Services for young people

Memorandum submitted by Stockton-on-Tees Borough Council

1.0 EXECUTIVE SUMMARY

Background

1.1 The report presents Cabinet with the outcomes of the Efficiency, Improvement and Transformation (EIT) Youth Services undertaken by the Children and Young People Select Committee between February and November 2010.

1.2 The work of the Select Committee has focused specifically on universal youth services provided through core funding from the Council, delivered primarily through the Council’s 24 youth clubs. However, the Committee have also received evidence about targeted activities in order to understand the full picture of youth provision in the Borough.

1.3 A scope and project plan for the Select Committee review were drafted and approved by the Committee on 24 February 2010. The overall aims of the review were:

· To identify options for future strategy / policy / service provision that will deliver efficiency savings and sustain / improve high quality outcomes for SBC residents. Specifically:

o Proposals on levels of service to be provided taking into account the views of young people

o Identification of gaps in service and recommendations for addressing these

o Identification of resources to deliver myplace

1.4 The Local Authority has a statutory duty to ensure the provision of youth services sufficient to meet the needs of its population of young people aged 13 to 19 and also to meet the specific needs of targeted populations in the age range 11 – 13 and 19 – 25 years. Whilst a Local Authority must secure access to sufficient positive leisure time activities and facilities, it is for each Local Authority to decide what is sufficient taking into account the needs of young people in the area.

1.5 The Local Authority does not have to be direct provider of youth services. Youth Services can include a range of provision developed through a partnership of the Local Authority, voluntary and community organisations, independent and private sector providers, whose activities are primarily for the personal and social development of young people.

1.6 Universal youth services sit within the broader range of integrated youth support which includes:

· Specialist services – YOS (statutory) , Connexions (core funded)

· Targeted services – youth work, Connexions (NEETs), YOS preventions, Youth Crime Action Plan (YCAP), Positive Activities for Young People (PAYP)
(time limited funding programmes)

· Universal services – youth clubs, positive activities and Information and Guidance (core funded)

1.7 It is also important to view the range of youth services described above, against the context of the wider and varied range of provision, accessible on a universal basis across the Borough. This includes the activities directly provided by the Local Authority youth services, activities provided under a range of strategies, such as Sports Strategy, Extended Schools Strategy, Play Strategy, the delivery of parks and open spaces and provision through major leisure facilities. A range of services is also provided through voluntary and community sector organisations and private and independent sectors also provide a wide range of activities through a number of outlets within the Borough, such as fitness clubs, football, tennis, dance and martial arts.

1.8 A Local Authority must secure access to ‘sufficient' positive leisure-time activities and facilities (where ‘sufficient’ is judged in terms of quantity). It will be for each Local Authority to decide what constitutes "sufficient"; taking into account the needs of young people in its area. The Act applies primarily to young people aged 13 – 19, but also to targeted groups 11 to 13 and up to 24, e.g. young people with a disability. Local Authorities should ensure that, as a minimum, all young people should be able to access the opportunities set out in the National Standards for Positive Activities.

1.9 The Local Authority will also need to ensure that young people are involved in determining what activities and facilities should be available to them. In particular, Local Authorities should ensure they ascertain and take into account the views of Young People who face significant barriers to participation or are considered to be at risk of poor outcomes such as young people in care, young people from minority groups and young people with disabilities. The legislation specifies that the Local Authority must ascertain and take account of young people’s views on current provisions, the need for new activities and facilities, and barriers to access.

1.10 The Committee has also received evidence about targeted activities in order to understand the full picture of youth provision in the Borough and have taken the opportunity to visit some examples of targeted provision in addition to visiting the 24 "general" youth clubs.

1.11 Targeted youth support aims to ensure that the needs of vulnerable teenagers are identified early and met by agencies working together effectively – in ways that are shaped by the views and experiences of young people themselves. A central aim of targeted youth support is to help vulnerable young people early, to address their difficulties as soon as possible and prevent their problems escalating. Effective targeted youth support addresses the risk factors that may result in poor outcomes and helps build vulnerable young people’s resilience.

