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Recruitment and retention issues in better neighbourhood services fund programmes
CHAPTER FOUR CONCLUSIONS AND RECOMMENDATIONS
IMPACT
4.1 The impact on specific projects varied. The most common impact was to delay delivery. This is demonstrated in Pathfinder L, where, in our opinion, some of the most significant recruitment problems were experienced., given the responsibilities of the positions affected. Problems recruiting development officers and outreach workers were significant but have delayed progress in Pathfinder L rather than resulted in poorer quality services. Although over half of the projects in Pathfinder N were affected by recruitment difficulties the fact that the Pathfinder withheld funding until projects had staff in place only resulted in delays and the flexibility afforded by funding via Revenue Support Grant (RSG), means a three year programme will still be delivered. The Pathfinder stated that none of the projects had been scaled back or suffered from a reduction in service quality. Pathfinder M stated that the limited management time to manage the recruitment process, which had delayed project delivery, effectively gave the Pathfinder a 'year zero'. Although they felt comfortable with this situation because of the flexibility of RSG support, the Pathfinder stated that there was some cause for concern as the Scottish Executive has now indicated that all expenditure must take place by 31 March 2006.
4.2 In our opinion the use of secondments, short-term holding measures such as sessional staff and alternative delivery mechanisms such as new support staff ( see Chapter 2) were significant in limiting the impact on service delivery. Some of the short-term measures adopted suggested that BNSF activity may have involved some displacement of other mainstream activity - i.e. staff who would otherwise have carried out mainstream tasks may have been diverted into BNSF activities. This is however difficult to assess or quantify. Additionally, although again difficult to quantify, recruitment difficulties must have absorbed a fair amount of staff time in relation to certain Pathfinder programmes, and thus tended to impact on programme administration.
4.3 There were a limited number of examples where projects were adversely affected by recruitment and retention difficulties:
- An unfilled vacancy for a community worker in Pathfinder K was said to have left 'a big hole' that impacted on project delivery. The worker was expected to work with the community to develop ideas such as a community centre which it has not proved possible to progress in the absence of such an appointment. Although the Council has filled the gap as far as possible they do not have the resources to provide the comprehensive coverage a full-time community worker would have provided.
- Recruitment and ongoing retention problems with neighbourhood assistants and a community safety worker in Pathfinder D have resulted in difficulties taking forward projects with the community including specific work with the police and local groups. Although other staff have tried to assist the difficulties were said to have restricted what the Pathfinder had hoped to achieve in this area.
- Neighbourhood wardens in Pathfinder J have tended to leave the project one at a time over an extended period and this was said to have adversely affected the project. The difficulty concerns the wardens' training programme which involves a number of partner organisations and requires a minimum of six participants to be cost effective. The result is that the Pathfinder has carried vacant positions for long periods until a training course can be arranged for the required number. Overtime payments to cover vacancies and maintain visibility in the neighbourhoods adds to costs and the service suffers as warden patrols may be undertaken as mobile patrols in vans rather than foot patrols.
4.4 There was evidence of some positive impacts flowing from recruitment and retention problems. Where vacancies existed they created salary cost savings and this funding allowed Pathfinders flexibility in the delivery programme. An example of this was Pathfinder C's decision to appoint social work assistants when they experienced difficulties recruiting social workers. The use of social work assistants proved successful and has subsequently been extended. In Pathfinder G, savings on the salary costs of youth workers allowed funding of outward bound activities that would not have been possible had the full complement of staff been in place. Other examples were noted in Pathfinders K and E.
RECRUITMENT
4.5 We estimate that approximately one fifth of jobs connected with BNSF were affected by recruitment difficulties. However, as this includes a number of positions where difficulties consisted of a small pool of applicants but satisfactory appointments were still made from the first advert we conclude that it was the intensity of the recruitment difficulties connected with particular positions that was the important issue rather than the extent of the problem.
