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DRAFT
ITEM CH7

CABINET – 18 OCTOBER 2005

CHILDREN’S CENTRES STRATEGY 2006-10

Report by Director for Learning & Culture

1. The Government’s agenda for a joint approach for all key agencies working with children and families is set out in ‘Every Child Matters’ and ‘Change for Children’ which outlines five key outcomes for children and young people:

• Enjoying and Achieving
• Staying Safe
• Economic Wellbeing
• Being Healthy
• Making a Positive Contribution

2. The development of children’s centres fits well into this agenda, supporting agencies to work together with parents from the time before the child is born, and offering the potential for parents to access the support they need, when they need it in a local and accessible venue.

What is a Children’s Centre?

3. A Children's Centre is a centre that provides a range of integrated services for children under 5 and their families, to include:

• Early years services
• Family support and parental outreach
• Child and family health services
• Links with Jobcentre Plus

4. In our Children’s Centres the children’s wellbeing and needs come first. Children’s Centres should be places where children enjoy themselves and feel safe. Parents should be welcomed and included and feel that it’s "theirs". Staff should be well qualified and valued.
5. In developing our new Children’s Centres, we will build on existing good services, rather than starting afresh. A large number of families with young children in Oxfordshire already benefit from good quality services. Children’s Centres aim to enhance and join up services for families with young children.
6. Children’s Centre services will need to meet the needs of their communities and will be developed in partnership with parents, carers and users of services and with local professionals and organisations working in the area.
7. Services and resources will vary according to the needs of the area but will build on and improve existing facilities, for example family centres and nursery schools. A Children’s Centre in the 30% most disadvantaged areas will offer the following core services, working closely with local parents and carers:

• Integrated early learning and childcare for babies and children until they are five years old.
• Childcare suitable for working parents/carers for a minimum of 5 days a week, 48 weeks a year, 10 hours a day.
• Support for childminders.
• Early identification of children with special needs and disabilities with inclusive services and support for their families.

• Visits to all families in the catchment area within two months of the child’s birth
• Support and advice on parenting including support at significant transition points for the family (e.g. pre birth, early days, settling into childcare).
• Access to specialist, targeted services for those families who need them for example, support for parents/carers of disabled children.
• Activities which increase parents/carers' understanding of their child's development.
• Specific strategies and activities which increase the involvement of fathers.

• Antenatal advice and support for parents/carers.
• Child Health Promotion Programme.
• Information and guidance on breast feeding, hygiene, nutrition and safety.
• Promoting positive mental health and emotional wellbeing.
• Speech and language and other specialist support.
• Support for healthy lifestyles.
• Help in giving up smoking.

• Centres will link with Jobcentre Plus to encourage and support parents/carers who wish to consider training and employment

8. It may not always be possible to provide all the services in one building. Some centres will be campus models with a number of services provided on the same site but in different buildings. Other Children's Centres will provide services in linked in a range of different sectors (health and family support for example) However, the DfES have given clear guidance that children should receive their integrated care and learning in one place and should not be moved between different settings during the day.

Progress in Developing Children’s Centres in Oxfordshire so far

9. In the first phase of development from 2004-06, Oxfordshire was given funding to develop 2 Children's Centres in areas that ranked in the top 20% nationally in terms of disadvantage (using the Index of Multiple Deprivation). These are the Leys Children's Centre Project in Oxford City and the Sunshine Centre in Ruscote, Banbury. The ACE Early Excellence Centre in Chipping Norton and Rosehill-Littlemore Sure Start were also designated as Children's Centres in that they already provided the ‘core offer’.
10. In the second phase from 2006-08, the DfES has set Oxfordshire the following targets:

Local Authority : Oxfordshire	Total
Total number of under 5s Local Authorities (LA) need to reach by 2010 (Based on April 2003 Local Education Authority Data)	35,835
Total number of under 5s expected to reach in 20% Ward by March 2006 (Based on the 1999 Index of Multiple Deprivation)	1,715
Total number of new under 5s for LA to reach during 2006-08	20,553
Total including current reach	22,268
Number of new children’s centres to be created during April 2006 - Mar 2008	25
Total including current children’s centres	29

(*Note: Reach means the number of under 5s in the area who might potentially use Children's Centre services.)

The requirement is to develop Children's Centres first in areas that rank in the top 30% of need.

11. Areas not reached in the second phase will be included in plans for the third phase of development from 2008-10 so that by 2010 all communities should have access to a Children's Centre. Funding for the third phase will not be announced until 2007.

Funding

12. Indicative funding allocations as follows are conditionally on having development plans (by February 05) for each centre, demonstrating our ability to deliver the requirements (buildings and core offer of services)

Total indicative Capital funding for 2006-2008	£4,314,465
Total Revenue funding for 2006 – 2008	£4,480,780
Additional rural uplift Capital funding 2006-08	£114,000
Additional rural uplift Revenue funding 2006-08	£273,592

13. The funding is insufficient to build 25 new centres and therefore will have to be used flexible and in conjunction with other initiatives such as extended schools. We will also need to make maximum use of existing buildings and look for refurbishment wherever possible.
14. Likewise with revenue funding this is insufficient to staff the core offer of children’s centres services in 28 centres (Rose Hill/Littlemore continues to get separate funding for the next 2 years). We will therefore need to add value to existing services such as family centres and nursery schools and seek additional sources of funding to ensure that the Children’s Centres deliver.
15. Funding is only guaranteed for 2006-08. Although we are reasonably confident funding will extend beyond this time, there is no guarantee of this; we will not know future funding until the next government spending review in 2007.

