Lessons from the Young Leaders in the Community Programme

CONTINYOU Building Learning Communities Lessons from the Young Leaders in the Community Programme A briefing paper for policy makers and senior managers March 2005 1. INTRODUCTION A. The Programme Origins  The Young Leaders in the Community (YLiC) Programme was launched as a ‘pilot’ initiative by the Community Education Development Centre (now ContinYou) in March 2002 with £1.4M funding from the DfES. Aims  By piloting innovative ways of working, the Programme’s aims included:  opening up a work-based route to learning, qualification and employment for ‘hard-to-reach’ and ‘hard-to-help’ young people;  raising these young people’s aspirations and enhancing skills for working with other young people within their own communities;  extending the capacity of local communities and community organisations;  strengthening partnership working – both regionally and locally. Format  The Programme recruited thirty nine Young Leaders (YLs) a year for three years from four Black Country boroughs.  YLs were employed by Black Country Connexions on the minimum wage.  They worked three days a week in local voluntary and community sector (VCS) organisations and, in Year 3, in some statutory sector agencies.  They undertook two-days-a-week off-the-job training at the Bordesley Institute.  Over the year they worked towards an NVQ qualification (Level 2 or 3) in community work (Year 1) and youth work (Years 2 and 3). This was assessed through the Bordesley Institute. Management and organisation  The Programme was managed by an Operational Steering Group made up of:  ContinYou - the contract holder, responsible for overall co-ordination, employing the Pastoral and Placement Co-ordinator (‘the Co-ordinator’) and commissioning annual evaluations;  the Bordesley Institute; and  Black Country Connexions - which managed the YLs and provided Personal Advisor (PA) support for them.  Strategic oversight of the Programme was undertaken by a Strategic Steering Group comprising representatives of the DfES and the main operational partners.  Trainees on The Net’s Urban Devotion Programme – a Christian faith-based initiative - shared the off-the-job training with the YLs. [Note: YLs’ statements are presented in bold italics; staff interviewees’ in italics.] 2. POLICY CONTEXTS ‘Policy-drivers’  The Neighbourhood Support Fund (NSF) Programme was an innovative response to the 1999 Social Exclusion Unit’s finding that 9% of 16-18 year old were not in education, employment or training (NEET). Evidence from this showed that:  the VCS could successfully engage many of these young people;  many of them were capable of taking on leadership roles with their peers. The Programme was created to harness and develop this potential.  It was also seen as capable of addressing other key Government policy priorities requiring high levels of partnership working – particularly with the (then) newly established Connexions Service and the VCS. These included:  The regeneration of communities experiencing economic and social deprivation.  Increasing social cohesion, especially in multi-ethnic and multi-cultural communities.  Developing active citizenship, particularly amongst young people.  Involving young people in planning and delivering services.  Reducing levels of teenage pregnancy.  Addressing young people’s physical, sexual and mental health needs.  Diverting young people from criminal and other ‘anti-social’ activities.  An additional objective for local youth agencies was to increase the supply of qualified youth workers. From policy development to implementation and delivery  ContinYou consulted locally to provide reassurance that:  The Programme would be safe for the young people taking part - for example, that Muslim young women would undertake placements in their own communities.  Young people, once qualified, would be encouraged to continue working within these communities.  High priority would be given to individual support for YLs. CRITICAL FACTORS FOR SUCCESS  Drawing on the lessons of previous similar programmes based on an apprenticeship model of delivery.  Providing adequate time and resources for preparing, training and continuing to support Programme staff – particularly for roles and approaches which many will experience as innovatory and challenging. 3. THE YOUNG LEADERS: STARTING POINTS AND ACHIEVEMENTS Starting points  Personally, many of the YLs had joined the Programme needing to be unloosened from the tentacles of their previous experience. Over the three years:  117 young people were recruited – 39 in each of the three years  45 per cent were female  42 per cent of the Young Leaders were white British  36 per cent were of Asian origin  13 per cent were Black Caribbean  7 per cent were mixed race  19 per cent were Muslim women– 42 % of all female YLs: Motives for joining  51 per cent of Year 1 YLs gave the NVQ qualification as their main reason for applying.  