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					Report No. DCYP09107

London Borough of Bromley

Agenda Item No.


Decision Maker:
Date: Decision Type:

22 July 2009 Non-Urgent Executive Key

Contact Officer: Chief Officer: Ward: 1. 1.1

Rob Carling, Head of Children and Young People Finance Tel: 020 8313 4807 E-mail: Gillian Pearson, Director of Children and Young People Services Boroughwide

Reason for report This report requests that some of the grants held in the 2009/10 central contingency relating to Children and Young People Services be released into the Children and Young People budget for the term of the grant. The grants in contingency, which include Area Based Grants, total £713,000 and relate to the Graduate Leader Fund, Child Death Review, Extended Schools, and the London Youth Offer/Positive Activities for Young People. At the meeting of the Executive on 17 June 2009, Members agreed to set aside £0.5m as an earmarked reserve for any potential redundancy costs. Should the grants detailed in this report reduce or cease and staff redundancies are necessary, these costs can be charged to this reserve.



________________________________________________________________________________ 2. 2.1 RECOMMENDATION(S) That the grants detailed in this report be released from the central contingency into the Children and Young People budget.


Corporate Policy 1. 2. Policy Status: BBB Priority: Existing policy: Children and Young People's Plan 2009-2011

Children and Young People

________________________________________________________________________________ Financial 1. 2. 3. 4. Cost of proposal: Ongoing costs: Estimated cost Recurring cost Central contingency £1.698 in central contingency relating to Children and Young People Services. (£713,000 detailed in this report.) £2.461m in 2009/10 base budget. £713,000 in 2009/10

Budget head/performance centre: Total current budget for this head:


Source of funding:

Government grants

________________________________________________________________________________ Staff 1. 2. Number of staff (current and additional) – current 42.7, additional 2.7 If from existing staff resources, number of staff hours -

________________________________________________________________________________ Legal 1. 2. Legal Requirement: Call in: Statutory requirement: Call-in is applicable Local Government Act 2000

________________________________________________________________________________ Customer Impact 1. Estimated number of users/beneficiaries (current and projected) N/A ________________________________________________________________________________ Ward Councillor Views 1. 2. Have Ward Councillors been asked for comments? Summary of Ward Councillors comments: <please select>


3. 3.1

COMMENTARY As part of the 2009/10 budget setting process, Members agreed that any new grant funding or increases above inflation for existing grant funding be held in the central contingency budget and not included in departmental service budgets. These grants total £1.698m in 2009/10 for Children and Young People Services. This report is requesting the release of £713,000 from this total in to the Children and Young People budget, to deliver the related key service functions. Details of the grants being requested to be transferred to the Children and Young People budget are shown in the table below. Grants in Contingency Specific Grant Graduate Leader Fund Area Based Grants Child Death Review Grant Extended School Start Up Costs London Youth Offer/Positive Activities for Young People 40,000 320,000 249,000 713,000 104,000 2009/10 £


3.3 3.4

Full details on the proposed use of the grants in paragraph 2.2 is shown Appendix 1. The Executive received reports in the last financial year and approved the release of funding into the children and young people budget in 2008/09 for the Child Death Review Grant and the London Youth Offer/Positive Activities for Young People. The ”Update on the Financial Strategy 2010/11 to 2013/14” to Executive in June 2009 highlighted the impact of the recession and the resultant increasing national debt. It appears likely that there will be significant pressure on levels of public spending in the next few years and hence more restricted availability of government funding for local authorities, particularly from 2011/12 onwards. As was highlighted in the report to the Executive, the Council is very reliant on Government funding, receiving £438m in Government Grant. The report to the Executive illustrated that if Dedicated Schools Grant, housing and council tax benefit grant and Formula Grant remain unchanged, a cut of 10% in remaining Government funding would equate to £8.5m. This illustrates the potential vulnerability to the Council of changes in government funding. Bromley is a relatively low spending authority and there are significant benefits to local residents in ensuring that the Council maximises its uptake of available government funding. However, because of the risk of future funding reductions, officers and members will need to ensure that cost effective exit strategies when considering new grant related expenditure. It is particularly important to be mindful of potential high severance payments arising if staffing levels are increased. At the meeting of the Executive on 17 June 2009, Members agreed to set aside a sum of £0.5m as an earmarked reserve for any potential redundancy costs should Government grant reduce or cease. This reserve was be funded from underspends in the Children and Young People budget in the last financial year. Should the grants detailed in this report reduce or cease, and if redundancies are necessary, these costs can be changed to this reserve. 3




