volunteers like Susan, the practical skills and emotional labor required to do good advice work, often feel like too big a responsibility to carry. Similarly, during my time as a volunteer at this advice center, I had to help clients who were about to be evicted, clients who had lost all their income, clients who had escaped abusive relationships, and clients who were depressed and sometimes even suicidal. While the training program provides basic information on how the welfare system operates and how advisers navigate it, these intricacies of advice-giving are too complex to teach in a course. Many volunteers, like Susan, are in need of more guidance, but more often than not volunteers are thrown into the deep-end and have to cover tasks previously done by professionals. Unlike their paid colleagues, however, they have to do without the financial or practical support: they do not receive monetary pay, nor do they receive the proper training to teach them how to deal with the complex client cases and the emotional labor that comes with it. In addition, the high demand and the lack of space, time, and resources, means that there is little time to process such events. Volunteers I spoke to often felt alone in dealing with some of the hardship they were faced with when seeing clients. One volunteer described how he often felt inadequate and how this resulted in him researching ongoing developments and policy changes at home:

I feel like I am always at the limits of my knowledge, and I already know a lot more than the average person. Volunteers like me have to put in a lot of time. You don’t just do your hours here. I often have to research stuff at home too.

Whilst active citizenship is thus envisioned as an enriching and fulfilling experience, for many volunteers this is only part of the story. The work they take on is more intense and demanding then initially anticipated and some volunteers struggle with the pressure they feel to respond to the demand adequately. These high expectations of volunteer work and the contradictory lack of training and preparation imply that volunteers can no longer be seen as amateurs supporting social services, but as professionals who deliver unpaid yet essential work (Coule & Bennett, 2018; Verhoeven & Van Bochove, 2018). It is an attempt for voluntarism to strengthen the welfare system despite reform and budget cuts, but it falls short in its assumption that welfare advice can be done by anyone at any time.  

Advice centers thus need volunteers to fill certain gaps in their work capacity, but at the same time struggle with the knowledge that volunteers often cannot fill these gaps with the same level of professionalism as paid advisers. Volunteers often turn to paid advisers for both practical and emotional support. Advisers might have to jump in or even take over appointments from volunteers who are unable to help their clients sufficiently. The manager of one of the advice centers expressed her concern regarding the center’s reliance on volunteers, stating it worried her that ‘this type of work is done by volunteers. Such overly complicated issues like almost all benefit cases rely on volunteers’. She worried for the clients, who might not get the right help if volunteers tried to solve client’s cases on their own, but was equally worried about volunteers and whether they were able to cope. Furthermore, often having to rely on assistance from paid advisers, the use of volunteers within advice centers often leads to an increase in workload for paid advisers. This leads to a paradoxical situation, where advisers must rely on volunteers for the survival of the advice center, but at the same time experience an increase in their workload as many volunteers need guidance and training.

This paradox is further complicated by the fact that relying on volunteers always comes with certain levels of insecurity as volunteers are not bound to contracts and employment conditions like paid advisers are. The turnover of volunteers was high at all the advice centers I visited, with volunteers staying anywhere between weeks and months, but rarely longer than a year. Additionally, coming from a wide variety of backgrounds, volunteers often had a wide range of skills and abilities, meaning not every volunteer could handle the same tasks and paid advisers spent a lot of time figuring out what volunteer would cover which task.

For permanent staff and management, relying on volunteers is thus necessary for the survival of the advice center, but never easy. And it can at times be burdensome. Volunteers cannot fulfill certain roles and end up sitting around and doing nothing, while at the same time there is never enough staff to do everything that needs doing. As a result, staff end up having to spend more time helping volunteers then they might gain form their presence. This situation forces paid advisers to engage in ‘volunteer management’ (Verhoeven & Van Bochove, 2018). Volunteer management involves the dividing of tasks among volunteers according to their skills and abilities, keeping track of who will be present on what day and making sure volunteers are spread out evenly across the week, checking in with volunteers to make sure they can cope with the demand and emotional labor of their work, and assisting volunteers in their work whenever necessary.