1.12 The budget for universal youth services is approximately £1 million (although approximately £200,000 of this budget supports non youth related activity associated with community centres).

1.13 A core budget from the Council of £588,748 delivers the following targeted programmes:

• Targeted Youth Support

• Duke of Edinburgh Award Scheme

• Youth Space

• After Schools and Outdoor Activities

• Youth Bus

1.14 The following targeted programmes are delivered through time limited funding streams totalling £1,393,868. Funding for these programmes ceases 31 March 2011 and new funding streams from Government have yet to be identified:

• Get on in Life project

• YCAP/ PAYP – A Way Out, Arlington Park, Norton Grange, Five Lamps Youthy, Beat the Boredom

• Youth Opportunities Fund

• VTalent

Universal Youth Service – Analysis of Current Provision

Mapping of Current Universal Provision

1.15 As part of the review, data on youth club usage patterns were analysed. During 2009/10, the 24 youth clubs recorded a total of 3,068 attendees (i.e. the number of individual young people having attended a club). The average age of individuals using the clubs was 14.6 years. Analysis of the data revealed a marked difference in attendances between clubs. The most well used centres were Fairfield (331 attendees), Grangefield (268 attendees), and Robert Atkinson (248 attendees). The least well used were Long Newton (17 attendees), Primrose Hill (39 attendees) and Stillington (47 attendees). Footfall (i.e. the number of times a young person attends a centre) showed a similar pattern.

1.16 Gender information revealed that just five centres recorded more female attendees than male: Billingham Central, Chill Zone, Primrose Hill, St Michaels and Stillington.

1.17 Target group detail is available for 2,416 of the 3,068 attendees (78.7%%). Of these:

· 184 were individuals in Target Group 1 ( 7.6% of the total with target group data available); and

· 615 were individuals in Target Group 2 (25.4% of the total with target group data available)

(Note: Target group definitions based on Connexions Case Information System)

1.18 Information on those individuals with learning difficulties and/or disabilities (LDD) is available for 2,355 of the 3,068 (76.7%). Of these attendees, a significant number (381) had an LDD.

1.19 Ethnicity data is available for 2,438 of the 3,068 attendees (79.5%). Where ethnicity data was provided, the vast majority (96.2%) of individuals were White British, followed by Pakistani (1%). These percentages are in line with intelligence held for the Borough as a whole from census and other data sources.

1.20 Information on attendees engaged with the Youth Offending Service (YOS) is available for 2,450 of the 3,068 attendees (80%). Of these, 51 attendees were engaged with the YOS (1.7%). Fairfield (10), Billingham Central (6) and Chill Zone (6) had the most whilst nine clubs recorded none in the period: Billingham Campus, Egglescliffe, Kirklevington, Layfield, Long Newton, Primrose Hill, St Michael’s, Stillington and Willows.

1.21 Analysis of attendance data and inputting onto the Geographical Information System presents a picture of the catchment for each club. The maps illustrate that, although each club draws attendees in the main from the local area, most clubs do attract attendees from further afield. Some centres such as Fairfield and Grangefield are particularly successful in attracting attendees from a wider geographical area.

1.22 Data analysis also illustrates the uneven spread of provision throughout the week and the lack of provision at weekends.

Site Visits to Youth Clubs

1.23 As part of the review, Committee Members felt that it was essential to visit all of the 24 youth clubs in order to gain an understanding of the activities, assess the quality of provision and identify any particular issues/ problems. The Committee also took the opportunity to visit a number of targeted activities to compare these with the universal services.

1.24 Whilst there was a considerable degree of commonality in respect of the programmes and activities and the role of the youth workers at each club, the Committee observed a wide variation in the quality of facilities and the offer. The Committee concluded that the service would be improved by reconfiguring provision around a smaller number of quality centres.