18 per cent wanted to be paid and trained at the same time  18 per cent wanted to work with young people Experience before joining the Programme  20 of the 39 year 1 YLs had no or very few formal educational achievements  8 had not completed their schooling  27 had parents who were not living in the same household  5 had police records for offending  85 per cent of the year 2 YLs were NEET when they entered the Programme. Achievements The main overall conclusion  Overwhelmingly stakeholders, including YLs, saw the Programme as having succeeded, often against considerable odds. ‘Hard’ outcomes for YLs Completing the Programme Over the three years, of the young people who were originally recruited:  In year 1, 85 per cent completed the Programme  In Year 2, 80 per cent completed the Programme  In year 3, one month before the end of the Programme, 85 per cent were still participating or had already gained jobs in the youth and community work field. Qualifications gained In years 1 and 2 combined:  45 Young Leaders (67 per cent of those completing the Programme) achieved an NVQ Level 2 in either community work or youth work  6 (9 per cent) achieved an NVQ Level 3 For Year 3 (at January 2005) it was predicted that:  64 per cent of those completing would gain an NVQ Level 2  20 per cent of those completing would gain an NVQ Level 3  11 gained the Community Sports Leadership Award  5 gained an OCN qualification in committee skills ‘Soft’ outcomes for YLs and ‘distance travelled’ What Young Leaders said they had gained from the Programme • I’ve never learned so much in education. • Not only have I gained an NVQ … my confidence changed, self-esteem and trust of people were very low, but that has all changed. • Even though it’s been very challenging I’ve experienced working with difficult young people and had to ensure my emotions … didn’t overcome my job. • In the past 12 months I have learned that I can run activities, take control and lead to help direct young people. • I’m wiser about people; I feel I’ve learnt … interview skills; listening skills; (about) body language • I still use the team exercises I learnt (on the Programme) • The sign language – I still use it Impact on partners  The Programme made a significant contribution to the Connexions Service meeting its NEET targets and involving young people in planning and delivery.  Local VCS organisations:  addressed regional needs across local authority boundaries;  gained the time and skills of a YL who, as an additional staff member, was a role model for other young people;  got advice on their health and safety responsibilities for (especially young) staff;  were provided with additional staff training. 4. IMPLEMENTING THE PROGRAMME Recruitment  Educationally under-achieving young people were targeted and then selected because of who they are, not what they are.  All joined voluntarily. LEARNING POINT  Given accessible promotional materials and appropriate recruitment mechanisms, the YLs did not prove to be ‘hard-to-reach’. CRITICAL FACTOR FOR SUCCESS  Prior agreement amongst key partners on how to target a specified group of young people within the recruitment, selection and equal opportunities policies and procedures of an employing agency. Support for YLs – with challenge  While on the Programme, many YLs needed intensive support with, for example, serious family and peer pressures, mental health problems, homelessness and involvement with the police and the courts.  Some YLs had to be challenged to ensure they observed key boundaries laid down by their employer (the Connexions Service), by training tutors and placement agencies. LEARNING POINTS  The youth work experience and skills of the Co-ordinator and the training tutors were crucial for the pastoral support offered to YLs.  Connexions’ line managers’ proactive encouragement of PAs to follow up initial contacts with YLs could increase YLs use of the PAs’ skills and networks. CRITICAL FACTOR FOR SUCCESS  For responding to often complex personal problems, adequate resources for intensive personal support for YLs - not a cheap option.  In setting boundaries for YLs, accepting the need to make difficult professional judgements which strike balances between:  responding sensitively to their stress and distress;  ensuring they are clear about the requirements of a ‘real’ work experience; and  supporting their efforts to get a recognised national qualification; Work placements LEARNING POINTS  Placement agencies need full written information at the start of a Programme.  This needs to be supported by face-to-face meetings with the Co-ordinator.  Future contacts cannot however always proceed on the assumption that placement mentors have familiarised themselves with all Programme procedures. CRITICAL FACTOR FOR SUCCESS  Paying placement agencies a fee for taking a YL. Off-the-job training CRITICAL FACTOR FOR SUCCESS  Training tutors’ use of youth work skills and approaches.  The use of informal and experiential learning methods such as short participative group-based inputs and activities, simulations, role plays, games and project work. The NVQ qualification and assessment CRITICAL FACTOR FOR SUCCESS  High quality and reliable support from full-time or substantial part time assessors. 5. MANAGING, CO-ORDINATING AND RESOURCING THE PROGRAMME Strategic oversight, development and management  A Strategic Steering Group with representatives from the DfES, ContinYou, Black Country Connexions and the Bordesley Institute met quarterly: SOME CRITICAL FACTORS FOR SUCCESS  Programme planning and resourcing which takes account of the interplay of:  the YLs’ educational starting points;  the personal ‘baggage’ they may bring with them;  the expectation that they simultaneously perform as employees; acquire NVQ underpinning knowledge and skills through a structured training programme; and complete the NVQ assessment process.  