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Supporting pupils: A study of guidance and pupil support in Scottish schools

6: Inter-agency working

6.1 Introduction

In previous chapters we saw how informants (ie local authorities, teachers, support staff, parents, and members of other professions) recognised the importance of agencies working together to provide effective and wide-ranging guidance and support for all pupils. Not surprisingly, most pupils and young people who responded to the questionnaire or participated in interviews and focus groups in the case study schools had little to say about the efficacy of such arrangements. This chapter presents the evidence on inter-agency working from the main study. This includes: responses from local authorities to a postal questions; the opinions of teachers, pupils/young people and their parents associated with the eight case study schools.

6.2 Approaches to inter-agency working

Nineteen local authorities (73%) provided information on the extent to which guidance was integrated with other forms of pupil support within the school and also within wider community services.

Table 6.1: Extent to which local authorities integrated guidance with other services within and outwith the school (N=26)

As can be seen from Table 6.1 the agencies most frequently cited as being 'well integrated' with guidance were the 'Careers Service' (20 authorities; 76%) and 'Psychological Services (18; 69%). Approximately half mentioned that 'Learning Support and 'Behaviour Support' within schools were well integrated and half thought that integration with some external services, such as 'Educational Welfare, 'Social Work Services', and 'the police' were also well integrated. As we reported in earlier chapters the provision of Guidance is changing and one authority explained how currently, discussions are ongoing regarding a more formal integration of guidance with learning and behaviour support (LA 21). Twelve (46%) reported ad hoc links with 'Youth Psychiatric Services', and 13 (50%) with 'General Practitioners', as local authorities may be assuming that these services will only be contacted as required by a minority of pupils/young people.

In addition, eleven authorities (42%) commented in more detail on developments in integrating guidance with external agencies: almost all were positive, with the occasional mention of individual difficulties. One authority identified that a recent Scottish Executive report on discipline and the movement towards 'New Community Schools' were influential factors.

Schools are working towards fulfilling the recommendations of 'Better Behaviour Better Learning' and are making progress in linking Learning Support and Behaviour Support. Similarly, as all schools increasingly adopt the ethos of, and function as 'New Community Schools' there is improved interaction between schools and other agencies providing services to children. (LA 7)

One authority, while reporting that links were well established with some agencies, highlighted that a shortage of social workers was hindering integration.

There are moves afoot, particularly in the secondary sector to embrace an integrated support model of LSSN and Guidance. There are well established links with the community safety police and schools. The educational psychologist and educational welfare officer provide much support to [named authority] schools. There are difficulties in the recruitment of social workers, so representation from this agency is inconsistent. (LA 13)

And another authority identified that a factor which hindered inter-agency working was that :

A significant proportion of the children in [named authority] schools are placing request pupils who live out-with the Authority boundary, principally [named city]. Schools often encounter major obstacles in dealing with support agencies based in other authorities. (LA 10)

6.3 What is meant by integration?

Local authorities' views on the concept of integrated working varied: some interpreted the question to mean working with external agencies, while others also included integration within schools and/or the authority. One questioned what was meant by 'well integrated' and indicated that :

I interpret 'well integrated' as professionals working together in planning and delivering support to pupils... The roll-out of integrated learning communities should facilitate further developments. (LA 14)

Another indicated that :

By integrated we mean working well in partnership. We do not necessarily believe that services should be integrated under the same line manager - we are more concerned about their effectiveness. (LA 1 )

Authority 24 pointed out that although practices varied from school to school they should be improved greatly by the integration of Education and Children's Services at an authority level. Another authority described how:

'Joined-up' approaches and partnerships with both other council departments and external agencies are continually developing and there is a genuine attempt on all fronts to understand each other's day-to-day working practices and to share information of mutual benefit to assist young people and their families to maximize the services available.

(LA 12)

This aim appears to be central to the definition of integration.

6.4 Organisational structures for integration

Thirteen local authorities (50%) reported that they had structures in place to support integrated working. Eight authorities (30%) mentioned the creation and continued development of Joint Action or Joint Assessment Teams (JATs) as an integral part of 'New Community Schools'. Thirteen (50%) indicated that they had some form or forms of multi-agency structure with which guidance staff would be involved. These included school liaison groups and Integrated Learning Communities. By way of example, Authority 25 described how representatives from school guidance services were included in meetings of Family Support Services, Inter-agency group for child protection, health, police, and Careers Scotland. And Authority 2 reported increasing formalisation of these links.