In addition, volunteer management also impacts the relationship between volunteers and advisers. Dividing tasks among volunteers often resulted in an unequal distribution of tasks, where more highly educated or experienced volunteers would be given many and more complex tasks, whereas other volunteers struggled to get any tasks at all. During a volunteer meeting at one of the advice centers, volunteers had the chance to raise any questions or issues they had. One volunteer mentioned an incident where she had been asked to see a client, but she did not feel comfortable taking on the tasks as she felt unqualified to deal with the complexity of the client’s case. Another volunteer had offered to step in, but the adviser assigning the task would not listen. ‘I was essentially told to just get on with it’, the volunteer said, adding that it had made her feel very uncomfortable and hesitant to ask the adviser for any tasks in the future. Volunteers who were given more complex tasks mentioned that they often felt they were not prepared for the difficulties of these cases, and struggled to deal with them emotionally and practically. On the other hand, volunteers who struggled to stay busy, mentioned that they were bored, could not develop their skills, and felt they could not help as much as they had wanted to. The paradox of volunteers being both a blessing and a burden resulted in difficulties for paid advisers and volunteers and affected their relationship. However, despite having tensions in the workplace, where advisers sometimes feel volunteers just add to their workload and volunteers feel left to their own devices, these tensions did not seem to translate into frustration with one another. Volunteers were always acutely aware of the workload that paid advisers had to carry and understood that they simply lacked time to train volunteers. Furthermore, whilst being aware that as volunteers they sometimes added to this workload, volunteers said they felt respected and accepted by their paid colleagues. Advisers were always grateful and positive about the volunteers, highly aware of the advice center’s dependence on their work: ‘We would be closing our doors without them’, one adviser said. Similarly, the manager of the advice center stated: ‘Volunteers have played more and more of a key role, they are at the front of our service’.

However, the paradox of the volunteer as a blessing and a burden remains, and many advisers felt frustrated with their working conditions. Rather than resulting in frustration towards volunteers, this frustration was predominantly aimed at the government, and there was a strong sentiment that the government had failed the voluntary sector while at the same time having offloaded its responsibility onto citizens under the banner of active citizenship. The key issue advisers pointed to was almost always funding. As one adviser stated:

If they want this [advice work] to be free, they need to provide the proper funding […] Look at us, advisers can’t help you properly because they are busy with five other cases, volunteers are taking on responsibilities they shouldn’t be, and we are all overworked. And it’s the government that is to blame.

These tensions between advisers and volunteers are therefore more than workplace quarrels; they are political. They reflect the everyday reality on the frontlines of a policy agenda of budget cuts and ‘citizen activation’. The responsibilisation of voluntary work is therefore problematic not just in the heaviness of the responsibilities that volunteers have to carry and its effect on their relationship with advisers, it also lays bare the problematic nature of a policy agenda that aims to offload government responsibilities onto the voluntary sector and citizens, without providing them with the necessary financial assistance and substantive support. The experiences of paid advisers and volunteers tell a clear story: advice services – among many other social services in the UK – are in crisis, but as important as volunteers are, it should not be their role to rescue these services. However, the outcry for change is still predominantly focused on those they are trying to help: they protest and advocate for the rights of welfare claimants, and in the process forget to advocate for their own rights. Individual voluntary commitment can be a blessing, but the overall use of voluntarism as a solution to budget cuts and welfare reform is a burden.

Janne Heederik is a PhD Candidate in Anthropology and Development Studies at Radboud University and a member of a ERC-funded research project on participatory urban governance. Based on ethnographic research in Manchester, UK, her research explores welfare, poverty, and brokerage in contemporary Britain.

This project has received funding from the European Research Council (ERC) under the European Union’s Horizon 2020 research and innovation programme (grant agreement No. 679614).

BIBLIOGRAPHY

Coule, T., & Bennett, E. (2018). State-Voluntary Relations in Contemporary Welfare Systems: New Politics or Voluntary Action as Usual? Nonprofit and Voluntary Sector Quarterly, 47(4), 139–158.

Evans, S. (2017). A Reflection On Case Study One: The Barriers to Accessing Advice. In S. Kirwan (Ed.), Advising in Austerity: Reflections on Challenging Times for Advice Agencies (pp. 23–27). Bristol: Policy Press.

