Youth Service Provision

Bill Esterson Excerpts

Wednesday 3rd December 2014 Westminster Hall

[Alex Cunningham]

I am grateful to my hon. Friend for that intervention. That is frightful, and as I develop my speech this afternoon, I will refer to some of the consequences of losing youth services altogether.

The Government have established a maze of inefficient and underperforming nationally controlled programmes that duplicate services locally. There are around 40 national schemes and services delivered by 10 different Departments and agencies, leaving councils little, if any, influence to co-ordinate, target and scrutinise the shifting market of publicly funded provision and hindering their ability to plan where best to invest their own support.

Over the summer, I visited one of the schemes, the National Citizen Service, and met some lovely young people. I was impressed by the efforts and intentions, but the fact remains that these schemes have failed to fill the gap that cuts to youth services have created. To make matters worse, the NCS costs £1,200 per head for a six-week volunteering programme, whereas a similar scheme in Germany is able to fund a whole year’s work-based volunteering for the same cost.

[Bill Esterson (Sefton Central) (Lab)]

Like my hon. Friend, I have met the people running the NCS, and I think the work that they do is very good. However, would he agree that one of the big problems with the NCS is that it does not happen week in, week out, all year round? What we really need are youth service workers working with young people every day of the year, because that is where the real difference is and where the real impact is made.

[Alex Cunningham]

My hon. Friend is correct. I will not take anything away from the NCS; I think it is a tremendous and very effective programme. The young people whom I spoke to were really enjoying it and they told me that they were learning tremendous things, but as my hon. Friend said, it does not address year-round provision. It is six weeks, then there is a cliff edge and the provision ends.

The loss of specialist staff and locally tailored services should worry us all in that context. Young people want and need to be able to socialise in a safe and secure environment, but they also need specific professional support in many areas of their life, yet the Government measures forced on local authorities will leave many young people with nowhere to go but street corners. What my hon. Friend the Member for Stretford and Urmston (Kate Green) mentioned is probably an example of that. It does not just risk encouraging antisocial behaviour; more importantly, it will leave young people in very vulnerable situations and potentially victims of who knows what as they spend their time on the streets.

[Alex Cunningham]

Most certainly, because a lot of these programmes are aimed specifically at young people from deprived backgrounds who may not have access to the theme parks and holiday experiences that are enjoyed by other young people. It is all the more important that the service provision is there—and that they can eat there. When I went to the NCS in Stockton, they were doing some cooking. I did not care for the famous Parmo pork, with cheese spread over the top, and the pizzas that they made, but they were actually doing something. People said, “It is not very healthy food,” but at least they were eating, and we need to make sure that young people can eat along the way as well.

In many poorer communities, youth clubs and similar facilities are the only service available to young people and provide opportunities to learn new skills and channel their energies productively, but youth centres are so much more than simply a hangout place for young people. Yes, that is one element of the function they serve, and a very welcome one, but well-managed youth centres serve a dual purpose that will now be missed.

That open-access provision is a gateway to early intervention, reaching out to vulnerable youngsters who might otherwise be missed by other services or whose needs might escalate before they are picked up by targeted services. These open-access services are often more appropriate than targeted interventions when it comes to improving outcomes for young people. However, the large numbers of young people at risk of falling through the cracks in provision will not become evident for perhaps five or 10 years, by which time it will be too late.

Stockton-on-Tees borough council, which is responsible for youth services within my constituency, has seen the number of youth centres halved to just 12. That said, through much hard work, I understand that they have succeeded in attracting greater numbers of young people and on a more frequent basis. I take my hat off to them; that is very positive. However, in outlying areas, where provision for young people is generally poorest, the loss of somewhere to go that is close to home is a real problem for communities.

Across the country, the remaining youth provision is provided by youth workers who are thinly spread, overworked and, consequently, less able to fulfil their roles effectively. There is an obvious detriment to the services that they provide and to the young people with whom they work. Although local authorities are limiting the extent of cuts in youth service spending as best they can, that has largely been achieved by reducing the numbers of professional youth workers with the important JNC—Joint Negotiating Committee for Youth and Community Workers—qualification and the skills that come with that.

