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Recruitment and retention issues in better neighbourhood services fund programmes

CHAPTER TWO RECRUITMENT

2.1 Recruitment difficulties were experienced by all bar one of the fourteen Pathfinders. The only exception was Pathfinder F and its unique experience was a result of the nature of the programme - a capital rather than a revenue programme - where BNSF funding was invested in new buildings from which stakeholders will provide services. The remaining Pathfinders experienced recruitment difficulties which are summarised as follows:

• Six Pathfinders experienced what we regard as minor recruitment difficulties. The number of projects affected within these Pathfinders was less than five in all cases and the most common problem was a delay to recruitment. The BNSF programmes of these Pathfinders suffered delays but were not significantly affected by recruitment problems.
• Seven Pathfinders experienced rather greater difficulties. The number of projects affected by recruitment difficulties was not greater but the effect on the projects was more substantial. However, in our view - based on the impact described by Pathfinders - the level of recruitment difficulties in these Pathfinders did not adversely affect their BNSF programmes as a whole.

2.2 We estimate that 35 different BNSF funded positions advertised were affected by recruitment difficulties and over 130 jobs ⁴ were difficult to fill - many of the positions advertised had more than one job available. ⁵ In 6 of the 35 positions advertised which were affected by recruitment difficulties, applications ⁶ were sparse but an appointment was still possible because a suitable candidate was found. From discussions with the Pathfinders we estimate that approximately one fifth of jobs connected with BNSF were affected by recruitment difficulties. However, this number includes difficulties where a satisfactory appointment was made despite a small pool of applicants. Our impression of BNSF experience from discussions with the Pathfinders is that it was the intensity of the recruitment difficulties connected with particular positions affected that was the important issue rather than the extent of the problem. The problems experienced by the Pathfinders will be discussed in greater detail in the following sections. Although problems were experienced, our overall assessment is that they did not have a significant detrimental impact on the overall programme of any of the Pathfinders.

2.3 Appendix 2 provides details of the recruitment difficulties experienced by the Pathfinders.

PROFESSIONS/SKILLS

2.4 From the information presented in Appendix 2, the professions most affected by recruitment difficulties were:

• Qualified youth workers - an issue in six Pathfinders. More Pathfinders were affected by problems filling youth work positions than any other profession. Difficult to fill vacancies included a range of relevant positions including youth workers, youth outreach workers, senior youth workers and youth information workers.
• Qualified social workers/social care staff - an issue in four Pathfinders. The difficult to fill positions were mainly for qualified social workers or positions seeking social work qualifications such as community development workers, development officers and outreach workers. However, Pathfinder A also had difficulties filling less skilled positions such as posts for carers.
• Community safety staff - an issue in four Pathfinders. Included in this generic group were neighbourhood wardens, neighbourhood assistants, a community safety worker and a restorative justice manager.
• Health professionals - an issue in four Pathfinders. A range of specific health professions were affected including qualified nurses, podiatrists, a drugs information worker, a mental health worker, a health visitor and an alcohol counsellor.
• Programme management/administration staff - an issue in three Pathfinders. Although two Pathfinders experienced difficulties recruiting development officers, their roles were different: in Pathfinder M the difficult to fill vacancy was in effect the co-ordinator of the BNSF programme; in Pathfinder L the development officers are not as senior as they report to the BNSF manager. The difficult to fill vacancy in Pathfinder N was the BNSF project officer.
• Education staff - an issue in three Pathfinders. The range of positions where difficulties were experienced in this grouping varied from qualified educational psychologists in Pathfinder C to homework tutors in Pathfinder A and community development workers with community education qualifications in Pathfinder G.

2.5 In summary, youth work and social work were the professions most affected. The unanimous view of the Pathfinders affected by recruitment difficulties in these professions was that the BNSF experience was very much a reflection of wider national shortages in youth work and social work. Similarly, difficulties experienced by Pathfinders recruiting nurses or educational psychologists were said to reflect a shortage of qualified staff in these professions. The affected Pathfinders also stated that the temporary nature of the majority of BNSF positions made it more difficult for them to compete with mainstream positions which tend to have permanent contracts. The effect of temporary contracts is discussed in more detail below.

