Scottish Government

CHAPTER FOUR CONSULTATION FINDINGS : PREPARING FOR ACADEMY ENGAGEMENT

Table 4.1: Key Points from Chapter Four

Introduction

4.1 There are a range of process measures relating to the C1400 YCL programme which were reviewed as part of the evaluation. Findings have been drawn from the 1-1 consultations undertaken with C1400 staff, SS and YCLs. Key measures for examination in this chapter are:

• eligibility / selection of YCLs for the C1400 YCL programme
• eligibility / selection of SS for the C1400 YCL programme.

Eligibility / Selection of YCLs for the C1400 YCL Programme

SS Orientation Sessions

4.2 An element of the C1400 YCL programme which has grown in strength over the pilot period has been the three-day orientation programme for SS. Here, interested SS (from LAs / organisations who may or may not have taken part in previous academies) are invited to spend three days on Skye with the C1400 staff, exploring the approach, content and structure of the academies.

4.3 These programmes have proved extremely valuable in ensuring that SS have a keen sense of what the academy - and the pre and post phases - will involve. These orientation days offer SS an opportunity to reflect on how C1400 will 'fit' in the longer term with the wider plans and vision of the LA, in their support to the YCL group.

4.4 These sessions also provide SS with key insights into the types of YCL who are likely to benefit from taking part in C1400. As such, the orientation sessions are intended to assist SS in making decisions about YCL eligibility for academy participation. As a 'rule-of-thumb', C1400 recommends that YCLs who are facing relative 'stability' in their lives, are likely to engage more willingly with the academy content and approach than those who are experiencing heightened levels of instability. The academy is recommended for those YCLs who require a 'boost' to ensure focus on, and retaining a positive direction for their futures.

4.5 SS have intimated that this is a key issue in considering eligibility and is helpful in undertaking early planning for possible YCL participation.

A Necessarily Flexible 'Selection' Approach

4.6 LAs / agencies have applied C1400 recommendations in 'selecting' YCLs on the basis of their apparent 'readiness' to engage with the C1400 academy. 'Selection' tended to be governed by SS views of the YCL's maturity and proactivity in preparing for life beyond care - whether this was related to EET options, the transition to independent living or the development of 'core life' skills. This 'selection' criteria was necessarily flexible and all SS noted that a more rigid approach to selection could be counter-productive.

4.7 Defining 'readiness' to engage with C1400 is not based on any single criterion. As such, there is always likely to be an element of 'risk which can operate at two levels: 1) the YCL is not 'ready' to engage with C1400 and might find engagement with the week-long academy challenging. This can result in the young person being sent home before the end of the week. 2) an element of 'deadweight' might exist, whereby the young person does not achieve much more from their engagement with C1400 than they might ordinarily have achieved, any way (in the absence of C1400). This might include sustaining or making transitions to EET or independent living.

4.8 While the presence of the first of the above risks might cast doubts on C1400's 'success rates', the second 'deadweight' risk could make the programme seem more successful than it actually is.

4.9 However, there is no evidence to suggest that LAs are selecting YCLs inappropriately - through selection based on either of the risks noted above. However, due to the necessarily flexible 'selection' mechanisms, there can be no guarantees that some C1400 participants will have successful engagements with C1400, or that they would have made successful transitions, anyway, in the absence of C1400 or any other intervention/support.

4.10 The predictability of how and when YCLs make successful and sustainable transitions to EET and independent living is complex. It is clear that LAs are identifying YCLs for the C1400 programme that they feel would benefit from additional support to make or sustain transitions to EET and / or independent living.

4.11 In terms of the 'hardest to reach' groups of YCLs and those with the most complex needs, it should be noted that the C1400 programme is not intended for such young people, since they are less likely to be ready to embrace the learning from the programme. It is rare that such individuals are selected for programme participation, since early experience has shown that they are usually unable to sustain the week-long attendance or to be deemed 'ready' for academy graduation.

4.12 Such participation can be counter-productive, since a less than satisfactory academy experience can be detrimental to both the individual YCL and to the other YCLs on the same academy.