Again, the context is crucial. In the same two-year period that has seen the number of youth centres dwindle, 2,000 valuable skilled youth workers have been lost from the system. The Unison report highlighted the fact that, as a result, 41,000 youth service places for young people have disappeared, meaning that 35,000 hours of outreach have vanished from youth service provision. That loss is particularly concerning because by building relationships of trust and support with young people, specialist youth workers can actively engage with their communities and help young people to make their own informed decisions about their lives and develop confidence and resilience. In short, youth workers play a central role in supporting young people, yet their years of hard work are being dispensed with and the successes that they have worked hard to achieve are being jeopardised by scything Government cutbacks.

As if that was not bad enough, it has emerged that, as has often been the case under this Government, the impact of the cuts has been felt particularly hard in some of our most deprived communities. In such areas, youth services play an even more significant role: helping young people into work, avoiding and preventing substance abuse and tackling problems of antisocial behaviour and gang violence, as well as boosting community cohesion. However, the effects of austerity have been concentrated in those very communities. The education maintenance allowance has been removed, while support from the access to learning fund and the student opportunity fund has been cut. Housing benefit for the under-25s has been cut, tuition fees have trebled, making higher education more expensive than ever before, and careers services have been slashed. Those cuts are severely short-sighted and will add up to even greater problems as we move forward.

Let us take, for example, the careers service. At a sitting of the Select Committee on Education last week, Lorna Fitzjohn, Ofsted’s national director for further education and skills, reminded MPs that their assessment of the quality of careers advice in schools was that it was less than good in four out of five. It is no wonder: the Government dumped the careers service on schools—I acknowledge that they have the National Careers Service—but did not provide them with the funding that went with the responsibility. They were relying on the national service to offer additional guidance, but few young people have even heard of it.

There are some examples of very good practice, but in most cases, it is left to ill-equipped teachers to cobble something together and, if they have the right contacts, encourage a few employers to come in and chat to the young people. Association of Colleges research indicates that less than half of all colleges have reported that schools in their area are delivering the requirement to provide independent careers advice and guidance. Largely gone are the professional people who had the breadth of knowledge of different opportunities that provided the young with options best suited to their needs.

The Unison survey found that the majority of schools had reduced their careers advice and had no place for careers experts. Research by the university of Derby found that out of 144 local authorities, only 15 would maintain a substantial careers service. Ofsted’s promised review of careers guidance—that particular area of youth services—in 2015-16 cannot come soon enough.

In the current economic climate, which has seen unprecedented levels of youth unemployment and witnessed 1 million young people being out of work, education or training, there can be no doubt about the need for qualified youth workers, who are able to guide our young people into making the right choices for their lives and provide the support necessary for them to enter the work force. We cannot ignore the fact that young people are far more likely to be unemployed than those in older age groups, who are more likely to have experience on their side.

I am fortunate that Stockton borough council is very much a forward-thinking local authority. Its Youth Direction service is therefore geared to provide to young people across the borough a range of resources, including careers advice, business support and an array of targeted youth support projects, but it is the innovation that comes with that proactive provision that is particularly impressive. Working alongside the council’s antisocial behaviour team to carry out joint patrols in Billingham, the Youth Direction service is assisting with the targeting of identified hot spot areas and is actively contributing to reduced instances of antisocial behaviour according to police statistics.

[Bill Esterson]

My hon. Friend uses reducing antisocial behaviour as one of the very good examples of how youth work really does help as an intervention. Youth workers in my area—or former youth workers, to be more accurate, given that they are not employed any more—make the point to me that they are very often the one person in a young person’s life who is trusted and who gives them some kind of contact with authorities through which to address issues, whether it is antisocial behaviour, routes into employment or dealing with life in general. That one person makes all the difference to a young person’s life. They make a fantastic difference between success and failure later on as well.

[Alex Cunningham]

I am sure that that is very much the case, but it is not just about being the one person who may be trusted. I understand that youth workers are trusted more than teachers. Many young people look to a teacher for that sort of daily support and that level of guidance. I also see youth workers as almost being between the young person and the establishment, because they can be a champion for the young person in their community and with the other agencies. The point my hon. Friend raises is very important.

