Wolverhampton City Council

Childcare Sufficiency Assessment 2014 Focus - Audit of Holiday providers

Final report September 2014

Working to provide equal chances, challenge disadvantage and promote best practice in services for children and families since 1999 www.hempsalls.com

Contents

1 Introduction 2 Wolverhampton in context 2.1 Population 2.2 Deprivation 2.3 Economy 3 Audit of Holiday Providers 3.1 Rationale 3.2 Key aims 3.3 Methodology 4 Key findings, report summary and recommendations 4.1 Holiday provision 4.2 Holiday provision for children aged 5-16 years old 4.3 Key findings relating to registered holiday provision 4.4 Summary of the report 4.5 Recommendations relating to registered holiday provision 5 Childcare Supply 5.1 Quality of early years provision 5.2 The early years entitlement 5.3 Take up of early years entitlement 5.4 Three and four year old entitlement 5.5 Two year old early years entitlement 6 Summary of report – holiday provision 6.1 Half-term provision 6.2 Easter provision 6.3 Summer provision 6.4 Inclusive practice 6.5 Opening times 6.6 Fees 7 Geographical distribution of registered holiday provision 8 The needs of disabled children and children with additional needs – a practitioner’s view

BW 040714 220914 161214 2 www.hempsalls.com

1 Introduction

1.1 Strategic context for childcare sufficiency The Childcare Act (2006) requires local authorities in England to ensure a sufficiency of childcare for working parents, parents studying or training, and for disabled children. The Children and Families Act (2014) repealed the requirement for local authorities to undertake and publish a detailed and prescribed childcare sufficiency assessment every three years (section 11 of the Childcare Act 2006). There remains a sufficiency duty and a requirement for local authorities to produce an annual sufficiency report.

The duties in the act (section 6) require local authorities to shape and support the development of childcare in their area in order to make it flexible, sustainable and responsive to the needs of the community. This role is described as a ‘market management’ function, supporting the sector to meet the needs of parents, children and young people, parents and stakeholders.

Under section 6 of the act there is a requirement on local authorities to produce an annual sufficiency report on the availability and sufficiency of childcare in their area. This information should be made available to parents and elected councillors.

To meet section 6 duties local authorities need to collect and publish information on the supply of provision and demand for childcare in their area. Statutory guidance provides clear indication of what must be included in the annual review, and what should be included.

Section 7 of the Childcare Act (2006) requires local authorities to secure prescribed early years provision free of charge. This provision is for children aged 2, 3 and 4 years of age. In the region of 40% of two year olds nationally are legally entitled to free early years provision, and all three and four year olds.

Section 12 of the Childcare Act (2006) places a duty on local authorities to provide information, advice and assistance to parents and prospective parents relating to the provision of childcare, services or facilities that may be of benefit to parents and prospective parents, children and young people.

BW 040714 220914 161214 3 www.hempsalls.com

Childcare sufficiency relates to the provision of registered childcare for children aged 0-14 years old, and up to an including 17 years old for disabled children and children with additional needs.

The focus of childcare sufficiency is on supporting working parents/carers and those studying or training for work supports a number of other policy priorities, including:

Child poverty The Government is consulting on a Child Poverty Strategy 2014-2017 which takes forward the work of the Child Poverty Strategy 2011-20141. The draft strategy reasserts the Government’s commitment to tackle poverty at its source – be it family breakdown, education failure, addiction, debt or worklessness (pp. 6).

Childcare sufficiency has a role to play in achieving this aim:

. Affordable childcare supports families to work, or to train for maximise work opportunities which helps to raise household income and improve outcomes for children – children in workless families are three times as likely to be in relative poverty then families where at least one parent works . Good quality pre-school experience supports children’s cognitive and emotional development, aiding transition between home and school and improving school readiness2 . A key platform of he draft Child Poverty Strategy is to break the cycle of poor children going on to be poor adults by raising educational attainment

Supporting economic well-being There are clear links between the Child Poverty Strategy and supporting parents into work through the Work Programme, Help to Work scheme and flexible support through Jobcentre Plus. These schemes rely upon the availability of good quality, affordable childcare. For some families this need is at least partially satisfied by informal childcare arrangements (e.g. family and friends) but for no means all. Single parent households and families without established social structures may not have access to informal care. For

1 https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/302911/35696_Cm_8782_access ible.pdf 2 2 EPPE research (2004)

BW 040714 220914 161214 4 www.hempsalls.com those that do, informal care will not contribute to the social and cognitive outcomes associated with good quality formal pre-school provision.