4.6 Recruitment problems experienced by the Pathfinders were concentrated in a small number of professions, particularly those which are subject to a shortage of qualified practitioners in the wider labour market. The effect of temporary contracts was said to have added to the problems, especially in the hard to fill professions where Pathfinders were competing against permanent contracts. Pathfinders pinpointed the temporary nature of the contracts as the most important recruitment issue.
4.7 The Pathfinders demonstrated a resolve to address recruitment problems and in some cases anticipated problems before they arose. Delays to delivery were the most common impact. If programmes of this type are considered in future, the lessons of the BNSF programme should be incorporated, i.e. programmes should be designed bearing in mind the high probability of recruitment difficulties for certain types of positions. If, for example, the provision of outreach workers for young people is found to be problematic, there may be a need to consider other options - e.g. short residential courses for young people at risk.
Recommendation - stakeholders involved in delivering projects and services in future programmes of this type should take into account in the design of interventions the likelihood of skills shortages and adjust the programme as appropriate.
4.8 The success of short-term holding measures such as additional hours for existing staff, the use of sessional staff and secondments in combating recruitment problems in BNSF may also offer lessons for the future. Stakeholders should carefully consider the need to create new jobs on a project by project basis in time-limited funding programmes and appraisal of alternative methods of delivering the service should be fully considered at the outset. Approaches that make more intensive use of existing resources (e.g. of part time or sessional staff) could also be more sustainable than a reliance on new recruits.
Recommendation - stakeholders involved in delivering projects and services in future programmes of this type may wish to examine sustainable solutions from the existing pool of labour across partners, including the voluntary/community sectors, to ascertain the feasibility of staff being redeployed on a partial and/or temporary basis rather than creating a new post.
4.9 The examples of Pathfinder C - where social workers were appointed on permanent contracts from the outset - and Pathfinder G - where community development workers with social work qualifications were also appointed on permanent contracts following initial recruitment difficulties - are noteworthy and could possibly offer lessons for the future. However, the fact that these were isolated examples suggests that stakeholders are risk averse - a position we fully understand - and wider application may be difficult. Having said that, where certain professions are in short supply, and crucially are forecast to remain in short supply for the foreseeable future, the actual risk involved in offering permanent contracts may be marginal.
4.10 The Pathfinders may wish to consider how permanent employment can be offered under similar circumstances in the future. Investigation of staff turnover in certain job types may help to demonstrate the true level of risk that would be involved. The fact that some stakeholders were advertising temporary BNSF jobs alongside similar permanent positions adds to the argument that a more coherent recruitment practice could be beneficial.
4.11 It is clear that the processes of staff appointments in the public sector may be quite protracted. While there is clearly scope for some stakeholders - particularly local authorities and health boards - to streamline their recruitment processes, for example by ensuring that personnel issues do not delay appointments - there is also an argument for a 'year zero', to develop the project to a point where it is ready to be fully operational. There may also be a role for piloting a protocol among stakeholders which delegates recruitment issues to a smaller group to 'fast-track' recruitment for time-limited programmes. This approach may prevent the need for every individual post to be approved on a case by case basis whilst allowing each stakeholder to build in the procedures it considers necessary .
Recommendation- stakeholders involved in delivering projects and services in future programmes of this type may wish to consider the use of cross-partner protocols agreed at the outset to reduce the time taken to establish new positions. However lead in time will need to be set aside for the negotiation of these protocols with partners.
4.12 The use of training to address skills shortages was shown to be successful where it was incorporated into the BNSF programme. For example, in response to recruitment and retention difficulties Pathfinder J established a New Deal training programme for Neighbourhood Wardens while Pathfinder B trained inexperienced sports coaches. By integrating training provision dual benefits are derived. on the one hand the needs of the target group are addressed by the service, while on the other hand, the project itself is adding to the pool of skilled labour. Accredited training is therefore worthy of future consideration.