Recommendation 1: That, taking into account any emerging Government guidance and the impact of the comprehensive spending review, and recognising that targeted youth services have proven to be more effective and have provided better value for money and more positive outcomes for young people than universal youth services, delivery of targeted youth services be prioritised over universal services to ensure that this success is further enhanced.

Recommendation 2: That, recognising that there are currently a large number of universal youth club settings with several of these being poorly attended:

a. the provision of universal youth services be reconfigured around a smaller number of high quality settings; those settings to be identified through the application of the matrix at Appendix 11 to assess sustainability based upon factors which include attendance, footfall, footfall costs, potential reach and deprivation;

b. final decisions on service reconfiguration be made by Cabinet taking the matrix into account but also other relevant factors including available finance, geographical spread and wider youth provision;

c. prior to implementation, Children and Young People Select Committee be consulted on the service reconfiguration at its meeting on 9 March 2011 (or earlier if appropriate), together with an action plan as part of the monitoring of the review.

Finance

1.25 The Committee received a range of financial information relating to Youth Service budgets for 2009/10.

1.26 Analysis of centre costs and footfall costs were presented to the Committee. The financial analysis revealed that because there are significant centre costs (non youth related) associated with particular centres, this significantly increases footfall costs for some centres. Separating youth delivery staffing from other premises costs gives a more accurate representation of youth related footfall costs for each centre. However, even with this disaggregation, there are still notable differences in footfall costs between centres.

1.27 The Committee also observed that targeted activities were demonstrating better value for money in terms of footfall and outcomes.

Recommendation 3: That premises/ lettings arrangements for youth activities be reviewed by the Asset EIT review to ensure they provide value for money.

Views of Young People

1.28 The following recurring themes can be highlighted from a trawl of recent consultations with young people:

· Issues around transport and accessibility to some events/ venues

· Cost is a consideration, including transport

· Sports/arts/music/outdoor activities are valued

· Young people do want safe areas to be able to relax and do nothing in particular

· Opening times need to be more varied with more provision at weekends and during school holidays

· Information, advice and guidance were seen as important

· Young people like to identify with places that they receive services from and feel some ownership

· Outdoor activities such as parks and sports pitches were important but still needed to be safe

1.29 As part of the Select Committee review, the Committee were keen to seek further feedback from young people specifically in relation to their experience of youth clubs. The Committee also expressed a desire to hear from young people not attending youth clubs. To seek views an on line survey took place. Flyers advertising the survey were circulated widely and hard copy questionnaires were distributed to youth clubs and other youth projects and events. Five young people were selected at random as winners of an iPod nano. A total of 888 questionnaires were completed. 63% of respondents had visited a youth club.

Views of Staff

1.30 The Chair and Vice Chair attended a staff forum on 9 September 2010. Staff were asked to identify good things about the services and things to change/improve.

Other Staffing Issues

1.31 Youth Workers are all employed in Joint National Conditions (Youth and Community) contracts. This has been the traditional contract for all youth workers across the country. With the introduction of Single Status by the Local Authority, most of the workforce apart from specific groups, such as youth workers and a number of education related staff, have been moved by job evaluation onto the Single Status regime.

1.32 The move to more targeted and outcome based approaches has led to a national drive to improve professional status of youth workers. There is currently too much reliance on sessional staff who deliver youth work on top of their substantive full time roles. The balance needs addressing to deliver modern youth work approaches, as does some issues with current terms and conditions of youth work staff as there are inconsistencies in contracts which could leave the Authority open to legal challenge.

Recommendation 4: That contractual arrangements for youth services staff are reviewed in order to ensure consistency across the service, to implement single status and to move to more substantive contracts (i.e. increased hours) for youth service staff.

Views of Community and Voluntary Sector

1.33 Allison Agius from Catalyst (the strategic body for the Voluntary and Community Sector in Stockton) facilitated feedback from the sector. Feedback from the sector indicated that there was an appetite for greater involvement in the delivery of youth services.