Links to the Families in Focus programme Troubled families are defined as those that have problems and cause problems to the community around them, putting high costs on the public sector3 . For some children living in a troubled family, access to childcare and out of school activities can provide structure and routine, supporting better socialisation and improved school attendance. Childcare can support a parent to attend counselling, training, and employment opportunities.

Supporting the children’s centre remit The core purpose of children’s centres4 is to improve outcomes for young children and their families and reduce inequalities between families in greatest need and their peers in: . Child development and school readiness . Parenting aspirations and parenting skills . Child and family health and life chances

Part of the children’s centre role is to work with childcare providers offering funded early learning places to ensure families who need it can access integrated support. A healthy and engaged childcare market supports children’s centres by signposting families to services and identifying where early intervention may be required.

Supporting children to achieve their potential There is a large body of evidence demonstrating the lasting impact of good quality early years childcare and the savings in future expenditure that can be made by investing in children aged under five years old (e.g. Field 2010)5 . In 2008 a Joseph Rowntree Trust report concluded that appropriate childcare could move between a sixth and a half of

3 https://www.gov.uk/government/policies/helping-troubled-families-turn-their-lives-around 4 https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/273768/childrens_centre_stat_g uidance_april_2013.pdf 5 Frank Field (2010) ‘The Foundation Years – preventing poor children becoming poor adults’

BW 040714 220914 161214 5 www.hempsalls.com children out of poverty today. A 2012 DfE research report6 provides evidence that early education starting at an early age had a direct impact on the attainment of children.

The body of evidence is large and growing; studies find a quality pre-school experience can boost children’s all-round development, and is particularly beneficial for the least advantaged children.

6 DfE 2012 ‘Achievement of Children in the Early Years Foundation Stage Profile’

BW 040714 220914 161214 6 www.hempsalls.com

2 Wolverhampton in context

The population of Wolverhampton is increasing, with growth in the child population (aged 0-14 years old) predicted to increase by 9% between 2013 and 2017. A third of the total population and 45% of the child population are from a minority ethnic background.

The City faces a number of challenges; there are high levels of relative deprivation and child poverty; relatively low levels of employment and high levels of unemployment, and a low skills base (based on qualifications).

2.1 Population As at the Census 2011, Wolverhampton had a resident population of 249,500, an increase of 5.5% on 2001. The child population (aged 0-14 years) accounted for 46,200, or 18.5% of the population as a whole. Rising fertility rates are beginning to increase lower age bands. As at the Census 2011 there were 46,200 children; mid-year population estimates put the population of 0-14 year olds at 47,244, an increase of 2.3%. By 2017, the child population is estimated to increase to 51,631, an increase of 12% on the Census 2011 and 9% on 2013 mid year population estimates (source: Mid Year Population estimates 2013, ONS).

Population estimates – 0-16 year olds 0-4 years 5-9 years 10-14 years 15-16 years Mid year population estimates 2013 17,458 15,640 14,146 6,362

Over a third of the population (35.5%, 88,555 people) classified themselves as non-White British in the Census 2011. Asian and Asian British accounted for 18% of the total population, forming the second largest ethnic group in the City.

Nearly half of all children aged 0-14 years old (45%, 20,845 children) are from a minority ethnic group (Census 2011).

2.2 Deprivation Wolverhampton has high levels of deprivation, and levels are growing. In 2010, Wolverhampton was the 20th most deprived local authority area nationally, compared to the

BW 040714 220914 161214 7 www.hempsalls.com

27th most deprived in 2007. The City has several pockets of severe deprivation, mostly concentrated around the north, centre and south-east7.

