Scottish Government

Chapter Five Careers Scotland, Scottish Enterprise and other Service Providers

5.1 This chapter presents the findings in relation to Careers Scotland, Scottish Enterprise and other service and training providers in the post-school sector. For brevity in the frequent references made to this group throughout this chapter, they will be referred to as 'other service providers' OSPs. It is concluded that:

• the self-ratings of psychological services regarding their PSPS delivery were supported in the ratings assigned to them by OSPs on the same questions
• OSPs in Pathfinder areas were clearly differentiated from those in non-Pathfinder areas in the extent and range of post-school psychological services received by them
• these differences were apparent across virtually every area of PSPS activity
• the services delivered in Pathfinders comprised a wide range of post-school initiatives directly relevant to the key objectives of the project, including improving information transfer and transition, supporting effective joint working and enhancing staff skills and knowledge
• services delivered to OSPs in non-Pathfinder areas were very limited or non-existent
• OSPs in Pathfinder areas rated the effectiveness of PSPS as being higher than other OSPs
• when post-school psychological services have been provided to OSPs by local psychological services they have been highly valued
• those OSPs reporting support from the Strategic Officers have highly valued it (separately covered in Chapter 8)
• OSP data, while amply illustrating the trends noted above, should be interpreted with more caution since, in the nature of an unknown number of disparate OSPs in Scotland, they cannot approach the comprehensiveness of psychological service and college data
• in addition, as many more OSP contact details were provided by Pathfinder psychological services than by non-Pathfinders (since Pathfinders were providing many more post-school services), the returns cannot but favour Pathfinders.

Description of sector

5.2 Careers Scotland provides career planning services that support the requirements of a changing economy, working with the future workforce in schools and colleges and supporting people of all ages who are in work or are out of work. Careers Scotland provides support to young people to assist them to make positive post-school transitions. This includes a range of programmes that raise awareness of the world of work, such as Career Box, the national career education resource for use with young people from ages 3 to 18, and targeted programmes for young people who are at risk of disengaging from learning and employment, such as Activate. For young people with additional support needs, staff can provide tailored support to assist them in developing the skills to plan for and make effective post-school transitions.

5.3 Scottish Enterprise plays a key role in relation to the post-school sector. Scottish Enterprise National and Highlands and Islands Enterprise have overall responsibility for the Get Ready for Work programme, which supports around 5,000 young people across Scotland at any one time. Local Enterprise Companies ( LECS) manage the programme within their boundaries. They contract with training providers and manage these contracts. Training providers may be in a number of categories, such as local authorities, colleges, the voluntary sector and the private sector. Young people on Get Ready for Work programmes are those who, without additional support, are unable to have access to other training, learning or employment opportunities.

Evidence considered

5.4 The assessment of the development of PSPS to OSPs has comprised the following strands of evidence:

• 49 questionnaires completed by Careers Scotland and Scottish Enterprise and a wide range of other service and training providers (Annex 5)
• 36 individual follow-up interviews conducted with staff in a variety of OSP settings
• attendance at PSPS Network meetings where the links between Pathfinders and the OSPs have been illustrated
• documentation provided by OSPs relevant to PSPS involvement.

5.5 Questionnaires were sent to OSPs in a very wide range of agencies. Central to these were Careers Scotland and Scottish Enterprise, together with training providers managing Get Ready for Work contracts . These were supplemented by other service and training providers throughout the public, independent and voluntary sectors. The number of questionnaires returned was 49 out of approximately 200. Returns were received from a range of providers including:

• Careers Scotland inclusiveness co-ordinators, advisers and key workers
• Scottish Enterprise personnel
• Get Ready for Work project managers
• a range of council services
• a range of voluntary services.

5.6 The questionnaires for OSPs were similar in their questions to those sent to Scotland's Colleges, but were differentiated as necessary to match the working context of the recipients. These have been analysed as a single group, as there were insufficient returns in any one category of provider to present the data in separate groups. As with Scotland's Colleges, the returns received were viewed broadly as falling within Pathfinder or non-Pathfinder areas according to their geographical location. From Pathfinder areas there were 36 returns and from non-Pathfinder areas 13 returns.

5.7 Conducting the evaluation in relation to the OSPs throughout Scotland presented particular challenges that did not apply to the evaluative exercise carried out with psychological services or Scotland's Colleges. There were 2 related reasons for this. First, a very large part of the OSP constituency, unlike psychological services and Scotland's Colleges, is not organised within a coherent national framework but is extremely disparate, with numerous individual service and training providers who may not form part of any network. This presented a challenge in identifying a representative range of OSPs for the survey. Second, as the resources of psychological services, whether in Pathfinders or otherwise, would not extend to providing services separately to all of these very numerous providers, PSPS has tended to be highly targeted towards selected OSPs. Thus, many of those to whom questionnaires were sent knew nothing of PSPS and were not inclined to make a response.