In Stockton, we are also going to have a patrol co-ordinator. The post, which will be advertised on Friday, will build on the work already being undertaken in Stockton and Billingham and will be the first ever joint antisocial behaviour and youth worker post in the country, so at least we are recruiting some youth workers, albeit only the odd one here and there.

Although a report from the National Audit Office concluded that, overall, councils have managed reductions well, 50% are none the less now at financial risk, while cuts to local government funding and services are jeopardising the Government’s professed ambitions for young people. Such an outcome not only is objectionable, but threatens to run counter to the duty on local authorities to secure access to a local offer. Introduced by the last Labour Government, that duty required all local authorities

“so far as reasonably practicable”

to provide all qualifying young people with access to

“sufficient educational leisure-time activities which are for the improvement of their well-being”.

In March 2012, the coalition confirmed that it would retain the duty and published streamlined guidance to accompany it, but that new guidance does not make clear the Government’s expectations for what a “good” or “sufficient” offer should look like. Instead, the guidance notes that local authorities are responsible for securing, so far as reasonably practicable,

“equality of access for all young people to the positive, preventative and early help they need to improve their well-being.”

Local authorities, however, face an enormous challenge in providing youth services while adapting to the sizeable budget constraints applied from Westminster. The large reduction in overall grant from central Government to local authorities and the cuts to early intervention grants mean that the sector faces a number of challenges. Despite research prepared for the Cabinet Office indicating that cuts to youth services in London were a factor in the riots experienced in the capital and other large cities in August 2011, the Government have refused to protect youth service budgets. Indeed, that report clearly states:

“Where young people described their normal lives as boring and talked about ‘nothing happening around here’, the riots were seen as an exciting event, a day like no other.”

On top of that, numerous young people are quoted as identifying boredom as a key driver of their involvement. With the riots taking place during the school holidays and with many youngsters having literally nothing better to do by way of structured activities, many resorted to joining in. If that point needed driving home, the report also notes that being otherwise occupied, whether through education, work, an apprenticeship or some other activity, was identified as a significant “tug” factor against “nudges” such as boredom.

Despite that alarming connection, statistics from the Local Government Association show that at least eight out of 10 heads of young people’s services said that they had faced more budget cuts since 2012. At the same time, two thirds of voluntary and community organisations providing youth services reported that they, too, had seen their income reduced in the previous 12 months. Although Churches and other voluntary groups have attempted to step into the breach that has been left by Government cuts, many simply do not have the resources to do so sustainably. Perhaps we need to go back to the expression “so far as reasonably practicable”. At least local authorities would be able to say that it is not reasonably practicable to deliver those services because the resources to enable them to do so no longer exist.

Before I ask the Minister some questions, I want to return to my home area. The Stockton youth assembly, known locally as the SYA, has been established to ensure that young people are consulted and their voices heard, and to help the council to work directly with young people to shape local services. The assembly provides a voice for young people aged 11 to 19, or up to 25 if they have a learning difficulty or a disability, and is made up of representatives from a wide range of existing youth voice forums. It holds a formal meeting every other month with an action-packed agenda. In between the formal meetings, the group have opportunities to engage in team building, positive activities and development sessions, which are provided by Youth Direction’s targeted youth support.

I remember well, when I was the chair of the Stockton Children’s Trust board, those same young people putting politicians, council, health, police and other professionals through their paces. They asked difficult questions, tried to force us to justify some of the changes that we were making at the time and encouraged us to do different things. That is the best of practice by a council that has been nominated countless times for council of the year and has, of course, won that award as well. From what I hear from around the country, not every local authority has been able to adapt to that extent to serve their young people—the example from Trafford comes to mind—and it is young people who pay the price for that.

