CHAPTER EIGHT WORKING FOR FAMILIES PROJECTS
This section explores some of the projects developed under WFF based around a series of key themes. The themes are considered under four general categories: Key Workers; Issues; Client Groups; and, Childcare. Information within this section is drawn from a series of case study exercises, carried out between February and June 2006. It was gathered in order to identify, although not to provide an in-depth evaluation of, different delivery mechanisms and to provide qualitative evidence on the experiences of clients. As many projects only started relatively late in Phase 1 of WFF, they have often been operating for an insufficient time to determine the success or otherwise of specific projects, particularly as many clients need considerable time to make significant progress. Further information is in Technical Annexes T8A-C.
The Project Case Studies:
I. Key Worker Projects
II. Issues
1. Transport
2. Working with employers
3. Improving access to training
4. Volunteering
5. Health and disabilities
6. Money advice
III. Client Groups
7. Supporting young parents
8. Parents in education
9. Lone parents
10. Hard to reach (outreach)
IV. Childcare
11. Subsidy Schemes
12. Developing childcare workers
13. Developing childminders
14. Flexible childcare
15. Crèches.
8.1 KEY WORKERS PROGRAMMES
'Key Worker' programmes were those that used dedicated link workers (offering 'outreach' or peripatetic service to clients within a community) who formed the main point of contact for an individual client. This provision was central to the WFF programme across all the local authority areas, except one (which was taking steps in 2006 to adopt a form of Key Worker model). However, even the area that did not start out with this model (Dumfries and Galloway) felt that a type of 'Key Worker' model had emerged, insofar as the structure of the service given to clients. The Key Worker programmes were the 'hub' of the delivery of WFF in local areas.
Key Workers took a 'holistic' perspective of the client and worked to build up a trust relationship, becoming familiar with their personal and employability issues. The Key Workers acted as a support, giving advice and guidance where they were competent to do so and linking the client into other specialist services where needed, while remaining in contact with the client throughout their time with WFF. In addition, in most local areas Key Workers also provided assistance to develop tailored packages of childcare to suit their clients' needs.
Key Workers supported clients who wished to move into work, education or training through:
- helping them to improve their employability; and
- addressing the childcare and other practical barriers that stood in their way.
Clients were helped to improve their employability by establishing goals and producing a personal action plan that linked them to the various types of employability support available locally. These included: personal development courses to boost confidence and self-esteem; education and training to improve skills and qualifications; careers advice; money advice; and work experience - all helping the client to progress towards or into work. Key Workers helped co-ordinate and 'join up' these services for individual clients.
A second key element of WFF support was helping clients to identify and access the childcare they need at each stage. Often this took the form of information and advice, linking them to an existing childcare place, but it might also involve financial assistance ( e.g. paying one-off, 'upfront' nursery registration fees, or paying for childcare while a parent attended education or training, or paying for childcare for a short time until tax credits came through).
Hence The Key worker provides a central point of contact and continuity with a client so that they can be supported to improve, where appropriate: their confidence and feelings of self worth; ability to manage family life, family issues, stress etc.; develop skills related to their employability; develop a network to help them gain work, training, volunteering etc. and develop employment related and other social networks; provide greater control over their decisions to the parent; and provide an incentive to continue improving their employability and employment.
The Key Worker approach would appear to be particularly effective since many of the positive client outcomes can be linked to Key Worker involvement (most clients with WFF have contact with a Key Worker) and specifically 46% of clients registered through a Key Worker programme achieved a 'hard' outcome compared to 30% on non-Key Worker projects (although these figures need to be taken with care as in many areas most or all of clients were registered through Key Worker projects but received assistance from others).
8.1.1 Delivery organizations and location of Key Workers
The majority of Key Worker models were delivered by social economy organisations, with two delivered by the LA economic development/ regeneration department and one via another LA department. In at least one areas key workers were spread across a few social economy organisations. In most areas key workers were treated by the WFF co-ordinator as members of a joint WFF team, regardless of their employing organisation. In one or two areas it was harder to achieve this joint team approach due to the different perspective of the management of the employing organisation.
In terms of area Key Workers were based either in a central location or in separate local communities (for example, in Highland due to wide geographical area, or Glasgow which has a much larger and denser population).
All Key Workers offered 'outreach' or peripatetic services to clients in the community. There were a variety of locations where clients would be seen, for instance, within Jobcentre Plus, Community Centres, Childcare Providers, Training Providers and in the clients' own homes. Usually, clients would be seen 'wherever best suits the client'.
It is suggested that, where possible, outreach services are offered to clients and that suitable venues are identified or established. It was felt that flexibility in where clients could be seen was useful to meet individual client needs. However, there are 2 specific aspects to consider when identifying appropriate locations: the suitability of the home and whether there is some way of occupying accompanying children to permit a focussed discussion with the parent. Home visits do have the advantage of being convenient and comfortable for the client who can more easily look after their children. However, home visits need to be considered in the light of existing council policy, worker safety and preferences and the additional resources required.