1.34 The Committee acknowledged that whilst a range of targeted youth support activities have been delivered in partnership with the voluntary and community sector, this has not been as prevalent within the universal service. The Committee supported a "mixed economy" approach involving the statutory and third sector as they believed that this had demonstrated an effective model in a range of settings. The Committee concluded that the balance between in house provision and commissioned services should be explored in relation to universal youth services.

Recommendation 5: That officers pursue opportunities, where appropriate and subject to funding, for increased collaboration with the voluntary and community sector and private sector in providing universal services, including consideration of commissioning opportunities.

Myplace

1.35 In March 2009, the Council was successful in a bid to the DCSF for myplace funding to build an iconic £5 million youth facility on a site off Norton Road. The building was to provide the central hub for the delivery of a wide range of facilities for young people aged 11 – 19 years to access services and activities to enhance their personal, educational and social development seven days a week. The funding to be received was for the capital costs for the project only. The business case identified that the revenue costs of approximately £277,000 would need to be found from within existing Youth Service budgets. The co-location of the new North Shore Health Academy was linked to further opportunities for young people and the sustainability of myplace.

1.36 Whilst the Select Committee’s work has not been to scrutinise the myplace project, the Committee needed to have regard to the development of myplace alongside other youth provision; the original scope of the review also tasked the Committee to identify revenue resources to deliver myplace. During the course of the review, a number of concerns emerged regarding the myplace project:

· During the visits young people currently attending local clubs have commented that they would want to see the continuation of local provision and Members of the Committee are concerned that the annual revenue contribution of £277,000 for the myplace development may be to the detriment of local provision.

· Initial feedback from the voluntary and community sector has also revealed that there are concerns that the project would result in cuts in the youth service elsewhere, it is not what young people want, the location is a concern, travel is an issue and some young people are very territorial and may not travel to the venue.

· At the meeting of the Children and Young People Select Committee on 14 July 2010, the Committee were also advised that the plans to develop the site for the new North Shore Health Academy under BSF were to be reviewed. The Committee feel that this recent development means that the myplace project on the proposed site is no longer a viable option owing to the timing of the contract for letting myplace, uncertainty around the academy scheme, shared infrastructure issues between the academy and myplace and loss of linkages for young people between the academy and myplace.

1.37 Given the other concerns already vocalized and financial pressures, the Committee recommended to Cabinet in August 2010 that, in the light of uncertainties around the future of the North Shore Health Academy and the pressure on youth service provision, the Council writes to the Department for Education and the Big Lottery asking whether the capital funding for myplace can be used more flexibly to develop services and facilities for young people across the Borough.

1.38 The Council is still in discussion with the Department for Education about using the resources more flexibly. If this is not possible the Select Committee maintain that the myplace development should not be progressed as it is presently planned.

Recommendation 6: That serious consideration is given to pursuing a more flexible use of the capital funding for myplace to support youth service delivery across the Borough, if this is allowable under the terms of the agreement and further advice from Big Lottery and DfE and that, in the absence of this, the Select Committee recommends that the myplace development should not be progressed as it is presently planned.

Engagement with Young People

1.39 During the course of the review, the Committee were pleased with the interest and involvement of young people in the Borough. This was reflected in the encouraging response to the youth club survey and also by the attendance of young people at the meeting of the Committee on 14 April 2010 who provided input into the design of the survey. The Committee are keen that appropriate engagement mechanisms are introduced to formalise involvement of young people on the Select Committee.

1.40 In addition, the Committee felt that it was important for the Council to ensure that they were utilising communication channels being used by young people and felt that it was important for the Council to continue to explore the use of social media such as facebook, twitter, YouTube and flickr.

Recommendation 7: That the future involvement of young people on the Children and Young People Select Committee be formalised through the introduction of appropriate engagement mechanisms to be introduced for the 2011/12 municipal year.

Recommendation 8: That, subject to safeguarding issues, officers explore the further use of social media to engage with young people.

December 2010