Levels of child poverty are higher than the England average, with 31.5% of children aged under 16 years old living in poverty8.

2.3 Economy Wolverhampton faces a number of economic challenges. The City has a lower economic activity rate than West Midlands and GB, with higher levels of unemployment. The highest number of employee jobs are found in the service sector, and within that, public administration, education and health accounts for the highest level of employment. The focus of recent Government policy has been on reducing the deficit9. This has resulted on on-going public sector cuts and an increased impetus placed on re-balancing the economy towards a larger and more productive private sector.

A relatively high percentage of the working age population does not hold a qualification and there are lower percentages of the workforce qualified at NVQ level 3 and above that found across the West Midlands and GB as a whole.

Earnings are lower in Wolverhampton than in the West Midlands and GB and there are higher percentages of the working age population claiming out of work benefits.

Employee jobs Traditionally, Wolverhampton's economy was dominated by engineering and manufacturing industries. Manufacturing still accounts for 14% of all employee jobs which is a high percentage than found across the West Midlands and GB as a whole.

Service industries account for 79.8% of employee jobs, and within that, public sector employment is the main source of employee jobs:

7 Wolverhampton overview May 14 http://wolvesparentpartnership.org/uploads/files/Wolverhampton%20An%20Overview%20(MAY%202014%20U PDATE%20incl%20Disability).ppt 8 Wolverhampton Child Health Profile March 2014 9 Coalition Government: our programme for government , 2010

BW 040714 220914 161214 8 www.hempsalls.com

Employee jobs by industry (2012) % of employee jobs Employee jobs by Wolverhampton West Midlands GB industry Primary services (A-B: 0.0 0.1 0.3 agriculture and mining) Energy and water 0.6 1.3 1.1 Manufacturing 14.1 11.8 8.7 Construction 5.4 4.2 4.5 Services 79.8 82.6 85.5 Of which Wholesale and retail, 16.8 17.7 16.1 including motor trades Transport storage 4.0 5.1 4.6 Accommodation and food 4.7 6.0 6.9 services Information and 1.9 2.6 3.9 communication Financial and other business 17.9 18.3 21.5 services Public admin, education and 31.1 28.8 28.1 health Other services 3.3 4.1 4.5 Source: ONS business register and employment survey

Earnings by residence Across Wolverhampton gross weekly pay and hourly pay (excluding overtime) are lower than across the West Midlands and compared to GB as a whole.

Earnings by residence (2013) Wolverhampton West Midlands GB £ £ £ Gross weekly pay 436.7 483.0 518.1

Hourly pay – excluding 10.94 12.15 13.08 overtime Source: ONS annual survey of hours and earnings – workplace analysis

BW 040714 220914 161214 9 www.hempsalls.com

Economic activity Economic activity refers to the number or percentage of people of working age who are either in employment or who are unemployed. Economic activity rates in Wolverhampton are lower than the West Midlands region and GB as a whole. .

Unemployment levels in Wolverhampton are relatively high (12.4% compared to 8.5%% in West Midlands and 7.5% in GB).

Economic activity rates January 2013 – December 2013 Wolverhampton West Midlands Great Britain All people: Economically active 71.8% 75.8% 77.4% Unemployed 12.4% 8.5% 7.5% Source: ONS annual population survey (NOMIS). Percentage is a proportion of economically active

Economic inactivity Economic inactivity refers to people who are neither in work nor employed. This group includes, for example, those looking after a home or retired. Economic inactivity rates in Wolverhampton are higher than found across the West Midlands region and GB as a whole:

Economic inactivity rates January 2013 – December 2013 Wolverhampton West Midlands Great Britain All people: economically 28.2% 24.2% 22.6% inactive Source: ONS annual population survey (NOMIS)

Job Seekers Allowance (JSA) A relatively high proportion of the working age population claims Job Seekers Allowance (payable to people under pensionable age, who are available for, and actively seeking, work):

JSA claimants May 2014 Wolverhampton West Midlands GB % claimants 6.2% 3.3% 2.6% Source: DWP benefit claimants – working age client group

BW 040714 220914 161214 10 www.hempsalls.com

Lone parents As at November 2013, 2% of the working age population (3,220 people) were claiming lone parent benefit (Source: DWP benefit claimants – working age client group).