Forbess, A., & James, D. (2014). Acts of Assistance: Navigating the Interstices of the British State with the Help of Non-profit Legal Advisers. Social Analysis, 58(3), 73–89. https://doi.org/10.3167/sa.2014.580306

Schinkel, W., & Van Houdt, F. (2010). The Double Helix of Cultural Assimilationism and Neo-liberalism: Citizenship in Contemporary Governmentality. British Journal of Sociology, 61(4), 696–715. https://doi.org/10.1111/j.1468-4446.2010.01337.x

Verhoeven, I., & Tonkens, E. (2013). Talking Active Citizenship: Framing Welfare State Reform in England and the Netherlands. Social Policy and Society, 12(3), 415–426. https://doi.org/10.1017/S1474746413000158

Verhoeven, I., & Van Bochove, M. (2018). Moving away, toward, and against: How front-line workers cope with substitution by volunteers in Dutch care and welfare services. Proceedings of the International Astronomical Union, 47(4), 783–801. https://doi.org/10.1017/S0047279418000119

Cite as: Heederik, Janne. 2020. “The Voluntarisation of Welfare in Manchester: A Blessing and a Burden.” FocaalBlog, 2 October. http://www.focaalblog.com/2020/10/02/janne-heederik-the-voluntarisation-of-welfare-in-manchester-a-blessing-and-a-burden/

Blog

Insa Koch: The Making of Modern Slavery in Austerity Britain

Insa Koch, London School of Economics

States’ claims that they are relieving human suffering have become a central element of their ongoing liberal legitimation amid their production of deepening inequalities. The British government’s modern slavery agenda in relation to “county lines” provides a case in point. County lines is the name given by the police to “Class A” drugs networks spreading from larger cities that rely on young runners to move the drugs. These runners – predominantly working class and ethnic minority young men who used to be criminalised for their involvement in the illicit economy – are now being discovered as modern slaves in need of saving. Yet, professionals also separate those worthy of saving from others who are the object of rightful punishment. The fraught politics of victimhood at the heart of the modern slavery agenda foregrounds the role of legal-moral control in governing disenfranchised populations in austerity Britain and elsewhere. It illuminates how states try to shore up popular consent beyond a politics of ‘law and order’ where decades of neo-liberal policy have brought their democratic mandates under attack.

Modern Slavery Policies: domesticating a humanitarian agenda

“More than 200 years ago the British House of Commons passed historic legislation to make the slave trade illegal. But sadly, the grim reality today is that slavery still exists in towns, cities and the countryside across the world. And be in no doubt, slavery is taking place here in the UK”. These were the words of Home Secretary and later Prime Minister, Theresa May, in 2014 when introducing her flagship policy, the modern slavery agenda. The agenda was spearheaded by the Modern Slavery Act 2015, a piece of legislation that introduces both a prosecution and a defense tool for cases of human trafficking, slavery and servitude. It has also seen the creation of anti-slavery partnerships at local authority levels, the appointment of an anti-slavery commissioner, and the expansion of the National Referral Mechanism (NRM), the government’s official identification mechanism for modern slaves.

Concerns over human trafficking and modern slavery have been on the international humanitarian agenda for some time (Davidson 2015). There, the slave victim has tended to be identified with the figure of the ‘exotic other’ – typically the black or brown woman from the global south – trafficked for purposes of sexual and domestic exploitation (Anderson and Andrijasevic 2008; Woods 2013). However, increasingly, the language of relieving human suffering has also become prominent in governing disenfranchised domestic populations in the global north (Fassin 2011; Feldman and Ticktin 2010). Miriam Ticktin has argued with respect to human trafficking discourses that the key to the appeal of this agenda lies in its unquestioned universality: ‘the underlying assumption is that we recognise suffering whenever we see it, because there is a common denominator to being human, located in our bodies, particularly in our bodies in pain’ (2011: 11).

The discovery of modern slavery as a matter of domestic policy constitutes an exercise in technocratic legal-moral governance. A wide range of actors – from NGOs, social movements to state actors – come to create, transgress and navigate ‘political relations […] through techno-moral means’ (Bornstein and Sharma 2016; Kosmatopoulos 2014; Steur 2018). According to Bornstein and Sharma, in ‘mixing the language of law and policy with moral pronouncement, state and non-state actors posture themselves as defenders of rights and keepers of the public interest as they push their agendas and stake out distinct positions’ (2016: 77). But legal-moral governance also tends to reframe questions of inequality in purely technical or scientific terms (Feldman and Ticktin 2010). It typically replaces a struggle between ‘right’ and left’ with a moral struggle between ‘right and wrong’, thus further reinforcing what Steur (2018) recognizes as the displacement of the political into the legal realm.