2.6 The vast majority of recruitment difficulties reported by Pathfinders concerned positions within local authorities. However this is not a reflection of the local authorities performing poorly compared to other community planning partners. Instead it was more likely to be a reflection of local authorities being the main employer in the BNSF programme. This was because they tended to take the lead role in the programme and also because the professions most affected were those where the local authority was most likely to be the employer - as with, for example, social work staff.

CONTRACTS

2.7 Temporary contracts were the norm across Pathfinders with two specific exceptions. social workers in Pathfinder C and community development workers with social work qualifications in Pathfinder G were the only positions to have permanent contracts; the latter were only advertised with permanent contracts following recruitment difficulties. Pathfinders felt that temporary contracts were the single most important cause of recruitment difficulties experienced in the BNSF programme. Pathfinders stated that temporary contracts are less appealing to most candidates compared to mainstream permanent contracts which offer greater financial security to candidates with long term commitments such as mortgages. The effect of temporary contracts in the BNSF programme was accentuated by the focus on professions where there is a national shortfall of trained staff such as social work and youth work. Pathfinders described the labour market for these professions as a 'sellers market' which made it more difficult for Pathfinders to compete. It was not uncommon for Pathfinders to be competing with the host local authority for social workers and youth workers.

2.8 The length of temporary contracts offered by Pathfinders varied depending on their programme start date. Where Pathfinders had implemented their programme without delay three year temporary contracts were offered to the end of March 2004.

2.9 Where Pathfinders took longer to establish their programme, temporary contracts were offered on a different timescale and we found contrasting evidence of how long the contracts covered. The Executive allowed Pathfinders to carry forward under-spends into the next financial year. In some cases this has had the effect of allowing Pathfinders who had initial delays in establishing their programme to implement a full three year programme e.g. Pathfinder L offered contracts to October 2005 as their second LOA was not approved by the Executive until mid-2002.

2.10 However, one Pathfinder felt that there was insufficient clarity from the Executive about the rolling forward of finances. They also felt the Executive's emphasis on June 2004 as the end date influenced them to run contracts up to that date. Where delays arose in this Pathfinder the effective delivery time was curtailed by the fixed end date. In a second Pathfinder the extended time taken to establish health projects has resulted in shorter contracts being offered. For example sexual health advisors will only be in post for 22 months although a 12 month extension is now possible following the Executive's decision to make Year 4 funding available.

2.11 The Scottish Executive stated in their guidelines for implementation that

'confirmation of funding for the further two years (Years 2 and 3) will be dependent on satisfactory progress being made against the outcome targets for each Pathfinder. Unsatisfactory progress may lead to payments being withheld'.

2.12 In Pathfinder G the possibility that funding might be withheld influenced the Pathfinder to adopt a cautious approach where contracts were offered on a twelve month basis, subject to renewal on confirmation of funding. Although their adverts stated that funding was anticipated for three years the Pathfinder stated that, in their view, the cautious approach they adopted in response to the Executive's funding policy added to the recruitment and retention difficulties experienced.

2.12 Although Pathfinders stated that higher salaries might have been a way to offset the disadvantages of the temporary nature of the contracts, they did not generally see that as a feasible option, because of apparently insurmountable difficulties in varying wages for jobs with similar job specifications, particularly within a local authority structure. However, there was a view from over half of the Pathfinders that BNSF could compete on quality rather than salaries as the experience offered by BNSF was seen as more innovative and offering opportunities for professional development.