KEY LEARNING There was no evidence to suggest that placing the delivery of the Key Worker programmes in social economy organisations was better or worse than delivery directly via the local authority. Choice of delivery organisation depended largely on local circumstances, e.g. availability of potential delivery organisations. Placing the programmes within an external organisation could be of benefit in tapping into existing expertise and resources, but experience in a few areas showed that co-ordination of workers based in social economy organisations could potentially be more difficult than those based in the LA due to communication with management in the host organisations. Terms and conditions of equivalent workers could also vary. It may be preferable to place Key Workers within specific local communities under the following circumstances: where local populations are dispersed over a large area, where particular unique local population profiles have been identified, or where this fits in with existing service structures ( e.g. Glasgow). However, where these are not requirements, centrally based staff carrying out extensive 'outreach' work in the community seems more appropriate. The most appropriate organisational 'home' or location of Key Workers appeared to depend on local circumstances. |
8.1.2 Client groups
The majority of clients overall were Sustained Contact (77%) - i.e. there was an on-going relationship with the client over a period of time. In one area the majority of clients were Limited Contact - i.e. there was a 'one-off' meeting or a few meetings around a specific issue. In some areas, clients were almost exclusively Sustained Contact.
The majority of clients were female and single parents, although there were variations between areas. One development of the Key Workers model was that some areas had, or were developing, Key Workers to specialise in different client groups/themes e.g. mental health or young parents. The client groups chosen would generally depend on community characteristics and needs and/or Key Worker interests and expertise, or other organisational priorities.
There were small numbers of unexpected clients, such as grandparents, and some groups were found to be harder to reach than others, for instance, single fathers etc. More research is required on these groups .
KEY LEARNING In general it would appear useful to adopt an approach that includes support for both Sustained and Limited Contact Clients. One-to-one 'holistic' support over a period of time is important in order to help clients with a complex of needs ( e.g. many Sustained Contact Clients). Although Limited Contact Clients may need a lower level of support, the Key Worker approach can still help them in the short term and is available to give further support if other issues arise. Limited contact clients do not generally require the same degree of support (in terms of range and depth of support) as Sustained Contact Clients. Key Worker support is hence more essential for Sustained Contact Clients. The range of skills and expertise amongst Key Worker teams and/or projects needs to reflect key client group needs. |
8.1.3 Geographical cover
Most of the areas focused on clients in deprived areas which had been identified in the original proposals. However, in many cases if a client lived outwith the identified areas, but met other WFF client criteria ( e.g. lone parent, low incomes, multiple stresses), then they could still access the service. In some areas, more rigid geographical boundaries were laid down restricting access.
KEY LEARNING Some flexibility in dealing with client eligibility may be useful, although as the WFF becomes larger this may be difficult to sustain (given the needs for equity in treatment of potential clients). Setting too narrow a geographical boundary may limit the number of eligible clients who can access the services. Mechanisms should be considered for efficiently allowing clients to access WFF funded services in neighbouring LA areas. This is likely to be a larger issue for smaller LAs around larger cities, where key services are concentrated in the city. |
8.1.4 Rurality
Some areas faced additional issues of both rurality and covering a wide geographic area. (See also the Transport case studies).
In rural areas, transport problems can present particular restrictions for clients seeking to move into employment, training and education and to access childcare. Lack of transport can compound other rural problems such as lack of employment opportunities, apprenticeships, limited supply of childcare (particularly out of hours), employability support services and shortage of affordable housing.
Rural areas present special challenges for WFF, particularly in terms of cost-effectiveness and sustainability. The distances between services, employment, training and education, childcare requires additional resources in terms of time and costs required for transport. Lack of public transport or disconnected services, can mean access to a car and possession of a driving licence are essential. There may also be limited numbers of clients due to the population dispersion; making difficult for a suitable transport service to be sustainable without heavy subsidy.
Rural communities differ from each other in characteristics and needs (depending on geography and the structure of the local economy etc.). Individuals, particularly lone parents, can be at greater risk of social isolation. The physical isolation of rural communities can compound these issues. Being on a low income in rural areas can have a greater impact because costs of living tend to be higher than in urban areas, where money stretches further
In addition, some areas have also reported problems in recruiting staff to operate WFF services, one of the reasons being because the pool of suitably qualified staff was particularly small and another being the terms and conditions of employment, such as the temporary nature of many contracts .
KEY LEARNING Adopting the Key Worker approach in rural areas would appear to be the most successful approach. Of the two rural areas in Phase 1, the one operating the Key Worker programme was more successful in terms of recruiting clients and achieving outcomes for clients. The other area was taking steps to develop a Key Worker model into Phase 2 WFF. However, WFF has had a relatively low success rate in placing clients into work, training and education, particularly in one rural area (and particularly in areas remote from large towns and opportunities). |
8.1.5 Key Worker staff
Numbers and roles of 'Key Workers' varied between areas, with one area having as many as 8 Key Workers (albeit 60% FTE) and another with only 2 Key Workers (100% FTE).
In the largest area, Glasgow, the roles of Key Workers were split into two distinct functions of 'Childcare Mentors' and 'Guidance Workers'. The former provided information and/or accessed childcare on behalf of clients and the latter provided more intensive guidance and employability support. Initially, in most other local authority areas, these two broad functions were generally compounded into one role, although the actual balance between these roles varied. However, during the course of WFF, some areas have separated these roles to an extent. For instance, one area developed a Childcare Mentoring Project separate from the Key Workers Project (but linking in). In some other areas, Support Workers and even the Core Administration Team were providing information and support with arranging childcare for clients. In other areas, the Key Workers concentrated more on the Childcare Mentoring role, referring clients onto other services or projects for more specialised guidance support.