County lines: the making of modern slaves

The depoliticising effects of legal-moral governance are illustrated in the case of “county lines”, a key area where the domestication of humanitarian agendas has taken off. County lines is the name given by the police to the expanding economy of “class A” drugs of heroin and crack cocaine spreading from cities to market, coastal and smaller towns, operating through designated mobile phone lines, the so-called ‘county lines’. Over 2000 county lines are said to be in operation, with thousands of young people being exploited. Horror stories have been circulating, with common images including those of teenagers and occasionally children as young as seven (Dearden 2019) being recruited by drug lords higher up the chain to ‘plug’ the drugs inside their bodies (Adams 2018), being taken to unknown location and kept in ‘trap houses’ (Mohdin 2019) and going missing for weeks on end (Marsh 2019).

Since 2018, I have been carrying out ethnographic fieldwork on the discovery of modern slavery in county line cases. This research, prompted by developments I stumbled across in my long-term field-site – a large post-industrial council estate in England (Koch 2018) – has led me to spend months talking to working class families, the police, local authority figures, defence and prosecution barristers and to cross between Britain’s disenfranchised urban housing estates to the country’s central criminal courts. Through this research, I have watched new logics of care and control being rolled out as frontline officials traditionally trained in enforcing a ‘war on drugs’ against young, black and minority ethnic males, are learning to recognise some of these same demographics as victims in need of support. Being identified as a modern slave engenders potential forms of redress, including limited welfare and housing support and relief from prosecution for drugs and other offences.

Image 1: Modern slaves’ and their exploiters often come from Britain’s post-industrial social housing estates (Photo by Insa Koch, 2017)

And yet, the recognition of abject suffering also engenders new forms of legibility and control. My research shows that the suffering of a county line victim hinges upon the figure of the groomer. Groomers are typically presented as residing in the same community as their victims. The alleged proximity between victims and perpetrators further enables the authorities to reframe intimate relations through a lens of exploitation as quasi-legal categories are applied to everyday relations in working class communities – terms like ‘remote mothering’, ‘cuckooing’ and ‘mate crime’. Those who are found to be behind exploitation are subject to harsh punishment. This is illustrated in the case of KWA (Marsh 2019b), one of the first successful prosecutions brought against alleged slave traffickers – three young black men from inner-London housing estates – under modern slavery law.

From punitive control to legal-moral governance

Much has been made of the ‘punitive turn’ (Koch 2018), as governments across the global south (Comaroff and Comaroff 2017) and the global north (Wacquant 2009) have responded to the insecurities generated by neoliberal rule by going tough on ‘law and order’. On the face of it, the discovery of ‘modern slaves’ in the case of county lines challenges these developments as some of the most disenfranchised demographics are no longer being criminalised but rather recognised as slaves in need of state compassion and care. And yet, the picture is not so simple. As my research shows, at the heart of the British government’s modern slavery agenda lies a murky politics of victimhood, one which not only conjures images of the internal traitor in disenfranchised working class communities but which also activates a host of technical and legal mechanisms of control in the name of saving the vulnerable.

Rather than seeing the discovery of modern slavery as an aberration from the punitive conjuncture, it then constitutes a deepening of its logics through legal-moral means. In Britain today, growing inequality, topped by a decade of austerity, have generated widespread discontent with government, as evident in widespread levels of voter withdrawal alongside the more recent ‘Brexit’ vote in the referendum on leaving the EU (Koch 2017). Against this backdrop, the discovery of abject suffering in the figure of the domestic slave becomes a means of conjuring moral legitimacy on the part of the state, one which takes the language of hierarchy between the deserving and the undeserving common to neo-populist discourses to the realm of law (Kalb and Mollona 2018: 5). As Brace has argued modern slavery presents an ‘intractable, moral problem, an evil that lurks within our hearts, a beat in the shadows’ (Brace 2018: 220). At a time when decades of neoliberal rule have brought democratic mandates under attack, it is precisely this ‘lurking in or hearts’ that is galvanised by liberal government to shore up popular consent.

