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CHAPTER TWO: THE LOCAL AUTHORITY PERSPECTIVE

Overview of Chapter

2.1 This chapter focuses on perspectives of the 6 LAs taking part in the wider consultation programme of headteacher telephone interviews and school case study visits. These findings are derived from a literature review which focused on 3 key information sources:

• LA plans - all LAs were required to draw up plans detailing how they intend to implement DtS within their areas.
• LA monitoring returns - all LAs were required to provide the Scottish Executive with information in relation to the selected DtS recommendations.
• LA pen pictures - in putting together LA pen pictures, the DtS Division at the Scottish Executive devised 'profiles' of local positions, in relation to DtS and the wider economic, social and political landscape.

2.2 In addition to this review, LA staff (such as EDOs) were interviewed in order to provide an overview of progress in relation to DtS within their respective LA areas. A summary of these is detailed below and Appendix B provides an overview table of the key findings which emerged from this process.

2.3 This chapter then provides an overview of general themes across LAs which were reported during a second 'round' of LA / EDO discussions. The chapter ends with an overview of identified issues which were particular to LAs and which indicate how practice differs from one LA to another.

Findings from Literature Review and Initial LA / EDO Consultations

2.4 Appendix B provides an overview table of LA performance against process measures. It should be noted that this information was gathered in early 2005 and it is likely that changes and developments have taken place since then which make at least some of this detail obsolete. The measures relate to the 9 DtS recommendations which are relevant to LAs, where updates on performance and progress were requested by the Scottish Executive. These recommendations are detailed below. In addition, LAs were requested to provide broad 'scoping' information about the nature and format of their support to schools ( e.g. how support was delivered to schools, the structure of such support and the presence of any monitoring or evaluation mechanisms in relation to DtS). The 9 DtS recommendations are as follows:

• Recommendation 1: Primary 1 - Secondary 6 entitlement to DtS
• Recommendation 2: vocational learning for 14 years and over
• Recommendation 3: LA communications strategy for parents and carers
• Recommendation 5: evidence of experiential, entrepreneurial activities
• Recommendation 6: an EDO in every school cluster
• Recommendation 7: evidence of business and community links
• Recommendation 8: a minimum of 5 business partnership agreements by 2006
• Recommendation 16: continuing personal development ( CPD) opportunities for teachers
• Recommendation 19: DtS noted in LA improvement plan and school development plans ( SDPs).

2.5 The LA-related literature review and early scoping indicated that:

• progress across the 9 DtS recommendations was varied - at the time of the document review (January - February 2005), LAs were still developing plans for DtS. Not all LA communications strategies were in place, but most were in development or draft formats. The areas which appeared to be least well-addressed were those where the LA had less direct control and influence, due to the role of schools. These areas included: community links and CPD for staff. It seemed that those areas of DtS which require a 'cascading' from LA to schools were taking the longest to achieve. With the relative infancy of DtS this is perhaps not surprising.
• significant DtS-related activity at school level - a great deal of activity is taking place across schools. This includes specialist enterprise programmes and initiatives, vocational learning and some business engagement. However, most LAs felt that this activity would only translate into embedded DtS practice in schools or effective mainstreaming of the enterprise agenda after a longer time.
• LA support to schools through EDOs appears to be varied - the literature review indicated that this might be constrained by LA resource. Some LAs also indicated that restructuring within departments or local DtS teams have also made this area challenging.
• perceived absence of robust monitoring and evaluation mechanisms - an absence of more LA-level monitoring and evaluation has probably hindered LAs from identifying key successes and evidence of good practice. This has implications for the sharing and embedding of such practice and building on the strong foundations which might already exist within each LA area. In most cases, it appears that LAs had implemented, or were in the process of implementing, audits of DtS activity. Such audits assisted in creating a 'picture' of DtS-related activity across schools. However, such activity audits do not tend to focus on understanding how DtS is impacting upon the work of the school, through - for example - changes in attitudes, behaviours and motivations; indications of impact upon attainment. It is not clear that all LAs are drawing distinctions between the auditing of activity and evaluating DtS impact. Some LAs indicated that an assessment of impact would be impossible for 3 key reasons:
  - some LAs felt that given the relative infancy of DtS, the benefits of DtS have not yet been fully realised, and that it was too early for impact to be evidenced. It was also felt that DtS needed time to embed into school thinking and practice
  - perceived limited national level guidance ¹² or tools which would allow LAs to monitor and evaluate DtS-related performance and, in any case, the opportunity to have in place a reliable baseline had been missed
  - attributing the influence of DtS to any key changes at school level would be virtually impossible due to the presence of so many other internal and external influences on the school environment.