Recommendation - stakeholders involved in delivering projects and services in future programmes of this type should consider the provision of accredited training to add to the pool of skilled labour.
It is possible that the introduction of Regeneration Outcome Agreements (ROAs) will present an opportunity to address some of the issues highlighted in this report. The flexibility afforded by an outcome oriented approach combined with a three-year commitment for regeneration funding should allow community planning partners to consider a range of more innovative approaches to recruitment. These could include:
- Generic positions in for example, health promotion, employment support or community involvement, in the knowledge that there will be a continued need for certain professions beyond the initial three-year funding commitment.
- New positions linked to the achievement of outcomes rather than for specific projects with the funding for these posts coming from successive ROA allocations
Whilst these suggestions may not be appropriate for vacancies - some may be too specialised - they should be considered as part of a range of recruitment options.
Our own view of the Scottish Executive's guidance on the funding mechanism, end dates and the ability to carry forward funding is that it was self-explanatory. Nevertheless, there was some uncertainty among Pathfinders. As the issue had an effect on the length of contracts offered in Pathfinders G and K we would recommend that clarity of guidance is addressed in the future if a similar funding mechanism is adopted. It would be advisable for the Scottish Executive to provide explicit guidance on the timescale and end dates and Pathfinders should seek written clarification if they require further information. The Scottish Executive should also ensure that guidance is issued to Pathfinders timeously.
Recommendation: the Scottish Executive should consider the implications for recruitment practices of annual approval of funding for temporary programmes including the provision of clearer and more timely guidance on the stated end dates for programmes; stakeholders should seek written clarification where necessary.
4.13 There was no consistency in the level of difficulty experienced by rural Pathfinders. Pathfinder L and to a lesser degree Pathfinder M and N experienced problems that were a direct result of their location in a rural area with a thin labour market, but Pathfinder H's experience appeared to be rather different. Pathfinder M noted difficulties in attracting people from outwith the region, most especially for temporary posts.
4.14 There was a suggestion from Pathfinders in the Strathclyde conurbation that the proximity of so many other authorities seeking similar workers added to the difficulties they faced.
RETENTION
4.15 Retention difficulties were shown to be less of an issue than recruitment difficulties although this may be due to the timing of this report. The professions affected were broadly similar to those which experienced recruitment problems although the balance between the professions was slightly different programme management/administration and community safety heading the list of professions affected by retention difficulties; youth work was again prominent. It may be the case that, as the BNSF programme draws to a close, retention problems become more of an issue and this is a concern held by Pathfinders. For example, Pathfinder B's Sports Development project relies on a network of part-time sports coaches and the Co-ordinator reported a real fear that staff would look for other jobs from October/November 2004 with the potential 'collapse' of the programme. The Co-ordinator was concerned that if this happened 1,600 children every week could become less active and might potentially lead a more unhealthy lifestyle. The Scottish Executive and Pathfinders should keep a 'watching brief' over retention difficulties.
Recommendation: The Scottish Executive and Pathfinders should monitor the ongoing staff retention situation and review the evidence from individual Pathfinder evaluations with respect to this issue.
CONCLUSION
4.16 Evidence gathered from Pathfinders and presented in this report suggests that the impact of recruitment and retention difficulties on the BNSF programme as a whole was limited. It also suggests that where recruitment and retention difficulties were encountered they were not widespread but tended to affect specific projects. Our overall view therefore is that it was the intensity of recruitment and retention problems relating to specific components of the programme rather than their extent which was the main issue. Pathfinders tended to experience recruitment and retention problems in a limited number of projects rather than across their programme. The main problems they faced was a lack of applicants which they suggested was affected by temporary contracts and the tightness of the labour market for certain professions. The seven discussion points presented above are intended to stimulate debate among stakeholders in addressing recruitment and retention issues.
4.17 It is too early in the programme to establish whether recruitment and retention issues have had any effect on the achievement of outcomes. However, individual Pathfinder evaluations may provide further evidence at the end of the programme.
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