Thursday 15 September 2011

University of Brighton response to the Positive for Youth consulation papers


15.09.2011 

In support of youth work as a profession and retaining universal services for young people:

1.1 This response to the Positive for Youth consultation papers is written from the perspective of youth work as a profession and what informal education can bring to the learning and development of young people. The educative role of youth workers, community leaders, and other significant adults in the lives of young people, is often something that is overlooked in the moral panics  of today’s society as directed at young people,  which are often centred on ‘hoodies’,  crime and disorder and unemployment statistics. For the purposes of this paper, the term youth work or youth worker is used generically to refer to a trained professional who works as an informal or experiential education to facilitate learning with young people. This term can apply to practitioners working in a wide variety of settings from mobile and street-based projects, to youth centres, community hubs and information shops, to VCS organisations and projects. However, it is the educative purpose and the commitment to the growth, learning, development and future potential of young people that binds them together as a profession.

1.2 Based on the work of John Dewey (1859 - 1952) and the belief that “education must engage with and enlarge experience” (Smith, 2001b, [online resource]), youth workers work with young people in their own spaces and settings, engaging with them on their own terms so that they can participate in the ‘common life’ of their community (Dewey, 1915).

“An educative experience, according to Dewey, is an experience in which we make a connection between what we do to things and what happens to them or us in consequence; the value of an experience lies in the perception of relationships or continuities among events” (The Strengths Foundation 2009 , [online resource]) 

1.3 For Dewey, a democratic society is more than just appreciating how government works. It is about how communities live together, how they learn to work together, how they agree and disagree, how they appreciate each other and their diversity, and how they come together to support one another.  Dewey was interested in how communities learnt to do this, and his thoughts on working with children and young people were aimed at educators, both formal and informal, and how they could work to equip them with a range of social-emotional skills and ethical dispositions, as well as the ability to apply the knowledge and understanding required to participate as an adult in society (Cohen et al., 2010).

1.4 Youth work specifically can be defined as follows:

“ The main purpose of youth work is the personal and social development of young people and their social inclusion. Youth work helps young people learn about themselves, others and society through non-formal educational activities that combine enjoyment, challenge, learning and achievement. We believe youth work methods can be applied in a range of settings by a wide range of professionals, support staff and volunteers, and we are committed to helping people understand and use these approaches.” (NYA, [online resource] accessed 13/09/2011 )
1.5 Throughout this response it is the author’s assertion that the sentiments and aspirations expressed within the consultation documents will not be realised without professionally trained youth workers, whether full-time, part-time or voluntary,  engaging with young people in their communities. For a full range of the skills that a youth worker employs with young people, the National Occupation Standards for Youth Work should be consulted (LLUK, 2008).
1.6 Whilst it is important to acknowledge the physical impact puberty and adolescence has on young people, what is presented in this part of the paper on adolescent brain development is a very limited view that must not be separated from young people’s social, emotional and spiritual development. The statements relating to the possible risky behaviour of young people in groups need to be balanced against the positive role that peer groups take in young people’s lives in relation to the search for identity, support networks, and the journey from dependence to independence (Coleman and Hendry, 1999).

“Young people engage with others through a variety of associations forming many different types of networks. Sometimes each of these networks has different sets of norms, trust and reciprocity. Social networks are not only important in terms of emotional support but also crucial in giving people more opportunities, choice and power.” (Wood and Hine, 2009 p89)

1.7 The quotation above is linked to the aspirations cited throughout the Positive for Youth documents, those of increasing the social capital of young people and enabling their opinions and contributions to valued in order to improve outcomes and public perception.  It acknowledges the importance of peer groups and networks in this process and the learning that takes place through these interactions.

1.8 What is also not taken into account in this section on brain development is the concept of learning styles, in that for many young people, the ‘talk and chalk’ and results-driven approach experienced in formal education settings does not always suit individual learning styles or ‘multiple intelligences’ (Gardner, 1993). For an activist, kinaesthetic learner, the opportunity to learn through experience alongside a significant adult or peer mentor who supports them to make sense of their experience, is one which is much more effective and which will have more resonance. Similarly, a reflective learner who appears to process information and ideas less ‘quickly’ than others, will benefit from an approach that poses questions about  their experience, encouraging them to think through what has happened and to identify their own learning.