And yet, the veneer of legitimacy always runs thin. Take the case of Kieron, a fifteen-year-old male from a large urban housing estate. In 2018, he was designated a ‘modern slave’, having been arrested with Class A drugs. Initially, this resulted in Kieron’s family being offered an organised housing transfer to the countryside. But support has also come at a cost. Various professionals have been closely monitoring his life and his daily social relations. Meanwhile, his parents are struggling to find adequate employment in the area they were moved to. When Kieron was arrested in 2019 with drugs on him again, the tables turned. ‘Now the police are saying that he can be prosecuted because he did not accept their help’, his mother told me. The situation has come full circle: the authorities went from seeing Kieron as a petty criminal to a slave to a criminal, once more.

Insa Koch is Associate Professor at the London School of Economics and the author of ‘Personalizing the State: An Anthropology of Law, Politics and Welfare in Austerity Britain’.

Bibliography

Adams, Richard. 2018. “Taskforce Warns of Risk to Children from ‘County Lines’ Gangs.” The Guardian. Retrieved (https://www.theguardian.com/society/2018/nov/14/taskforce-warns-of-risk-to-children-from-county-lines-gangs).

Anderson, B. and R. Andrijasevic. 2008. “Sex, Slaves and Citizens: The Politics of Anti-Trafficking.” Soundings 40(1):135–45.

Bornstein, E. and A. Sharma. 2016. “The Righteous and the Rightful: The Technomoral Politics of NGOs, Social Movements, and the State in India.” American Ethnologist 43:76–90.

Brace, L. 2018. The Politics of Slavery. Edinburgh: Edinburgh University Press.

Comaroff, J. and J. Comaroff. 2017. The Truth about Crime: Knowledge, Sovereignty, Social Order. Chicago: University of Chicago Press.

Davidson, J. 2015. Modern Slavery: The Margins of Freedom. Basingstoke: Palgrave Macmillan.

Dearden, Lizzie. 2019. “Children as Young as Seven Being Used by ‘county Lines’ Drug Gangs.” The Independent, July 4.

Fassin, D. 2011. Humanitarian Reason: A Moral History of the Present Times. Berkeley, California: University of California Press.

Feldman, I. and M. Ticktin. 2010. In the Name of Humanity: The Govenrment of Threat and Care. Durham, NC: Duke University Press.

Guardian, The. 2019. “Three Convicted of Trafficking in Landmark ‘County Lines’ Case.” April 17.

Kalb, D. and M. Mollona. 2018. “Introductory Thoughts on Anthropology and Urban Insurrection.” Pp. 1–30 in Worldwide Mobilizations: Class Strugges and Urban Commoning, edited by D. Kalb and M. Mollona. New York and Oxford: Berghahn.

Koch, Insa. 2018. Personalizing the State: An Anthropology of Law, Politics and Welfare in Austerity Britain. Oxford: Oxford University Press.

Kosmatopoulos, Nikolas. 2014. “The Birth of the Workshop: Technomorals, Peace Expertise, and the Care of the Self in the Middle East.” Public Culture 26(3):529–58.

Marsh, Sarah. 2019. “Revealed: Surge in Vulnerable Children Linked to UK Drug Gangs.” The Guardian.

Merry, Sally Engle. 2016. The Seductions of Quantification: Measuring Human Rights, Gender Violence, and Sex Trafficking. Chicago: Chicago University Press.

Mohdin, Aamna. 2019. “Airbnb and a Free Lunch: How County Lines Drug Gangs Lure Teenagers.” The Guardian, September 15.

Steur, L. 2018. “Contradictions of the ‘Common Man’: A Realist Approach to India’s Aam Aadmi Party.” in Worldwide Mobilizations: Class Strugges and Urban Commoning, edited by D. Kalb and M. Mollona. Oxford, New York: Berghahn.

Wacquant, L. 2009. Punishing the Poor : The Neoliberal Government of Social Insecurity. Duke University Press.

Woods, T. 2013. “Surrogate Selves: Notes on Anti-Trafficking and Anti-Blackness.” Social Identities 18(1):120–34.

Cite as: Koch, Insa. “The Making of Modern Slavery in Austerity Britain.” FocaalBlog, 12 June. http://www.focaalblog.com/2020/06/12/insa-koch-the-making-of-modern-slavery-in-austerity-britain/.

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