I ask the Minister to carry out his own assessment of the impact of his Government’s cuts to youth services, and to pledge to become a champion for our young people and fight the Treasury for the resources that are required to start healing our youth services. Will he work with the Local Government Association to understand better the pressures it faces in delivering, in many cases, the most basic services for our young people? Will he help to fulfil his role of champion—the one that I have just given him—by better understanding young people’s need for the right advice and services from professional people? Will he further fulfil that role by working across Government to influence, among others, the Education Secretary to sort out the careers service? Equally importantly, will he help to ensure that the whole of Government works for our young people?

This is a well-worn cliché, but I will use it anyway. The young people of today are our future. They are the taxpayers of tomorrow and the people who will look after us. We need to give them more, and we need to give them a better start to help them to prepare for that responsibility.

--- Later in debate ---

[Julie Hilling]

I was going to talk about that issue, but I will pick it up now. If we look at the reports about Rotherham and Rochdale, we see it was youth workers who took the side of young people and started to raise issues. They said, “Things are not right here. These young people need to be listened to.” Indeed, they are perhaps the only professionals who come out well from those reports.

Youth work is also about challenging attitudes. It is not necessarily about taking the side of young people and deciding they are absolutely right, but about challenging their attitudes, their racism and their sexism. It is about challenging them to think about the world so that they do not just walk into the world and accept their place, but challenge the world as well. If they see injustice, they can challenge it by working together, not by rioting on the streets. Part of the legislation is that the voice of youth is central and that young people have a right to a voice.

[Bill Esterson]

I want to link what my hon. Friend the Member for Wigan (Lisa Nandy) said with something that my hon. Friend said earlier, based on her experience. Many of the young people involved in the trafficking were in children’s homes; my hon. Friend talked about her work with looked-after children. All too sadly, many children in care will end up in prison a few years on, costing £200,000 a year each, which is an horrendous sum. Given my hon. Friend’s experience, can she say how effective youth work has been over the years in keeping some of those young people from ending up in prison?

[Julie Hilling]

That is always hard to quantify, but the issue is important. Over the past few years, people have looked for integrated services, which is the right thing to do, but they have then tried to combine them in one role. Social workers working with young people in care have a vital role, but that adult who befriends young people and works with them on their terms, and who does not have to make sure that they are home by 9 o’clock at night, they have done their homework or they have eaten their greens, is also vital.

My hon. Friend is right that the cost of young people who enter the penal system is enormous, and I will come to the figures in a moment. We are spending about £100 per year per young person on youth work, compared with the hundreds of thousands of pounds we spend to keep people in the penal system because we could not spend a pittance on them before. It is estimated that if we spent £350 per year per young person, that would fund the proper youth service we are talking about.

Another issue the Government have led us to is working just with the young people who are most in need—those who are not in education, employment or training. Of course we need to work with those people, but the more cuts we make to the service that gathers most young people, the more people will fall to the bottom of the net and need a more specialist service to get them out. The youth service is a good vehicle for enabling all young people to have that same positive relationship.

Let us talk about some of the cuts. In 2010, Sheffield had 41 youth clubs; in 2013, that was down to 23. Since 2013, of course, there have been further cuts, and those cuts are continuing. In the north-west, Manchester disestablished its youth service. It is still putting £1.3 million into the voluntary sector, but that is now up for grabs, and it is likely to disappear. Oldham is getting rid of everything apart from one myplace centre. In Trafford, all provision is on the table to go completely, although a housing association might pick some up. In St Helens, there is a 77% cut, and it now has only 28 hours of delivery at the most.

In Lancashire, half the budget has gone, and it is now looking at further cuts. In Tameside, the budget is almost gone. In Stockport, it is gone. Sefton faces huge cuts. In Liverpool, the budget is gone. Bolton faces massive cuts. Wigan now faces an 80% cut. Cheshire West now has four professional youth workers—I am sure they know individually every one of the young people they are supposed to be working with. The one little bit of success is in Knowsley, where youth workers and young people have set up a project together and are running the services.

The picture across the country is devastating. The smallest cut is 50%. A lot of areas have cuts of 75%. Now, particularly in the period going forward, a lot of areas are cutting budgets completely. These authorities have a statutory duty to provide a service, and I will come back to that in a minute.

