Scottish Government

CHAPTER TWO: THE NEET GROUP - CHARACTERISTICS And DIFFICULTIES FACED

KEY POINTS

• Scotland's NEET statistics have changed little since 1999, with approximately 8% of the group being unemployed and 5.3% being economically inactive. In comparison to English statistics, the NEET group is larger in Scotland.
• The NEET sub-groups which were identified for this literature review are presented below. It should be noted that these groups are not mutually exclusive. In particular, Additional Support Needs makes up a wide range of further sub-groups relating to, for example, language difficulties and social / emotional difficulties, as well as a wide range of disabilities. Further NEET sub-groups are:

• General NEET group;
• 'At-risk' of becoming NEET;
• Additional Support Needs;
• Asylum seekers;
• Black Minority Ethnic ( BME) groups;
• Educational disaffection;
• Family disadvantage and poverty;
• Limiting Long Term Illness ( LLTI);
• Substance abuse;
• Teenage parents;
• Young carers;
• Young care leavers;
• Young Offenders.

• The summary tables in Appendix 1 provide details of key characteristics and the risks, barriers and issues faced by each of the NEET sub-groups, as far as could be ascertained from the literature. Themes or risk factors across the NEET group which appear to be most prevalent are:

• deprivation;
• financial exclusion;
• low attainment;
• weak family and other support networks (such as peers);
• stigma and attitudes of others;
• debt-aversity.

• The literature also points to the need to define disaffection as an effect of a range of risk factors working together, rather than as a cause of being NEET.
• More specifically, for NEET sub-groups, the following risk factors appear to be most prevalent:

• Additional Support Needs - ineffective inter-agency support; low educational attainment; access to information and support (especially for those with disabilities at the transition from school to FE);
• Educational disaffection - truanting and reproduction of educational disadvantage across generations. However, it should be noted that the literature points to disaffection as an effect of a range of barriers working together, rather than a cause of NEET-ness ;
• Family disadvantage and poverty - unskilled manual backgrounds and deprived communities;
• Limiting Long-Term Illness ( LLTI) - workplace pay and conditions; stigma and low levels of skills;
• Substance abuse - personal attitudes; stigma and the benefits trap;
• Young Care Leavers - behavioural problems; stigma and poor attainment;
• Young offenders - truancy and social exclusion.

• The literature offered very limited information about the following groups: BME; asylum seekers; young carers; teenage parents; young offenders and the 'at-risk' group.
• The literature did not identify which risks and barriers are the most prevalent for either the NEET group as a whole or for the sub-groups. It has, therefore, not been possible to prioritise the risks and barriers.

INTRODUCTION

2.1 This chapter provides an overview of the various numbers, classifications and characteristics of the NEET group, those at risk of becoming NEET and the NEET sub-groups. As has been noted in Chapter One, since the focus of the review has been based on sourcing EET-based literature, this literature has placed less emphasis upon identifying and examining the size, characteristics and risk factors relating to the various NEET sub-groups. Nonetheless, this Chapter offers clear defining details about the NEET groups and provides contextual detail which supports the remainder of the report.

2.2 In the remainder of this Chapter, we:

• outline key statistics for the NEET group;
• provide a summary of the characteristics faced by the NEET group and sub-group.

NEET STATISTICS

Overview

2.3 Different data sources produce different results on the exact size of the NEET group. This is due to the methods of collection, differing questionnaires, time periods and sample sizes. For example, the figures in the 2001 Census give a lower number of people not in employment, education or training than the Labour Force Survey estimates. The Labour Force Survey samples a small number from the NEET group in Scotland meaning limited analysis of the characteristics of the people in this group is possible. In fact, only a gender breakdown at Scottish level is possible. As such, analysis of different data sets should be treated with caution.

2.4 The following tables provide an overview of the size of the NEET group - in Scotland, England and the UK. It should also be noted that these figures include the 'positive' NEET group - i.e. those who have 'chosen' NEET status, due to e.g. a gap year. These figures indicate that Scotland has a higher percentage of young people in the NEET category than England. The difference in percentage points is more marked for Scotland than England with 16-18 year olds.

Table 2.1 - NEET Group (16-18 year olds)

Table 2.2 - NEET Group (16-19 year olds)

Reference: Scottish Executive, Analytical Services Division, ETLLD.