5.8 A number of steps were taken in addressing these challenges. First, the questionnaires issued were designed to cover as wide a range of OSPs as possible in every part of the country. Second, additional measures were taken to obtain returns. These included telephone discussions with those who had not made a response, supported by the offer of an individual interview to provide information and to discuss the completion of the questionnaire. Third, OSPs identified by psychological services themselves were specifically targeted.

5.9 The attempts made to increase the returns by methods such as follow-up telephone calls resulted in highlighting the lack of current contact between psychological services and many OSPs, particularly in non-Pathfinder areas. Pathfinder services were able to point to many more OSP contacts in their questionnaire returns than other services, for the simple reason that the Pathfinders were already providing the services. This skewing of the data is essentially a useful evidence strand in its own right. That is, in order to evaluate services to OSPs it was necessary to generate as many OSP contacts as possible. Far more of these were identified in Pathfinder areas.

5.10 For all of these reasons more caution is required in treating the OSP data as being as comprehensive or representative as other data sources. Compared with a 100% return from the total population of psychological services, and a return of 88% from the total population of Scotland's Colleges, the return from OSPs was about 25%. In addition, the size of the total population of OSPs is not known, as many of them are small, independent agencies working in isolation from other providers.

5.11 The above reasons also determine the difficulties expected in using the OSP data to look for systematic change between the times agreed for the first and the second evaluative exercises. Indeed, the returns received by the end of the time scheduled for the first exercise were sufficiently low that further steps were necessary throughout the evaluation period to generate further responses from this sector. Nevertheless, despite these challenges, the data set obtained from the OSPs has been of great value, and has indeed shown clear differences between Pathfinders and others in the range of PSPS received and its value in supporting the young people with whom they work.

5.12 The OSP questionnaires were almost identical to the college questionnaires, any differences only being to the extent necessary to reflect the different context in which these service providers worked. Like the college questionnaires, they were therefore designed to mirror as much as possible the questions for psychological services, so that as many exact comparisons could be made as possible. They covered: basic particulars regarding provision made by them; whether services were received from psychological services; perceptions of the level of service received across a wide range of functions; current and anticipated development of PSPS received by them; barriers and gaps in receiving services; and views on ideal services and effectiveness. Further questions on the support of the Strategic Officers are covered separately in Chapter 8.

Service delivery for PSPS

5.13 Of the 36 Pathfinder respondents, 29 indicated that they had received support from local psychological services. The number for non-Pathfinders was 3 out of 13.

5.14 Figure 5.1 shows the overall level of PSPS delivery received by OSPs, using the same 5-point rating scale as for psychological services (Chapter 3). The figures show a significant difference between Pathfinders and non-Pathfinders, but reflect the differences indicated by psychological services in their self-estimates (Figure 3.1).

Figure 5.1 Overall level of PSPS received ( OSPs)

5.15 Several Pathfinders, but only one non-Pathfinder, referred to structured arrangements for service delivery, such as service level agreements, but for most respondents neither Pathfinders nor others had established such structures.

5.16 As with Scotland's Colleges, findings on estimated levels of services received showed similar consistent differences between Pathfinders and others in relation to strategic involvement, as defined by the questions on consultation, transition planning, contribution to assessment procedures, strategic planning, and action research. Figure 5.2 shows the results. For most categories the non-Pathfinders selected the lowest available rating in every instance. The findings point to significantly more Pathfinder activity, but suggest that the services developed overall are still at a relatively modest level, with action research having the lowest rating.

Figure 5.2 'Strategic involvement' ( OSPs)

5.17 A similar pattern of responses emerged for training and development. While the differences between Pathfinders and others were significant, the figures overall were low. Every non-Pathfinder was allocated the lowest available rating, but this applied also to 18 of the 36 Pathfinders. On the other hand, 4 Pathfinders were rated as 'high' or 'very high' for training provided, pointing again to the targeted nature of services provided to this very disparate sector. The results are shown in Figure 5.3.

Figure 5.3 Training and development ( OSPs)

5.18 Figure 5.4 shows the results for work involving individual young people under the 3 headings or individual consultation, assessment and support, together with a combined figure for all 3 together. Again, although the PSPS focus is not designed on an individual model, the modest involvement reported by the OSPs for individual work favoured the Pathfinders.

