Sure Start Children’s Centres

Andrea Leadsom Excerpts

Wednesday 2nd March 2011 Commons Chamber

[Andrea Leadsom (South Northamptonshire) (Con)]

It is a huge pleasure to follow the right hon. Member for Birkenhead (Mr Field). I feel at least as passionately as he does about the need for early intervention and about the need to support the youngest in our society, and I wish to use this speech to press for far more evaluation of what works. I absolutely agree with the right hon. Gentleman, who I am pleased to call a friend, on the need for children’s centres to be far more at the heart of children’s services generally. I absolutely agree with his suggestion that people should go to such a centre to register for child benefit and for initiation ceremonies to welcome their child into the world. Such things are all crucial to ensuring that Sure Start children’s centres are at the heart of everything to do with infants and their families—that is incredibly important. I welcome the Government’s intention to introduce far more health visitors, because that will strengthen the ability of children’s centres to meet local needs.

I also congratulate my hon. Friend the Member for Beverley and Holderness (Mr Stuart) on his words and on his recommendation that the Government think carefully about whether we want this to be a purely localist agenda or whether there needs to be some universal, centrally driven remedy on children’s centres. I believe that localism is key, because local communities know best how to deal with the issues in their area, and I wish to talk a little about my experience of Sure Start.

[Mr Frank Field]

The hon. Lady talks about the importance of localism, but one of the report’s recommendations is that central Government ought to say that Sure Start ought to buy in more services from outside organisations. There is a balance to be struck between allowing local bodies to do anything, which might just be to keep things as they are, and an approach that engages some of the best organisations, which so far have not got much of a look in from Sure Start funding.

[Andrea Leadsom]

The right hon. Gentleman is absolutely right. As I said at the outset, I wish to make a plea for better evaluation of what works. My hope, although not my direction, is that more Sure Start children’s centres would therefore follow best practice.

From 2001 to 2009, I was chairman of the Oxford Parent Infant Project—OXPIP—which is a children’s charity operating around Oxfordshire. In the past year, it has become co-located with the Rose Hill Sure Start children’s centre. When I first became its chairman, OXPIP helped families who were struggling to bond with their newborn babies and provided psychotherapeutic support for families who were simply desperate. I am talking about people who are perhaps suicidal or about to harm their baby, who are desperately depressed and who simply cannot cope. OXPIP helps those parents to get over that, to build a secure attachment with their babies and to move on confident of being loving parents as part of a loving family. OXPIP’s results have been truly astonishing and there is a desperate need to evaluate quantitatively the work of such organisations, so that such best practice can become widespread in children’s centres.

In 2001, the Rose Hill Sure Start children’s centre was just starting out, as was OXPIP, and in those days it was all about creating a large building and it had a large budget. It was focused on outreach and putting lots of resources into play. My hon. Friend the Member for Beverley and Holderness made the good point that it has taken a lot of time to get children’s centres to the point where they are really effective, they know what works and they know where the best value for money lies, so it would be a great shame now to try to form any sort of revolution in children’s centres and end up throwing away all the good stuff that has come out of that long term of experience.

In those early days, OXPIP was a charity with very little funding, no statutory money whatever and only the money it could raise through its own efforts. We were successful in getting a significant and ballooning lottery grant, so we had three years of ever-rising income from which we could build on our platform. The sad fact was that the Sure Start children’s centre would not even cover the cost of providing a service. It wanted to engage OXPIP’s services, but only at a flat rate that did not reflect the true cost of providing it. We therefore had a ridiculous scenario in which a charity that was living hand to mouth and was totally dependent, in the early days, on the good will of volunteers was subsidising a Sure Start children’s centre that had a huge budget and that did not seem to understand that OXPIP’s work really defined what Sure Start was all about—providing children with a sure start in life.