Support for the move from ‘pilot’ to mainstream funding which as a minimum:  consistently promotes the Programme to wider interested audiences; and  sustains these inputs throughout the pilot period and not just as this is ending – for example, through conferences, workshops, publications and press releases which include ‘human interest’ stories. Programme delivery through partnership working  An Operational Steering Group met every six weeks. This was made up of key staff from partner agencies; peer mentors; YL representatives; placement mentors, the Urban Devotion Programme leader and, as necessary, specialist Connexions staff.  The Group was the formal mechanism for addressing potentially divisive and disabling operational issues - for example:  recruiting vulnerable and sometimes challenging young people;  managing them in line with the employing organisation’s procedures;  sustaining their participation in the off-the-job training and on work placements; SOME CRITICAL FACTORS FOR SUCCESS  Partners’ mutual recognition that the Programme could not succeed without the strengths and complementary contributions which each of them was bringing.  Negotiating transparent agreements (wherever appropriate in writing) on:  each partner’s complementary roles and responsibilities;  funding flows and arrangements for remunerating each partner;  which decisions were to be taken by which partner on what matters;  partners’ expectations about promotion and PR for their own organisation.  Recognising that an Operational Steering Group cannot just be task-focussed but needs also to act as an arena for negotiating the processes of partnership-building.  Flexibility amongst partners for implementing key procedures - for example, for recruiting and employing the YLs – which both satisfy organisations’ legal and procedural obligations and are responsive to an often vulnerable target group.  Time for partners to experience first-hand that adapted systems – including pay-roll systems which normally pay salaries monthly and only into a bank account - are not undermining core agency employment policies, procedures and practices.  Sustained attention to communications with placement agencies to ensure they have accurate and up-to-date information on Programme activities and decisions. LEARNING POINTS  Local VCS organisations may not always have the capacity to provide all the placements needed to guarantee the required work experience and supervision.  Key issues for placement agencies needing to be addressed at the Programme’ planning stage and for which some dedicated resources will be required include:  risk assessments, to be carried out by a trained practitioner;  ensuring placement organisations have in place health and safety and child protection procedures acceptable to the agency employing the YLs;  ensuring all placement staff with unsupervised access to 16-18 year old YLs have been police checked; Organisation, co-ordination and administration  For most of its three years, the Programme had a very experienced youth worker and youth work manager as its full-time Pastoral and Placements Co-ordinator. LEARNING POINTS  A large Programme of this size and complexity is likely to need:  a maximum ratio of one Co-ordinator to twenty YLs;  a nominated overall lead person within Connexions;  a small ‘Programme team’ made up of key front-line staff. SOME CRITICAL FACTORS FOR SUCCESS  Central co-ordinating and full-time Administrator posts located close to the Programme’s actual operation, providing a capacity to maintain relations with placements and offer YLs pastoral support.  The use of youth work approaches, skills and insights – particularly for striking balances between supporting YLs under severe personal pressure and managing them as employees and in their work placements. Resources – including value for money  The cost of the Programme over the three years (including start-up costs) was £1.434M. This included £764,000 for wages for the YLs.  The unit cost for each of the 117 YLs recruited over the three years was thus £12,250.  Costs for actual or alternative responses to one young man’s offending, calculated for the Audit Commission’s report Youth Justice 2004 (pp 118-121), included:  For learning support from a teaching assistant or learning mentor - for 10 hrs a week for 36 weeks: £12,600.  For follow up for three months by a YOT or ISSP team: £6,000.  For a six month custodial sentence: £51,409. SOME CRITICAL FACTORS FOR SUCCESS  Funding to ensure sufficient organisational and administrative capacity.  Sufficient funding for:  employing the YLs on a wage rather than an allowance – perhaps the decisive factor for most of them in applying to and remaining on the Programme;  supporting the YLs through very challenging life circumstances;  providing a quality training programme;  supporting the placement agencies;  ensuring high quality NVQ assessment support for YLs. From pilot Programme to mainstreaming LEARNING POINTS  Over the full life of a pilot programme developing effective working relationships with local statutory sector agencies (including the statutory Youth Service) is likely to offer the best route for the longer term ‘mainstreaming’ of some or all of a Programme.  This process is most likely to be successful if the Programme can identify and work consistently with committed ‘champions’ within relevant local statutory agencies.