4. 4.1

POLICY IMPLICATIONS The grants concerned would contribute to the delivery of priorities for children‟s services set out in the Children and Young People‟s Plan, under the Every Child Matters outcomes framework. The revised plan for 2009-2011, which has been prepared following extensive consultation, will be considered for approval by the CYP Portfolio Holder in June. FINANCIAL IMPLICATIONS The central contingency budget for 2009/10 contains £1.698m for grants relating to Children and Young People Services. This report is requesting the release of £713,000 of this total into the Children and Young People Budget. An estimated breakdown of the expenditure is shown below: Staffing Costs £ 0 24,000 0 67,000 91,000 Running Costs £ 104,000 16,000 320,000 182,000 622,000

5. 5.1

Grants in Contingency Graduate Leader Fund Child Death Review Grant Extended School Start Up Costs London Youth Offer/PAYP

Total £ 104,000 40,000 320,000 249,000 713,000

5.2 6. 6.1 6.2

The remaining grants in contingency relate to Children and Family Centres and Every Child a Talker and will be the subject of further reports to Members. LEGAL IMPLICATIONS There is a general discretion to apply delegated funding for non specific purposes unless the sum delegated is specifically ring fenced by central government to provide a specific service. The Authority has a general power to aid and assist the wellbeing of its residents and facilitate services that promote such well being under the provisions of Section 2 local Government act 2000. The graduate leader fund is an initiative under Section 13 Childcare Act 2006 Section 13 requires English local authorities to provide information and advice on day care and childminding. Under subsection (1) of Section 13, local authorities are placed under a duty to provide information, advice and training to childcare providers who are registered under the system, persons who provide childcare in certain schools (whether registered or not) and those who assist in the provision of registered care or care in schools or who intend to provide such care. Local authorities must discharge this duty in accordance with regulations. In addition, the section also gives local authorities power to provide other information, advice and training to such providers and to provide information, advice and training to other persons who do not fall within the categories specified in Section 13 (1) but who provide or intend to provide childcare. Local authorities by virtue of Section 13(5) can levy reasonable charges in some instances for providing support. There is also a requirement to have regard to guidance produced by the Secretary of State.




6.5 6.6

The Early Years Professional Status qualification would amount to training under the Section 13 duty. The Child Protection Act 2004 required the establishment of Child Protection Boards. Regulation 6 of The Local Safeguarding Children‟s Board Regulations 2006 create a duty to undertake Child Death Reviews. Section 10 of the Children Act 2004 introduced the statutory duty of co-operation on bodies involved in the provision of children` services. Section 1 of the Child Care Act 2006 imposes a duty on local authorities in England to improve the well-being of young children in their area and to reduce inequalities between such children. Section 1(3) provides a power for the Secretary of State to set targets, in accordance with regulations, for:   the improvement of the well-being of young children in a LA area the reduction of inequalities between young children in a LA area.



Section 1(4) requires LAs, in exercising their functions, to act in the manner that is best calculated to secure that any targets set are met. Extended schools as set out in guidance are a means of achieving the statutory duties and targets. Section 507B of the Education Act 1996 (which was inserted by section 6 of the Education and Inspections Act 2006). Section 507B ensures that a single body – working within the context of the children‟s trust -is responsible for securing young people‟s access to positive activities. The legislation also creates requirements that place young people at the heart of decision making on the positive activity provision available to them. Section 507B also requires that local authorities build in contestability when securing provision. Statutory guidance on Securing Access for Young People has been issued section 507B (12) of the 1996 Act, sets out the responsibilities of local authorities under section 507B. In exercising their functions under this section, local authorities are required to have regard to this guidance. The element of the grant received from LDA was subject to a Contract for an initial 2 year period, one year has expired under the term if it is not continued the monies currently held will need to be returned to the LDA. PERSONNEL IMPLICATIONS Staff employed on fixed term contracts funded from specific grants are entitled to similar terms and conditions as permanent staff with regard to redundancy payments. Information received from the Government and the Council‟s external auditors has identified that it is not possible to charge redundancy costs to the specific grants. This puts the Council in a vulnerable position should the grants reduce or cease. Non-Applicable Sections: Background Documents: (Access via Contact Officer) N/A


