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NATIONAL STRATEGY FOR THE DEVELOPMENT OF THE SOCIAL SERVICE WORKFORCE IN SCOTLAND 2005 - 2010: A PLAN FOR ACTION

Chapter 2: Workforce Development in Context

2.1 There are many influences on workforce development which need to be taken account of by providers, planners and managers of services. These include the implications of the complex policy environment they operate in, future pressures, labour market trends and initiatives which will support the development of the workforce. This chapter summarises these factors and their implications for the workforce.

The Current Workforce

2.2 The most recent Labour Force Survey of social services (2003) estimated that there are around 118,000 people working in social services and that employment in the sector has grown significantly in recent years.

2.3 It is estimated that qualified social workers comprise around 7,000 of the total workforce with over half of these being employed by local authorities. Approximately 50% of the workforce in the private and voluntary sectors is employed in care homes for adults. A further 34% of the workforce is employed in early education and childcare services. Other professions are increasingly represented including Occupational Therapists and Nurses who each comprise 9% of care managers within the workforce.

2.4 The social service workforce is predominantly female (80% in 2003) although both female and male employment levels have been increasing since 1994. There has been a significant increase in male employment overall in the sector since 1994 from a low base of 12,000.

2.5 Detailed data and information about the composition of the workforce is available from the National Workforce Group's 2004 publication, Scotland's Social Care Labour Market.

Policy Context

2.6 The social service workforce is charged with delivering a wide range of services to meet the increasing and diverse needs of service users often in the most challenging and complex of circumstances.

2.7 This work demands the ability to exercise sound judgment, assess difficult situations and risks and to intervene in the most appropriate way to improve the lives of citizens. Social services play a very positive role in the lives of increasing numbers of individuals and families across Scotland.

2.8 They can prevent crises, help build and retain community connections and promote social inclusion. Social service workers increasingly work in partnership with service users and carers to deliver services that meet individual needs.

2.9 Social service workers operate in a complex and fluid legislative and policy environment. There are ongoing legislative and policy developments across the spectrum of social services.

2.10 These are based on:

• service users' needs being central
• social justice and inclusion
• protection of the public
• maximising choice
• greater involvement and participation of service users in shaping service provision
• individually-tailored provision within a mixed economy
• integrated services
• quality assurance and enhancement
• accessible, flexible services

2.11 As well as these broad themes there are specific developments which will have implications for the development of the workforce. Examples include:

• Integrated Assessment Framework for Children(due 2005)
• Mental Health (Care and Treatment) Scotland Act 2003
• Outcomes from the Joint Future Human Resource Working Group
• Review of Early Years and Childcare Workforce
• New arrangements for the management of offenders
• Outcomes from the consultation on mandatory post registration training and learning on child protection for all social workers

2.12 To assist the sector in identifying the specific issues that arise for workforce development, a map of recent policy developments is available online with hyperlinks to all the documents contained in the map. In addition, the need to secure improved skills and qualifications in the social services workforce have been set out by the Scottish Executive as part of its Spending Review targets. These include:

• trebling the proportion of residential childcare staff meeting the qualification requirements for the Scottish Social Services Council register between 2003 and 2009
• increasing the proportion of early years, childcare and support staff that meet the qualification requirements from 66% in September 2003 to 85% in January 2009
• increasing the number of qualified social workers by 25% by 2009

2.13 The Regulation of Care (Scotland) Act 2001 and the establishment of the Scottish Social Services Council (SSSC) and the Scottish Commission for the Regulation of Care (The Care Commission) signalled a new era for social work, social care, early education and childcare services and for the sector's workforce. Regulation of services and the workforce offer better safeguards for service users and strengthens professional standards.

2.14 The SSSC's Codes of Practice for Social Service Workers and Employers sets out agreed codes of practice describing the standards of conduct and practice within which social service employers and employees should work. These Codes require a greater focus by employers on the provision of training and development opportunities for all social service workers to strengthen and develop their skills and knowledge at all levels. This means organisations as well as individual managers having in place structured approaches to support the continuing professional development of the workforce and which will enable individual employees to effectively carry out their role.

2.15 The SSSC has established agreed requirements for post registration training and learning for qualified social workers within the wider context of continuing professional development. In time, the SSSC will develop similar requirements for other groups of staff in the workforce as part of their continuing professional development following registration. This will need to form a key part of workforce development planning.

2.16 Some employees need to meet requirements of other regulators. The Health Professions Council has recently consulted on proposals for Rules on its Standards and Guidance for CPD.

2.17 Consistent with the integrated services agenda, there are significant developments in the joint inspection and regulation of services, In 2005 Social Work Services Inspectorate (SWSI) will become an agency of the Scottish Executive and will be developing its approach to inspection with other inspectorates and regulatory bodies. It will also inspect the delivery of local authority social work services. For local authority fieldwork services it will focus on how local authorities are meeting their responsibilities as set out in the SSSC Codes of Practice for Employers and Employees as well as the quality of leadership and management within local authorities. The Care Commission will inspect employers' adherence to these codes in care services, within the local authority, private and voluntary sector, where they are regulated in accordance with the Regulation of Care (Scotland) Act 2001.