Workforce qualifications A high percentage of the working age population of Wolverhampton do not hold a qualification and a relatively low proportion hold NVQ level 3 or above:

Qualification January 2013 – December 2013 % working age population Wolverhampton West Midlands GB NVQ4 and above 20.0 28.4 35.2 NVQ 3 and above 40.7 49.4 55.8 No qualification 22.9 13.6 9.3 Source: ONS annual population survey

BW 040714 220914 161214 11 www.hempsalls.com

3 Audit of Holiday Providers

Wolverhampton City Council commissioned Hempsall’s to undertake an audit of holiday provision to as part of the authority’s annual childcare sufficiency assessment (CSA). The information from the CSA will be used by the City Council to identify gaps in service and inform the future strategic planning of services for families. It will also be used to assist the Council in meeting its statutory duty of securing sufficient childcare to meet the needs of working parents and parents making the transition into work.

3.1 Rationale Anecdotally demand for holiday playscheme provision has been declining, and a key aim of the commissioned project is to identify any evidence of that decline. The project also sought to establish whether there is a lack of take-up of holiday playscheme provision by disabled children and children with additional needs, and if so, the possible reasons for this.

3.2 Key aims: . To establish the supply of holiday playscheme provision . To map supply across the local authority area . To assess demand for holiday playscheme provision with specific focus on the needs of disabled children and children with additional needs . To assess any gaps in provision

3.3 Methodology The supply of holiday provision: . A provider audit form was developed to collate information around: cost of provision; hours of opening; when provision is available; inclusive practice; any increase or decrease in hours or sessions . All holiday providers were contacted by Hempsall’s to undertake a telephone interview to complete the audit form. Interviews were undertaken between February and June 2014 . Data has been collated and analysed in Excel

BW 040714 220914 161214 12 www.hempsalls.com

Desk research Desk research has been undertaken to assess the population of children aged 5-14 years old and the context for childcare in Wolverhampton. Additional work was undertaken to review the delivery of the early years entitlement for children aged 2, 3 and 4 years old, which is a key element of the local authority’s duty to secure sufficient childcare, and the quality of early years provision.

BW 040714 220914 161214 13 www.hempsalls.com

4 Key findings, report summary and recommendations

4.1 Holiday provision Across all holiday periods (half-term, Easter and summer) there is less than one full-day place per 100 children aged 5-16 years old. Provision per 100 children is lowest in half-term holidays (0.65 place per 100 children) and highest in summer (0.83 place per 100 children).

There are a number of sessional activities available in addition to full daycare – these tend to be operated on a voluntary basis, and are offered at very low, or no, cost to the user. There are concerns regarding the sustainability of such provision; providers did indicate a potential to increase capacity, if resources were available.

Where providers are reporting either maintained levels of demand, or increased levels of demand, this tends to be as a result of an increased number of children taking fewer hours. Cost of provision/affordability of childcare appears to be a main factor. Providers offering free activity sessions reported experiencing a high demand for their services irrespective of the holiday period.

A high percentage of providers offering full day provision in the summer holidays (75%) indicated a consistent or increasing take up of places during this time. Longer holidays necessitate the use of more formal childcare arrangements as care cannot be sustained by informal care arrangements and annual leave.

Two providers offer places specifically for children with additional needs in the summer holiday (Broadmeadow and Penn Hall scheme; this provision was not available during half- terms or the Easter holidays). A total of 82 places are available, however, provision is limited and has a high demand. Consultation with a voluntary charitable organisation (Let Us Play) also identified very high demand for provision for children with additional needs.