1.9 The youth work or informal education curriculum offers young people the opportunity to learn in different ways, and to develop skills that might not be possible in a classroom of 30. The youth worker’s approach and expertise as based on the principles of informal learning (Smith, 1995, 2005, Foreman, 1990)  should be seen to work in parallel to formal education, an approach that benefits those for whom learning at school is challenging, and which enhances the learning of all young people in a more holistic way.

1.10 The views that young people expressed in the document are positive, indicating that they want access to significant adults and trusted professionals. Youth work is an effective way of working with young people because they participate voluntarily i.e. they are not forced to take part, and this enables a youth worker to have a very different relationship with young people who may never have had a positive relationship with an adult or who are missing key adult role models in their lives.  Starting from a non-judgemental stance,  and working with each young person’s needs and starting points to develop relationships of trust, the youth worker represents a trusted adult that can be accessed to help resolve dilemmas and provide support when needed.  Within targeted or referred work where a young person has no choice about attending, the relationship-building starts from a different point, and can be compromised by institutional structures and or stereotypes.

1.11 When young people say that they want advice and support, trusting relationships, recognition of the world that they live in, advocacy, and for their social identity to be respected, they are unlikely to find this generically in many formal settings or those with a specific agenda or remit. For example, some faith-based organisations will not be supportive of sex before marriage or same sex relationships.  Young people therefore, need access to informal opportunities where they chose whether they take part or not, to allow them to explore issues related to their identity and development in a ‘safe space’ where they will not be judged. It is this non-judgemental stance taken by youth workers that allows young people to share aspects of their social identity that they cannot share elsewhere, for example, coming out as gay or lesbian, or to express doubts or anxieties about who they think they are and who they might become. This does not just apply to those young people who are felt to ‘have issues’ , have ‘challenging behaviour’ or ‘be a problem’: it should be a right for all young people.

1.12 It might be true that electronic documents are more important than printed materials to the young people surveyed for this report, but a research by FreshMinds (2008a, 2008b)   has identified that most young people who are not in education, employment or training (NEET) do not have access to digital media at home through PC’s, laptops, satellite providers or other means, and that a ‘significant minority’ do not have good digital literacy skills but would use digital media of all types more if they had better access or could afford it. In the UK, Department for Education (Uttley, May 2010)  statistics identify that just over 10% of young people were NEET at the end of 2008, meaning that 1 in 10 young people in the UK are potentially less digitally literate or skilled than their ‘digital native’ peers.  With this in mind, an over-reliance on digital and electronic sources to engage young people will further exclude a significant number (Melvin, 2011).

1.13  The Strong Ambitions section is solid and positively worded. However, recent cuts in youth services across the country mean that many young people have lost the opportunity to work with trained professionals in informal settings i.e. outside of school, and in a way that promotes the principles voiced with the statement.

1.14 Anecdotally, many youth workers will give examples of young people who might be under-achieving in school, but who blossom when given the opportunity to engage through informal education. The underpinning philosophy of the National Citizenship Service (NCS) is that of teamwork, leadership, problem-solving and decision-making, practical challenge , and personal responsibility, all principles that youth workers have used for many years to engage with young people who have been turned off or excluded from mainstream education. The difference between generic youth work and the NCS, is that a youth worker may work for many years with a particular young person to equip them with the skills needed to participate as an adult in UK society, whilst the NCS offers only an 8 week opportunity of opportunity to accomplish the same outcome.  Young  people who are disillusioned, disaffected and finding it hard to engage in the first place, are unlikely to gain a sufficient skill level to be able to compete with their more motivated peers, and there is likely to be little or no on-going support in the community for them once they return.

1.15 The section titled Good Opportunities talks about ‘every young person’ and this should be applauded because it is important that this vision is not just directed in a ‘problem-centred’ way i.e. just focusing for example, on youth crime and under-achievement. “Reaching their full potential” will mean having a menu of choices available to young people as ‘one size does not fit all’. However, choice is not just about having a number of options to choose from, it is also about being able to make an informed choice about the right path to take, and some young people need support to be able to do this.