Key Worker projects differed in their approach to the use of generic or specialised Key Workers. In a couple of areas, most or all of the Key Workers had a specialist area ( e.g. working with clients: with drug and/or alcohol problems; single parents; mental health issues; disabilities; ethnic minorities), sometimes only seeing clients with these particular issues. In many areas, Key Workers were generic, i.e. working with a range of clients with different issues and needs.
Two areas indicated that there had been ongoing problems with recruiting Key Workers or Support Workers. In one case, this had been eventually been overcome, but in the other, an alternative delivery mechanism had had to be developed because workers could not be recruited.
8.1.6 Capacity and demand for the service
A number of Key Worker Projects experienced an unanticipated level of demand for the service provided, leading to problems meeting capacity and high staff workloads. In most cases, these issues were resolved by recruiting additional Key Worker and Support staff in order to meet demand. Generally, after a period of two years from the start of the WFF programme, demand for the service had stabilised to a more predictable level, although there was still scope for expansion by offering the service more widely within existing local authorities (where this was not already the case) and by expansion to other local authorities (ten additional local authorities received funding from 2006).
8.1.7 Success of Key Worker services - Summary of conclusions
The Key Worker approach would appear to be effective since many of the positive client outcomes can be linked to Key Worker involvement (most clients with WFF have contact with a Key Worker) and specifically 46% of clients registered through a Key Worker programme achieved a 'hard' outcome compared to 30% on non-key Worker projects (although these figures need to be taken with care as in many areas most or all of clients were registered through key Worker projects but received assistance from others).
It is difficult to say if the Key Worker model has worked better in some areas than others because the different types of clients and local circumstances make comparison problematic, although as more experience and data were gathered under Phase 2 of WFF it should be easier to take these factors into account. Glasgow's Guidance and Mentoring model appears to have been particularly successful (with 58% of client achieving a 'hard' outcome) within the context of a large urban area. This was partly because of the strong existing service infrastructure in the area but also because of the development of appropriate services, e.g. Specialist Guidance workers alongside Mentoring workers working closely together within specific local communities. However, the Key Workers in North Ayrshire and Renfrewshire also achieved a high success rate in terms of clients achieving 'hard' outcomes with 57% and 55% respectively. All three areas differed from each other in a number of points including type of delivery organisation and where Key Workers were based
KEY WORKERS - SUMMARY OF KEY LEARNING Key Workers are central to the WFF programme delivery, forming the key link between clients and services and providing various types of support for different types of client. The Key Worker approach would appear to be particularly effective since many of the positive client outcomes can be linked to Key Worker involvement. The success factors of this approach would seem to be: - Offering one-to-one support that was 'holistic' and tailored to client needs, thereby able to meet the needs of a range of clients
- Linking with other services ( WFF and non- WFF in order to meet client needs)
In some cases offering outreach services to clients in local communities appeared to be very effective. Glasgow's Guidance and Mentoring model appears to have been particularly successful within the context of a large urban area. This is partly because of the strong existing service infrastructure in the area but also because of the development of appropriate services, e.g. Specialist Guidance workers alongside Mentoring workers working closely together within specific local communities. |
8.2 ISSUES FACING CLIENTS
This section illustrates the variety of projects dealing with specific issues faced by WFF clients. As many projects only started relatively late in Phase 1 of WFF, they have been operating for an insufficient time to determine the success or otherwise of specific projects, particularly as many clients need considerable time to make significant progress.
8.2.1 Transport
Transport to employment, education/training and other activities and childcare has been identified as a major barrier to many WFF clients. In response to the demand for transport solutions around half of LA areas adopted specific transport projects, although these have taken different forms in response to different travel issues. For instance, the Job Shuttle in North Lanarkshire offered information and assistance in travel planning, in particular giving information on public transport services, timetables and accessing available transport subsidies (where eligible) to WFF clients throughout North Lanarkshire. In addition, two minibuses were deployed to assist clients to access work, childcare, education or training (where alternative transport was not feasible).
The cost and availability of public transport services in rural and semi-rural areas was a particular barrier to some WFF clients, limiting the options to employment etc. and childcare options available for them. In response to this rural transport options have been developed. For instance, in Dumfries and Galloway a series of Access to Work projects have been established, which offer driving lessons to WFF clients.
8.2.2 Working with Employers
Some WFF projects specifically aimed to engage employers in three key ways:
(1) Providing aftercare support to WFF clients who have moved into employment, for instance, negotiating with employers when clients have childcare problems or other issues that may compromise their ability to sustain their employment. Key Workers in many areas also provide after care to clients in employment. However, their capacity to provide this service was generally limited.
(2) Building up networks with employers in order to promote work-life balance issues within the workplace, e.g. advising and informing employers on the best work-life balance practices that can be adopted to retain and attract employees.
(3) Linking in with existing local initiatives that engage with employers, e.g. East Ayrshire, Highlands and North Ayrshire.
North Lanarkshire's Employment Links programme brought both 1) and (2) together in the one project. This project aimed to link WFF clients to existing employment opportunities, by providing a comprehensive package of support which addresses a series of issues, including employability, transport, skills and childcare barriers. The project was particularly successful at creating links with employers who were experiencing recruitment difficulties in order to address those issues and to make employers aware of the issues faced WFF clients.