2.13 Pathfinders C and G were the only two Pathfinders to offer permanent positions although the examples were limited to specific job types. In Pathfinder C, non-seconded candidates (i.e. external candidates) for the four social work jobs have been employed by the local authority but placed temporarily in the Pathfinder positions. When BNSF ends the staff will be redeployed into other social work positions within the local authority. Although this could be seen as a risky option it is very likely that there will be vacancies for social workers at the end of their BNSF programme. Other positions in Pathfinder C including social work assistants and youth workers are employed on temporary contracts. In Pathfinder G, Community Development Workers with social work or community education qualifications initially proved difficult to fill. However, the Council agreed to offer permanent contracts with redeployment into mainstream services at the end of BNSF and this has resulted in offers of employment being made for the remaining unfilled jobs

2.14 In our view, it is significant that these cases involved social workers. The potential risk to the local authority is much less because of the general recruitment difficulties associated with recruiting social work staff - the likelihood of the local authority being left with more permanent social workers than available jobs is remote. Nonetheless, their approach is innovative and worthy of consideration by others in the future where similar circumstances exist.

SECONDMENTS

2.15 Secondments can be a good method of filling temporary positions. BNSF advertised positions were generally open to secondments and there were examples of successful recruitment through this route. In Pathfinder L, half of the programme admin/management team have been seconded. In Pathfinder C, secondments have been used extensively and the co-ordinator stated that they hoped that this would counteract 'a mass migration of staff on temporary contracts as we come up to the end of BNSF'. Secondments of teachers have been the approach adopted in Pathfinder A to staff a study centre.

2.16 However, the success with secondments experienced by these Pathfinders was not universal. For example, Pathfinder K stated that every Council job is open to secondment but there were no applications from potential secondees for the BNSF positions. Furthermore, in Pathfinder E the Co-ordinator reported that secondments are not perceived positively by staff in the health sector as previous experience has been that secondees were unable to return to their original jobs.

DIFFICULTIES EXPERIENCED

2.17 As stated above, temporary contracts were identified by Pathfinders as the main cause of recruitment difficulties. The actual difficulties they experienced in recruiting staff were:

• A shortage of applicants
• Applicants lacking necessary qualifications
• Applicants lacking necessary experience

Shortage of applicants

2.18 A shortage of applicants was the most common of the three difficulties, affecting all Pathfinders who had experienced recruitment problems. It was also a cause of difficulties in all of the professions affected. The evidence provided by the Pathfinders and shown in Appendix 2 demonstrates the severity of the lack of applicants. In many of the cases the number of applicants was extremely low and was often in single figures. In 6 of the 35 positions affected by recruitment difficulties there was a shortage of applicants, but an appointment was still possible because a suitable candidate was found. In the other 29 positions, further action, such as re-advertising, had to be taken.

2.19 The following examples demonstrate the extent of the problems resulting from a shortage of applicants:

• advertising a part-time health visitor in Pathfinder M resulted in only two applications but they were fortunate that they could describe one of the applicants as 'the perfect applicant' who met all of the minimum criteria in terms of qualifications and experience. Although a good outcome was achieved in this case, it illustrates how vulnerable programmes to improve local services of certain types may be to labour shortages and the 'thinness' of the labour market for certain professions.
• A full-time community safety worker position in Pathfinder D has been advertised on four separate occasions (alongside similar non BNSF funded positions) as it had only been filled on a part-time basis originally. The four adverts produced only six applications in total. The Pathfinder suggested that the 'unknown quantity' of what might be entailed in becoming a community safety worker was a contributory factor.
• A full-time solicitor's position to deal with anti social behaviour in Pathfinder K was advertised on two occasions. Two applications were received from the first advert and three applications were received for the second advert. The Pathfinder was very disappointed with the response as the position involved what they thought would be interesting work dealing with residents' legal issues, which they felt would have appealed to qualified solicitors. Their view was that the temporary nature of the contract was the problem. The position has not been filled - the work has now taken on by the Council's existing legal team and the arrangements appear to be satisfactory.

2.20 It was shown previously that the positions most affected by recruitment difficulties in the BNSF programme were those that were experiencing recruitment difficulties in the labour market generally e.g. social work and youth work. It is our view that the short supply of these skills was the prime cause of the small number of applicants for BNSF positions - the minimum qualifications/experience required restricted the number of potential applications. As highlighted already, the temporary contracts further constrained the number of applicants.