1.16 The phrase “allowing young people to  express their views” demonstrates the imbalance of  power between young people and adults, in that adults often deny young people the opportunity to express their views, or do so in a tokenistic way, their views being disregarded as ‘unrealistic’ or ‘impractical’. It is more than just ‘allowing’ young people to express their views: articulate and politically motivated young people are not the norm, and often young people need to be supported and skilled up in order to be able to express their views, especially in adult-run settings.  They need to be supported to understand how local democracy works and how to influence decision-makers effectively.

1.17 John Dewey and Kurt Lewin  as promoters of experiential education, “both agree that democracy must be learned anew in each generation, and that it is a far more difficult form of social structure to attain and to maintain than is autocracy” (Smith, 2001a).

1.18 Political education underpins the youth work curriculum in a number of ways, from involving young people in discussion and debate about current issues or the running of their youth project, to involvement in local/regional groups and the national Youth Parliament. It involves building up the confidence of young people to express their views and to be assertive, alongside enlarging understanding of their rights as a citizen. It gives young people a chance to test out leadership roles, to promote themselves positively to the community and their peers, and to campaign for change or what they feel is right. As Clay Shirky states  "The rungs on the ladder, in order of difficulty, are sharing, cooperation, and collective action" (2008, p49 ), and young people need to be supported to understand how to do each step, in which order and why.

1.19 In 1915, the US Bureau of Education endorsed the concept of "community civics" which today we would call political education, that is, “to help the child know his community: not merely a lot about it, but the meaning of community life, what it does for him and how it does it, what the community has a right to expect from him, and how he may fulfil his obligations, meanwhile cultivating in him the essential qualities and habits of good citizenship." (Brown, 1929, p28)

1.20 The Youth Opportunities Fund and Youth Capital Fund (YOF/YCF) now withdrawn by the current government, gave thousands of young people across the country the opportunity to bid for money to support their own local projects and to take ownership and responsibility within the decision-making process, whether from a bidding or grants panel perspective. Supported by youth workers, this was also a scheme that was open to ‘all young people’ to be involved, offering a variety of experiences and skills that related directly to the real world and their local community. Giving young people true responsibility, not tokenistic or simulated responsibility, demonstrated across England that they could rise to the challenge, showing ultimately the true value of experiential learning.

1.21 Throughout the statement of vision, there is mention of significant adults, trained professionals, and of building skills and raising aspiration. How is this to be accomplished if the professional basis for youth work is eroded and or removed, and professional youth workers both paid and voluntary, disappear from our communities? How is it also proposed to change the public perception of young people in this society if these same professionals who are charged with advocating on their behalf, disappear, and services and opportunities allowing young people to get involved in positive schemes are being cut nationally? Again, the YOF/YCF was a prime example of where it could be shown how young people can make a positive difference to their peers and communities. Many young people representing their peers in the current UK Youth Parliament may not have been able to have put themselves forward for the role without professional youth workers in place to support and train them.

1.22 The Government’s ability to influence how the media portrays young people and youth in the UK may be limited, however it is within their power to support and encourage services, projects and opportunities that positively promote and demonstrate the real potential of young people. The 3 forums mentioned, British Youth Council, UK Youth Parliament, and the Young Advisers Charity are important in relation to the positive promotion of young people, but a representative view also needs to be sought from young people who might not ordinarily be involved in the national forums mentioned. A variety of methods could be utilised to do this, from social media to face-to-face groups but young people who feel that ‘they are not being listened to’, who are fearful of making their views heard, or who are simply not aware of opportunities to be involved, will need to be supported and skilled-up in order to participate effectively.

1.23 Many young people will say that they find it difficult to share certain things with their parents. Youth workers offer a non-judgemental and listening ear, working from the starting point of the young person to find solutions in a way that empowers them to make informed decisions about often very challenging areas in their lives. Many youth and Connexions services have facilitated youth information drop-ins and one-stop shops, aimed at supporting both young people and parents. Again, in this climate of service cuts, these services are either disappearing or are increasingly threatened, and even with the current focus on targeted services, specialist help and support is in decline for young people.