KEY LEARNING There is a potentially valuable function in the provision of aftercare to clients in employment, in order to help them sustain that employment. This role generally emerges after a programme has been in operation for a while, since the clients who are likely to need most support in sustaining employment will not have reached this outcome in the early stages. However, since these roles in WFF are relatively new there was not enough evidence to assess their success. Promoting work-life balance among employers encompasses a broader agenda out with WFF, for instance, the Government's Work-Life Balance Campaign. In the longer term, better work-life balance practices among employers should help all employees to deal with childcare and other issues and to sustain employment, and would clearly have particular advantages to the WFF client group. However, the capacity to engage with employers at a local level will vary between different areas due to the nature of local economies etc. Linking in with local projects that already work with employers is a valuable strategy although, of course, the availability of these local projects will vary between areas. |
8.2.3 Improving Access to Personal Development and other Training (Clients furthest from the Labour Market)
Lack of basic and soft skills can often be a significant barrier to parents who are further from the labour market. Poor educational attainment and lack of confidence can reduce the likelihood of a parent entering employment and may result in a parent entering low paid, low skilled work that provides little opportunity for progression. From the early stages of delivery it became apparent that many parents engaged with WFF needed basic skills development before they could progress. A range of projects were developed across all LAs, aiming to supplement Key Worker programmes. They encompass a number of different activities, but often include personal development courses ( e.g. confidence building) and/or training in basic skills, such as IT.
East Ayrshire's Clients into Work project operates and designs personal development courses around clients referred by the Key Workers. Throughout the course, Key Workers maintain close contact with clients and provide support with any other issues that arise. The training is run in small groups (up to 8 clients) and involves confidence building and assertiveness training and aims to make clients ready to consider their next steps towards employment etc.
Rosemount Lifelong Learning Project offers a holistic support and mentoring service to clients in the North of Glasgow. Clients are provided with support from project workers in Careers Guidance, Guidance and support into volunteering. In addition, the project offers a wide range of in-house training courses (available at either Rosemount Lifelong Learning Centre ( LLC) or Rosemount Flexicentre) in various subjects such as IT, English and Maths, Counselling Skills and leisure pursuits. This Learning Centre model provided by Rosemount LLC represents an interesting way of supporting and moving clients forward. However, not all areas have such resources and often establishing these from scratch will require substantial financial investment out with the scope of WFF Fund.
KEY LEARNING The need for additional support for clients furthest from the labour market seems to be clear in many areas. Provision of personal development courses, basic skills training and confidence building can be essential for getting these clients on the route towards employment, education or training. It is necessary to offer this sort of support in areas that are dealing with a large number of clients who are not 'job-ready'. Strategies for recruiting and retaining clients on these projects need to be considered carefully in advance (including referral agencies, course content, delivery and support). There are indications that working closely with the Key Workers may be a more successful approach to this. |
8.2.4 Volunteering
Volunteering can be a valid route towards or back into the labour market for parents who need to build their skills and their confidence. Volunteering opportunities can offer training, skills development and work experience for clients.
Two areas operated specific projects aimed at encouraging volunteering among WFF clients. Dundee's Volunteer Support Project assisted clients interested in volunteering to go through their options for volunteering, set up 'tasters' and organise volunteer placements. However, only a small number of clients have taken up this option.
In other areas, there were no specific projects around volunteering but most have formed links with the local Volunteer Centre, and local voluntary agencies and Key Workers have supported clients into volunteering if that was the most appropriate option for them.
The agreed measure of counting volunteering as a Transition was 16+ hours per week (as Transitions were significant moves towards work, training or education). This proved too high for most instances of volunteering and this is partly reflected in the low level of volunteering Transitions. Further analysis of volunteering as a 'stepping stone' towards work, training and education will be possible when the projects have been progressing for a longer period.
KEY LEARNING The benefits of volunteering for clients looking to return to work need to be appreciated as a valid step for clients, by Key Workers and employability services in general. Local Volunteer Centre s can arrange voluntary work, and appropriate links should be made to this service - this may encourage a greater number of clients to go down this route. Other forms of voluntary work need also to be recognised ( e.g. serving on Playgroup committees etc.). However, there are a number of other routes clients can take, e.g. work placement and work experience, which may be more appropriate for them. It is questionable whether there is sufficient demand to warrant a dedicated WFF project worker to support clients into voluntary work in many areas. Clearly, low level of demand for volunteering is a broader issue and the appropriateness and ability of the WFF programme generally to address this is limited. Our recommendation is that funding for a specific WFF volunteering project worker should be reviewed. The number of clients using these services was too small to fully assess the success of the projects. However, since recruitment to projects has been low, it would seem that they had limited success. |
8.2.5 Health and Disabilities
In some LAs, specific projects were established to address the health and disability issues of clients and/or their children (including issues around physical and mental health, addictions as well as disabilities and respite care). In general the Key Workers also provided support which helped the general mental health of some clients, however, these specialist projects considered more severe and diagnosed cases of mental health.
In North East and East Glasgow, Guidance Workers specialised in Health and Disabilities, addressing the needs of clients with moderate to severe mental health issues (North East Glasgow), and clients with mental issues and clients with disabilities and addiction issues (East Glasgow). The Guidance Workers provided clients with personal, holistic and flexible support which aimed to build their confidence, help them access other appropriate services and ultimately support them into employment. Clients are offered the opportunity to work at their own pace and are not pushed into employment before they are ready. In this way, although clients may be slower to make progressions into employment, it is anticipated that they are more likely to sustain these progressions in the longer term.
In other areas, clients with health, disabilities or addiction issues were referred to the appropriate services in the local area for further support.