Workforce Development - National Initiatives

2.18 The National Workforce Group was established to provide cohesion and strategic direction for the development of the social services workforce of the future. There are 3 multi - agency subgroups considering workforce information and analysis including skills gaps, human resources development and education, training and learning. The Workforce Information Group has published a survey of Scotland's Social Care Labour Market to inform and facilitate workforce planning. The Human Resources Group is developing a toolkit based on the principles of sound people management and development.

2.19 There is a further sub group of the HR Group focusing specifically on how to encourage more people from black and minority ethnic communities into the workforce, to reflect our diverse communities. All of these initiatives make a key contribution to the National Workforce Group's improvement agenda.

2.20 In April 2002, the Minister for Education and Young People announced a 12-point Action Plan aimed at addressing recruitment and retention difficulties, raising the profile of the sector and improving perceptions and supporting staff morale. This included establishing a Recruitment and Awareness Campaign. This work was mirrored and supported by Convention of Scottish Local Authorities (CoSLA) , who set up a working group to address issues on recruitment and retention specifically in a local authority context. The Scottish Executive's successful Care in Scotland campaign represents a major investment in encouraging people into the social service workforce.

2.21 The 21 ^st Century Review of Social Work is a fundamental review of social work services in Scotland, the first since the Social Work (Scotland) Act 1968. Service providers and trainers will need to take on board findings of the Review which will cover:

• a clearly defined role and purpose of the social work profession and individual workers
• improvements in the organisation and delivery of social services
• a framework and culture of improvement, supported by robust inspection
• strong leadership and management giving clear direction to social services
• a competent, confident workforce
• modernised legislation

2.22 The current National Review of Early Years and Childcare Workforce aims to improve employment opportunities for early years and childcare staff, and to raise the status of the sector. It is underpinned by a vision of children as 'safe, nurtured, healthy, achieving, active, respected and responsible'. The review aims to report in the summer of 2005 and its recommendations will have significant implications for the learning and development of the early years and childcare workforce.

2.23 The Care 21 project is aimed at driving up the quality of social care services in Scotland by informing best practice and encouraging change and innovation in service delivery.

2.24 The Scottish Institute for Excellence in Social Work Education aims to contribute directly to transformational change in social work higher education. This is being achieved in partnership with key stakeholder groups and educational collaboration between the universities, regulatory bodies and other professional bodies.

2.25 The Centres for Excellence (such as the Scottish Institute for Residential Childcare - see Appendix 2) provide an important learning and development resource to stakeholders in their specialised fields and have close links with management and front line practice. They are vital links to enable the development of evidence-based practice and apply critical methods of learning, enquiry and practice development in order to enhance the capacity, knowledge and skills in their fields.

2.26 Other policy initiatives that have an impact on workforce development include:

• Best Value
• Equality Strategies
• Efficient Government
• new NHS reforms and workforce development programmes
• educational reforms including an emphasis on qualifications, lifelong learning, further and higher education developments
• Sector Skills Council development

The Future

2.27 There are a number of factors that will shape society in the future and which need to be understood in developing a workforce that is fit for purpose in the 21 ^st century.

2.28 There are considerable ongoing technological advancements and change. The workforce must be able to keep pace with and fully utilise these developments. This will mean much greater investment by employers in training and equipping their workforce to make use of operational systems and e-learning opportunities.

2.29 Unemployment in Scotland is currently at its lowest level since 1975. The relative strength of the economy, growth and high employment levels will have a direct bearing on recruitment and retention and therefore, the provision of services in the sector. Social services will need to be much more active participants in economic development, in order to have their contribution recognised and valued.

2.30 The labour market will be influenced by global factors, economic migration and availability of labour from, and in, other countries. As a result, the planners of today and tomorrow must have greater understanding of the impact of these factors and assume a more proactive role in these developments.

2.31 We can assume much greater cultural diversity in the future. With this will come an increase in the numbers of young people from black and ethnic minority groups with their unique needs. Older people from diverse communities often face increased poverty, health and housing risks. The workforce needs to reflect the rich cultural diversity of our communities.

2.32 The birth rate in Scotland is falling. The number of people under 16 is projected to decline by 14% by 2021. Over the period to 2021, the population of Scotland is forecast to fall by 1%, but the decline in those of working age is forecast to fall by 4% (based on the current age of retirement). There is, therefore, a predicted labour market shortfall across all industries and sectors and a corresponding predicted skills shortage. This means that greater priority needs to be given to succession planning and to using older workers more creatively.

2.33 The population is ageing and by 2021, it is estimated that 8.8% of the population will be over 75. The workforce is also ageing with a resultant need to give greater priority to succession planning.

2.34 Advancements in medicine will continue to enable people to be active and to work into old age. Changes in pension rights and levels and possible legislative amendments will affect people's choice of retirement age. We are, therefore, likely to be working longer by necessity or by choice, in the future and beyond the current retirement age. Flexible working arrangements will have to be more commonplace.

2.35 Greater numbers of women are in employment generally. In 2001 the employment rate for men was 76%. In the period from 1985 - 2001, the percentage employment rate for women increased from 57% to 70%. As a result social services employers may not be able to rely on women meeting their workforce needs in future.