1.24 Whilst not trained to carry out family intervention work, a return of focus to youth and community work rather than just youth work, would ensure that there is a skilled professional workforce able to respond to the generic needs of parents and communities as well as young people. The youth worker as a trusted community member is often seen as a source of support to parents and families, and some services offering specific parenting courses and advice. It should not be overlooked that where youth provision is embedded within a community, young people grow up and become parents themselves, and will often continue to seek support from youth work staff and/or offer to support the new generation of young people as they attend.

1.25 A small number of young people experience multiple difficulties in their lives which prevents them from engaging in education, employment or training. The dismantling of the Connexions Service, in particular the intensive support services across England, means that many young people for whom 1 month represents the long-term, let alone 1 year, will be unable to access the specific, personalised support that will enable them to re-engage with employment and/or training. Research on young people having to access services in what are effectively adult spaces has shown that, “a problem with invited spaces is that often deep-rooted feelings of dependency and disadvantage undermine the possibility of genuine deliberative decision-making” (Shier, 2009) meaning that young people often feel intimidated when being asked to access ‘adult’ spaces for example, doctors surgeries, libraries and sexual health clinics, and do not feel able to voice their feelings or requests about how services are delivered.  Thus,  the Jobcentre Plus approach will not necessarily be the most effective in relation to supporting young people to acquire and develop job search skills, particularly if they are intimidated or unwilling to enter buildings that they see as ‘adult space’ or ‘unsafe’ space.

1.26 Changes to fees and higher education student finance will simply mean that many will discount higher education as an option for them, even if they are eligible for support. Fiercer competition for fewer places will further disadvantage those who need support with the application process or who discount higher education as an option for them.

1.27 These changes are also impacting on work-related courses, for example the training of youth workers or young people-related professions (the withdrawal of Band C funding and the closure of the Children’s Workforce Development Council). Closure of courses is UK-wide, alongside the reduction in services, meaning that in the future the number of trained professionals available to get alongside and work with young people on their own terms will be diminished, impacting directly on the Government’s vision of the Big Society and the involvement of young people as a valued part of their communities.

1.28  Much has been said already in this paper in relation to the development of personal  and social skills, and this is underpinned by the principles of informal education (Smith, 1995, 2005) which supports  the notion that there is more to learning to be a citizen than that experienced in formal settings. The NCS would be a valid part of an overall programme that is open to young people aged between 13-19 but is not the overall solution or panacea that the Government claims it will be. The field has seen similar schemes come and go in the past – Youth Opportunities Scheme, Training for Life, Intermediate Treatment, Youth Training Scheme - and all worked using similar principles, their success or failure often dependent on the approach taken to learning and the support and mentoring provided to the young people attending.  Where trained professionals are able to develop long-term mentoring relationships with young people and offer them positive role models, the success rate of such schemes in relation to intended outcomes is much higher. (Research into the Effectiveness of Youth Training and Diversionary Schemes,  2006)

1.29 In the submission of evidence to the 2010 Education Select Committee on Young People’s Services, The ‘U’ Project, a government-funded programme lasting about 4-6 months and aimed at young people in Year 11 about to leave school with ‘no destination’, was cited as

 “a recent example of how services across the country worked with young people through a planned programme which consisted of all the elements that the National Citizenship Service is embracing. The difference here is that the young people were working with practitioners that they already knew and with whom they already had a relationship. There are huge strengths on this as a model, rather than a contracted-out process where the timescale involved will never have the capacity to develop the relationships and trust needed to really make a difference” (Melvin, 2010). 