From that day to this, 10 years on, we have gone from strength to strength. As I have said, in the last year OXPIP has co-located with the Sure Start children’s centre, and that has been a complete success story. They have many different approaches regarding the different backgrounds of the many diverse nationalities and cultures found in Oxford. They provide support to fathers, mothers, grandparents, foster parents and adoptive parents, and many different services. Now that OXPIP, of which I remain a trustee, is co-located with Sure Start, we can focus on providing psychotherapeutic support for families who are really in difficulty. That has worked very well. I wanted to share that experience with hon. Members because I feel that Sure Start children’s centres have come a very long way and it is terribly important that the Government seek to improve on that and to provide more evidence about what works best, rather than interfering with and possibly damaging it.

[Stephen Lloyd (Eastbourne) (LD)]

I concur with much of what my hon. Friend and other hon. Members on both sides have said about Sure Start being a tremendous success. It is now bedding down and although I have some anxieties about local authority flexibility, I think it is broadly going in the right direction. One thing I am particularly pleased about is the increased entitlement to 15 hours a week for all three and four-year-olds. My view—I think that everyone who has spoken so far has said this—is that the more children from disadvantaged areas we catch early the better and that the entitlement for all three and four-year-olds will make a real difference. Does my hon. Friend agree?

[Andrea Leadsom]

I thank my hon. Friend for that timely remark. I was going to resist the temptation to talk about early infant brain development, but I shall just spend 30 seconds on it now. I absolutely agree with him, but I feel that the money should be focused on nought to two-year-olds for the simple reason that a baby’s brain development is at its peak rate at between six and 18 months. That is when the frontal cortex grows as a result of a secure attachment to a loving carer. That loving attachment enables that part of the brain to put on a healthy growth spurt, giving the child the capacity for lifelong mental health even before they are a toddler. In the absence of such an attachment, intervention when the child is three or four is too late, so I absolutely agree that the extra money for the early years is important, but I think it is coming in too late and I would rather it was focused on the nought to two-year-olds to support families at a time when the outcomes for their baby matters so desperately. Once a baby reaches two years old, that opportunity is significantly reduced, so anything we do after that is already too late.

[Bill Esterson]

The hon. Lady makes a very good point about the brain development of young children, which is made very strongly in the report of my hon. Friend the Member for Nottingham North (Mr Allen), as I am sure she is aware. Given the point that she and others are making about the importance of Sure Start and early intervention generally, will she comment on the impact of removing ring-fencing? In Sefton, there is a 12.9% cut, as there is in the constituency of my hon. Friend the Member for Hammersmith (Mr Slaughter) in the borough of Hammersmith. The impact of that, along with all the other huge cuts, particularly in inner cities, has made it very difficult for councils to protect these services. Will she comment on the link between that and the need to protect services centrally if we are seriously to have a national strategy on protecting Sure Start and on early intervention?

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[Andrea Leadsom]

Yes, I thank the hon. Gentleman for his comments. I am a firm believer in localism. My experience of Sure Start centres is that they evolve in a way that suits their community, and it is for county councils to support that need as necessary in their community. I am not a big fan of centralism or, indeed, of ring-fencing for that very reason, so I share his concern about the decisions that councils may be taking to cut those services, which I very much regret. Having said that, there is enormous room for improvement in Sure Start children’s centres, which could become more effective. Those centres need to focus strongly on that because otherwise the incentive for councils to continue to fund them at current levels simply will not be there.

That brings me to my final point, which is about the call for better evaluation. OXPIP, the charity that I have been closely associated with for many years, has always had rave reviews from social services, health visitors, GPs and families in Oxfordshire, where it operates, but we have not been able to have a random control trial, which is the gold standard in quantitative evaluation because of the ethics of intervening with one group but not another. What about the outcomes for the group of families whom we know are in difficulty but do not help? The ethics around this issue mean that quantitative evaluation is a problem. If the Government are to do anything to help Sure Start children’s centres to make the right decisions and to make progress in the most effective areas, they need to put resources into serious studies about how effective different early intervention programmes are. I strongly support the work of the hon. Member for Nottingham North (Mr Allen) in looking into those issues and in trying to evaluate which programmes are more helpful than others.