Scotland

2.5 In Scotland, since 1999, there has been little change in the percentage of 16 to19 year olds who are NEET. The 2001 Census ¹ shows 33,400 young people of this age group, as being NEET, representing 13.2% of the population.

2.6 Nineteen years is the only age when the percentage of the NEET group is higher for females than males, in Scotland. It is not possible to calculate the number of young people who are 'at-risk' of becoming NEET but this group does include both those inside and outside of compulsory age schooling. It is also unknown how many young people can be classified as 'positive' NEET, where they have chosen this status for reasons such as taking a gap year. This is thought to be a largely short-term phenomenon, with little / no significant challenge in making the transition out of NEET-ness. Further details from the 2001 Census show that:

• 8 % of 16 to 19 year olds were unemployed and 5.3 % economically inactive;
• the number of people in the NEET group peaked at 18 years of age;
• 19 years old is the only age where the percentage of females who are in the NEET group is higher than the percentage of males who are NEET;
• in all local authority areas, a higher percentage of males who are NEET are unemployed, whereas, in the majority of cases, a higher proportion of females are economically inactive in the NEET group. Across Scotland, 71.4 % of males who are NEET are unemployed whereas 52.2 % of females who are NEET are economically inactive ²;
• 38.6 % of the NEET group has never worked (representing 5.1 % of the 16 to 19 population);
• 17.9 % of the NEET group live in Glasgow (almost 1 in 5 of Glasgow-based 16 to 19 year olds);
• 14 % of NEET suffer from Limiting Long Term Illnesses ( LLTI).

2.7 The 2001 Census estimate for March 2003/February 2004 shows 14.5 % are NEET; the true value is likely to be between 13.2 % and 15.8 %.

England

2.8 In England, the Bridging the Gap report shows that at any one time 161,000, or 9% of the age group 16 to 18 are NEET after school leaving age of 16. In more detail:

• 17 % of the overall 16-18 age group work but undertake no formal education or training;
• 6 percent of the age range are out of work and education for more than six months and 3 % for more than twelve months;
• non-participation in education, employment or training at age 16 to 18 is a major predictor of unemployment at age 21.

NEET GROUPS - CHARACTERISTICS AND DIFFICULTIES FACED

The 'At Risk' Group

2.9 The 'at risk' group refers to those young people who are either of compulsory school age and are at risk due to e.g. low attainment or who are currently not NEET but who risk becoming so ( e.g. in a low skilled, low waged job with little or no training opportunities). This group is made up of sub-groups such as children in care, low attainers, truants, young offenders, substance abusers, teenage parents. These groups are not mutually exclusive.

2.10 It is not possible to gauge how many young people constitute the 'at risk' group as the literature reviewed only provides data on those who are already NEET, not on those who are 'at risk' of becoming NEET.

2.11 It would be useful to know the size of the 'at risk' group in order to estimate the true extent of the NEET problem and to help inform effective policies for tackling NEET-ness in the future. Currently, the Connexions Service, in England and the Careers Scotland key worker services delivered through Careers Scotland - are placing increasing emphasis on the future development of more sophisticated data collection and monitoring systems. This will allow for more reliable analysis of younger groups who might be subject to periods of NEET-ness.

'Positive' NEET Group

2.12 The positive NEET group includes those who are NEET out of individual choice and opportunity. Data from the Scottish School Leavers Survey 1997 and 1999 ³ indicates this is a largely short-term phenomenon, comprising brief intervals between other statuses. Those involved tend to be willing to sample jobs and courses and to experiment with less conventional itineraries after leaving school. It reflects a wider trend towards more individualised and less linear pathways from education to work, and towards a more flexible education system and the labour market.

2.13 Examples of positive NEET behaviour include travelling, voluntary work and working part time. It is worth noting that this type of NEET activity is not associated with individuals from a disadvantaged background. Furthermore, these young people are at no greater risk of a future NEET spell than those who have never been NEET.

2.14 There is currently no data on the size of this group. This group of young people is taking planned breaks in their educational or labour market careers, and there seems to be little reason for including them in indicators of a policy 'problem'.

NEET Sub-Groups - Characteristics and Difficulties Faced

2.15 The tables in Appendix 1 bring together key information and data about the NEET sub-groups. In Appendix 2, we 'match' the different sub-groups to risk factors and barriers and provide detail on the issues faced by each sub-group highlighting what information is available as well as where information is lacking or non-existent. In order to gain as full a picture as possible, the data has been extracted from literature on the NEET group in Scotland, with additional information provided from literature on the NEET group in England.