1.30 The emphasis on outdoor education methods within the NCS is noticeable, most of the short film advertising the scheme on the NCS Facebook page being devoted to shots of smiling young people in the outdoors.  As stated in a recent response to the Education Select Committee on Young People’s Services,
“Youth work practitioners are experts in residential work, team-building, and developmental group work: all methodologies based on a sound pedagogy and which are known to work in relation to personal, social and emotional education. Residential work has taken a back-seat in recent years and this is due directly to the targeted agenda and the specified outcomes not reflecting what residential youth work can offer.” (Melvin, 2010)
1.31 Linked to the specific methodology of outdoor education, it should be noted that this response relates more generically to residential and group work opportunities for youth work which might include outdoor education, but could equally be focussed on music, spiritual awareness, football or international exchange opportunities. If the NCS is to be inclusive to all young people, its scope needs to be broadened to be appealing to those for whom outdoor education, or in fact sport in general, is not of interest or perhaps not an option. It is mystifying why opportunities to use the skilled workforce that already exists is not being maximised in relation to the NCS , alongside 12+ years of tried and tested youth volunteering models as promoted under the Princes Trust,  Millennium Volunteers and V.

1.32 The sections on Leading Safe and Healthy Lives and Better Support are welcomed but greater guidance to those commissioning services needs to be drawn-up, in relation to what ‘youth-friendly’ means in reality. The other challenge will be the location of such services in a climate where building-based youth work and opportunities to run drop-ins and clinics in places that young people see as ‘their space, are dwindling.  

1.33 12.8% of boys aged 11-15 and rising to 9.65% of girls aged 11-15 are affected at any one time by mental health issues, and this can be compounded by issues of family fragmentation, bereavement, isolation, bullying, stress, and substance misuse (Mental Health Foundation, 2011: accessed 13/09/2011). The youth work curriculum has a health promoting stance underpinned by risk minimisation strategies which includes work around substance misuse, sexual health, social identity, bullying, and dealing with loss, and this work is delivered without the imposition of a specific agenda or bias, such as might be found in a faith-based group or a pro-life group. Youth work professionals are well-equipped to support and challenge young people, and this is also where young people can ask questions and seek information without being judged. Many services – sexual health, counselling, young mums – have been run through youth projects in order to make them accessible to young people. Again, with diminishing building stock dedicated specifically as a space for young people, it is hard to see how many of these additional services will continue or continue to be accessible.

1.34 The Extended Schools initiative under the previous government, suggested that young people’s health services could be run on school campuses, and in some areas this has been introduced successfully with the support of school nurses and the health authorities. However, in relation to inclusion, this solution does not help those young people who are excluded from the school, do not wish to re-enter a school site, or who live at a distance from their school, for example in rural areas. A return to such strategies may see many young people who wish to remain anonymous or  ‘invisible’ in relation to accessing health services, declining to engage, putting their future health at risk.

1.35 Health services need to go hand-in-hand with other support mechanisms that might include detached youth workers, sports schemes, drop-ins, mentoring, and a wide variety of skills-based projects to engage young people in ways that will boost self-esteem and will challenge the ‘risky’ decisions that they might make about their health and behaviour. The closure of generic youth provision in favour of a targeted approach is going to limit opportunities to work with a wide range of young people on a wide range of issues, using the benefit of positive peer pressure and support to promote learning. The risk of focusing entirely on a targeted group of young people is that they miss out on the role models that their peers can provide, and only have their own life experiences reflected and confirmed by the others around them that are struggling with the same issues.

1.36 It is hard to see how the focus in this document on “early intervention” and “effective targeted services” will avoid  “competing national targets, overly prescriptive funding streams, issue-specific strategies, action plans and guidance documents”, if specific outcomes and standards are to be achieved. Decision-making devolved to a local level is necessary as youth work should be driven by  a needs-driven agenda,  but there is also a risk of leaving young people at the mercy of a ‘postcode lottery’ of access to services and support. A move back to a policy statement based on the core values of youth work where youth workers as community-based professionals work alongside young people to respond to local and individual needs, but  without being comprised by national agendas driven by inappropriate targets, would be positive.