Findings from 'Second Round' of LA / EDO Consultations

2.6 The above early scoping findings were further explored through more intensive consultation with the 6 LAs, through EDOs. This allowed for a more insightful examination of DtS at this level, and uncovered the following key themes:

• the relative merits of devolved and central funding systems to schools
• use of 'challenge' funding provided to schools by LAs
• business partnerships and 'networked' EDOs
• integration of EDO roles with other LA / education department roles
• embeddedness of DtS at LA level
• the role and function of the EDO
• the visibility and benefits of the school cluster model to the DtS strategy
• clarity and articulation of what schools are achieving as a result of DtS
• evidence of DtS impacting upon attitudes, behaviours, processes and roles
• EDO networking and sharing good practice
• communication with the Scottish Executive
• promoting the transition of DtS from pre-school to primary to secondary school.

The Relative Merits of Local Authority Devolved and Central Funding Systems to Schools

2.7 Four of the LAs reported delivering funding to schools through a devolved model where the majority of school funding (usually determined by pupil numbers) was devolved directly to schools. The other 2 LAs operated a 'central' funding model. This usually meant tighter control, by the LA, over funds at the LA level, with schools being more guided by the LA in relation to the types of DtS-related activity which should be connected to such funding. This 'central' model was felt to allow for 'tighter reins' at the LA level - in terms of financial control and informed overview of school activity - which also assisted in achieving relative consistency of approach across the LA's schools. However, LAs tended to agree that the ethos of DtS is more aligned to a devolved model of support and funding. The devolved model was seen to offer schools the opportunity to realise innovation and encourage creativity in the use of DtS funding. The clear disadvantage for LAs of this model, was that some LAs felt a consistent LA approach could be lost, as could the LA's ability to monitor and influence the DtS direction within the school.

Use of Local Authority 'Challenge' Funding

2.8 All 6 LAs noted that they had at least experimented with a LA level of funding which schools could bid for ('challenge funding'), in order to increase activity or further experiment with their DtS-related learning. Although a proportion of LAs felt that this acted as a catalyst for schools to apply creative thinking, there was often an incentive for schools to 'follow the money' without clear consideration of the added value or sustainability in their proposals. Where this was the case, lessons had been learned about the importance of clear LA communication regarding the purpose of LA 'challenge funding'.

2.9 Importantly, the use of LA challenge funding encourages LAs, themselves, to demonstrate creativity and an enterprising approach, in order that any 'parameters' governing the release of such funding to schools, does not serve to hamper creativity and enterprising thinking from the school. One LA recommended that LAs should exercise caution if pursuing the 'challenge funding' route, lest this becomes counter-productive in the face of potentially disillusioned schools, who feel bids were not assessed fairly or consistently.

Business Partnerships and 'Networked' EDOs

2.10 The proximity between EDOs and the business sector was often found to be a key influence in the relative success with which LAs (and schools) could secure effective engagement with the sector. Where EDOs had previous experience or particular knowledge or interest in the business sector, they were usually well-positioned to support business-school engagements. However where such knowledge / experience was lacking, effective engagement would require more school-level input. This tended to produce mixed results. EDOs who were 'networked' into the local business community ( e.g. through connections with local business organisations) tended to embrace the school/business partnership arena with confidence and enthusiasm.

Integration of EDO Roles with Other LA / Education Department Roles

2.11 Where the EDO role and position was sufficiently well-known and 'networked' within the wider LA education department, EDOs felt that they stood a better chance to have the DtS 'message' promoted and emphasised across their schools ( e.g. through quality improvement officers - QIOs - or through CPD co-ordinators). Where EDOs were less well-positioned within the LA (perhaps due to the relative new-ness of the team or due to team / staff changes), there was a tendency to feel somewhat isolated within the wider work of their department. This sometimes led to a feeling of 'competing' for school attention, rather than viewing DtS as an integral element to the wider LA support package, available to schools. This situation was usually heavily influenced by departmental culture and structures, where the DtS role was sometimes felt by EDOs to be marginalised due to the work - and relative emphasis - afforded to other areas within the education department.