Figure 5.4 Work with individuals ( OSPs)

Current and anticipated PSPS developments

5.19 In comparison with the very much fuller and more structured data provided by psychological services and Scotland's Colleges, the OSPs made few entries in the sections of the questionnaire asking them to describe current and anticipated developments. The modest entries in these sections were almost totally made in relation to Pathfinder authorities. Indeed, those responding from non-Pathfinder areas made no entries at all regarding current developments, and almost none regarding anticipated developments.

Barriers to and gaps in service delivery

5.20 OSPs were asked, 'What barriers do you face in negotiating and/or receiving provision of PSPS?', and, 'What do you consider are the main gaps in the psychological services you receive?' Generally speaking, particularly among non-Pathfinders, the main barrier was defined in the questionnaires as lack of staffing resources, and the gaps were often seen as being across the board. These issues were pursued further in the individual interviews.

5.21 Three main factors relevant to barriers and gaps were identified in interviews: organisational difficulties within the OSPs; the fact that Pathfinder services were not yet fully embedded; and the general issue of limited resources.

5.22 Regarding organisational difficulties within OSPs, several interviewees noted that they were not at a stage where they felt they could use PSPS:

'Pathfinder teams are keen to work with us, but though we have had introductory talks with them I haven't arranged further meetings with them to arrange the staff training we had discussed as some of our staff are facing redundancy… in the circumstances I feel it would be insensitive to ask them to undertake work with Pathfinders at this time.'

'Staff running a town centre office face problems finding time to free up staff to undertake training on offer from PSPS, as they have to keep the office open to provide full service to drop-in clients'

'We have been offered support by PSPS, but we have not prioritised it within our organisation.'

5.23 Regarding the time required for services to become fully embedded, several interviewees referred to the relatively early stage of PSPS, and the difficulties some services had in recruiting additional staff at the start date. One summarised the position as follows:

'Lack of candidates for the post means 2 existing psychologists are sharing it. As one of them was primarily concerned with primary school children before, it is a steep learning curve to become familiar with the post-school sector.'

5.24 Regarding the limited resources available, many respondents referred to the size of the task and the few people available to meet the demands:

'Pathfinders are too thinly spread. We have over 200 in the NEET group in our local authority area yet only one part-time Pathfinder linked to us.'

'It is impossible to cover the whole of this area with only one PSPS post.'

'Currently PSPS is only available consultatively, due to lack of staff and enormous demand for their service.'

Ideal services and effectiveness

5.25 As with psychological services and Scotland's Colleges, OSPs were asked to state what they felt were the 3 most important contributions for PSPS to make and then to rate how effectively they felt they were receiving each of these contributions. The same 0-10 scale was used where 0 = contribution not currently being made at all, and 10 = the current contribution represents an 'ideal' service. Again, the main purpose of this question was to allow OSPs to assess the contribution in relation to their own agenda, rather than to ask them to assess services they might not have chosen to receive.

5.26 Figure 5.5 shows the average responses for each of the 3 contributions, together with a combined figure for all 3. The results very clearly favoured the Pathfinders, and once more they also were very comparable to the self-estimates made by psychological services (Figures 3.12 and 3.13). They confirmed that Pathfinders were seen to have taken significant steps towards providing the services valued by OSPs.

Figure 5.5 'Ideal services' ( OSPs)

5.27 Finally, OSPs were asked which of 5 statements best described the overall effectiveness of PSPS in relation to their work. These extended from 'no real effectiveness as yet', through 'little effectiveness', 'in between', 'moderately effective' and 'highly effective'. The results again were significantly higher in Pathfinder areas.

Figure 5.6 Overall PSPS effectiveness ( OSPs)

Further notes on OSP interviews

5.28 The 36 interviews held with a wide variety of OSPs have strongly supported the overall findings reported in this chapter. In general, where it has been possible to provide services, these have been highly valued, and the key factor of the provision of extra resources for this initiative has been recognised:

'Though we have always had a good relationship with psychological services, Pathfinder funding has made a huge difference. While there was always the will to co-operate on inclusion work, now they have the resources, and our staff are very excited about the work we are doing together.'

'At the moment we have a very limited service, hence the low rating for effectiveness, but what we have is of high quality and is invaluable.'

5.29 Some key benefits of PSPS identified by OSPs have been:

Information transfer and support of transition:

'Gaps in information transfer have diminished as a result of joint working…Psychological services and this agency have so many common clients that there is now an opportunity to build on the work done in schools by both teachers and psychologists, and this continuity is of great benefit to the clients.'

'The transition passport development brought by PSPS has greatly enhanced the transitions of the individual young people.'