[Ben Gummer (Ipswich) (Con)]

I completely agree with my hon. Friend. I have been spending a lot of time in primary schools in my constituency in the past 10 months and reception teachers have told me time and again that they can almost tell which Sure Start centres are doing good work and which are not really adding much value. However, that is the extent of their knowledge because the evidence is anecdotal. We really need some proper evidence so that Sure Start centres can be evaluated and best practice can be spread.

[Andrea Leadsom]

That is exactly right. County councils and directors of children’s services are very aware of the potential value of Sure Start children’s centres. My director of children’s services in Northamptonshire would love to get even more value out of them and would welcome better research showing what would work better, rather than having to go it alone in those areas.

Let me conclude with a small plug. I plan to launch a pilot scheme in 2011 for a Northamptonshire parent infant project that will mirror what OXPIP has been doing so successfully for 13 years in Oxfordshire. Working closely with children’s centres in Northamptonshire, I hope to show, prove, demonstrate, document and evaluate the value of really early intervention services in making a real difference to the quality of families’ lives.

[Mr Barry Sheerman (Huddersfield) (Lab/Co-op)]

It is a pleasure to follow the excellent speech of the hon. Member for South Northamptonshire (Andrea Leadsom). I was strongly tempted to intervene at the critical point near the end of her speech when she put her finger on the real problem of localism—when she talked about the pilot that did not go ahead because of the ethics of intervening with one group but not another. The issue we are debating directly concerns children’s centres and the information that flowed from an inquiry of the Select Committee on Children, Schools and Families when I chaired it. That inquiry went back to March 2010 and I think that you might even have given evidence to it, Madam Deputy Speaker, wearing a different hat. Central to today’s discussion is whether we should have a service that guarantees certain things for every poor child in the country or whether we should leave it up to the randomness that comes when different councils with different majorities or no majority, which may lack funding and which may be urban, suburban or rural, are left to take those decisions. I come from an old-fashioned school of thought, which I hope will come back into fashion, that believes in giving guarantees to every child in the country.

Let me take the House back briefly to when I became the Chair of the Select Committee, 10 years ago. The very first inquiry was into early years. We were the first Select Committee ever to hire a psychologist, because we wanted to understand the development of a child’s brain. Everything that has been said in the debate touches exactly on that.

We were lucky enough to engage three special advisers to the Committee, led by Kathy Sylva, the wonderful former head of children’s services in Oxfordshire. Kathy Sylva did that original research showing that by 22 months a child’s brain has developed to such an extent that it is extremely difficult to compensate later for lack of stimulation during those 22 months. Members in all parts of the House—no party political points here—understand that early years intervention is critical. We must also agree that there have been some difficulties since we produced our report last March. Such a time lapse is a great advantage, because we are able to see what has happened.

Many of the 3,500 Sure Start children’s centres are new and had only just been completed when we finished our report, just before the general election. Some were older, but all centres need time to put down roots. When we are experimenting with social policy, especially in such an important area, we must bear it in mind that children’s centres need time to respond to the local community and to change their shape and nature as demands on them are made and they become better known by good professionals working in the community. There is no doubt that the maturation process is important. As all of us in the educational world know, with the best intentions, it is difficult when national policies are rolled out.

Pilots may show that something works excellently on a small scale. I have been reflecting on that. One of the few times that I failed to get a witness to come before the Select Committee was when we asked Jamie Oliver. By the time we got through his press and publicity machine, his managers and his agents, we gave up trying to get him, even to speak about school meals. We did a school meals investigation before Jamie Oliver had made his programme. Tonight there will be a Jamie Oliver programme on television about his ideal school.