We are losing the professional expertise and the co-ordination across the piece. Even when there is money to go into the voluntary sector, there is nobody there to co-ordinate that spend. Indeed, I was told yesterday of a local authority that is now looking to the regional youth service unit to provide it with some infrastructure, because the local authority’s infrastructure has completely disappeared.

It is now difficult to ascertain what is left of many services. Some are youth and play, while some are just youth support services. The whole designated youth service budget has gone completely. What saved the Wigan youth service in the late ’80s was the fact that the local authority had to spend a percentage of its education budget on the youth service. We had a great influx of money, and we doubled the number of youth workers. Legislation is important, and it should be implemented.

If we ask people in a neighbourhood what they want, they say they want youth centres for young people to go to. They do not want young people hanging around on street corners with nothing to do; they want them to have positive relationships. In that respect, early-day motion 488 now has more than 100 signatures, and 38 Degrees—I agree with this 38 Degrees petition—is encouraging people to sign a petition.

One of the Minister’s predecessors did a survey of local authorities’ youth service spending. As far as I am aware, it has never come to light. Can the Minister enlighten us about what happened to it, or whether it exists? Certainly, Unison did freedom of information requests on some local authorities and discovered that at least 2,000 jobs had gone. Given that there were only 7,000 in the first place, that is an enormous percentage. Some 350 youth centres closed and 41,000 youth services places were lost. As has been mentioned, a place in the criminal justice system costs £200,000 per annum.

I quote again from the Choose Youth manifesto:

“Youth work contributes significantly to early intervention and preventative services thereby reducing the incidence of young people in need of highly targeted intensive and expensive services later on.

For example, the Audit Commission report into the benefits of sport and leisure activities in preventing anti-social behaviour by young people estimates that a young person in the criminal justice system costs the taxpayer over £200,000 by the age of 16. But one who is given support to stay out costs less than £50,000. Other comparative costs include: £1,300 per person for an electronically monitored curfew order. £35,000 per year to keep one young person in a young offender institution. £9,000 for the average resettlement package per young person after custody.”

Youth work is a cheap, efficient alternative to all those other intervention measures. The National Youth Agency used to be paid to collate a survey of spending on local authorities. It can no longer do that work because it is no longer paid to do it.

The youth service profession are qualified workers, not just people who turn up on a Friday night and decide that they will play with young people. A youth work qualification is equivalent to a teaching qualification. The qualification and training are as rigorous as those for other caring professions such as social work and teaching. Youth work is now a degree profession and youth workers are highly trained and qualified. They support volunteers in their work. For every pound spent, £8 comes back in action by volunteers. The work is cost-effective in all sorts of ways, but it is about professional service. Most of us would not want an unqualified teacher to be standing in front of a class and teaching. Most of us would not want an unqualified doctor to treat us or an unqualified nurse to deal with us. Why then should we accept unqualified youth workers working with young people?

--- Later in debate ---

[Andrew Percy]

I do not know what the situation was, but I remember in the city of Hull, when we had it, although there was pump-priming from central Government we eventually ended up picking up some of the expenditure on Connexions. [Interruption.] I will have to. If the hon. Gentleman wants to contact me afterwards we can try to sort it out. I was on the council for 10 years. There are many things I remember well and some I choose to forget. This is one that I remember; we debated it in the council chamber. I will happily be corrected afterwards.

On the hon. Gentleman’s broader point about whether we should be mandating how local councils spend their money, there are countless examples. Connexions may be an example of where that happened after funding was made available by the previous Government. Bus passes are another example of where local authorities got some money and were told that they had to provide something. The money from central Government disappears off and local authorities ended up having to absorb it in their revenue budget. My answer to his question is that I would be nervous. It is something that local authorities should choose to provide, and if they do not provide it, they can be held accountable at the next election.

[Bill Esterson]

Will the hon. Gentleman give way?

[Andrew Percy]

I came in late, so it would be rude of me not to give way.

[Bill Esterson]

The hon. Gentleman used the phrase “Government money disappears off,” which has certainly happened on a grand scale under this Government. Does he agree—this is the point Opposition Members have all been making—that investment in youth services prevents the costs of social failure, one way or another, especially preventing young people ending up in prison? Does he support the general principle of invest to save, quite apart from the benefits to young people?