BW 040714 220914 161214 14 www.hempsalls.com

All holiday providers report being inclusive, however, it was not possible to evidence the level of inclusivity. It was reported parents may lack confidence in provider’s ability to cater for their child’s specific needs and that some children present highly challenging behaviour.

4.2 Holiday provision for children aged 5-16 years old Data provided by Wolverhampton City Council listed 32 providers offering holiday care across the City. All providers were contacted by telephone, and three were discounted from the audit. One setting had ceased offering holiday provision and two settings were operating for children aged 2-5 years of age and were therefore outside the scope of this audit. One setting only offered provision for pupils at the school and one setting declined to participate. The audit of holiday provision for children aged 5-16 years old is therefore based on detailed discussions with 27 settings.

Settings were asked to provide information about take-up of places; the majority of participants declined to do so. Assessment of take-up rates is based largely on qualitative data derived from telephone interviews with settings.

Three holiday periods have been considered in the audit: half term holidays, Easter and summer.

4.3 Key findings relating to registered holiday provision . The assessment of registered holiday provision does not find a lack of sufficiency to meet current demand. Providers report demand for provision has fallen, particularly in shorter the holidays (half terms and Easter), with the cost of provision being a main factor in reducing demand . Registered holiday provision is not operating at 100% capacity and the local authority has not identified any instances where a parent reports they have not been able to access a holiday place . Some provision may be unsustainable at the current level of demand; this may impact on sufficiency should settings close. Where settings are successful they have achieved this, at least in part, by increasing the number of parents using the provision to offset a reduction in hours used

BW 040714 220914 161214 15 www.hempsalls.com

. Demand may start to increase as the local economy shows signs of recovery and/or as a result in forecasted increases in the 5-14 year old population . Demand for specialist provision for disabled children and children with additional needs is reported to be high. There is some indication that parents with a child with additional need may lack confidence in non-specialist provision being able to meet the needs of their child. Non-specialist provision reports inclusive practice but evidence to support this is not apparent in this assessment

4.4 Summary of the report The City of Wolverhampton faces a number of challenges. The City has a lower economic activity rate than West Midlands or Great Britain (GB), with higher levels of unemployment. A relatively high percentage of the working age population does not hold a qualification and there are lower percentages of the workforce qualified at NVQ level 3 and above that found across the West Midlands and GB as a whole.

Earnings are lower in Wolverhampton than in the West Midlands and GB and there are higher percentages of the working age population claiming out of work benefits.

The City has high levels of deprivation, and levels are growing, and levels of child poverty are higher than the England average. Affordable, quality childcare provision enables families to work or maximise work opportunities, supporting economic well-being. There is a large body of evidence demonstrating the lasting impact of good quality early years childcare and the savings in future expenditure that can be made by investing in children aged under five years old. The body of evidence is large and growing; studies find a quality pre-school experience can boost children’s all-round development, and is particularly beneficial for least advantaged children.

The child population in Wolverhampton is growing with a predicted increase in the number of 0-14 year olds of 9% between 2013 and 2017. A high proportion of children are from a minority ethnic background (45% as at the Census 2011).

BW 040714 220914 161214 16 www.hempsalls.com

4.5 Recommendations relating to registered holiday provision

. Whilst current assessment suggests sufficient registered holiday provision to meet demand, there is very little provision available. In some areas of the city there is no provision, and in others very little. A lack of demand may have impacted on parents’ decisions regarding childcare during the holidays, or employment and training choices. It is recommended further work is undertaken to consult with working parents and those seeking to work, to establish if a lack of demand is real, or reflects low expectations about availability of care . Ensure providers are fully inclusive and can demonstrate their capacity to work with children with additional needs . Support provider sustainability by working with providers to market their provision to as wide a range of parents as possible to attract new parents to offset any reduction in hours taken up by each parent . Continue to monitor supply and demand, and in particular the impact of a growing child population and any changes to the local economy (e.g. more people in employment) . The cost of provision is cited as a main factor in decreasing demand. Ensure providers are aware of the support available for the cost of childcare and share this information with parents

BW 040714 220914 161214 17 www.hempsalls.com

5 Childcare supply

There are a total of 33 full day care providers, 55 out of school clubs, 18 playgroups and 159 childminders registered in the city, in addition to 55 maintained nursery classes attached to schools. Maintained settings operate on a different basis from private, voluntary and independent (PVI) settings. For the maintained sector, the local authority holds data regarding the number of school places for three and four year olds in each school (the schools admission number). The number of pupils on the school register as at March 2013 (School Census) is 3,328.

