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CHAPTER THREE THE LOCAL AUTHORITY PERSPECTIVE
3.1 This chapter explores the views of LA staff on the extent to which DtS was seen as addressing the needs of the "at risk" group, what provision was available, and how DtS linked with other initiatives in the authorities. It draws on interviews with all 32 local authority DtS co-ordinators; interviews were carried out with six Directors of Education (or their Deputes) and with 11 LA staff with various levels of responsibility for overseeing and developing strategies relevant to the target group. 3 The chapter initially explores the extent to which the authorities developed targets and implemented activities aimed at the "at risk" group in response to DtS. The following sections explore the management of such provision, approaches adopted to identify the target group and the perceived impact of DtS on the LA's strategies.
Focus on target group
3.2 As reported in the phase 1 DtS evaluation report (Spielhofer et al. 2006) 4, about a third of the 32 LAs reported that they had designed their DtS strategies to focus on the needs of those at risk of becoming NEET. A similar number (13) said that they had put in place some provision for this group as a result of DtS but that it was not a specific target, while the remaining eight authorities reported that they had no specific DtS engendered provision for this group. Several respondents explained that they don't focus on NEET due to there being no specific DtS recommendations relating to this group of young people. Others said that other strategies were in place already or that they did not want to see DtS as becoming "just another programme aimed at disaffected learners" and so had chosen not to focus activities on this group.
3.3 Of the eight LAs contacted as part of this study:
- Three authorities had specific targets relating to the at-risk group
- Four authorities had established co-ordinated and integrated approaches to addressing the issues of disaffection, non-participation and exclusions.
- Three authorities had no specific targets but had implemented some specific provision
- Two authorities had implemented no specific activities aimed at the target group, in response to DtS.
This distribution was broadly representative of all 32 local authorities (as found in the phase 1 DtS evaluation).
3.4 It is worth noting that of the three authorities with no specific targets but with some targeted provision, there was one LA which reported that they intended to make this more of a focus in the next year. Thus, they had advertised to appoint an Enterprise Development Officer ( EDO) with a specific remit to focus their attention on the "at risk" group, were developing training for teachers on how to work with disengaged young people, and were asking schools to apply for an innovation fund with the aim of delivering specific activities targeted to reduce disaffection. It may well be that such an increased focus may have occurred in other LAs since being interviewed as part of this study.
3.5 Interviews with LA Directors of Education and other LA staff showed that there was some correlation between the extent to which disaffection/disengagement was identified as a significant issue and the use of DtS to implement activities or strategies targeted at this group. Thus, all three of the authorities who had specific targets relating to the "at risk" group reported that disaffection and disengagement were significant issues in schools in their authorities. Similarly, those authorities who saw this as less of an issue were more likely not to have focussed on implementing activities aimed at the target group.
3.6 However, it is worth noting that there was one exception - the authority which reported the highest level of young people at risk of becoming NEET had not implemented any activities specifically aimed at the target group in response to DtS. Instead, as its Director of Education commented, it already had many existing programmes in place prior to the introduction of DtS. Furthermore, many of the changes brought about by DtS were seen as being of general relevance to the "at risk" group:
"No DtS funds are being used to support the authority's work with this group and so there is no direct association between DtS and the work done in this area. However, I believe that the broader aims of DtS, concerned with building skills and competencies, confidence, self-reliance and a "can-do, will-do" attitude, are all pertinent to addressing the issues of disaffection and non-participation."
Management of provision
3.7 Most of the LAs visited indicated that responsibility for monitoring and addressing the needs of the at-risk group was shared by a variety of LA personnel and external agencies, including, for example, schools, children's services, social work, the police, Careers Scotland, and community organisations.
3.8 Similarly, most authorities were able to identify other related strategies aimed at addressing the needs of the target group. These included strategies designed by other organisations such as Careers Scotland. In one authority, for example, Careers Scotland was already running a programme which:
"Is designed to give young people extra support in the final three months of school and is aimed at pupils who are likely to face most difficulties in moving on to a job, college or training place. The programme involves young people working in groups to increase their team building, personal development and career management skills. The programme also includes enterprise projects which encourage pupils to increase their confidence and build knowledge and understanding of how local businesses work."
3.9 Several authorities referred to the flexible curriculum and increased opportunities for vocational learning, some of which were specifically targeted at the "at risk" group. One authority, for example, which had not implemented any activities in response to DtS, had such a vocational programme in place aimed at helping those at risk of becoming NEET. It was an initiative "geared at providing targeted young people with a vocational experience of administration, hospitability, car maintenance, etcetera". A cohort of 30 young people was involved last year, increasing to over 70 this year. This programme was not specifically related to DtS, but was seen as "sharing the strategy's broad aims and goals". No DtS money was used to fund it.