Guidance staff are involved at school level in a variety of cross-service groups including social work, health, psychological services, police etc. The 'roll-out' of New Community Schools is leading to the more formal involvement of guidance staff in cross-service groups such as Joint Assessment Teams. (LA 2)

Two authorities provided further details as to how these links were structured.

In [named authority] schools, guidance teams work closely with other professionals within and outwith the schools. These other professionals are viewed as part of the extended guidance team. We have joint assessment teams and guidelines for school are currently being developed to support their work. (LA 10)

Integration/multi-agency work is beginning to show signs of success because of growing trust, learning the modus operandi of partner agencies, and frequently and regular training and networking events. In some schools this work has come under the aegis of a Better Neighbourhood Services Fund project, and in all schools this is within the context of School Referral Teams. (LA 8)

6.5 Local authorities' perceptions of success

Twelve local authorities (46%) judged the growing inter-agency links to be successful but none thought these were wholly successful. Six authorities (23%) thought that it was 'too soon to say' or that they did not yet have enough evidence to make a judgement. Staffing was the most frequently cited factor which authorities thought hindered successful integration. Staff shortages or staff changes were cited by six authorities (23%) as having caused problems. Local Authority 8 explained that the success of inter-agency working took time to show because:

This degree of cooperation and dependency between various agencies was new to all, and there was a lack of understanding about the different ways of working. In addition concerns have been raised about workload, and the lack of consistent and adequate accommodation in schools. (LA 8)

Other authorities were more positive:

This integration has been successful. Contributing factors have been an integrated services budget and manager and the appointment of a Children's Services Co-ordinator to each learning partnership. (LA 9)

There is improving success with integration with a range of partners showing considerable commitment. Hindering factors include different professional priorities, availability, level of commitment, and scale of organisation. (LA 25)

And Authority 32 identified an area which required further attention.

[Inter-agency working is] reasonably successful, but we are working on mechanisms to improve the situation. Most notably we must identify and ensure the delivery of support for children outwith the school. (LA 32)

6.6. Teachers' views on inter-agency working

Teachers in primary, secondary and special schools had experienced different levels of involvement with members of various other professional groups. As can be seen from Figure 6.1 below, all three sectors had established contacts with Educational Psychology Services and Social Work Services. However, more primary school teachers reported contacts with the Police Service and Health Promotion, compared to secondary school teachers, more of whom reported established links with Counselling Services and Careers Services.

Figure 6.1: Teachers established contacts with outside agencies by sector

Many teachers, both interviewees and questionnaire respondents, appreciated the need for close inter-agency working in order that schools could provide an effective guidance/support service for all young people. This was seen as absolutely essential by staff in the special school (Case Study H) who pointed out that co-operation with members of other professions, such as speech and language therapists, nurses, physiotherapists, classroom assistants and auxiliary escorts, happened on a daily basis. They also had frequent contact with social workers, general practitioners, Careers Service, and community paediatricians, all focused on developing children's independence. Only one special school teacher wanted to know more about the roles played by other agencies and what channels to go through if these agencies have to be contacted (Teacher 147, Case Study H).

Primary school teachers reported that they occasionally attended multi-disciplinary case conferences and one (Case Study A) felt disadvantaged because of her lack of training in this area. Many had developed a perception that Psychological Services, although helpful, appeared to be 'stretched to capacity'. The primary school headteacher of Case Study C, while welcoming the input members of other professions could make with pupils with multiple problems, regretted the fact that she finds herself "out" of school more often than "in" school liaising with such groups. She did, however, consider involvement with Social Work Reviews and Children's Panel hearings very important. The implication is clear: respondents think that multi-agency working requires additional time.

Secondary school teachers expressed few views on inter-agency working. Views ranged from a teacher (099, Case Study E) who reported that as an ordinary teacher, I have no idea of other agencies involved, to a Principal Teacher of Guidance (076, Case Study D) who believed that …guidance arrangements and structures as in our school is one of the strengths of Scottish education. Links with outside agencies are made easier and more often these are vital in supporting pupils in today's society.

6.7 Pupils' views

Special and primary school pupils in the case studies were either unaware of inter-agency working or choose not to comment. As school-based guidance was the principal focus of research interest, secondary school pupils were not asked specifically about their involvement in inter-agency work. Nor did pupils in the focus groups appear to be greatly aware of inter-agency work, or raise the issues other than in a limited way. For example, in one school (Case Study D), reference was made to the input of external careers advisors, but pupils expressed a preference for Guidance Teachers on the grounds of their greater working knowledge of the pupils in their school context. Pupils (Case Studies D and F) also described how their schools operated peer counselling and buddy systems, and how the training for these roles was undertaken by external agencies. One of these was a Stress Management Centre. Importantly, the training was thought to deliver skills not merely for coping in school, but skills for life in the outer, adult world.