KEY LEARNING To be successful, the clients of health related projects must want to and be ready to make progress towards employment, education or training. Those with severe issues will often need to address these problems before they are in a position to make significant progress towards work. Hence those with severe problems are more likely to be assisted by specialist non- WFF projects. There is a question as to at what stage WFF support is appropriate, e.g. at what stage are clients ready to make significant progress towards work. Before WFF projects are developed to address health, disabilities or addictions issues, a review of needs and of local services should be carried out in order to ascertain if a specific project is required, given the high level of skills, support etc. needed for relevant clients. It may generally be appropriate to use existing specialist services and organisations, unless there are large enough numbers of such clients to merit a specific service. |
8.2.6 Money Advice
Many parents engaging with WFF required money/debt/welfare rights advice at some point during their engagement with WFF services. The need for responsive, tailored support became apparent early on. In some areas mainstream money advice and welfare rights services were unable to provide the responsive, dedicated service required for WFF clients and struggled to meet demand.
Most areas therefore developed a specialist money advice project, or plan to set one up in WFF Phase 2 (2006-08). Money advice projects offered varying degrees of advice and support on a range of money matters. The majority offered information on welfare rights and benefits, performed 'better-off' calculations and income maximisation and supported clients with debt management ( e.g. by generating long term plans for the management of income and budgeting).
Inverclyde's Money Advice project, which was developed quite early on, covered the services cited above and in addition carried out representation and advocacy for clients experiencing financial difficulties, by for example, liaising with companies on clients' behalf, dealing with completion of paperwork and appearances at tribunals.
KEY LEARNING Financial problems were reported to be fairly common among the WFF client groups, more so than many areas originally anticipated. There also appeared to be demand for specific financial advice for WFF clients in many areas. Dedicated WFF projects were put in place largely because of problems with access, quality and expertise of the existing services WFF co-ordinators are likely to liaise with existing welfare rights advice teams within their own local authorities (or other appropriate agencies if available) in order to ascertain if these services can meet the demand and specific needs of the WFF client group. If existing services are not sufficient to meet WFF requirements, there may be a case for establishing a dedicated WFF project. In some cases, clients were reluctant to admit to financial difficulties. Building up rapport and trust in the relationship with Key Workers is likely to therefore be essential in helping some clients to face up to such difficulties before they can move into or sustain employment,
education or training. From the evidence so far, it would appear that money advice should form a part of services available to WFF clients. This would generally be best provided through access existing local specialist services (or nationally if there are not local services). |
8.3 CLIENT GROUPS
8.3.1 Supporting Young Parents
Young parents often have specific and complex issues that limit their employability. Four areas had specific projects aimed at addressing the issues faced by young parents moving towards employment, education or training. These projects came into operation after the start of WFF as young parents were identified as a specific client group with particular needs. For instance, the Young Parents Guidance project in Glasgow aimed to re-engage young parents in education, training or work and give support with childcare. Through this process Guidance Workers helped a client to assess their needs and offered holistic support.
Other areas either assisted young parents through the Key Worker programmes or referred them onto specialist services available in their area.
KEY LEARNING Young parents may require specialist support that cannot be met through the existing Key Worker framework. In areas where there are larger numbers of this client group, then these clients may benefit from specialist Key Worker support. |
8.3.2 Parents in Education and Training
WFF has engaged with a number of parents who were either taking part in, or wish to take part in education or training. A number of WFF projects were established to support WFF clients in education. They were important as many WFF clients lacked qualifications and experienced a Transition into education or training (29%), therefore this appears to represent a popular stepping stone towards employment.
The approach in most areas was to support parents into education or training through the Key Worker programme, i.e. offering advice and support to clients seeking to access, sustain or complete education or training including the funding of childcare where other sources of funding were not available.
The HNC Pilot project based at Rosemount Lifelong Learning Centre in Glasgow was a unique project offering clients the opportunity to enrol in a full-time HNC course while maintaining their benefits. Clients also received childcare support, travel expenses, subsistence allowances and a holistic one-to-one support provided by the Project Worker. The Project Worker had an active role in keeping contact with the student, the college and the childcare provider.
Important to the success of projects such as the HNC Pilot was good partnership working between the key agencies, including the local authority, the core WFF Team and Jobcentre Plus ( e.g. during the pilot Jobcentre Plus suspended interviews with HNC clients so they could concentrate on their studies),. However, the small numbers of clients during Phase 1 mean that it was not possible to determine its success at that time. (However, this pilot achieved a significant level of success in Year 2 showing the wider potential for this approach, which has attracted a lot of interest across the UK. JCP is currently looking at the possibility of a larger pilot in 2008-09 in Glasgow.)
KEY LEARNING Issues for parents moving into education include accessing and affording childcare and other incidental costs. WFF in many areas has been able to provide information on childcare as well as help with the financial costs, where needed (see Childcare Subsidy, below and Key Workers, above). WFF would appear to have been successful in moving WFF clients into education and training given the numbers of clients who have achieved this outcome. Some of the facilities and costs of childcare were met through education and training providers, and WFF generally only helped out when these facilities were not available/had been exhausted. Therefore, there would appear to be insufficient resources for childcare currently available via the education and training providers and this is an issue that requires attention more broadly than WFF. A particular issue is the lack of resources to support the childcare needs of students in Higher education. Financial support ( e.g. the continuation of benefits, payment of subsistence allowance) and the holistic support provided ( e.g. childcare provided for study days) appear to counteract the student dropout rates, as do the strict selection process by both the project and the local college. |
8.3.3 Lone Parents
Lone parents comprised the largest group of clients accessing WFF in Phase 1 (72% were lone parents), although this varied between areas (see data in Section 4).