Phase 1 as a Selection and 'Sorting' Mechanism

4.13 Phase 1 continues to act as a key mechanism in preparing YCLs for the week-long academy and in acting as a 'sorting mechanism' to separate those who demonstrate readiness to become engaged with C1400 from those who do not.

4.14 In two of the four consulted LAs who have taken part in C1400, the Phase 1 preparation stage had been further developed since their early engagement with C1400. There were clear indications that SS were encouraging young people to take a more active part in deciding whether they were 'ready' to participate in C1400. This could involve discussions with the YCL or reviewing their progress over the period of Phase 1 preparation. Where a YCL indicated disinterest or lack of engagement during Phase 1, this acted as a clear signal to both SS and YCLs of their lack of readiness to take part.

4.15 This approach to Phase 1 is very much in line with the ethos of C1400 - it encourages the YCLs to take some responsibility for deciding on their readiness, as opposed to this decision being made solely by others. SS felt that this placed more 'ownership' of outcomes with the YCL, and a greater likelihood of the C1400 experience being taken more seriously by those who progressed beyond Phase 1 to attending an academy.

4.16 This signals a departure from early 'reactive' selection mechanisms which were more common during the early stages of the pilot, and where LAs were in the early stages of working with the C1400 programme. It is clear that experience of the programme has resulted in some LAs adopting more of a 'Columban- oriented' philosophy to the preparatory work required at Phase 1. This 'transfer' of ownership from SS to YCLs in taking greater responsibility for their engagement with C1400 appears to have had a positive impact upon both the 'readiness' of YCLs to take part in C1400 and in completion of and graduation from the academy.

4.17 While this transfer of ownership was more evident in 2 of the 4 consulted LAs who were involved with C1400 ( please see chapter 5 for further details), there were some positive signs of this happening across all 4 consulted LAs.

Local Awareness of C1400 - Generating Interest and Demand

4.18 There was also some evidence to indicate that - where Phase 1 preparation was embraced positively by the YCLs and was well-promoted by SS - other YCLs who were not involved in academy preparation were showing interest in the programme. In two of the four C1400-involved LAs, the Phase 1 work at a local level also acted as a positive 'word-of-mouth' marketing mechanism, in generating interest among the wider YCL group.

4.19 It was not always clear that local SS appreciated the value of this 'word-of-mouth' mechanism in generating YCL interest in future academy attendance. While there is a need to manage expectations about suitability for attendance, there appears to be potential in using C1400 as an incentive for YCLs to demonstrate their 'readiness' to take part. A managed approach to local 'marketing' of the C1400 programme would assist in ensuring that the widest possible - and suitable - range of YCLs have access to the programme.

4.20 Linked to this is the need to ensure that local partner providers have information about C1400. In the four C1400-involved LAs who were consulted in the study there had been limited efforts to make local partner providers aware of the programme. It is likely that these partners - together with LAs - are working with a larger, collective population of YCLs than any one organisation is exposed to. While C1400 will not be suitable or appropriate for all of these groups, there are likely to be individuals who might benefit from taking part.

4.21 However, there are now clear indications that LAs are beginning to make more strategic linkages with 'internal' partners to plan for C1400 participation. In two of the consulted LAs, C1400 engagement 'stemmed' from Leaving Care Services ( LCS) teams, who have since consulted with local residential care teams, to engage a wider group of YCLs. This approach serves a dual purpose:

• it ensures that YCLs who are operating at the 'cusp' of service provision (between LCS and residential units) can be better served by communication across these teams
• it offers an 'early identification' system for young people who are about to leave care and who can engage with C1400 early in this process. Several SS noted that this 'early intervention' approach is likely to prove more effective in the longer-term.

4.22 The above approach also serves to foster greater relations and partnership working between LA teams and services that support YCLs. Where SS across the teams attend C1400 - together or separately - their 'common bond of practice' is likely to foster greater partnership working in the future. This is an area which deserves greater emphasis at a strategic level within LAs. C1400's potential as a mechanism to enhance partnership working arrangements, for improved service delivery to the YCL group is likely to be of interest to LAs at senior levels.