6.8 Parent's views

Very few parents with pupils in the case study schools expressed views about inter-agency working or foresaw a role for members of other professions in guidance/pupil support. Exceptions included the following:

1. A parent of a primary school child (Parent 003, Case Study A) would like the school to involve more community volunteers as classroom assistants on a one-to-one basis. Parents would be more involved if their ideas were taken on board as a team. A parent of a child in a different primary school suggested more teaching and medical staff, ie a nurse once a month, would help pupil support and welfare (Parent 023, Case Study B).
2. When asked who should be providing guidance/pupil support for their child, only one parent (Parent 048, Case Study E) of a secondary school pupil mentioned other relevant professional alongside teachers and parents. Parents of secondary pupils made no other references to other professionals or inter-agency working.
3. Three parents of pupils in the special school case study alluded to contact which could include members of other professions. For example, parent (062, Case Study H) indicated that s/he had been in contact with the school regarding health, benefits and transport matters and thought that [all schools] should follow the examples set by special needs schools where parents and pupils find much more support. Another parent (086, Case Study H) in the same school proposed more home visits …and more play schemes during holidays but did not indicate by whom. A third (Parent 091) proposed that a full-time SR Nurse would be an advantage in a school like this.

6.9 Other professionals' views

Twenty individual interviews were conducted with members of other professions associated with the case study schools. (See Appendix Table A1.6 for details.)

Key informants expressed their opinions about the need for, and efficacy of, inter-agency working with social workers, Children's Panel, the police, Careers Service, Educational Psychology Service and others. Four interviewees stressed the importance of contact between guidance and social work services. For example, the manager of a national support services network pointed out that it [the relationship with social work] needs to be collegiate, a partnership relation. This needs to be close, even if social work staffing is variable. A representative of a national parents' association believed that:

You want Social Work to know a named individual in school. There needs to be a good link; a good personal relationship. That is, a good dialogue between the professional person in the school and the service. In primary schools the issue can be dealt with by HTs or the Depute.

While a senior community support worker suggested that:

Ideally there should be a social work team based in schools, not social work departments. There should be a physical presence to break down barriers and misperceptions. In service days too.

The manager of a national support network thought that guidance staff were ideally placed to attend panel hearings and that guidance staff can develop individual relationships with the Reporter. However, a senior community worker pointed out that these relationships between schools and the Children's Panel could be very formal and that guidance staff were rarely involved. Both thought that the community police have a role to play in schools, preferably coming into schools on a regular basis and not just when a crisis arose. Both also thought that guidance staff needed to establish a long-term partnership with the Careers Service, encouraging the Service to make contact with pupils as early as possible (ie in S1). Although both appreciated the role Psychological Services can play in school, both informants recognised that contact was dependent upon staffing levels. As the network manager pointed out:

It [relationships with Psychological Services] depends on the level of staffing. Understaffing is a problem; it can be diabolical. But the partnership is important. There should be in-service training by Educational Psychology. Guidance needs to be responsive to what's available locally and seek them out.

Members of other professions associated with the case study schools identified a number of factors which promoted or hindered the success of inter agency support for guidance. Many spoke of the strengths of the inter-agency support, or structural and communication issues, or provided examples of particular interest. The Community Firefighter, a school chaplain, and a member of the parent council, expressed little knowledge of (other) agency involvement. For example:

The school has in-service days, a Community Policeman comes to the school, and there are Social Workers, and a school Psychologist, but I don't really know the details. ( Parent Council, Case Study C)

Inter-agency support was reported to be varied and extensive. In some places it was understood to function because staff interacted well on a personal level (Educational Psychologists in Case Studies E and C). Other support worked well because of the regular and easy contact between agencies, or because the service personnel knew each other well (Educational Psychologist and college course co-ordinator, both from Case Study H). In one setting, the close physical proximity between the school and a social work unit helped facilitate their interaction (Social Worker, Case Study C). In another setting, informants put successful interaction down to effective communication and shared knowledge:

There is a dialogue - we share knowledge with them [guidance staff] about the young person's home circumstances, as they do with us about events at the school. (Social Worker, Case Study E)

Sharing knowledge was, however, an issue (even a contentious one) for some professionals. For one setting, the Attendance Liaison Officer suggested that there was a general lack of inter-service feedback amongst (but not exclusive to) the Children's Reporter, the Child and Adolescent Mental Health Services, the Youth Justice Service, and children's respite and crisis support provision (Case Study E). The issue was more acute for a Healthy Schools Co-ordinator, who explained:

The Child Support structures are being redefined. Where they used to be ad hoc they are now much more structured. There are lots of ways to improve inter-agency work. There will always be issues of confidentiality. The different professions can be very precious about an individual's data. But the major services all have related information, which could be shared - and this would need the communication system altered to maintain respect for the child's right to confidentiality.