Embeddedness of DtS at LA Level

2.12 EDOs tended to see a continuing need for them to promote their relatively new role and its relevance to their colleagues, both in and beyond the education department. Achieving this was often felt to depend on time, senior level support and effective departmental structuring. This 'inward-facing' focus for EDOs was felt to be enormously important in determining their presence and credibility with schools. EDOs noted a correlation between their visibility in the LA and their perceived credibility with schools.

The Role and Function of the EDO

2.13 Clearly, while all EDOs are operating within similar parameters of their role and function, there are some subtle interpretations of the nature and relative emphasis of the role. Much of this will be influenced by LA direction as well as by the EDOs themselves (previous experience, areas of expertise and interest, personal style and ways of working with schools). This merits further examination, especially in relation to effective influence and direction at the level of the school. In addition, the extent to which EDOs are viewed as being 'enterprising' by their schools, is an issue which could benefit from regular monitoring, to act as a feedback mechanism from schools to LAs. This could assist LAs in further shaping their DtS support roles and functions, and act as a clear signal of responsiveness to schools' DtS-related support needs.

The Visibility and Benefits of the School Cluster Model to the DtS Strategy

2.14 It was not always clear that EDOs were capitalising on existing school cluster structures to promote the DtS strategy or to encourage schools to share DtS-related practice and learn from each other. While there was some evidence of clusters being used as a DtS communication mechanism, there was limited evidence that LAs emphasised the importance of this channel as a catalyst for DtS-related creativity or innovation. Across the 6 LAs, it would appear that the clusters are an under-utilised model for building and sustaining momentum for DtS.

Clarity and Articulation of What Schools are Achieving as a Result of DtS

2.15 This issue was re-visited with EDOs to identify how EDOs achieve DtS 'performance' related information from schools and the general pattern of progress. As previously noted, EDOs tended to consider that 'results' and 'outcomes' in relation to DtS are not yet evident. While this is partially related to the embedding process within schools, it is also influenced by a perceived lack of robust structures and mechanisms at LA level to effectively monitor school progress. Few LAs noted that the HMIe enterprise in education indicators had been accessed to support this. Correspondingly, LA developed 'tools' had been largely confined to frameworks which allow schools to undertake activity audits of DtS. Both schools and LAs have found these tools extremely helpful in gaining a better overview of how schools are embracing the DtS strategy, and in realising that an increased focus on enterprise education has - in many cases - led to an increase in DtS-related activity across the curriculum.

2.16 However, the challenge remains for LAs to further develop these mechanisms to include tools which will allow schools to report on their performance in relation to DtS. While the HMIe quality indicators were usually well-known at LA level, there was less agreement that these indicators offered effective support for schools in evaluating their DtS performance. For these reasons, EDOs tended to provide only broad indications of how well schools were progressing with DtS and - in some cases - their knowledge was limited. Given the relative infancy of DtS and the previous lack of emphasis on the areas of monitoring and evaluation, this finding is not surprising.

Evidence of DtS Impacting Upon Attitudes, Behaviours, Processes and Roles

2.17 This was more evident at the EDO / LA level, in how the EDO function is being shaped to provide direction and support to schools. EDOs felt that schools tended to benefit from regular access to EDOs for ad hoc queries and a level of 'hands-on' guidance and support from EDOs. Some EDOs noted that it was practically impossible to offer a hands-on approach to schools due to staffing restrictions. EDOs emphasised the need to achieve a balance between providing direction / guidance and allowing schools to experiment with DtS. EDO awareness of specific impacts on schools was less evident, although a general sense that schools are embracing the DtS strategy positively was noted. With regard to school management and teaching staff, this was felt to be an encouraging reflection of teaching and learning styles and general school ethos.

EDO Networking and Sharing Good Practice

2.18 All EDOs noted that national level networking and exchange of practice was extremely valuable but required further emphasis. This signals a clear desire and need for the continued development of the network which supports EDOs and allows for such exchange. This is especially the case now that many LAs are beginning to develop tools and frameworks to support their local schools. There are some concerns that duplication and isolated good practice could occur in the future, in the absence of stronger networking.

Communication with the Scottish Executive

2.19 This was felt to be generally good and most EDOs consulted valued the DtS web-site as a strong resource for facilitating exchange of practice and to alert EDOs to new developments. This tended to be a preferred mode of communication to the previous approach of paper-based updates which were felt to be text-intensive and time-consuming. There was some limited criticism that the national DtS team was sometimes too focused on branding and media. However, it was acknowledged that these areas were central to the continued promotion and awareness raising of DtS.