6.10 6.11


7. 7.1



GRANTS IN CENTRAL CONTINGENCY RELATING TO CHILDREN AND YOUNG PEOPLE SERVICES 1. GRADUATE LEADER FUND The Graduate Leader Fund is a strand within the Early Years main revenue block and is ring-fenced to a specific strand of professional development of the Early Years workforce. The Grant is used to incentivise settings to encourage our PVI sector to employ or develop graduates; Early Years practitioners who will lead on developing the skills and competencies of the workforce and embed a culture of continuous quality improvement. At the pinnacle of the Early Years qualifications ladder is Early Years Professional Status (EYPS), a Level 6 qualification designed explicitly to promote the EYPS as practice leader, and agents of change, to improve practice. However, Early Years workers cannot step onto the EYPS course without obtaining lower level qualifications first. The Graduate Leader Fund is used to support the acquisition of lower level qualifications with the long-term intention of achieving EYPS. The Graduate Leader Fund is used to 'capacity build' EYPS of the future. Bromley PVIs are experiencing positive engagement with Graduate Leader Fund as Early Years providers appear to be increasingly recognising the value in the professionalisation of the sector. Funding in Bromley will be used to:     2. continue to incentivise learners to gain EYPS continue to incentivise EYPS practice maintain the momentum in lower level learning so that we can develop our EYPS of the future contribute to raising standards in our largely PVI Early Years sector

CHILD DEATH REVIEW GRANT Working Together to Safeguarding Children 2006 is statutory guidance which sets out how organisations and individuals in a given area must work together to safeguard and promote the welfare of children. Chapter 7 of Working Together sets out the procedures to be followed when a child dies. There are two interrelated processes for reviewing child deaths:   a rapid response by a group of key professionals who come together for the purpose of enquiring into and evaluating each unexpected death of a child an overview of all child deaths (under 18 years) in the Local Safeguarding Children Board area, undertaken by a panel to review information on all child deaths.


Rapid Response The rapid response process is to ensure that in each unexpected death of a child, subsequent enquiries/investigations keep an appropriate balance between forensic and medical requirements and the family‟s need for support. Children with a known disability or a medical condition should be responded to in the same manner as other children. A minority of unexpected deaths are the consequence of abuse or neglect, or are found to have abuse or neglect as an associated factor. In all cases, enquiries should seek to understand the reasons for the child‟s death, address the possible needs of other children in the household, the needs of all family members, and also consider any lessons to be learnt about how best to safeguard and promote children‟s welfare in the future. Overview Panel The Child Death Overview Panel must collect and analyse information about each death with a view to identifying:    any case giving rise to the need for a serious case review any matters of concern affecting the safety and welfare of children in the area of the authority; and any wider public health or safety concerns arising from a particular death or from a pattern of deaths in that area.

In addition the overview panel must ensure that the Local Safeguarding Children Board take steps to ensure that preventable child deaths are avoided. To do this it must promote awareness and investigate issues of concern e.g. around road traffic deaths and disability and ill health. These processes became a statutory requirement from April 2008. Progress in Bromley Following the introduction of the child death arrangements in Bromley the number of child deaths considered through the child death arrangements between April 2008 and January 2009 is as follows: Number of child deaths April 2008 – Jan 2009 Number that were the subject of rapid response procedures Number of child death overview panels held Outcomes from Bromley Child Death Overview panel The child death overview panel is a standing committee of the Bromley Safeguarding Children Board (BSCB). It is made up of senior officers from partner agencies and is chaired by the consultant for Public Health. In total 12 cases were discussed by the Child Death Overview Panel. Of those 12, 2 were considered as potentially preventable: 1. Categorised by the pathologist as a Sudden Unexplained Death in Infancy (SUDI) but where they were child protection concerns and features of overlaying. This child was the subject of a serious case review; and a disabled child where there had been previous child protection concerns. In this case there appeared to be a delay in seeking medical advice. 20 6 4



All of the other cases were due to chronic medical conditions or genetic disorders. The panel is developing systems to aid analysis of the cases. In the majority of cases there have not been major recommendations for action or improvement. However, in the 2 potentially preventable cases the panel made a number of recommendations. These recommendations will be taken forward in an action plan and presented to the BSCB for further action. A key area identified was that of co sleeping, i.e. when a parent shares the same bed as an infant. The panel recommended the production of a new safe parenting handbook with clear information provided about safe sleeping including specific guidance regarding not sleeping on a sofa with a baby. This has now been put in place. A general area of concern raised by the panel has been with regard to bereavement support for families. A leaflet regarding the child death review processes has been produced but the panel considers more work needs to be done around what support is available to ensure that the needs of all family members are met. The Child Death Review Officer A child death review officer has been appointed on a temporary contract. The main functions of the officer have been:     3. administration of meetings – setting up, collating and disseminating information prior to rapid response and child death overview panels and minute taking; writing up reports and data collection for London wide and national reporting liaison with key stakeholders to ensure compliance, including with the coroner‟s office. Setting up and arranging the training associated with the child death arrangements.