1.37 A ‘customer offer’ or set of standards does need to be specified however, so that communities and young people know what to expect of services and staff.  For example, a parent choosing childcare for a 2 year old knows that Ofsted will inspect, grade and intervene in settings on the basis of “how well the children are looked after - whatever their need; how well the setting is led and managed; how children are helped to learn; and how children are helped to develop more generally in their health and social well-being” (Ofsted, 2011). There is currently nothing similar in place in relation to any youth provision or setting, and the intention stated within the Positive for Youth discussion papers in relation to not having a central workforce development lead, will only compound a situation where a vast difference in the quality of delivery might be experienced by young people. Early Years settings, whether a large nursery or a home-based child-minder are subject to an inspection process and young people also deserve to experience a safe and quality-focused learning experience, and standards will not be maintained unless an inspection framework for young people’s services is reinstituted across the board.


1.38 Whilst youth work focuses on the ‘transition from child to adult’ or the period known as adolescence , strategies that enable work to be funded with a younger age range (10-13’s),  would enable early intervention strategies to be implemented earlier. In many local authorities, particularly those without a designated Play Service, the group of children aged between Early Years Services and Youth Services, are currently not catered for adequately. Whilst it is not usually appropriate to mix 10 year olds in activities with 16 year olds, involving the older ones in the overall running of groups group gives opportunities to develop leadership skills and volunteering, whilst providing positive role models and opportunities for peer mentoring to the younger ones.

1.39 Whilst not perfect, the Every Child Matters legislation brought professionals together from across the children and young people’s sector and gave them a common language and focus in relation to outcomes. Removing the centralised approach to workforce development in relation to working with young people, is a step backwards in relation to standards, qualifications, safeguarding and above all, the measurement of impact. Article 3.3 of the Convention on the Rights of the Child states:

“States Parties shall ensure that the institutions, services and facilities responsible for the care or protection of children shall conform with the standards established by competent authorities, particularly in the areas of safety, health, in the number and suitability of their staff, as well as competent supervision.”(UNICEF, 1990)

1.40 It will be challenging to do this without a central lead on workforce development in this area.

1.41 Whilst it is true that many adults who work with young people in informal settings are voluntary or part-time, it is also true that many local authority youth settings work with young people who do not feel that generic VCS opportunities are for them.  For example, youth workers are working on the streets with disengaged young people who are choosing not to access other youth organisations, they are working with gang members or with those at risk of becoming prostitutes or of being trafficked, and these are not the young people that will necessarily be welcomed elsewhere.

1.42 Whilst this discussion paper talks throughout of young people having access to trained professionals and significant adults, there is an implied message that VCS youth work is good and that other forms of youth work are not to be valued and can be dismissed, and that is certainly what many professionals in the field are currently feeling.  It is important therefore, that these professionals continue to be highly trained and skilled and have a sound professional identity, so that they can advocate on behalf of the young people that they work with, and form partnerships and networks with appropriate organisations and agencies in order to improve outcomes. These are not things that are easily done as a volunteer, when time and agency is often limited.

1.43 Completely removing professional youth workers from generic work within their communities in favour of targeted interventions, will not help to realise the Big Society aspirations where effective community development initiatives that include young people, have to be key, especially in the more marginalised and disaffected areas.

 Recommendations

1.       That the government develops and supports a clear infrastructure for effective delivery of both universal and targeted services to young people, regardless of the organisational context or funding model for that delivery, and that this reflects the role of professionally qualified youth workers as well as those giving voluntary time. This includes the development of an inspection and qualification framework against clearly stated minimum standards to include both the VCS and ‘statutory’ youth sectors.
2.       That a clear focus on learning and informal education is stated.
3.       That the government reinstates a central body to drive and support workforce development and to ensure a quality delivery to young people, and that they make suitable provision for the continued training of professionally qualified workers and their continuing professional development by: (a) ensuring that such education is economically viable for higher education institutions, (b) supporting practice organisations to deliver high quality work placements, and (c) maintaining support for a robust validation process involving all stakeholders.
4.       That the government align research council and other funding to the grand challenge of delivering and evaluating effective services for young people, with the aim of developing systematic, long term, trans-disciplinary research focused on understanding, modelling and informing youth work practice in the UK across the board.
5.      That a broader range of options other than just the NCS is looked at in relation to citizenship and inclusion issues.