PVI and childminder settings are registered with Ofsted to provide childcare places, and the maximum number of places is stipulated at registration. A number of settings will decide to operate below the Ofsted registration level for a variety of reasons (for example, staffing levels, business priorities) or may offer additional places by running sessions. The number of places actually available may therefore be different than the number of registered places. Additionally, numbers of two, three and four year old places are not fixed. A nursery or childminder offering provision for under five year olds will provide care for the full age range of children and the number of two, three and four year old places may be determined by the number of children cared for in other age groups10.

5.1 Quality of early years provision As at 31 March 201411 7% of all early years provision in Wolverhampton was rated as outstanding by Ofsted; 56% were rated as good; 28% were rated as satisfactory and; 8% of early years providers were rated as inadequate.

10 Childcare Sufficiency Assessment 2013, Wolverhampton City Council 11 http://dataview.ofsted.gov.uk/#/Tab/?percentageType=1&remit=1&deprivation=0&providerType=0&judgeme nt=6&year=2013-08-31&areaType=2®ionId=7&similarDate=2013-08- 31®ionOne=0®ionTwo=0&eightRegions=false&tabName=LocalAuthorityFocus&_=1403890155220&loc alAuthorityId=0&constituencyId=0

BW 040714 220914 161214 18 www.hempsalls.com

Ofsted inspection outcomes 2011 – 2014, Wolverhampton early years settings % of early years settings rated by Ofsted as: Outstanding Good Requires Inadequate Improvement 31.3.14 7% 56% 28% 8% 31.8.13 6% 62% 29% 2% 31.8.11 6% 60% 34% 0% Source: dataview.ofsted.gov.uk

As at 31st March 2014 80% of early years settings in West Midlands were rated as good or better and there has been an upward trend between August 2011 and March 2014.

Ofsted inspection outcomes 2011 – 2014, West Midlands early years settings % of early years settings rated by Ofsted as: Outstanding Good Requires Inadequate Improvement 31.3.14 14% 66% 17% 3% 31.8.13 13% 66% 19% 2% 31.8.11 12% 62% 25% 1% Source: dataview.ofsted.gov.uk

Quality of provision in the early years is key to narrowing the gap in outcomes for children from more deprived backgrounds. Currently, local authorities can use settings rated requires improvement or above by Ofsted to deliver the early years entitlement for three and four year olds. The Government has signalled their intention to limit delivery to good and outstanding settings only in the future.

5.2 The Early Years Entitlement The local authority has a duty to ensure there are enough places to allow eligible children aged two, three and four to take up their offer of free childcare, regardless of parents’ working or training status. In doing so, the local authority supports their statutory duty under section 7 of the Childcare Act 2006.

BW 040714 220914 161214 19 www.hempsalls.com

5.3 Take-up of the early years entitlement A lower percentage of 3 and 4 year olds access their early years entitlement in Wolverhampton compared to West Midlands and England as a whole (90% in Wolverhampton compared to an average of 96% in West Midlands and England). A high proportion of take-up of the 3 and 4 year old entitlement is in the maintained sector. Anecdotally, local authorities with historically low levels of take-up are reporting an increase in the take-up of the 3 and 4 year old entitlement as a consequence of the introduction of the 2 year old early years entitlement. Should this pattern be reflected in Wolverhampton this will further increase demand for early years provision.