2.21 In addition to the paucity of applicants, there was also some evidence of Pathfinders facing additional difficulties because applicants lacked either the experience or qualifications necessary to undertake the job. Examples of applicants lacking the requisite experience include the following:

• In Pathfinder E, the full-time drugs information worker post was advertised twice. The first advert produced only six applications. The applicants all had the necessary degree level qualification but lacked sufficient relevant experience. When the salary was downgraded (to reflect the lowering of the experience requirement) and re-advertised a good response resulted and an appointment was made.
• Advertising an alcohol counsellor position in Pathfinder G resulted in only two applications, neither of whom had the relevant counselling experience. The project has resolved the situation by seconding a counsellor for 1 day per week from a voluntary sector alcohol counselling service.
• Pathfinder I had difficulty recruiting youth outreach workers; they stated that the newness of the type of work meant that the number of applicants with relevant experience was very limited.

2.22 In terms of a lack of qualifications, only one example was found. In Pathfinder B the full-time outreach co-ordinator position required a degree in community education. Only five applications were received in response to two separate adverts but an appointment was eventually made. The Pathfinder stressed their satisfaction with the appointment.

2.23 One Pathfinder made the point that any vacancies that arise during the remainder of the programme will be very difficult to fill. This was felt to be particularly true during preparation of the Year 4 LOA. Even when the Year 4 LOA is approved the Pathfinder still felt it might be more difficult to recruit than previously under the BNSF programme as the length of the contract they could offer was significantly less i.e. instead of three years the Pathfinder could only offer a one-year contract. It should however be noted that the Year 4 LOA is principally about continuing existing BNSF services and projects, not creating new projects and associated posts.

RECRUITMENT TIMESCALES

2.24 Pathfinders' experience of the length of time taken to recruit staff varied considerably; the minimum period was three months while the maximum was 15 months to conclude the recruitment of all youth workers in Pathfinder J. Our estimate of the average time taken in those cases where recruitment difficulties were experienced was 5-6 months.

2.25 From their previous experience, Pathfinders suggested that three months was the minimum time necessary to advertise and fill a vacancy if no difficulties were encountered. Although BNSF experience suggested that the timescale encountered was often significantly longer, the consensus of opinion was that there was nothing specific to BNSF that contributed to that timescale being longer. The difficulties related to recruitment for certain professions on temporary contracts. Although Pathfinders stated that BNSF did not involve any significant additional process issues, they did highlight three stages of the recruitment process that influenced the timescales:

• creating and defining the position
• advertising
• security checks

Creating and Defining a Position

2.26 The content of the BNSF programmes meant that for most positions, Pathfinders could adopt existing job specifications and vacancies could be advertised relatively easily. This was mainly due to the fact that BNSF funded initiatives were similar to mainstream initiatives such as youth work, community development, and environmental improvements.

2.27 Where BNSF created roles which did not have an existing job specification Pathfinders adopted a pragmatic approach to job evaluation and wherever possible roles and responsibilities of new BNSF positions were based on existing positions. For example, the outreach workers in Pathfinder L were based on home help positions. The advantage of this approach was that it minimised the time taken to define new roles. Feedback from Pathfinders suggested that this approach had been successful although there were examples of some more problematic occurrences.

2.28 New positions created by Pathfinder M were, in the Pathfinder's own words, 'slightly different from existing positions' which resulted in extended negotiations between BNSF funded projects and the local authority's personnel department on grading and how the positions fitted into existing structures. One particular project, approved in December 2002, was still working through some recruitment issues in Summer 2004. However this has not stopped the work proceeding on at least a limited scale.

2.29 In Pathfinder H, job evaluations were satisfactorily concluded but advertising had to be delayed until committee approval was secured. A delay caused by the summer recess in the committee cycle meant this process took 7-8 months in total. The local authority in Pathfinder G insisted that BNSF positions should not be advertised until Neighbourhood Offices had been established. This was said to have added a month to the usual timescale. Pathfinder C found that working across three different council departments was time consuming as approval was required in triplicate.