(Case Study F)

Some of the issues were perceived to be structural and relating to the organisation of health services:

There used to be a school medical officer who was fixed with that school, but now we have medical officers who are only peripherally attached and who can change and come from any of the areas within the authority.

(Educational Psychologist, Case Study C)

The Social Services were also seen to have some structural divisions between adult and children's services. A college co-ordinator, who worked with young people with additional support needs, pointed out that:

There are some important difficulties. The Social Service supports for children and the Adult Services don't appear to marry up very well. Social Work is quite important - organising respite care, supported accommodation, the day centres, etc. The Social Work support for children works quite well, but the transition to Adult Services needs to be improved. There should be a named person to link the two. The school has been working on this.

(College Course Co-ordinator, Case Study H)

Other structural problems were thought to occur at a more systemic and challenging level. An educational psychologist associated with one of the secondary school case studies believed that:

Inter-agency work functions fairly well on a personal level, between Social Services and Guidance, for example. But it can get stuck higher up where there's an attitude that 'we can't change the curriculum or these procedures just for this child'. We're quite often advocating on behalf of a single child.

(Educational Psychologist, Case Study E)

Some respondents described new and promising forms of collaborative inter-agency support. One of these in a secondary school case study involved Education and Social Services:

Using Euro money we've created a joint Education/Social Work project. We can take referrals from the School Review Group, and can intervene early with pupils to avoid problems becoming embedded and much more difficult to deal with. Details are still being worked out. There are territorial issues, tensions from past roles and budgets. It's not straightforward.

(Education Officer, Case Study E)

Another initiative in a special school involved the Health Service and the school:

Since the nurse has been based there there's been a major improvement supporting complex health needs. The nurse is there on the spot and can intervene. She has a pivotal role, like a guidance teacher - linking parent and teacher with the child's needs. There could be more access to community dieticians and occupational therapists - if they could be there even on a monthly basis it would help a lot. There are waiting lists.

(GP, Case Study H)

Finally, with regards to a program taking 'disaffected young people' from the school to a nearby college:

The links [between the school and the college] are very strong, and the supports are excellent. There is a Supervisory Assistant between the school and the college. The Headteacher has visited, and so has the Depute Head. The school could have forgotten these young people, but they didn't. There's always a degree of cynicism about [the efficacy of] Guidance: are they just off loading problem students? Some schools do, but not [named school]. (College Liaison, Case Study G)

6.10 Summary

• Local authorities encouraged integrated working in order to support children. Many perceived this to mean integrated working between different departments in the authority, different services within the school and also with a range of external agencies.
• Nineteen local authorities (73%) provided information on the extent to which guidance was integrated into inter-agency working. The most frequently mentioned links were with the Careers Service (20 authorities; 76%) and 'Psychological Services' (18; 69%). Thirteen local authorities (50%) reported that they had structures in place to facilitate integrated working; eight (30%) mentioned Joint Action/Assessment Teams.
• Twelve local authorities (46%) judged that the growing inter-agency links were successful. However, six (23%) thought that it was too early to tell. Six (23%) cited staff shortages or staff changes as factors which hindered successful inter-agency working.
• Many teachers appreciated the need to work with members of other professions in order to provide an effective guidance/support service for pupils. Many already worked with a range of other professionals, especially those who taught in 'New Community Schools' where 'Joint Assessment Teams' had been established. The implementation of social inclusion policies was resulting in more contact between teachers and other professions.
• Most pupils appeared to be unaware of inter-agency working
• Parents had few comments to make on inter-agency working.
• Key informants strongly believed in the need for teachers to participate in inter-agency working but suggested that staff shortages, especially in Social Work Departments and Psychological Services, might hinder progress. This echoed the views of other informants, namely teachers and local authorities.
• Members of other professions thought the of different professions worked well at a personal level, but that systemic differences between professions could hinder inter-agency working.

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