The expansion of the early years entitlement for 2 year olds nationally has increased demand for good quality early years places. As of 1st September, 1,875 children in Wolverhampton will be eligible for a free early years place and as of July 2014, in the region of 800 children were accessing a place. Additional places are required to meet demand, and places are required in a mixed market, including childminding, private, voluntary and independent (PVI) settings and schools. Given the level of delivery of the 3 and 4 year old entitlement in schools, it is likely additional capacity will be required in the PVI sector.

5.4 Three and four year old entitlement All children aged 3 and 4 years of age are entitled to 570 hours a year free early learning (from the term following the child’s third birthday). Take-up rates in Wolverhampton are low compared to the population of eligible children and regional and national averages.

Data in the table below shows the number of 3 and 4 year olds accessing a free early education place in Wolverhampton in 2011, 2012 and 2013 (latest data)12. Percentages are calculated from the number of actual 3 and 4 year olds benefitting from Free Early Years Entitlement and for 2013 take-up is against population data from the 2011 Census.

12 www.gov.uk/government/publications/early-years-benchmarking-tool Accessed July 2014

BW 040714 220914 161214 20 www.hempsalls.com

Three and four year old take-up of the early years entitlement 2011 – 2013 3 and 4 year old early years entitlement - % take-up 2011 2012 2013 Wolverhampton 92% 92% 90% West Midlands (average) 96% 96% 96% England (average) 94% 95% 96% Source: DfE early years benchmarking tool

Take-up of three and four year old entitlement in maintained settings is higher in Wolverhampton than found in West Midlands and England as a whole:

Take up % of 3 and 4 year olds % of 3 and 4 year olds receiving early years funding receiving early years funding in maintained settings (2013) in PVI settings (2013) Wolverhampton 89% 10% West Midlands (average) 66% 34% England (average) 59% 40% Source: DfE early years benchmarking tool

5.5 Two year old early years entitlement Free early learning for two year olds is being rolled out across the country. From September 2013, 20% disadvantaged 2 year olds in England were entitled to a free early learning place of up to 15 hours a week, totalling 570 hours the year following the child’s second birthday. This will increase to 40% of two year olds from September 2014.

The roll out of the two year old entitlement means that from September 2013, 130,000 two year olds in England became eligible for a free early learning place and this will increase to an estimated 285,000 children eligible for a place in September 2014.

The number of 2 year olds eligible for a free early learning place in Wolverhampton in Spring term 2014 was circa 1,260 children (source: DWP data, excludes small numbers of eligible children). As at July 2014, Wolverhampton was funding 800 children to access a place, an estimated 63% of eligible numbers. This may include children eligible under the

BW 040714 220914 161214 21 www.hempsalls.com

40% eligibility criteria; as at 1st September 2014 an estimated 1,875 children will be eligible for a free early learning place.

BW 040714 220914 161214 22 www.hempsalls.com

6 Summary of report – holiday provision

Across all holiday periods (half-term, Easter and summer) there is less than 1 full-day place per 100 children aged 5-16 years old. Provision per 100 children is lowest in half-term holidays (0.65 place per 100 children) and highest in summer (0.83 place per 100 children).

Despite very low childcare penetration rates for full-day holiday places, providers report vacancies in half-term and Easter holidays. Providers report parents using multiple solutions to meet childcare needs in the shorter holidays – taking annual leave and using informal care. Where providers are reporting either maintained levels of demand, or increased levels of demand, this tends to be as a result of an increased number of children taking fewer hours. Cost of provision/affordability of childcare appears to be a main factor. Providers offering free activity sessions reported experiencing a high demand for their services irrespective of the holiday period.

A high percentage of providers offering full day provision in the summer holidays (75%) indicated a consistent or increasing take up of places during the summer holiday. Longer holidays necessitate the use of more formal childcare arrangements as care cannot be sustained by informal care arrangements and annual leave.

Two providers offer places specifically for children with additional needs in the summer holiday (this provision was not available during half-terms or the Easter holidays). A total of 82 places are available, however, provision is limited and has a high demand.

All holiday providers report being inclusive, however, it was not possible to evidence the level of inclusivity.