2.30 Negotiations with unions were not identified by any Pathfinder as increasing the duration of the recruitment process. The two comments received about this issue were both positive.

2.31 A particular issue arose filling positions in Pathfinder M. The Pathfinder stated that a shortage of management resources within the council to initiate the projects funded by the BNSF projects slowed the recruitment process and effectively gave the pathfinder a "year zero" - a preliminary year before service delivery started which was used to establish projects and engage the community. The Pathfinder has a relatively small but varied programme which resulted in management responsibility falling on existing managers rather than new managers for each project. As the council is a relatively small authority the capacity of existing managers to take on the new role was limited and recruitment was slower. Once the positions were advertised all were filled first time.

Advertising

2.32 Advertising BNSF positions was generally straightforward, using a combination of existing block local authority advertisements and specific BNSF adverts, with the following exceptions:

• Pathfinder L was constrained by the fact the local authority only advertises once a month; when recruitment problems arose the Pathfinder paid for a specific BNSF advert to speed up the recruitment process.
• Partnership working in Pathfinder G caused a delay in the advert going to press as a decision had been made that all BNSF positions should be advertised together and the advert had to wait until all partners were ready. The Council was in a position to advertise but had to delay for 21/2 months until all other partners were ready.
• In Pathfinder E the Health Board insisted that all new positions were approved by the Board. Although the BNSF positions were funded by additional BNSF funding the process still had to be endorsed by the Board, which was said to have added a couple of months to the process.

Security Checks

2.33 Disclosure Scotland checks were necessary where BNSF positions involved working with vulnerable groups. Although accepted as a necessary step, this added to the timescale. The average length of time for the security checks to be undertaken was six weeks but there was experience of longer delays of up to ten weeks in Pathfinder M. The majority of checks were for the enhanced Disclosure Scotland reports.

2.34 The time taken to receive Disclosure Scotland clearance was highlighted as a being problematic in two Pathfinders:

• Twenty suitable candidates were identified as prospective homework tutors in Pathfinder A but by the time the Disclosure Scotland checks had been received six of the candidates had secured alternative employment.
• In another Pathfinder, appointment of one position was made subject to satisfactory Disclosure Scotland checks, in an attempt to speed up the recruitment process. However, checks on one individual highlighted a problem and the Pathfinder stated that the subsequent dismissal process took nine months.

QUALIFICATIONS

2.35 The view of almost all Pathfinders was that the qualifications stipulated were appropriate to the positions and therefore a necessary requirement. The majority of the positions affected by recruitment difficulties were recognised positions such as social workers where minimum qualifications are essential. It was also the case that the advertised jobs were similar to mainstream positions which made the application of the same qualification requirements a necessity.

2.36 There were only two examples of Pathfinders highlighting a BNSF funded position where, with the benefit of hindsight, the qualifications may have been higher or more specific than necessary. Pathfinder L concluded that the requirement for outreach workers to be qualified in SVQ II or III in social care was, with hindsight, more specific than was necessary. They reached this conclusion after they had experienced its contributory effect in reducing the numbers of applications - on average only 2 or 3 applications were received per job - although the rural nature of the Pathfinder and national recruitment problems in social care will also have been important factors.

2.37 The difficulties experienced in recruiting qualified social workers in Pathfinder C combined with the national problems in this field led the Pathfinder to rethink its reliance on fully qualified staff. Social work assistants were recruited to carry out some of the logistical work to free up social workers and the Pathfinder reported that this approach had been successful.

RURAL ISSUES

2.38 There were five rural LOAs in three local authority areas. Another Pathfinder has a rural element to it but this Pathfinder experienced no recruitment difficulties at all due to the capital only nature of its programme. The three rural areas all shared the difficulty of a paucity of applicants with their urban counterparts. However, the rural Pathfinders' experiences were sufficiently varied to prevent broad conclusions being drawn about difficulties in rural programmes.