In most areas, the approach to supporting the needs of lone parents was through the Key Worker programmes (tailored support to individual needs, as with other groups of clients). In one area (Dundee), however, there was a Lone Parent Link Worker who developed a particular specialism in supporting clients who were lone parents and offered person-centred support to help them move towards, secure and maintain employment. General WFF support includes developing action plans with clients, referring clients to specialist support where required, arranging funding for childcare and accessing and delivering personal development and other relevant courses for clients ( e.g. confidence and self-esteem building, promoting healthy living, stress management, First Aid and help with budgeting). Aftercare was also provided to clients who have had a Transition.
KEY LEARNING Lone parents are a major client group of WFF (72% of clients). In most cases, generic Key Workers are well equipped to deal with the issues of this group.Dundee City is an urban community with high proportions of lone parents in the population and developed a specific lone parent WFF project. It may not be necessary or practical to operate Key Worker specialists for Lone Parents in peri-urban or rural areas unless specific communities have particularly high numbers of lone parents, limited support from other agencies is available and there is a sufficient number of Key Workers in the area to cover the other WFF groups. As the New Deal for Lone Parents may be extended to include parents with childcare aged 11 and above, WFF's role is likely to increasingly involve close joint working with Job Centre Plus. However, since many WFF parents had children under school-age, Lone Parents are likely to continue to form a major WFF client group. |
8.3.4 Hard to Reach (Outreach Projects)
Some areas operated community engagement outreach projects to recruit clients who would not normally engage easily with mainstream services.
Inverclyde's Community Listening project offered a first WFF contact on peoples' door steps. The service entailed leaflet drops in specific areas followed by a visit to each household which was repeated more than once if necessary, in order to get a response from each household. Community Link Workers assessed individual situations and tried to encourage participation in WFF where appropriate, but could also offer direct support and guidance to those who needed it before they were ready to be referred to a Key Worker ( e.g. those with low levels of self-esteem). When a person did not meet WFF criteria, workers could refer them to other appropriate agencies.
KEY LEARNING Community engagement projects clearly have the potential to reach clients who would not otherwise engage with WFF. However, it is best if these projects embrace wider client groups than WFF alone and link into mainstream services through referrals. The experience of Community Listening type projects, for example Full Employment Area Initiative in Glasgow, suggests joint funding is more appropriate in order to provide potential clients with referrals to a range of products and services other than access to a single programme such as WFF. This is something which is being considered by Inverclyde and this approach could possibly work well elsewhere. |
8.4 CHILDCARE
The aim of WFF is to remove childcare barriers that prevent parents from progressing towards or into employment. A number of barriers were identified relating to affordability, accessibility, availability and flexibility. A range of WFF projects have been established to respond to these issues.
Many areas had identified specific 'gaps' in childcare provision in their areas - some by carrying out audits of provision, others through experience either gathered from previous work experiences in the field or during the delivery of the WFF programme.
There appeared to be variations in the provision of childcare both between different local authorities and also within the same areas. These variations were too complex to recount here, but some general gaps in childcare were identified by most areas. The main gaps included:
- Out-of-school care. For instance childcare provided outside of normal school hours, e.g. typically evenings, weekends and school holidays.
- Flexible childcare. For instance, providing childcare at varying times, days or places e.g. evenings and weekends.
- Childcare for under 3 year olds
- Shortage of childminders (reported in some areas).
- Childcare for children with special needs
Three main approaches were adopted by local authorities to addressing childcare needs of WFF clients. These included:
a. Providing Subsidies - paying all or a portion of the cost of the client's childcare for a time-limited period. This was generally paid directly to the childcare provider, rather than the parent.
b. Ring-fencing Childcare Places - paying for a set number of childcare places within particular childcare providers that could be used by WFF clients only.
c. Development of the Childcare Infrastructure - developing actual childcare services, either from scratch, or contributing to the expansion of existing services.
These approaches are explored in more detail below.
8.4.1 Subsidy Schemes
Paying for childcare can present a difficult barrier for parents who engage with pre-employment activities in order to make the Transition to work, as well as those aiming to move into employment, education or training. All WFFLAs developed childcare subsidy schemes that could support parents in one of the following ways:
(1) Through the Transitional period when moving from benefits into employment, education or training. This usually took the form of short, time-limited subsidies - mainly to cover the period before the first month's wages were paid and tax credits came through. Parents receiving a subsidy only claimed the childcare element of working tax credits once the subsidy had ended, thereby avoiding duplication of payment. Clients could also be supported with registration fees and deposits if required.
(2) To engage in pre-employment activity including personal development and soft skills training. This was either in the form of individual subsidies or block provision e.g. provision of a crèche.
Key Workers or other project staff worked with clients to identify their childcare needs and to assist in pulling together a childcare package that was affordable and sustainable for a parent. This service had been complemented by the use of childcare subsidies. It should be noted that not all clients had accessed subsidies as financial support was often not required.
Wider "barrier-free" funds were also made available in many areas to cover other expenses associated with moving towards employment, for instance, personal development and elementary training, transport costs and sometimes clothes for job interviews.