I learned a lesson last summer. I took my daughter, who at that time was heavily pregnant with twin boys, and my wife to a Jamie Oliver restaurant in Kingston, and it was one of the most disappointing meals that I have ever had. I had eaten in his restaurant Fifteen and I would recommend it to anyone. It is a flagship restaurant and was a wonderful experience, but when the Jamie Oliver offer is rolled out around the country, we see the difficulties that I found in Kingston upon Thames in the summer, as we have in education when we roll out children’s centres. The pilot looks wonderful and we think we can roll it out in 100 or even 500 centres. The reason our Government moved from 500 Sure Start centres to 3,500 was that most of the poor families in our country live outside the 500 poorest wards.

[Andrea Leadsom]

Surely that is an argument for localism in the case of children’s centres.

[Mr Sheerman]

Sorry, I disagree. It is a call for greater management. When an idea is rolled out and franchised, it is essential to ensure that there is a set of standards, that people know that they are expected to reach those standards, and that those standards are delivered. May I point the hon. Lady to the remarkable work of Lord Baker when he was Secretary of State? He picked up the challenge of Jim Callaghan’s Oxford speech to Ruskin, in which Callaghan said that we needed an inspectorate to check on quality, testing and assessment to find out how children were progressing, and a national curriculum. Jim Callaghan never did anything about it, because he did not have a majority or any money. Ten years later Ken Baker did it. He knew that we had to be able to deliver nationally to a national standard.

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[Matthew Hancock]

That is why it is important to have a specified national minimum level of provision, and then allow councils to ensure that they meet—and, one hopes, exceed—that level. The reason for allowing local innovation and flexibility with a national minimum level is to enable different approaches to be taken in different places, so that best practice can emerge. That lets local councils and people deliver in the way that is most helpful and appropriate to local people, but it is also about ensuring that instead of a centralised, bureaucratic system, we have a local system that responds to local need.

We heard earlier from the hon. Member for Huddersfield (Mr Sheerman) that we need better management, but we have had a centralised system for years. As a member of the Public Accounts Committee I am obviously well aware of National Audit Office reports, and, sad to say, the NAO found that the amount of formal child care among the most disadvantaged fell between 2004 and 2008. Instead of leading to more provision for those people, the centralised approach actually led to less, so let us try a different way.

[Andrea Leadsom]

Does my hon. Friend agree that if we had too centralised a system, we would lose the excellent work of many voluntary sector organisations in specific areas, such as the charity with which I have been involved in Oxfordshire, OXPIP? We would not have the opportunity to introduce local services to meet local needs.

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[Matthew Hancock]

Of course qualifications are meaningful, but does the hon. Gentleman claim that no person without the formal paper qualification is up to the job? I do not think so. Of course, a qualification is part of someone’s resumé and experience, but we should not be so bureaucratic about the piece of paper. We should look at the person’s ability and qualifications through their history.

[Andrea Leadsom]

I thank my hon. Friend for giving way again. On qualifications, in the charity with which I am involved there are people with PhDs in psychotherapy, and paediatricians, who have decided to move to working with the very young. It is nonsense to say that having a specific piece of paper uniquely qualifies someone to support early years.

[Matthew Hancock]

I agree wholeheartedly.

There is a consensus—I am glad that there is—about the need to focus resources on early years. There is much more difficulty with actually doing that, and several people will the ends without willing the means. I regret it when the subject becomes a political football, because almost all of us agree about the ends. Before the election, the right hon. and learned Member for Camberwell and Peckham (Ms Harman) went to Ipswich and said that Sure Start centres would be closed there. However, they are all open. It was a mistake to make that prediction, and she should withdraw it. Similarly, it is a mistake for the Labour party to argue that the amount of cash for the early intervention grant is falling when it is being kept flat. We should work together to achieve the ends, about which we all agree, in the difficult circumstances that the Government did not bring about, to ensure that we serve our children best and improve their life chances, cognitive abilities, skills and happiness. We should not create a political football, saying that we agree about the ends while disagreeing on the means to achieve them.