Reach and Catchment Areas for Children's Centres

16. Children's Centres should be located in areas that are easily accessible by families living in the most disadvantaged communities who, traditionally, have been slow to access services. Each Children's Centre will have a defined catchment area. A centre is expected to reach an average of 800 children under 5.
17. The reach is likely to be less in rural areas. The Children’s Centre model will need some adaptation for rural areas and we are encouraged to focus on delivering fewer services well than trying to spread resources too thinly. A mobile outreach model will be developed to help deliver services to smaller communities.

Progress of Discussion and Development so far

18. The proposals presented in this report have been drawn up following discussion with the following:

• Early Years Development and Childcare Partnership
• PCT (Primary Care Trust) Children’s Services leads or nominated representatives
• Voluntary Sector Partners
• Nominated officers/councillor from Oxford City and the District Councils
• Relevant officers from across the County Council

19. A consultation strategy is being drawn up so that current service providers and parents have a chance to comment on the localities suggested and other aspects of the Children's Centre strategy. This consultation will take place through October and November.

Mapping and Needs Analysis

20. In doing this exercise there was access to figures on the Child Poverty Index, Index of Multiple Deprivation (IMD), geographical maps, and maps that showed the location of schools, health centres and other key services. The ward numbers are based on projected figures for 2004. Maps available highlight the Super Output Areas (SOA) that rank most highly in terms of need (nationally) so we are able to see clearly the communities that rank most highly in terms of need. A SOA is a sub division of a ward.

Geographical Area

21. DfES guidance states that families living in SOAs in the top 30%, nationally, using the IMD must have access to Children's Centres; the principle criteria used in proposing geographical localities for the 2006-08 phase of development is, therefore, the need of the area. Beyond this, the needs of areas that have SOAs that rank in the 30-50% and areas that are known to have higher than average needs because of their particular populations have been prioritised. Areas that have family centres and nursery schools have also been prioritised for the 2006-08 development.

• Accessibility. The centre should be located in an area accessible to and used by families with the greatest needs.
• Demography (approx 800 children under 5 to a centre as stated in DfES guidance)
• Need to ensure viability and sustainability by building on existing services in family centres and nursery schools.

22. Once geographical areas have been agreed, the following factors will be taken into account in making proposals for the precise location and local lead for the Children's Centre within that area-

• Existing provision such as family centres and nursery schools where these are used by families from the identified areas of disadvantage
• Other services that are already used by the communities in the most disadvantaged areas, for example local primary schools, health centres
• Existing capacity in buildings used by the communities we are trying to reach
• Opportunities created by capital developments planned in the targeted areas
• Developments planned as part of the extended schools programme

23. A rural strategy is being developed to decide how to reach disadvantaged communities in more sparsely populated areas. These areas do not always show when using more general statistics and further work is being done to make sure we identify and reach areas of need.

Premises and Accommodation Issues

24. In most areas, Children's Centres will build on and improve existing provision rather than provide new premises. The capital funding available will not support a large number of new centres to be built. In a few cases we have centres that are already well equipped to deliver Children's Centre services and will need no alteration; examples are the East St Centre in Banbury. However in most cases, some alterations will be needed to equip centres to be able to deliver the full range of services.

The 2006-08 timescale allowed for capital development is a real challenge.

25. It is essential that any premises are designed or altered according to the highest quality standards). A model specification for Children's Centre premises is being drawn up which will draw on guidance from the DfES and the Oxfordshire Booklet ‘A Place to Be’ (available from Oxfordshire Children’s Information Service, 0845 2262636)

Summary of Key Proposals for 2006-08 and 2008-10

26. More detail on the proposals below is given in the annexes (Annex 1 - Oxford City - download as .doc file, Annex 2 - Vale - download as .doc file, Annex 3 - South Oxfordshire - download as .doc file, Annex 4 - West Oxfordshire - download as .doc file, Annex 5 - Cherwell - download as .doc file) including the numbers of Children's Centres and the running total of the children under 5 reached. In the running total, the numbers include the existing centres. Our total target is therefore the following:

Total number of Children's Centres 2006-08 29
Total reach 22,268

Summary of information by District

District	Total U5s	SOA in top 30% of disadv	Centres Phase 1 pre 2006	Centres Phase 2 2006-08	Children reached by 2008	Centres Phase 3 2008-2010	Total Centres
Oxford	6,961	30	2	7	7,033	0	9
Vale of the White Horse	6,519	3	0	4	3,340	4	8
South Oxfordshire	7,615	1	0	3	1,729	7	10
West Oxfordshire	5,422	0	1	2	3,182	3	6
Cherwell	8,217	6	1	65	5,742	2	9
Total	35,838		4	22	21,026	16

27. 3 further centres are needed in 2006-08 which need to cover the remaining 1,242 children. One of these will be a mobile service covering rural areas and the other two are likely to be used to make smaller centres in areas of highest need.