The Childcare Access Fund in Renfrewshire supported clients with childcare costs while they were in education, training or work. Any type of childcare could be funded. In some instances, childcare was totally funded by WFF for a period of time ( e.g. until parents claimed the childcare element of WTC) or WFF added to childcare support provided by other avenues ( e.g. top-up childcare bursaries). The Key Workers invoiced the Childcare Access Fund on a monthly basis for each client and the WFF Co-ordinator checked and approved this. The money that was allocated to each client from the Childcare Access Fund was paid, normally in arrears, directly to the childcare provider.
Inland Revenue regulations for the payments of the childcare element of WTC meant that only 70% of childcare costs were covered (which was increased to 80% after April 2006, at the start of Phase 2 of WFF). Even if WFF subsidised costs, clients were still liable for 30% of costs. Many areas had worked around this issue for clients unable to pay 30% costs by post-dating claims to the childcare element of WTC and paying part or all of the childcare costs until the WTC childcare element 'kicked in'.
KEY LEARNING Subsidy Schemes that offer support with the costs of childcare and other expenses are invaluable in helping clients moving closer towards employment, education or training. However, these should only be made available where no other financial support outwith WFF is available. In particular, other sources of financial support with non-childcare costs should be identified (e.g. Job Centre) and used where possible. WFF support should only be a fund
of last resort (which is the current position). However, a level of subsidy should continue to be offered by WFF where this is needed, since this can be critical in allowing clients to make Transitions into employment, education or training. Childcare subsidies were always paid direct to the childcare providers and not to the client, and there are sound reasons for areas to continue to do this. Some areas have found that funding childcare for only short periods of time has been effective in keeping clients engaged with WFF services. This strategy might be recommended where there is a high attrition of clients and/or to keep down spending on childcare subsidies where cost is an issue. Consideration should be given by areas to including some element of childcare subsidies in wider employability services, but further evidence is required on its cost effectiveness. |
8.4.2 Ring-fencing childcare places
Some WFF areas experienced problems with accessing certain types of childcare, often at short notice for parents entering employment, education or training quickly. Ring-fencing of childcare places was seen as a solution to this in some areas, whereby WFF would pay for a number of places with a childcare provider for exclusive use of WFF clients. The benefits of ring-fencing childcare places were that WFF clients can gain access to childcare in areas or for types of childcare where there were shortages.
In the areas where ring-fencing was not used it was generally reported that the need had not arisen, i.e. there had not been difficulties finding childcare places for clients. However, there were some additional concerns (see below).
KEY LEARNING Ring-fencing childcare places can be a means of gaining access to childcare for WFF clients in areas where there are shortages of particular services. However, there is the potential problem that while ring-fencing may help improve access to childcare for WFF clients in areas of shortages, it will restrict access further for parents who were not WFF clients and do little to address the longer term issue of shortages. As there were questions about the cost-effectiveness and possible displacement effects (on non- WFF parents), ring-fencing should only be used after carefully considering the supply and demand for such services. |
8.4.3 Developing the Childcare Infrastructure
The success of WFF relies on the availability of suitable childcare, available for parents in the right place and at the right time. Following initial mapping exercises, and using experience of WFF implementation, most Phase 1 areas identified gaps in childcare services which were seen as crucial to the successful progression of clients. Some LAs identified a lack of provision within their area and attempted to address this through a series of projects. In most cases WFF worked closely with local Childcare Partnerships when developing new services.
8.4.3.1 Developing Childcare Workers
These projects aimed to develop childcare workers by increasing the labour pool available in the local area. In most cases this was done by recruiting clients from the WFF target groups to train and develop a career in childcare. This was designed to have a two-fold effect: supporting WFF clients into employment; and increasing the availability of childcare provision within an area to address gaps. Developing childminders is dealt with separately (see below).
For instance, the Special Needs Intermediate Labour Market Project (West Dunbartonshire) offers clients a 52 week course working towards an SVQ Level 2 in Playwork and a National Certificate module in Special Needs. Clients complete at least four placements during the course which include time in a Childcare for Special Needs Facility as well as in mainstream childcare with special needs children. Clients were offered financial support with childcare, where needed, as well as guidance in study and job search skills. They were supported by the Project Co-ordinator and were in regular contact with their Access to Employment Key Worker.
KEY LEARNING There is a need for greater investment in the childcare workforce within Scotland, in terms of quantity as well as quality. This is not just in terms of training childcare workers, but in actually facilitating the provision of services (since actually finding employment could be a problem for some clients upon completion of courses). This investment needs to be carefully targeted into types of childcare that are in short supply (see above) and into specific areas with these shortages. It was too early to evaluate the effectiveness of a WFF project developing the childcare infrastructure (North Lanarkshire's Social Economy Infrastructure), but progress should be monitored to see if this approach is worthwhile. Offering clients more than one specialist outcome of their childcare training is useful for their job and career prospects. In one course, while all the clients study for the National Certificate module in Special Needs, they also gain a qualification in childcare and so can go on to work in this field. |
8.4.3.2 Developing Childminders
These projects assisted clients to become registered childminders, thereby increasing the number of childminders in the area. As with the development of general childcare workers this had a two-fold benefit in helping clients to enter work and in increasing the labour pool available. These projects tended to be developed in rural areas or areas with significant rural features where the provision of other formal childcare was minimal (for instance, nurseries, crèches, family centres, etc.).