Staff training and support:

'The Pathfinder psychologist attends team meetings, delivers training, gives advice on techniques and strategies for any difficulties staff may be having with individual young people and validates what they do, giving them confidence dealing with the young people they are responsible for.'

5.30 Box 5.1 provides an illustration from a Pathfinder area of PSPS, with a focus on training, provided to one of the Get Ready for Work training providers.

Box 5.1 Training for training providers

Experience of a Get Ready for Work training provider: Pathfinder area

'Access to PSPS support has made an enormous difference to management, staff and trainees. We work with very challenging young people, and it is very easy for staff to get "world weary" and start to doubt themselves. Having external support offered to them was invaluable. Staff are very dedicated and experienced but they are vocationally trained as joiners or decorators and have no educational training background. They benefit greatly from the educational and motivational strategies suggested by PSPS, and their morale is also boosted by the fact that the PSPS staff recognise the great expertise training staff have in working with very challenging young people.

PSPS can learn from them too. Training providers deliver education to young people alienated by school, and they deliver education in a different way from schools and colleges. The Pathfinder was a great listener who consulted extensively with management, and then separately with staff, to become familiar with the organisation and find out what he could offer them by way of training. The services he offered were excellent.

The training explored the reasons behind a young person's behaviour, and provided a different perspective on it. Different strategies to deal with it were suggested, and staff can take this forward in their dealings with clients.'

Evidence from all sources

5.31 In addition to questionnaires and interviews, a considerable body of further evidence in relation to OSPs was gathered in relation to the views and experiences of young people (covered in detail in Chapter 6) and the contribution of the SOs (covered in detail in Chapter 8). Where PSPS has been provided to Careers Scotland it has supported the key priorities of engaging with the NEET cohort, keyworking and mentoring with this population and developing effective needs-led assessment. Both Pathfinder services and the Strategic Officers have endeavoured to meet these needs by training and upskilling staff in relation to client engagement and motivation. Where PSPS has been provided to Get Ready for Work local forums it has identified training needs through early audit with stakeholders and delivered training to support these needs in areas such as behaviour, anger management and client engagement

5.32 Initiatives in several Pathfinders have led to enhanced continuity, consistency and availability of service provision and the increased engagement of young people and parents. These include young people having an agreed 'passport' available for relevant agencies and to serve as a basis for planning future transitions such as going from Get Ready for Work to college, and clients of services experience agencies working with more consistency, common purposes and shared strategies as a result of policy and interagency training developments. Such initiatives are reported separately in Chapter 6.

5.33 A further key area of development (also reported in more detail in Chapter 6) relates to the NEET population and to PSPS work with Careers Scotland, carried out both in relation to individual young people and also at strategic and training levels, with disengaged individual young people referred on to Careers Scotland by PSPS to receive guidance in career planning, as part of collaborative working, and PSPS training leading to improved groupwork by Careers Scotland staff working in school-based programmes, contributing to engagement and retention of young people.

5.34 Key stakeholders in Careers Scotland, Scottish Enterprise, the voluntary sector and other post-school agencies indicated that they had received an extensive contribution from the SOs in enhancing their ability to promote improved outcomes for young people. Significant differences between Pathfinder and non-Pathfinder areas were shown in four aspects: training, strategic planning, transition planning and contribution to assessment procedures. Specific points noted included adding value for the NEET group, for example, by building capacity where resources were scarce, and helping service providers to develop new policies to respond to changing contexts, such as new client groups and the requirement for new roles to address their needs.

5.35 At a national level with Scottish Enterprise the contribution of the SOs included supporting their role as commissioning agent for Get Ready for Work training providers, concerned with promoting best practice, establishing a common assessment framework and promoting consistency and improved client outcomes. This has been done through training and consultation supported by local delivery from Pathfinders. In all of these areas the services provided have been valued and have resulted in enhanced outcomes for young people.

Summary

5.36 This chapter has summarised the evaluation in relation to Careers Scotland, Scottish Enterprise and other training and service providers throughout Scotland under the headings of service delivery, current and anticipated PSPS developments, barriers to and gaps in service and ideal services and effectiveness. It has provided an overview of the results obtained both from questionnaires returned by 49 OSPs and individual interviews held with 36 of them.

5.37 The conclusions are that the extensive differences reported by psychological services between Pathfinders and non-Pathfinders have been strongly supported in relation to this sector. The number of OSPs is very large, and many are isolated and are not part of any wider structure, but steps have been taken in a targeted way to establish effective services. These services, including strategic officer delivery, are contributing to key objectives of the initiative in improving outcomes for young people in a variety of ways such as improving information transfer and transition, supporting effective joint working and enhancing staff skills and knowledge.