EXTENDED SCHOOLS START UP COSTS  The grant is being used to employ a range of additional services to meet the “core offer” of extended schools through a commissioning process including voluntary and community groups. It is a statutory requirement identified in the Children Act 2004 and the Childcare Act 2006 for all schools to be offering a range of additional services by 2010. The condition of the grant is that it must be used for services to schools to meet this statutory requirement; the DCSF assumption is that it is ring fenced. The services include counselling, speech and language therapy, parent support and advice, dieticians and covers children, young people and families. A range of out-of-hours activities. It also supports posts that work with primary schools within the Bromley Children and Family Project reducing the need for core council funding. The business plan for expenditure is approved by the Portfolio Holder following PDS scrutiny.

     

This grant is devolved to schools to assist them in meeting new statutory duties and LAA targets re: positive activity, children and family support and definitive plans/commitments have been made through strategy and operational documents for a three year period.


The Extended Schools initiative is key to the delivery of the national indicators and statutory targets included in LAA and the grant is key to the delivery of the initiative. Bromley Schools are by and large high achieving but the gap between those children with SEN these who are Looked After, specific minority and other vulnerable groups are not improving sufficiently. Ofsted CAA inspection will take progress into account in final grade. The grant is beginning to be used to address „barriers to learning‟ and improve the capacity of children to access and benefit from the full school curriculum. Several recent research projects have clearly illustrated that support, advice and timely information for parents can aid to improve school attendance, which in turn, is associated with higher attainment. As part of the extended schools initiative parents have been supported by family workers and parenting groups. Whilst attendance has improved in both primary and secondary schools the rate of improvement is not yet high enough and the grant is needed to continue the work. Extended services funding is also making a significant contribution to the early identification of children in need of „counselling‟ related services and is directly enabling secondary schools to development capacity in this area of work in line with the findings of a CAMHS review in 2008 that highlighted the need more increased tier1/2 mental health interventions. Working in partnership with Health Service colleagues, such developments have contributed to capacity of the CAMHS partnership to reduce assessment times for tier 2 provision in line with national standards and more quickly identify the most high need cases. The review of CAMHS also demonstrated that where counselling support was available children at an early point of identification they were significantly less likely to be referred to CAMHS at tier 3. Where Positive Activities are available in school holidays research in other authorities has shown that juvenile crime rates decrease. 4. LONDON YOUTH OFFER/POSITIVE ACTIVITIES FOR YOUNG PEOPLE In Aiming High for Young People: a 10 Year National Strategy for Positive Activities, Government announced continued further investment over 3 years, 2008-2011, expanding the availability of year-round highly personalised provision for the most disengaged young people as well as enhanced provision of leisure and personal development opportunities for all. In acknowledgement of the specific nature of the London youth population the DCSF and LDA have increased investment in positive leisure time activities for young people to enable London authorities to:   support the increased provision during school holidays for more vulnerable teenagers, including those at the highest risk of social exclusion; to extend the supply of universal and tailored packages of activities across the year, including term time.

The funding increases 2 pre-existing tranches of funding for youth activity and support. These are (1) Positive Activity for Young People Grant and (2) Youth Opportunity and Youth Capital Grants.



Positive Activities for Young People Introduced in 2003, this grant is to enable local authorities to:  provide diversionary and developmental activities to young people across the country aged 8-19 at risk of social exclusion and community crime, enabling them to participate in positive activities during the school holidays and access out of school activities throughout the year. Those young people who are most at risk are encouraged to engage in learning and/or employment with key worker support; and support activities such as: training in literacy and numeracy skills, motivating activities such as the arts, sports and multi-media, outdoor and residential opportunities, health and self-image building projects, help with CVs, job searching and interviews.


Allocations for PAYP are based on an historical funding formula which takes into account earlier funding streams that were brought together to form PAYP. The funding formula also uses Local Authority level data relating to truancy and street crime. (2) Youth Opportunity Fund (YOF) and Youth Capital Fund (YCF) Introduced in 2006/7, Youth Opportunity Funds were introduced to enable Local Authorities to deliver on the Youth Matters Green Paper commitment to provide more opportunities for young people to have “something to do, somewhere to go, and someone to talk to”. A key stipulation is that the allocation of funding is made with the active involvement of young people themselves. DCSF and LDA have allocated additional funding to support the expansion of YOF, YCF and PAYP to fulfil the Comprehensive Spending Review commitment of 26 July 2007 to continue the Youth Opportunity and Youth Capital Funds at 2007-08 levels for the next three years. Allocations for YOF and YCF are based on size of 13-19 cohort.