In North Ayrshire, the Childminding Co-ordinator offered potential clients information via telephone and through an Information Pack on becoming a childminder. Clients who signed up were placed on a waiting list for the training (which was arranged and delivered by North Ayrshire Council). Following completion of flexible training (10 sessions over one week or 12 evenings over 3 months), clients were supported in their Care Commission application by the Co-ordinator, which would allow them to operate as childminders. Throughout this process, clients were supported by the Co-ordinator who offered advice and support on a range of personal and practical issues that might arise. The majority of associated costs incurred by the client were met by WFF. New Childminders were guaranteed one child place for a period of 12 weeks through WFF in order to get their business started and provide a service to WFF.
KEY LEARNING Childminders are an important way of meeting childcare needs in small, particularly rural communities, where low demand makes dedicated formal childcare unfeasible. Shortages of childminders were noted in some areas and Childminding projects aimed to increase provision through providing information, support and assistance to clients going through the often complex process of becoming a registered Childminder. Sustained support for clients helped them to complete the process (through of training, registration, set up and running of a childminding business) and helped particularly vulnerable clients overcome issues along the way. |
8.4.3.3 Flexible Childcare
A number of projects were developed which aimed to expand the flexible childcare available within LAs. This section specifically deals with the development of Sitter Services, although other flexible forms of childcare were developed. Sitter Services provide flexible childcare, including extended hours (early mornings, evenings and weekends) which can include providing care in the parents own home and dropping off/picking up children from school/other childcare.
For instance, the Sitter Services in Renfrewshire (called Childcare @ Home) provided sitter services when other types of childcare were not an option. Sitter services were usually accessed by families seeking 'wraparound' care, i.e. to take children to childcare or school in the mornings, pick them up afterwards in the afternoons, or to cover evening childcare where no other childcare services were available. As such, sitter services were used to fill gaps in existing childcare provision. The project also provided continuity of parental support as Childcare @ Home staff could also take notice of clients' circumstances ( e.g. emotional state, etc) and refer clients to the Buddies ( WFF Key Workers) with clients' agreement.
Different forms of childcare may be appropriate in different circumstances. Sitter services may only be the most appropriate solution for parents in certain circumstances e.g. parents requiring short term support, parents with disabled children, parents with a number of children, where they may be cost effective in allowing the parent to go to work etc.
KEY LEARNING Sitter services can provide a valuable childcare service where no other childcare is available. However, they may only be the most appropriate solution for parents in certain circumstances e.g. parents required short term support, parents with disabled children, parents with a number of children - often in this case Sitters can prove more cost effective and can make the difference between a parent being able to work or not. It is generally too early to evaluate the success of the Sitter Services working more closely with families in the longer term. Some of these services were only established relatively recently prior to the case studies being carried out. These services need to be monitored further in order to assess their future funding by WFF. However, it may be wise for LAs to consider the longer term development of other flexible services in the area, since Sitter Services usually need ongoing subsidy and may not represent the best value for money. |
8.4.3.4 Crèches
Six areas had projects to develop mobile crèche facilities. The aim of mobile crèches was to provide quality childcare at the premises where an event or training course was taking place. This enabled parents to participate in such events while also knowing their child(ren) were on site and cared for.
For instance, the Mobile Crèche in the Highlands provided childcare at the premises where an event or a training course was taking place. In areas where crèche facilities were limited, some WFF projects appear to have been crucial in allowing certain activities to go ahead, but the evidence is very limited on this.
KEY LEARNING The aim of mobile crèches is to provide quality childcare at the premises where an event or training course is taking place. This enables parents to participate in such events while also knowing their child(ren) are on site and cared for. In areas where crèches are available, WFF is advised to normally buy in services as opposed to developing their own. However, in areas where crèche facilities are limited, some WFF projects have been crucial in allowing certain activities to go ahead. The viability and effectiveness of mobile crèches needs to be considered carefully, before developing such services. |
SUMMARY OF KEY LEARNINGS - The combination of childcare, Key Worker, employability and other support for disadvantaged parents appears to have assisted many to improve their employability and to enter work, training and education.
- Key Worker approaches appear to have been successful as they have been able to provide: continuity and a single contact and support point for clients during their whole time with WFF; a supportive, individually tailored and relatively holistic service (including accessing other projects and services where necessary) in order to meet a wide range of client needs; and resources to access appropriate childcare and some relevant employability services.
- There was an issue as to the extent that some distinct projects were required to be set up through WFF, in addition to the Key Worker programmes. Key Workers in themselves were able to deal with a wide range of clients and those that needed particular support could often be referred to specialist services in the local area. Questions emerged as to the necessity of some types of projects, e.g. volunteering projects where there were existing services and demand among WFF clients appeared to be low. However, the flexibility of WFF funding meant that other projects could be developed in response to emerging needs being identified, e.g. money advice projects. Some projects might be relevant in some areas but not in others, for instance it might not be necessary or practical to operate specialist Key Workers in some areas but in others, the demand and geography made these worthwhile. Generally, early mapping of existing services (as outlined above) was valuable in helping to determine the need for separate projects.
- A further recurring question was the extent to which WFF should be solely responsible for funding specific projects that had a broader impact beyond WFF clients: for instance, community engagement outreach projects that sign-posted clients to a range of services, working with employers to develop work-life balance or childcare services and some childcare infrastructure projects. (It should be said that some of these projects were jointly funded). Developing close partnerships with other local services to develop funding packages is particularly valuable here. However, as WFF develops, there are questions as to the range of projects that it is appropriate to be funded via WFF, what could be developed in partnership and what is out with the remit of WFF. Greater clarity is required on these points.
- There remain gaps in the availability of flexible and affordable childcare provision in many areas,
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