4.23 One LA which is currently gearing up for participation in C1400 undertook a programme of systematic awareness-raising with local partners about C1400, on return from the three-day orientation session. This demonstrates good practice in ensuring that C1400 is opened up to all YCLs who might be eligible to take part, rather than a more exclusive or confined offering.

4.24 There appears to be more development work required in how C1400 can act as a catalyst to bring together partners who deliver services to the YCL group. C1400 national guidance should be developed in this area, based on the good practice which already exists. This is, also an area which could be emphasised more clearly during SS orientation sessions, which precede Phase 1 preparation with the YCLs.

EET / NEET Eligibility

4.25 In the early stages of the pilot, some ambiguities existed regarding whether YCLs who were already in EET would be eligible for participation. More recent consultation has confirmed that - where a YCL might be in EET at pre-C1400 stage - the programme would be used as a vehicle to support the sustaining of this status. There appears to be consistent practice in this area. As indicated earlier in this chapter, of greater relevance is the issue of YCL 'readiness' to engage with the programme regardless of current 'status'.

4.26 However, where inconsistencies in practice did emerge was in how YCLs can 'protect' their benefit entitlement if NEET and planning to take part in C1400. One LA intimated that this has proved to be a key challenge since the Department for Work and Pensions ( DWP) does not recognise C1400 as a legitimate 'exception' where attendance would not affect monetary benefits.

4.27 In such cases, the LA has been known to 'subsidise' the YCL to ensure that they are not penalised for attending an academy. This is an issue which merits further investigation at a national level, since the intention of the C1400 programme is to support the YCL to move from benefits dependency in the future.

4.28 As the C1400 pilot has developed over the two-year period, a range of mechanisms have been developed and tested to engage as wide a group of YCLs as possible, who would be eligible to attend. Increasingly, the emphasis has been placed on YCLs to demonstrate their potential to take part in C1400. This helps to build their commitment to the programme during Phase 1 and is likely to support their week-long academy engagement.

Eligibility / Selection of SS for the C1400 YCL Programme

'Introducing' C1400 to the LA

4.29 SS participation in C1400 continues to be heavily influenced by LA senior level approval to engage with the C1400 programme. The C1400 national team's early approach to targeting LAs was to make in-roads with senior management in social work departments / divisions of departments. This could be defined as a 'top-down' introduction to C1400. It was recognised early in the pilot that this was not always the most effective way to engage local level teams in C1400, since this depended upon the C1400 message 'filtering' from senior management to these local teams.

4.30 Local team awareness and knowledge of C1400 was thus dependent upon senior management 'gatekeepers' demonstrating early interest and commitment, and ensuring that awareness of C1400 was a local priority. In practice, in at least two of the six targeted LAs, local cascading of the C1400 was slow to progress and was greeted with less enthusiasm than in the other four LAs. This is an important issue as an early 'barrier' to local awareness about C1400 was created.

4.31 The C1400 national team has since developed a wider range of tactics to introduce C1400 to LAs and organisations, which are not dependent upon 'top-down' awareness-raising.

'Targeting' LA Teams

4.32 In three out of the four consulted C1400-involved LAs, the programme was 'targeted' at Leaving Care Services ( LCS) teams. In the other LA, the programme was introduced to a wider range of teams but the greatest area of interest was shown by the Youth Justice team. Over time, C1400 has began to engage a wider range of teams and SS within C1400-involved LAs. For example, in one LA the Youth Justice team has began to work closely with the LCS team to select and recruit SS and YCLs and in two LAs, the LCS teams are working with staff from residential units to do the same.

4.33 However, it is not clear that either C1400 or local services are adopting a 'strategic' approach to achieving this. There does not appear to have been either senior level direction in making this happen, or local co-ordination.

4.34 With a heavy dependency on generating a 'critical mass' of C1400 engagement at a local level, this area requires further consideration at C1400 national level and local senior management levels. Beyond LA partner involvement, this should also be cascaded to local partners who have a role to play in providing services to the YCL group.