The Shape of Future Services

• Demographic factors are predicted to have a large impact on future service needs, level and priorities.
• It is expected that there will be more older people living longer, more people with disabilities and more people living alone. There will be fewer children and young people which may shape the kinds of services provided in future and offer opportunities to rethink how we use existing resources.
• It is now expected that services will be coordinated with much greater consistency of access and standards. Expectations are rising and people in Scotland will demand excellent public services.

2.36 Services are predicted to be based on optimising user choice, individually tailored to meet user needs and involving a mixed economy of provision. We can expect an expansion of care services delivered to people in their own homes and Direct Payments may shape models of individual care provision.

2.37 The Range and Capacity Review is looking at what care provision will be required for elderly people in the short to medium term. The first report of the Range and Capacity Group was published on 16 July 2004 and comprised a series of projections of the likely number of community care service users and the possible costs associated with these. The second phase of the work entails looking at the future provision of care services for older people and investigating how services can be used as an alternative to long-term residential care. This review will have significant implications for the workforce, including the skills and knowledge they are likely to require in the future.

2.38 Most types of services will be quality assured in line with the National Care Standards, with the emphasis on services rather than the structure of the agencies that provide them.

2.39 Enhancing existing partnership, consultation and participation with service users and their carers will be integral to service developments and changes. Delivering services effectively requires strengthening partnerships across sectors. New models of training and development must be developed that underpin and support working together with other agencies, including health, education and housing.

2.40 The need to build on and further develop team work will be crucial. Workers will have to be resilient if they are to maintain their professional identity and operate efficiently in multi disciplinary environments, whilst having the adaptability to move from one sector to another. The emphasis on evidence based practice requires reflective, critical practitioners. The capacity to cope with uncertainty and change positively is essential to the development of professionalism.

Skills Gaps and Shortages

2.41 Skills gaps range from specialist skills such as risk assessment and working with people who are involved in drug misuse, to being able to respond effectively to the policy context of integrated service delivery. This demands that staff across the workforce have highly developed skills in partnership working and that those responsible for the delivery of services have the necessary skills for planning and managing services on a cross sector and agency basis.

2.42 Other skills gaps include:

• strong leadership and management
• performance management and performance improvement
• understanding what interventions work and why
• implementing evidence based practice
• critical thinking and reflective practice
• risk management
• research and evaluation
• working with other professionals within and across agencies

2.43 Skills shortages are defined as shortages in the labour market. Much has been done to address key shortages and current work is addressing this issue on behalf of the diverse social services, health and early years and childcare workforces. However, shortages continue to exist across different parts of the sector and vary across Scotland as a whole. It is therefore difficult to produce a definitive statement on what all the shortages and these will change over time. Current skills shortages include:

• qualified social workers in children and families
• mental health officers
• home care staff, particularly in rural areas
• social care staff in rural areas
• staff with relevant qualifications in assessment and verification linked to SQA awards

2.44 In the context of the demographic challenges for Scotland as a whole, we need to continue our efforts, including working jointly with other Sector Skills Councils, to attract staff to work in the sector and once employed to ensure they are retained.

2.45 In addition, employers need to take account of the learning and development needs of other professionals within the social service workforce, including nurses and occupational therapists.

What has already been achieved?

2.46 Investment in the social service workforce is being undertaken and there has already been significant progress. Examples include:

• a new regulatory framework combining high quality service standards with registration of the workforce
• a qualifications-based register for social service workers to enhance competence and promote continued learning that also recognises other regulators for the workforce
• the introduction of an honours-level degree qualification as the minimum qualification for professional social work
• new Standards in Social Work Education for Scotland, setting out the learning expectations of the new programmes and bringing together Social Work National Occupational Standards with the Academic Benchmark statement for social work
• major financial investment by the Scottish Executive including an incentive scheme for those completing qualifying social work training and 11 million to boost training across the whole of the workforce
• Scottish Executive sponsored leadership development programme involving 300 front line and middle managers from across social work and social care services in local authority and independent sectors
• there are more social workers in Scotland than ever before (demand remains high and there are significant numbers of vacancies) but local authorities are reporting a month on month increase in the numbers of social workers
• the Fast Track Graduate Recruitment Scheme is helping to fill social work vacancies, with an expected 700 students graduating by 2008 as qualified social workers
• a National Review of the Early Years and Childcare Workforce will improve employment opportunities and help raise the status of the workforce
• 11,000 childcare qualifications have been awarded by the Scottish Qualifications Authority (SQA) since 1999-2000
• Major financial investment by the Scottish Executive of 18.8 million since 1999-2000 into the training and development of the early years and childcare workforce and a further commitment of 12 million in the years 2005-2007

2.47 Much has already been achieved. A significant focus of these achievements has been on addressing the need for more qualified social workers within the workforce and at better preparing them for the complex environment in which they are now expected to work. Ambitious targets have also been set in increasing the numbers of qualified staff in residential childcare and the early education and childcare sector. However, the learning and development needs of all staff in the sector must be addressed as part of developing the versatile and skilled workforce we need in the 21 ^st century.

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