BROMLEY’S YOUTH OFFER – CURRENT APPLICATION In Bromley funding under both Youth Offer funding streams has been applied as follows: PAYP (a) Within the Youth Offending Team to support the case management of young people referred via the Youth Inclusion and Support Panel from schools, CYP, Anti-Social Behaviour Unit by providing a programme of holiday and weekend activities for this group (b) establish a primary to secondary transition support project utilising the programme and resources provided by the Challenger Troop Scheme for pupils at Kelsey Park and Cator Park schools identified as at risk of not making a successful transition at the start of year 7. (c) pilot a school inclusion project at Charles Darwin school delivered through a partnership between the school and Bromley Youth Service and support closer working of the Youth Service and schools elsewhere YOF and YCF Managed by the Youth Service, this funding has been allocated to services for young people via the statutory and voluntary youth sectors in 2 ways. YOF and YCF Grant Aid This is allocated through a widely communicated bidding process adjudicated by a 2 stage YOF and YCF panel system. All bids are required to be authored by young people themselves. Bids are (1) assessed by a criteria panel including elected members and staff from statutory and voluntary youth services they (2) are then passed to a decision making panel comprised of young people recruited via workshops and YOF/YCF promotion events. Young people are involved in all aspects of the programme and receive accreditation for their voluntary involvement. In the year ending April 2008, 84 projects were funded, 9,627 young people were involved as project beneficiaries (15 as grant givers, 373 as leaders and 9,239 as direct beneficiaries. 52.9% were identified as at disadvantage according to a number of criteria (including neighbourhood deprivation, ethnicity). Young Commissioners Programme Between October 2008 and January 2009, Youth Opportunity Funding was used to establish a Young Commissioners project. A group of young people received training to develop a service specification against which organisations were invited to apply to deliver a range of projects. A panel, comprising young people, an elected member and senior youth support service officers assessed these against the specification before awarding project funding to 7 successful applicants are providing personal development opportunities for just over 750 young people between 2008/10. The experience gained by the young people received formal accreditation under the Youth Service AQA scheme. 11

BROMLEY’S YOUTH OFFER – FUTURE APPLICATION It is proposed that the funding currently held in contingency should be applied to develop the existing PAYP and YOF/YCF Positive Activities programme outlined above in order to: (a) address Joint Area Review, YOT inspection and 14-19 Business Plan priorities and support CYP and cross-portfolio Build a Better Bromley initiatives to develop the potential of children young people (b) address the needs of young people at heightened risk of unemployment as a result of economic recession and (c) support the implementation of the DCSF‟s and Treasury‟s 10 Year Strategy for Positive Activities. In particular, activity will support the implementation of the recommendations of the CYP PDS Select Reviews of (a) Youth Provision in Bromley (DCYP 08133) and (b) Strategy to Reduce Young People Not in Education, Employment and Training (LDS 09056). Developments include:  within the Integrated Youth Support and Youth Offending Teams, to provide additional NEET prevention and reduction and offending prevention programmes. These will utilise learning through leisure type activities to engage young people either not in education or at risk of dropping out of education to promote their resilience and to develop their potential for employment in schools, on a model currently applied with some success at Charles Darwin School, to use off school site delivery of youth service led group work to target those at risk of fixed and permanent exclusions. The programme challenges gang culture and seeks to address the under-engagement of specific BME pupils and other vulnerable young people by raising academic and life aspiration extend a Moving Onto Secondary School primary to secondary transition support project utilising the programme and resources provided by the Challenger Troop Scheme currently impacting positively on attendance and exclusion rates at Kelsey Park and Cator Park schools enhancement to the targeted Summer Activity programmes delivered by Bromley Youth Service, the Moving on to Secondary School project and Mencap. to develop CYP Community Services/Integrated Youth Support Service delivery of universal positive activity programmes targeted at particular neighbourhoods (to support Chief Executives focus on Regeneration and Recreation) where the rates of youth unemployment and offending behaviour are high relative to other neighbourhoods. to establish a groupwork programme within the Youth Offending Team to address anger management, substance misuse and offending behaviour issues to for first time and repeat offenders to support LBB and Bromley CVS‟ Compact objective of building the capacity of the third sector to jointly deliver or deliver service entirely on LBB‟s behalf (for example, Bromley and Downham Youth Club). 12



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