[Andrew Percy]

I will not rehearse with the hon. Gentleman the reason why there are spending reductions for local government, which would have been implemented by whoever was in power. Let us not pretend that there is some sort of alternative nirvana in which local government budgets would be increasing. Regardless of who won the 2010 election, local government budgets would be reducing, so let us nail that myth.

I am rapidly trying to remember the hon. Gentleman’s question, which was on whether there is value in investment. I think there is value, but it can be provided in a number of ways. Indeed, who is providing such bespoke support, particularly to at-risk young people, varies between localities. There is no doubt, because the evidence is very clear, that if we intervene early on young people who are at risk of following certain pathways, we can prevent those outcomes—that is what we all want. I broadly agree with him, although how we provide it should not be mandated in one particular way.

That brings me neatly to North Lincolnshire council. We went through a painful process, because following the “Positive for Youth” Government guidance in July 2012, the local authority decided to consult young people on how it should provide its youth services. In so doing, the local authority spoke to 2,000 young people, who told us that the service they had been offered, which in many ways had not changed since the old Humberside youth service of 40 years earlier, was not necessarily delivering what they wanted it to deliver. That became controversial. Some youth workers did not like it, because different providers were brought in. Indeed, in the initial proposals there was a gap between what would happen to the core, traditional youth worker roles and the new provision. Questions were asked about whether we would lose something. Eventually, the local authority came to the sensible position of retaining a number of fully qualified youth workers in an outreach role across localities, and a range of other provisions was provided across various localities with an increased budget of £194,000, which is not insignificant for a small authority.

Young people told us that they did not necessarily want everything to be sport-related, which often happens with youth services and youth provision in the broader sense. People often think, “We’ll just put goalposts up and give kids a football, because that’s what they really want.” But that is not what a lot of young people want, so street dance is now being provided by a brilliant organisation called Street Beat. We have Grasp the Nettle, and we even have cooking classes. Of course, street sport is provided throughout the summer months, and indoor sports are provided in the winter months.

We have been able to base those activities in 20 centres across North Lincolnshire, including all the existing youth centres, which the council decided to retain and, in some cases, improve—the youth centre in Broughton in my constituency will shortly be moving. We now have new providers offering a range of services, including the Duke of Edinburgh award programme, in a number of new centres. There are new operators in places such as Winterton, Brigg, Epworth and Crowle. Attendance in Broughton has increased by 63% since youth services were provided in this different way, which was controversial in many respects, but the figures speak for themselves.

The local authority also talked to disabled young people about what they wanted. The responses were very interesting, because they wanted bespoke services for disabled young people to be part of the mix, but they wanted mainstream provision to apply to them, too. I pay tribute to Scunthorpe United, which does a great job of providing disabled youth services. I also pay tribute to Daisy Lincs, which is a great local charity headed by Julie Reed from Crowle. Daisy Lincs does a brilliant job with disabled young people.

I will now describe where we are at in my area and across North Lincolnshire. Before the changes, we used to have three sessions a week in Winterton; we now have five. We used to have eight sessions in Brigg; we now have nine. On the Isle of Axholme, which I represent, we used to have three sessions; we now have nine. The number of sessions increased by 49.5% between 2012-13 and 2013-14, and the attendances speak for themselves. There were 31,215 attendances in 2013-14 compared with 22,800 in 2012-13, so providing services in a different way and delivering them with extra funding has made a real difference. The biggest thing we found was that 85% to 90% of young people simply did not engage with the old youth service provision, which was working very well for a certain group of young people, but it was not working more broadly. It could be argued that some of the new provision, because it is based around themes such as street theatre, may not be picking up some of the important issues that the hon. Member for Bolton West so eloquently outlined. That is why outreach services are being retained.

We know that the picture is painful for many local authorities, but in North Lincolnshire, by putting in that extra money and providing services in a different way, based on what young people told us they want—there were some protests from youth workers—we have been able to deliver a positive change.