4.35 It was not clear that sufficient 'mileage' is being generated in 'getting the C1400 message out' at a local level to the wide range of partners and organisations who form part of YCL support. This indicates a potential missed opportunity to generate a critical mass of local support for C1400 and to engage a wider range of partner agencies in the C1400 'philosophy'.

The Role and Influence of LA Management

4.36 The extent to which senior management remain informed about progress with C1400, beyond the initial commitment to take part, varies quite significantly from one LA to another. While day-to-day operations should be dealt with at local team level, there is a continuing need to ensure that C1400 remains on the 'radar' of senior management since decisions to engage with the programme in the future, will be made at this level. Limited evidence of management monitoring of C1400 or for regular feedback concerning the effectiveness of the intervention is likely to impact upon longer-term commitment to C1400, across the LA.

4.37 Some LAs did demonstrate some progress in this area, through - for example - ensuring that C1400 features in quarterly management meetings and that regular reports and updates are provided. Such accountability mechanisms will be important in ensuring that senior management are sufficiently aware of the aims and progress of C1400.

4.38 In one LA where on-going senior management feedback concerning C1400 has been absent, recent concerns were raised by senior management about the value of the programme. This was because several young people had been sent away from the academy before the end of the week due to their lack of engagement with the academy content. Where senior management are made aware of only the 'bad news stories' concerning C1400, they might question future involvement.

4.39 In areas where a 'disconnect' is apparent between operational activity and senior management feedback about C1400, it appears that a 'link' co-ordinator role is absent. This role should serve to ensure that information is fed 'upwards' and 'downwards' regarding C1400 activity and direction.

4.40 For new and existing C1400-involved LAs and organisations there is a need to emphasise the importance of this 'linking' between senior management and C1400 operational activity. This will ensure that effective accountability mechanisms are in place and that local involvement with C1400 in positioned within a longer-term context and vision for local YCL services. This is also likely to support longer-term engagement with the programme and a clearer structure and plan for engaging a wider range of relevant partners and services.

4.41 The programme's sustainability, at a local level, is dependent upon this since there will be a wide range of potentially 'competing' priorities which will influence senior level decision making about local service provision. In the future, should a more devolved model of funding be developed, LAs are likely to look more critically at C1400's value, in comparison to other types of intervention.

4.42 This is an area which appears to require more guidance and support from C1400. LAs require a strategic and longer-term perspective on how they work with C1400. An operational focus, which might offer incremental benefits for the SS and YCLs taking part in the programme, is unlikely to convince LA senior management of the longer-term value of the programme.

SS Involvement in C1400

4.43 Local logistics and service priorities will always strongly influence the extent to which SS can engage in week-long academies. Staffing and delivery pressures are ever-present in dealing with the YCL client group and this makes SS attendance at the academies challenging.

4.44 However, it is clear that different LAs are addressing this issue in different ways, which are dependent upon senior level commitment and the extent to which C1400 is viewed as an integral part of local service delivery, or as an 'add-on' which is 'nice to have'. In the absence of senior level support to engage with C1400 - and so release SS to take part - there are long-term challenges in local areas to embed C1400 practice and to generate sufficient capacity to engage with the Phase 3 work.

4.45 As such, SS 'selection' to take part in C1400 is often governed by logistics and commitment to release staff to take part. In 2 of the 4 LAs, where SS attendance at C1400 has been consistent, clear commitment to 'make this happen' exists across SS and management. In the LAs where this was less evident, fewer SS were able to take part in C1400, limiting local ability to build a critical mass of experience.

SS Commitment to C1400 and the Influence of Local 'Culture'

4.46 LA engagement with the programme remains a significant undertaking for the SS concerned. There are generally high levels of 'goodwill' involved, to ensure that C1400 retains its profile at a local level and to undertake the necessary planning, which - in turn - creates the 'space' for SS and YCLs to attend an academy. While local staffing levels will have a clear influence on how LAs can engage with C1400, it should not be assumed that this is essential. In the consulted LAs, SS reported local challenges with staffing yet devised creative solutions to ensuring that the C1400 support did not suffer as a consequence of this.