Consultation and Engagement of all Stakeholders

28. By end November the DfES has asked us to have made decisions for the 2006-08 phase (phase 2) that include the name of the Children's Centre, the proposed number of children under five living in the centre’s area (ie the "reach" figure), the date we plan to open the centre and a description of the centre. Full centre plans need to be developed by February 2006. This is an ambitious target.
29. Informal consultations with District Councils and all relevant agencies and partners have already taken place in drawing up these proposals. Further consultation with providers and parents will take the form of open meetings in areas where Children's Centres are planned. These will be widely advertised. Focus groups will take place to reach people who may be reluctant to attend open meetings. Online survey questionnaires will also be available for parents and organisations to complete during October and November and will be promoted to parents within our existing family centres and nursery schools.
30. The draft proposals will be an item for discussion on the agenda for the autumn County and District Council bi-lateral meetings.
31. It will not be possible to include the results of consultation in this report for the 18 October. This will wait for a later meeting.
32. As children’s needs and wellbeing are central to this programme it will be essential that their voices are heard – particularly at local level in designing an developing services around them. Oxfordshire has many examples of good practice in listening to the voices of young children in this way and will be working with local centre leaders and managers as well as with architects and designers to incorporate these approaches; examples of good practice in Oxfordshire are included in the booklet ‘Are you listening to me?’ (available from the Early Years and Childcare Service 01865 815630)
33. A draft of this report was presented to the Children’s Services Scrutiny Committee on 27 September 2005. Their comments were…

Challenges

34. This programme provides a major opportunity to improve the services we offer to families and their young children. However there are a number of challenges that present both opportunities and risks to the success of this programme-

• The revenue provided to fund this programme is not generous given the requirement to provide the core services described. In order to make the best possible use of resources this programme will need to link with other revenue streams for example, Sure Start grant, extended schools funding.
• Health services are facing major cutbacks. This is at a time when they are trying to reconfigure some of their services to provide a greater level of service from Children's Centres and could put this at risk.

• Core services will vary according to the needs of the area. We need to be clear about resources available to develop services in different areas of need. There is a risk that expectations will be raised in areas that will not be a priority for a high level of resources
• In order to deliver the programme we will need to recruit and train staff. A multi-skilled workforce will be needed to deliver services in Children's Centres; there are substantial workforce issues.

• The 2006-08 timescale for capital development is a particular concern. No carry forward of capital beyond this time will be allowed. Once centres are agreed, an early audit will be needed so that a timed plan can be put in place.
• The DfES timescale for reaching decisions and developing implementation plans is tight. Our challenge is to make sure we do this in full consultation with local communities.

• Our mixed model of provision in Oxfordshire is a strength; this means that governance arrangements will vary; we will need to be clear about what our expectations for these should be and support local Children's Centres to develop their governance and management arrangements.

• Funding is only guaranteed for 2006-08. Although we are reasonably confident funding will extend beyond this time, there is no guarantee of this; we will not know future funding until the next government spending review in 2007. This impacts on the length of time we are able to enter into any contracts or service agreements with our partners.

• Parents should be at the heart of this development. The challenge is to deliver services that are influenced by parents expressed needs, that also meet our requirements to the DfES to deliver core services and that maintain a consistency of service provision across the county.

• The challenge is to build on quality services already provided in our communities without development that might threaten them. Some Children's Centres will develop as linked sites and we need to look carefully at what being part of a linked site would mean for partners.

• Proposals on Children's Centres localities are being developed in consultation with the proposals for locality working (arising from the Oxfordshire Best Value Review of Children’s Services), the extended schools and healthy schools initiatives and the development of more community based health and midwifery services.
• Sharing resources where appropriate

35. The planned timetable is as follows:

Time line including next steps

Funding announced April 2005

Guidance Received July 2005

Informal Consultations with agencies and districts July-August 2005

Draft Proposals to Children’s Services Scrutiny Committee September 2005

Draft Proposals to Cabinet October 2005

Formal consultations with stakeholders and parents October-November 2005

Details of planned centres on DfES web-based system November 2005

Develop implementation plans for each new centre December-February 2005

Final proposals to Cabinet for approval February 2005

Full centre implementation plans on DfES web-based system February 2005

Development of phase 2 centres September-2005-March 2006

Develop plans for centres 2008-10 (after funding announced, expected summer 2007)

RECOMMENDATION

36. The Cabinet is RECOMMENDED, subject to consideration of the comments of the Children’s Services Scrutiny Committee, to approve the outline proposals set out in this report for wider consultation and request officers to bring final proposals to be considered, in the light of the response to consultation, at a meeting of the Cabinet n February 2006.

KEITH BARTLEY
Director for Learning & Culture

Contact Officers: Annie Davy, Head of Early Years and Childcare, Tel: 01865 815493
Clare Abolins, Children’s Centre Development Officer, Tel: 01235 549

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