3.10 Three authorities had strategic DtS staff in place to develop strategies targeted at the at-risk group. Unsurprisingly, these were two of the three authorities which had specific targets as part of their DtS strategy aimed at pupils deemed to be at risk of becoming NEET. In contrast, most of the other eight LAs contacted felt that other departments or agencies had greater responsibility for addressing the needs of the target group.
3.11 Four authorities stood out for having established, what appeared to be, well co-ordinated and integrated approaches to addressing the issues of disaffection, non-participation and exclusion. In one of these LAs, for example, the Director of Education reported:
"A whole range [of agencies are involved] ; Careers Scotland is heavily involved and I chair the lifelong learning group which involves a whole range of different agencies. We also work closely with the health department on health promoting schools and on other health related initiatives. We have forums and work with the police and other community organisations and agencies so that there is a joined up approach and we have a lot of support. I ultimately [have responsibility] but there is a corporate responsibility."
3.12 Some authorities appeared to have less joined-up approaches. This was particularly noticeable in two authorities in which DtS/ LA education staff contacted were not able to identify any specific individuals with responsibility for addressing issues related to disaffection/disengagement. In other authorities, responsibility was shared by different individuals, departments or agencies, but interviewees were not able to identify a person with a general overview of the LA strategy.
Identifying the at-risk group
3.13 Reflecting the findings of the literature, respondents' comments showed that young people at-risk of becoming NEET are not a homogeneous group. Thus, several authorities commented on the fact that provision cannot be uniform but has to be tailored to individuals' needs.
3.14 Three of the eight authorities contacted as part of this study were aware of formal LA-wide systems for identifying and monitoring young people deemed to be at risk of becoming NEET. In one of the LAs that was aware, for example, they had instituted a five-stage intervention and assessment process, which involved teachers and other agencies, such as social work or educational psychologists, in identifying issues and planning support:
"Kids can move up or down stages and it gives us a monitoring process that places kids in terms of their situation and the level of support from other agencies."
The authority was trying to share this approach across other agencies in the LA"to make this common to health and social work systems as well".
3.15 The other authorities appeared to rely on less systematic approaches - two authorities, for example, devolved responsibility to schools, while others saw other LA departments as having more of a responsibility in this area.
Impact of DtS on provision
3.16 Six of the eight authorities reported that they had implemented at least some new activities or approaches targeted specifically at the at-risk group of young people as part of DtS. For the most part, these included alternative curriculum projects carried out within schools or externally in college or alternative settings. Most of these strategies were aimed at expanding vocational learning opportunities specifically aimed at disaffected or disengaged learners.
3.17 One of the authorities, for example, which regarded the expansion of strategies aimed at the at-risk group as a key focus of DtS, had set up a special innovation fund. Schools and other providers had to bid for funds to deliver projects aimed at finding "different approaches and styles of learning that suit these young people better via alternative curriculum approaches". A lot of the DtS resources were said to have been concentrated on such alternative approaches.
3.18 One LA reported that while they had no particular focus on those at risk of becoming NEET in their DtS plan, they had set up some vocational projects specifically targeted at this group. Overall, the Director of Education in this authority believed though that DtS in itself provided a lot of opportunities for disengaged learners and that:
"The "can do" attitude can help to unlock poor attainment. Generally, giving young people opportunities to take responsibility for their learning can help overcome some of the problems related to disengagement."
3.19 This belief was shared by the two authorities which reported no specific DtS activities targeted at this group. Furthermore, staff in both LAs thought that some DtS activities were particularly beneficial to those at risk of becoming NEET. One authority, for example, reported that they had set up a:
"Course as a result of DtS, in which young people have to work as part of a team. Although it is for all young people, it is particularly beneficial for those who are disaffected/disengaged, as it gives them a very high sense of achievement."
3.20 Also worth noting is that some authorities intended to expand their provision targeted at the at-risk group in coming years and that this may not yet have been reflected in the strategies reported on here (see paragraph 3.4).
3.21 The following chapter provides a more detailed exploration of the types of activities or approaches implemented by six case study authorities visited as part of this research.
Main findings
3.22 This chapter presented the views of all 32 LADtS co-ordinators, six Directors of Education (or their Deputes) and of 11 LA staff with various levels of responsibility for overseeing and developing strategies relevant to the target group. Key findings were that:
- Three of the eight authorities contacted as part of this study had specific targets relating to the "at risk" group, while two others had no targets but had implemented some activities aimed at disaffected young people
- Authorities which reported higher levels of young people at risk of becoming NEET were more likely to have implemented targets or activities aimed at the target group in response to DtS
- Responsibility for monitoring and addressing the needs of the target group were shared by a variety of organisations and agencies across the eight LAs. However, only half of them appeared to have established "joined up" approaches to addressing the issues of the "at risk" group
- Interviewees in three of the eight authorities contacted were aware of any formal LA-wide systems for identifying and monitoring young people deemed to be at risk of becoming NEET
- Six of the eight LAs reported that they had implemented at least some new activities aimed at the "at risk" group in response to DtS. Most of these were aimed at expanding vocational learning opportunities.
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