2.39 Pathfinder M experienced minor problems relating to the recruitment of a health visitor and the recruitment of the BNSF development officer. The health visitor position was satisfactorily filled at the first time of advertising despite there having been only two applicants. The development officer position was successfully filled at the second time of advertising. The first advert produced a small number of applicants who generally lacked suitable qualifications and experience of independent sector monitoring, contract monitoring and knowledge of the rights and needs of adolescents.

2.40 Pathfinder N also experienced difficulties recruiting for their programme management although the position affected - the BNSF project officer - was not as senior as Pathfinder M's development officer. Pathfinder N's project officer post received only eleven applications and although the position was filled by an applicant who met all of the criteria, when that person left after five months re-advertisement produced only four applications. From the second batch a satisfactory appointment was made. Four projects funded by Pathfinder N also experienced recruitment difficulties - the positions were health related (e.g. nurse, podiatrist) with the problems being attributable to a lack of applicants, reflecting national skills shortages.

2.41 Pathfinder L experienced significant problems recruiting clerical assistants, outreach workers and development officers. In all cases the difficulties related to a limited number of applicants. However, although the number of applicants was small, both development officer jobs were filled at the first time of advertising. The development officer position required social work degree-level qualifications and relevant experience. The low number of applicants was said to be similar to previous experience of recruiting for social workers in the local authority generally. Particular difficulties were experienced in recruiting staff in Pathfinder L for jobs based in one relatively isolated town; again this was said to be a reflection of wider recruitment difficulties in the town, particularly for professional positions, which led the local authority to relocate some jobs.

2.42 The greatest difficulties in Pathfinder L were connected to the recruitment of outreach workers to work across the island communities. The position sought qualifications at SVQII or III in social care or relevant experience with the prospect of SVQ training. The positions attracted a poor response and required to be re-advertised. In the case of one small island, they elicited no applications at all. The lack of applications was attributed to the generally low response rates experienced in the islands for social care positions, plus an apparent lack of understanding among existing workers about how the jobs fitted with other social work positions. The Pathfinder also suggested that on occasions potential applicants felt disinclined to apply when they knew who else was planning to apply as they perceived their chances of securing the positions would be slim.

2.43 Another issue which can be attributed to the rurality of Pathfinder L and which slowed down the recruitment process was the desire of the development officer to be involved in the recruitment of the outreach workers. The logistics of the development officer being involved in the recruitment and induction processes across the twelve islands meant that the process took seven months in total.

2.44 By contrast, the difficulties experienced in Pathfinder H were very minor. Only three positions were affected and none were said to be particularly badly affected. Despite a lack of applications, a youth work position was successfully filled in response to the first advert as one of the applicants met all the criteria. Recruitment difficulties with two voluntary sector jobs were more significant as they took approximately 6 months and 2 adverts to fill. However, these jobs represent a small proportion of the overall programme in Pathfinder H. The absence of significant recruitment difficulties in Pathfinder H was attributed by the Pathfinder to a range of factors. Islanders are more willing to accept the insecurity of temporary contracts than people on the mainland because of the smaller number of vacancies. BNSF jobs are seen as providing quality experience which enhance CVs and provide stepping stones to future advancement as the nature of the work with the community is valued. There was also a view that the Pathfinder had been fortunate to receive good quality applications despite small numbers of responses.

ADDRESSING RECRUITMENT DIFFICULTIES

2.45 Where recruitment difficulties did not result in an appointment being made from the first advert four different types of response were adopted:

• re-advertising
• review of job specification
• time-limited holding measures
• alternative delivery

Re-advertising

2.46 Re-advertising was by far the most common response. In 21 of 29 positions not filled first time, re-advertising was the course of action adopted. In four of these cases two re-advertisements were necessary and in one case three re-advertisements were necessary.

