PART 1
(OPEN TO THE PUBLIC)
ITEM NO. 5
REPORT OF THE LEAD MEMBER FOR
CHILDREN’S SERVICES
TO THE CHILDREN’S SERVICES OVERVIEW AND SCRUTINY
COMMITTEE
ON 9th JANUARY 2008
TITLE :
Annual performance assessment of services for children and
young people
RECOMMENDATIONS : That this report be noted.
EXECUTIVE SUMMARY :
The Annual Performance Assessment is the system used by OFSTED to
judge the performance of each Children’s Services Authority.
Judgements cover each of the five outcomes for children and the
authority’s capacity to improve. An overall judgement for Children’s
Services is then also given.
The assessment undertaken in 2007 covers the period 1st April 2006 to
31st March 2007. The assessment is based on performance data, a
range of other information submitted in advance and a day spent with the
Children’s Services Directorate by two Inspectors.
There was no APA in Salford in 2006 because we had a Joint Area
Review in that year. The ratings from the Joint Area Review are shown
below for the purposes of comparison. A score of 1 is the lowest
(“inadequate”) whilst the highest score, 4, is “excellent”. The summary of
outcomes for Salford was as follows:
Area of judgement
Being healthy
Staying safe
Enjoy and achieve
Making a positive contribution
Economic well-being
Capacity to improve
Overall score
APA score
2007
2
1
3
3
2
2
2
JAR score
2006
2
2
2
2
2
3
2
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BACKGROUND DOCUMENTS Children & Young People Now magazine
12th December 2007.
(Available for public inspection)
Attached to report as appendices:
Letter from OFSTED Divisional Manager to Strategic Director of
Children’s Services dated 26th November 2007. (appendix 1)
Draft Response to APA recommendations (appendix 2)
Draft Safeguarding Action Plan (appendix 3)
CONTACT OFFICER : Paul Woltman
0161 778 0132
WARD(S) TO WHICH REPORT RELATE(S) All
KEY COUNCIL POLICIES: All policies relating to children and young
people are subject to consideration by the Annual Performance
Assessment.
1. OVERALL JUDGEMENTS
1.1. The recognition of the progress made in children’s achievement is
welcome (Enjoy & achieve) as is the acknowledgement of the
work in engaging with children and tackling youth crime (Making a
positive contribution). This is especially pleasing in a year in which
OFSTED raised the standards in the assessment process1.
Progress on outcomes for “Being healthy” is dependent on the
success of some major long-term strategies – to tackle childhood
obesity for example. The very high rating given to Salford PCT by
the Healthcare Commission, which is based on activity rather than
outcomes, suggests those strategies are sound but it will be some
years before they can be expected to achieve positive outcomes.
1.2. Although the judgement for “Economic well-being” stayed the
same as in the Joint Area Review, progress from a low baseline
was acknowledged as were some innovative developments and
the introduction of some stretch targets for the Connexions
Service. In 2006 Salford achieved the highest added value in
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Children & Young People Now magazine 12th December 2007
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post-16 attainment at age 19 for Greater Manchester and the
reduction in young people not in education, employment or
training was described to be on target.
1.3. The commentary from OFSTED on “Enjoy and achieve”
acknowledges the progress in the achievement of children in all
age groups and accepts the value of a strong foundation stage,
which is helping to reduce inequalities for younger children.
Progress in the educational achievement of vulnerable groups
including children with disabilities and children who are looked
after was also noted. Although further work was recommended to
improve the number of young people achieving five or more A*-C
including maths and English at GCSE level, the current
performance was found to represent “a very impressive
improvement over a relatively short period of time”. Services in
this area were judged to be good.
1.4. Several examples of positive engagement with children and young
people were cited by OFSTED, including involvement in the
Children & Young People’s Partnership Board and consultation on
Building Schools for the Future. Arrangements for transition for
young people with disabilities to adulthood were found to be wellcoordinated and the inclusion of vulnerable groups was noted.
Progress by the Youth Service since the Joint Area Review was
commented on, as was support for parents and “citizenship”
teaching in schools. Progress on tackling anti-social behaviour
and the work of the Youth Offending Service in reaching young
people at risk of entering the youth justice system were
highlighted. On the basis of this, “Making a positive contribution”
was judged to be good.
2. SAFEGUARDING
2.1. The judgement for “Staying safe” was disappointing. Judgements
for each of the five outcomes are based on a number of factors,
fourteen in the case of this particular outcome. Of those fourteen
there were three in which we had difficulty demonstrating to
Inspectors that we met the criteria for a “satisfactory” judgement.
The performance issues relating to those three areas were firstly,
our ability to ensure that all children on the child protection
register were allocated to a qualified social worker. Secondly, a
reduction in the number of referrals to social work teams, with a
fall in the proportion of those referrals leading to initial and core
assessments being undertaken – further leading to a reduction in
the number of children on the child protection register. Thirdly our
continuing high level of looked after children and young people.