Promoting the Transition of DtS from Primary to Secondary School

2.20 LA consultations indicated that many schools are using DtS as a mechanism to support the transition from primary to secondary school ( e.g. by promoting early links between the primary and secondary schools, through teaching staff and school visits). However, it was less clear that LAs are offering clear direction to sustain the momentum of DtS-related teaching and learning from the primary to the secondary sector. This resonates with findings from the quantitative survey work where there was a reduction in the relative 'enterprising attitudes and behaviour' among pupils from primary to secondary school. Indeed, it often appeared that LAs treated the sectors and their needs separately, with a lack of emphasis on the overlap between them. Clearly, this presents a risk of lost momentum and lack of consistency when pupils move from one school sector to the other.

2.21 The above issues should be considered within the context of the continuing development of the EDO role within the LA setting. These themes offer scope for development of the EDO role in the future. It is clear that EDOs have taken on significant and - in many respects - ground-breaking roles to support the DtS strategy in their local areas. All EDOs expressed enthusiasm and reflected positively upon the steep learning curves involved in their roles. There was significant optimism among EDOs that the future embedding of roles and functions would bring a more streamlined approach to supporting schools and clearer evidence of the impact of DtS.

Findings Specific to Each of the Local Authorities

2.22 The following findings provide some indications of the specific direction being taken by the 6 LAs consulted. These demonstrate that local structural mechanisms and approaches differ from one LA area to another and are often governed by issues such as local demography, LA-level resourcing and commitment, as well as how well connected the EDOs are to other education-based policies:

• LA 1: Providing Strategic 'Tools' to Schools - very well organised and robust CPD programme for school staff. An on-line booking system allowed for ease of access at school level and clear information about support available. This LA had also recently produced DtS 'framework' folders for the primary and secondary sectors, to offer guidance and lesson examples across curricular areas and year groups of how DtS can be factored into day-to-day teaching and learning. Other LAs were keen to access these folders
• LA 2: Strategic Positioning of DtS - this LA was making stronger efforts to focus support at the school cluster level, with an emphasis on good practice sharing. This LA had also re-written their DtS policy to ensure further alignment and clearer association with 'A Curriculum for Excellence'. This 'positioning' was hoped to contribute to the sustainability of the DtS strategy within local schools. The LA tended to highlight the relevance of DtS to the disaffected pupil group and articulated the rationale for this as DtS offering a vehicle for the future employability of this group
• LA 3: EDOs Networked Across LA Education Department - this LA demonstrated that considerable thought had been given to the structure and positioning of the EDO team within the education department. With a Quality Improvement Officer ( QIO), operating as a senior manager to the team, this was felt to assist in ensuring that other LA colleagues were made aware of the DtS role and function and in ensuring that EDOs were kept abreast of other school policy development issues, and vice-versa. The CPD programme within this LA was also well-structured and well-promoted to all schools
• LA 4: Auditing and Prioritising DtS - this LA had devised a 'macro' level activity database of all school-based DtS activity. This was felt to be extremely helpful in providing an overview of school engagement with the agenda. DtS has been afforded very high priority within the LA education department's wider quality assurance mechanisms and EDOs believe that this has been crucial in ensuring that schools also perceive DtS as a 'high priority' area
• LA 5: Community Emphasis - the LA's CPD programme has encouraged subject specialists to look for stimulus in teaching and learning beyond their areas of expertise. This is believed to support a move away from a 'subject silo' mentality, which can stifle the embedding of DtS. Due to the large geographical area of this LA and the relative size of the business sector, it was felt that the development of business partnerships had been slow to pick up. Positively, this LA has focused DtS efforts with a 'community' emphasis. This has been well-received by schools who have embraced the idea of creating stronger community links
• LA 6: Linking DtS to Other School Policies - EDOs in this LA noted some concern about school knowledge and awareness of DtS-related CPD. This was because responsibility for the promotion of this fell outside of the EDO role and it was unclear that this had been sufficiently well understood within the LA. This LA also noted that recent attempts to engage with the business sector through the use of external consultancy support to 'match' schools with businesses, had been less successful than anticipated. More positively, EDOs had focused efforts with schools to position DtS within the 'mix' of existing school-based policies (such as Health Promoting Schools). This was being well-received by schools.

2.23 The above examples point to clear evidence of good practice and a wide range of EDO 'strategies' to align DtS to the wider school and national education agenda. EDOs noted that further opportunities for the sharing of these tactics and strategies, across LAs, would be welcomed.

Summary Points from Chapter Two

Table 2.1: Summary Points from Chapter 2

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