2.47 In Pathfinder B, the closing date for a second advert was extended to maximise opportunities following difficulties recruiting a youth outreach co-ordinator and a senior youth worker. Both positions were successfully filled following the second advert. When three BNSF positions remained vacant in Pathfinder G following two adverts, a third advert was rejected because it was deemed not to be cost effective. Instead the programme used sessional workers and secondments to implement the affected projects.

Review of job specification

2.48 In a small proportion of cases re-advertising was accompanied by a review of the job specification. Although job specifications were reconsidered in several cases, there were only three examples of changes actually being made. In Pathfinder D only six applications were received for the position of community safety worker from four adverts and there were also retention difficulties. In this Pathfinder the chair of the Community Safety Partnership and the relevant council director agreed to revise the job specification and the wording of the advert to attract a wider range of applicants. The Pathfinder highlighted that changing a job specification is not easy as it may impact on grading as well as requiring personnel and trade union approval.

2.49 Pathfinders were not generally in a position to increase salaries as BNSF positions were similar to existing positions. One Pathfinder suggested that an increase in salary would have been 'over the dead body of Personnel'. Although salaries were not generally seen to be open to revision, one Pathfinder did ensure that the 7.5% allowance for unsociable hours was highlighted when advertising for youth workers. Another Pathfinder felt that increasing salaries might not be a satisfactory solution as experience from the social work department - where bonuses had been introduced - had resulted in some resentment among other staff.

2.50 In only two instances were job specifications altered and salaries adjusted:

• A voluntary sector youth project in Pathfinder B increased the salary of the youth outreach worker from AP3 (approx. 19k) to AP4 (approx. 23k) following a failure to recruit from the first advert. The position was filled following the second advert.
• Following a poor response to the first advert for a drugs information worker in Pathfinder E the salary was reduced from PO2 (approx. 24k) to AP4/5 (approx. 21k) to reflect a change in the job specification towards a less experienced candidate. A better response resulted and an appointment was made.

Short-term holding measures

2.51 In addition to re-advertisement and job specification reviews there were examples of Pathfinders implementing short-term holding measures to help cover ongoing vacancies. It is our view that this had a significant effect in limiting the overall impact of recruitment difficulties in the BNSF programme. These measures are in addition to the use of secondments which were discussed previously. Six examples of short-term holding measures were found:

• Three social workers based in the BNSF neighbourhood in Pathfinder G have covered some of the work of the community development worker which was vacant until Spring 2004.
• Six sessional youth workers have worked alongside a full-time youth worker in Pathfinder G to cover a vacancy of a second full-time youth worker. A second youth worker has now been appointed.
• In Pathfinder C existing social workers were spread across the Pathfinder area until more appointments were made to ensure a minimum service was provided in all BNSF neighbourhoods.
• The vacant outreach co-ordinator's position in Pathfinder B was covered by the project manager until an appointment was made. This allowed the most important elements to be progressed.
• In Pathfinder M, a community development worker has undertaken some of the work of one of the BNSF funded projects, on the understanding that the arrangement is temporary.

Alternative delivery mechanisms

2.52 Where recruitment difficulties resulted in unfilled vacancies, a fourth response involved changes to the delivery mechanisms. Such a response was more fundamental than re-advertising, reviewing the job specification and short-term holding measures as it involved re-thinking the way the project was implemented. The alternative mechanisms ranged from minor changes involving extensions to existing staff hours and the use of sessional staff to more significant changes involving recruitment of different positions. The following alternative delivery mechanisms were highlighted:

• Recruitment of different positions - Recruitment difficulties with educational psychologist positions in Pathfinder C led to a review of the need for two positions - only one had been filled - and this resulted in changes to the project and the recruitment of a health facilitator rather than an educational psychologist. Also in Pathfinder C, social work assistants were appointed initially on time-limited contracts to take logistical tasks away from an under strength social work team. This was combined with spreading existing social workers across the Pathfinder area until new appointments were made. Although the assistants were introduced as a temporary measure they have subsequently been retained using financial savings from the recruitment initially proposed as this approach proved successful in freeing qualified social worker time.
• Increased hours for existing staff - To address a shortage of carers, the hours of existing staff with Pathfinder A's Support to Families project were increased when recruitment difficulties were experienced. Difficulties recruiting a qualified nurse in Pathfinder N and a perception that the situation was unlikely to improve by re-advertising led to the responsibilities being added to an existing nursing position. Failure to recruit a solicitor in Pathfinder K for anti-social behaviour work meant the Council's legal team have had to take on the work themselves.
• Training - The sports development project in Pathfinder B had to introduce a programme of staff training and development where their more experienced coaches mentored new inexperienced recruits. This was necessary as initial attempts to recruit experienced staff had been only partially successful. Word of mouth was also used to recruit more coaches rather than re-advertising.
• Sessional staff - Part-time sessional staff from Pathfinder K Council's Youth Services pool have been used to address a failure to recruit three youth workers following two unsuccessful adverts.
• Use of existing provider - Failure to recruit an alcohol counsellor in Pathfinder G - an advert produced only two applications, neither of whom had counselling experience - led to one day cover been supplied by a voluntary sector alcohol counselling service.
• Project changes - Recruitment difficulties with youth outreach workers in Pathfinder I meant the project could not achieve the number of street contacts they expected but a rethink of provision led to the establishment of youth drop-ins and groups to engage young people.

ACTION TO AVOID RECRUITMENT DIFFICULTIES

2.53 Recruitment difficulties were mostly concentrated in professions such as youth work and social work where there are recruitment difficulties in the wider labour market, with the dominance of temporary contracts adding to the difficulties experienced. Six Pathfinders experienced difficulties recruiting youth workers and four Pathfinders experienced difficulties recruiting social workers. However, only one Pathfinder offered permanent contracts for social workers in anticipation of potential recruitment difficulties with such jobs.

2.54 Further examples of Pathfinders taking action to avoid recruitment difficulties included the use sessional workers, re-grading and the provision of training:

• Sessional workers - Pathfinder M wanted to recruit young sessional workers to work with young people with learning disabilities in a relatively isolated town. They anticipated problems because of the town's location and the specialised nature of the work. To try to avoid difficulties the project held an open evening and undertook outreach work with local young people and then held a training course to assess young people who were interested in taking part in the project. The initiative was a success as they managed to attract fourteen young people. Pathfinder E anticipated recruitment difficulties with health visitors and youth workers, given that such positions were hard to fill generally. The Pathfinder agreed to use sessional workers from the outset. In the case of the health visitors the Pathfinder felt that full-time workers would have been preferable. However, the use of local volunteer youth workers as sessional workers was seen as successful in retrospect as it involved the local community and fostered local ownership.
• Re-grading - In Pathfinder H the BNSF lead officer successfully argued the case for the three BNSF co-ordinator jobs to be graded AP5 rather than the AP4 level at which the Council's Personnel Department had evaluated the jobs. The argument for the re-grading was the management responsibility for the clerical officers and the desire to attract a higher calibre of applicants. The experience contrasted with Pathfinder G where the Council's personnel section would not allow the Pathfinder to pay estate wardens 16,000 and insisted they be paid 14,000 in line with the existing Council pay structure. Although not funded by BNSF, in Pathfinder K the youth justice manager (funded by the Youth Justice Fund) was also given management responsibility for the BNSF funded youth workers in order to ensure the position qualified for a higher salary (PO5) to pre-empt possible recruitment difficulties. An appointment was made.
• Training - Pathfinder J established a bespoke New Deal training programme - 'Deal Me In' - for the neighbourhood wardens. 34 weeks of training is provided which proved successful in terms of trainee wardens and administrative staff. The trainee wardens have been inducted alongside the other wardens, undertaken regular training programmes and working alongside established warden teams. The Pathfinder is also hoping to implement a training programme to train staff who can undertake relief duties across a number of closely related disciplines such as sheltered accommodation warden assistants, concierge staff and neighbourhood wardens.

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