4.47 It appears that when C1400 is viewed as an 'add-on' to already pressurised workloads, SS are less likely to engage positively with the programme. However, regardless of local staffing, where C1400 is viewed as an 'enabler' of local level support, and as an integral part of local service delivery, there were few concerns about the resulting workload.

4.48 One SS member noted that his local team re-engineered their timings for C1400-related group work, in order to ease time pressures for staff. However, it was also noted that a 'nine to five and process-oriented' approach to work would not rest easily with the C1400 programme. This is due to the flexibility which is required in supporting young people, especially through the group work sessions, which form part of Phase 3.

4.49 This points to the importance of the local operating 'culture' - the ethos and working practices of both SS and management.

Local Service Provision and C1400

4.50 The two LAs who appeared most obviously committed to C1400 were also based in or close to the Central Belt. This makes access to other YCL-related services easier than in those other LA areas where - due to geography - services are more remote. While there cannot be assumed to be a causal relationship between C1400 engagement and proximity to partner services, it would appear that this proximity strengthens momentum to pursue C1400 objectives ( EET and independent living), on return from the academy.

4.51 As was noted earlier in this chapter, the importance of a critical mass of local partnership working is likely to have an impact upon the longer-term effectiveness of C1400. Equally, partnership working which is constrained by local geography (and the proximity of partners to each other) is likely to constrain the reinforcing of the C1400 'message' at a local level.

SS Attendance at C1400 Academies and Impact on Practice

4.52 The C1400 team aims to involve SS and YCLs in the week-long academies for purposes other than graduation. Individuals can attend an academy on a second or third occasion to further develop their skills and understanding of C1400. It is intended that learning about C1400 values and methods of working with YCLs will encourage more reflective local practice and generate a critical mass of thinking and practice at SS level. This can then be 'transferred' to local practice, more generally, with the aim of re-invigorating the support offered to the YCL client group.

4.53 Academy attendance on more than one occasion is viewed as a significant development opportunity for SS, the benefits of which are explored later in the report. SS attendance is also of benefit to the C1400 team as an additional resource for the facilitation of the academy.

4.54 The C1400 team continues to place importance on encouraging SS, in particular, to take part in more than one academy. The aim of this is to reinforce learning which can then be applied more effectively and confidently, when SS return to the local working environment. While there are likely to be constraints in releasing SS from their day jobs to attend academies, there is evidence that SS are using these experiences to build capacity in local services, through transferring the skills and ethos back to the workplace.

4.55 Over the two-year pilot period, several LAs have placed strong emphasis and commitment towards this aim and have reported positive results in workplace practice. This includes stronger permeation of the C1400 'message' to other SS and local partners and the building of an ethos of local practice which adopts C1400 principles. YCLs from these areas also noted the strong reinforcement of C1400 which exists in these local areas. Importantly, this is felt to impact upon relationships with YCLs and to offer enhanced support to this client group.

Overview of SS Selection and Eligibility for C1400

4.56 The level of 'targeting' C1400 within LA settings is likely to have an impact upon how - if at all - messages are cascaded and promoted to SS and to local partners. The 'top-down' approach adopted by the C1400 team at the outset of the pilot has been supplemented more recently by a 'bottom-up' approach, whereby interest is gauged at SS levels, with communications then fed upwards. In practice, a combination of these approaches is likely to be necessary to engage interest in C1400 across a wider range of 'levels'.

4.57 In two of the four consulted LAs who are involved with C1400, strong in-roads have been made to engage a wider range of SS across LA services for YCLs. There is a need to emphasise the importance of this beyond LA services, to other YCL-related services. This will also in building the local critical mass needed to embed C1400 principles.

4.58 Greater efforts are also required to ensure that senior management remain informed of local progress with C1400 and their role in influencing future commitment to the programme.

4.59 There are roles, here, for both local SS and the C1400 national team. Examples of practice in how LAs are sustaining momentum for C1400 could be shared across LAs, with particular emphasis on SS practice.