2.16 It should also be noted that these groups are not mutually exclusive - it is possible that some young people could be classified in more than 1 group. This information offers an important starting point for defining the various NEET groups but should be treated with some caution, as any generalisations noted in the literature are likely to impact upon overall reliability of the definitive characteristics of NEET sub-groups.

Difficulties & Risk Factors

2.17 The nature of existing literature on the NEET group tends to focus on employment, education and training issues, and does not offer extensive detail on the sub-groups, themselves, and the factors which lead to them becoming NEET. As such, from the data collated, it is difficult to ascertain clear patterns of risks for sub-groups, and it is therefore not feasible to prioritise these risks. However, the findings in Appendices 1 and 2 suggest that for all groups there are recurring themes of risk factors associated with:

• Deprivation;
• Financial exclusion (including financial constraints and the benefits trap);
• Debt-aversity (especially in deciding whether to 'invest' in post-16 education or training and impacts of dropping-out);
• Low attainment;
• Weak family support 'networks' and the role of 'others' ( IAG which is offered both formally - by service providers - and informally - by peers and family - appears to have a significant influence on transition decision making);
• Stigma and the attitudes of others.

2.18 The following issues appear to be most prevalent for NEET sub-groups:

• Additional Support Needs⁴ - there appears to be a lack of coherent inter-agency support and IAG for this group, which focuses upon improving attainment. This is especially the case for those with disabilities;
• Limiting Long-Term Illness ( LLTI) - the interplay of a range of factors seems to influence the NEET status of this group, particularly concerning stigma and workplace pay and conditions, together with low levels of skills;
• Substance abuse - the key risk factors and barriers for this group appear to be stigma, personal attitudes and the benefits trap;
• Young care leavers - behavioural problems, stigma and poor attainment are common themes across this group;
• Young offenders - both school truancy and social exclusion appear to be most prevalent for this group.

Data Gaps

2.19 It is evident from this analysis that there are significant data gaps. In particular, these relate to the following sub-groups:

• Black Minority Ethnics;
• Asylum Seekers;
• Young carers;
• Teenage parents;
• Young offenders;
• At risk.

Complexity of Issues

2.20 In Figures 2.1 and 2.2 we have sought to classify the risk factors which are prevalent across the NEET group. This was concerned with understanding the various inputs and how these might act as risks to influence NEET status. It should be noted that these interpretations have been derived through an analysis of the literature and are intended for illustrative purposes only. Indeed, the issues faced by the NEET group can vary quite significantly from 1 individual to another, depending on prior experiences. This is also important for understanding the nature and characteristics of the NEET sub-groups, where an individual could be readily identified as belonging to more than 1 of the sub-groups. A range of what seem to be the most prevalent risk factors and barriers - and the interplay between these - is represented in two diagrams:

2.21 The first, ( Figure 2.1) identifies influences leading to NEET status (in most cases, the individual will be subject to a multitude of influences) and highlights the complexity of the risk factors on an individual. For example, an individual is excluded from school because of persistent truanting which may have been brought about by a mixture of low attainment and bullying. This diagram is intended only to illustrate these complexities and not to offer a definitive guide to either the barriers which are present or how these might interact. However, such an illustration does offer some early indications of the types of barriers facing the NEET group. This has been derived from an analysis of the literature and is not presented in this way in any literature sources. There is clearly a need to consider addressing the NEET problem from its various root causes. However, it is unclear whether by addressing any one single factor this will be sufficient to address the wider barriers experienced by the NEET groups. However, some literature notes the importance of 'compensatory factors', whereby the presence of some risk factors can be countered by the prevalence of a range of resources and support ( e.g. supportive family networks).

2.22 The second diagram ( Figure 2.2) seeks to simplify the first diagram by splitting the influences on the NEET group into four categories. These are Lifestyle, Characteristics, Environment, and Other. It is unclear from the literature whether these 4 categories offer a definitive approach to assessing the NEET groups and, again, this diagram has been derived from an analysis of the literature. These categories of barriers appear to be the most prevalent across the NEET groups. The diagram is intended to demonstrate that there are many ways of considering future policies on tackling NEET as well as reviewing the effectiveness of existing NEET policies. It might be helpful to consider policy design and effectiveness from the origins of such influences.