2.2. The difficulty in recruiting children and families social workers,
leading to difficulty in ensuring all children on the child protection
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register and all children looked after were allocated to a social
worker, was reported to Overview and Scrutiny Committee in June
2007. The last year has seen a number of Council recruitment and
retention strategies (including additional increments for children
and families social workers, international recruitment in Canada
and a trainee scheme) achieve results and our children and
families social work teams are now fully staffed. All children on the
child protection register are now allocated to a qualified social
worker. During times when it was not possible to allocate a social
worker to all children, inter-agency protection plans were still
operated and appropriate reviews undertaken.
2.3. A result of the reduced staffing in social work teams was probably
an “unofficial” tightening of the threshold for intervention, which
meant that fewer referrals became initial assessments, and other
agencies appear to have been less likely to refer to children’s
social care teams. This problem became apparent early in 2007
as a result of internal monitoring reported to the Local
Safeguarding Children Board. The Strategic Director and other
managers in the Children’s Services Directorate used a variety of
opportunities and forums to encourage all agencies to refer
children to social work teams when concerned about their safety
and well-being. Difficulties being experienced by other agencies
may also have contributed to a reduction in referrals.
2.4. The proportion of referrals leading to initial assessments is now
increasing and the number on the child protection register has
increased, although there is currently volatility in the system which
is being investigated (activity reduced in October but then
increased significantly late in November and has been sustained
throughout December) .
2.5. An internal review of safeguarding systems has been established
to undertake a self-evaluation and produce an action plan. Whilst
its work continues a copy of its first draft action plan is attached to
this report (appendix 3).
2.6. A high proportion of Salford’s looked after children are looked
after because of neglect. This is often linked to drug and alcohol
abuse by parents and proves very difficult to deal with. Various
reviews, external and internal, have been undertaken of our
looked after numbers over a number of years. None have
concluded that children are being looked after unnecessarily. In
the “Care matters” green paper the Government considered
whether optimum levels should be set for looked after numbers
but decided not to attempt this.
2.7. Salford’s strong commitment to its looked after population has
meant that the balance of expenditure between family support and
looked after services is weighted heavily towards looked after
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services when compared to most local authorities. An invest-tosave bid to increase resources in family support services is
currently being considered. The new SureStart services, currently
being put into place, should also assist in reducing looked after
numbers and the four Locality Teams, established in September
2006, provide a basis for early intervention in children’s lives.
3. CAPACITY TO IMPROVE
3.1. The judgement for “Staying safe” also impacted on the judgement
of the Council’s capacity to improve, which was reduced from
Good to Adequate. The stability of leadership and vision of Salford
Children’s Services were acknowledged. The Council’s
awareness of the problems it faces and how to tackle them is also
commented on by OFSTED. The Council is advised that “More
and urgent consideration needs to be given to developing the
range of preventative services so that needs are addressed
before problems become intractable”. The performance
management of the safeguarding system is also criticised.
3.2. Notwithstanding the criticism of performance management, the
issues relating to children on the child protection register and
referrals to children’s social care were reported to the Local
Safeguarding Children Board in March 2007 and identified within
the Children’s Services Directorate’s Local Authority Briefing to
Government Office North West in May 2007. The analysis used by
OFSTED to form its judgement was provided by the Council.
4. RECOMMENDATIONS
4.1. The recommendations of the annual performance assessment of
Salford’s Children’s Services are set out below:
Being healthy
i. Reduce obesity rates for children and young people.
ii. Reduce teenage conception rates.
iii. Reduce dental decay.
iv. Reduce admissions to hospital relating to substance misuse.
Staying safe
i. Ensure that children on the Child Protection Register are
allocated to a person qualified as a social worker and that
there are sufficient qualified and experienced staff to run a
safe child protection service.
ii. Ensure thresholds are set at a level that enables children in
need and their families to access appropriate services;
ensure thresholds are clearly understood by staff in all
agencies.
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iii. Develop, and adequately resource, effective early
intervention services that reduce the need for children to be
looked after.
Enjoy and achieve
i. Educational outcomes at age 16: increase the percentage of
five A*-C GCSE or equivalent including English and
mathematics.
ii. Reduce the percentage of children and young people in care
missing 25 days or more schooling.
Making a positive contribution
i. Develop systems to routinely seek the views of children and
young people and to determine the range of activities they
have used.
ii. Reduce the number of first time entrants to the youth justice
system.
Economic well-being
i. Continue to increase the proportions of young people in
education, employment or training post-16.
ii. Continue to improve educational outcomes post-16, including
in English and mathematics.
Capacity to improve
i. Ensure performance management systems monitor, quality
assure, and collate accurate information on all referral,
assessment and service activity.
ii. Ensure the deployment of staff is effective in meeting the
needs of the most vulnerable children and young people.
4.2. Action necessary to address these issues is set out in a draft
action plan included as appendix 2 to this report. The more
detailed first draft of the action plan to cover the safeguarding
agenda is included as appendix 3.
5. NEXT STEPS
5.1. Any judgement of “Inadequate” in the annual performance
assessment is referred to the Department for Children Schools &
Families. This has been done and DCSF are in the process of
identifying consultants to assist in the process of identifying issues
and making recommendations to DCSF and the Council on
appropriate further action. This work is scheduled to begin on 18th
January 2008. The Council’s internal review, led by Children’s
Services, supported by Community Health and Social Care and
Customer and Support Services will report on 15th January 2008.
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