BW 040714 220914 161214 23 www.hempsalls.com

Age ranges Holiday provision is generally operated on a ‘first come, first served’ basis with providers monitoring intake to ensure they have capacity to meet the requirements of their registration.

Where providers did categorise the places available to age ranges of children, they tend to categorise under 8 years and over 8 years; this is a notional split that supports them in planning appropriate activities. No providers allocate a specific number of places to different age groups.

6.1 Half-term provision 14 providers offer a total of 334 places for full day provision in autumn and spring half term. During the summer half term there are 13 providers offering a total of 318 places for full day provision.

The table below shows a breakdown of the available places based on the maximum age that the providers are registered to provide care for. The final column in the table below provides an indication of the adjusted number of providers/ places (AT*) for the corresponding holiday. This figure takes into account an estimate of places available at the provider declining to participate (based on average places available at settings in the City).

Half-term full day holiday provision for children aged 5-16 years old Age group 5 to 9 5 to 11 5 to 12 5 to 14 5 to 16 Total AT* years years years years years Providers 2 9 1 1 1 14 15 (Autumn/Spring) Places 56 166 32 30 50 334 359

Providers 1 9 1 1 1 13 14 (Summer) Places 40 166 32 30 50 318 343

*AT – Adjusted Totals

BW 040714 220914 161214 24 www.hempsalls.com

In addition to the full day provision two providers offer activity based sessions during each of the half terms. These sessions offer a range of activities for a few hours each day that children and young people can access. At the time of the audit the total number of places available was 72. The providers did note that they relied significantly on external funding and support from volunteers, consequently the availability and places available does vary. The table below provides a summary of the places available.

Half term sessional holiday provision for children aged 5-16 years old Age group 5 to 9 5 to 11 years 5 to 12 years 5 to 14 years 5 to 16* Total years years Providers - - 1 - 1 2

Places - - 40 - 32 72

40% of holiday providers (11) did not offer any half-term provision.

Take Up of Half Term Provision Discussions with providers identify half term provision having the most variable take up rates with providers experiencing different patterns from year to year and also between each half term.

Across the local authority, provider experiences of take up were mixed, with 55% (7 out of 13 providers) reporting take up was consistent or increasing and 45% reporting numbers were falling. Providers experiencing a consistent or increasing demand reported a decrease in demand per child, but an increased number of children accessing a place.

In general providers reported parents are multiple solutions to cover the shorter holidays which reduces the requirement for formal childcare. These solutions include informal care and use of annual leave entitlement.

Summer half term tends to have the lowest take up, while the autumn half term tends to be the busiest. Providers referred to the May bank holiday (which fell at the beginning of half term in 2014) and the fact that a high proportion of their parents receive their new annual

BW 040714 220914 161214 25 www.hempsalls.com leave entitlement in April each year as possible reasons behind the lower take up for the summer half term.

Possible explanations for a decline in take-up were explored in interviews; 15% (2 out of 14) of providers specifically mentioned cost as a factor. While this is a low proportion of settings citing cost as a specific barrier, it is possible that cost is a main factor as a number of explanations cited suggest parents are trying to reduce expenditure (fees for provision are discussed below). Providers offering free activity sessions reported experiencing a high demand for their services irrespective of the holiday period.

6.2 Easter provision Just over half of all holiday providers (56% n=15) offered a total of 374 places for full day provision during the Easter break. The table below shows a breakdown of the available places based on the maximum age that the providers are registered to provide care for. Two providers reported no maximum limit on their intake, suggesting that as they are based in a school they have ample space and staff appropriately to ensure they meet the ratios. Places were capped for these providers based on discussions around their typical attendance numbers.

Easter full day holiday provision for children aged 5-16 years old Age group 5 to 9 5 to 11 5 to 12 5 to 14 5 to 16 Total AT* years years years years years Providers 2 10 1 1 1 15 16

Places 56 206 32 30 50 374 395

A further 15% of providers (4) offer a total of 304 places for activity based sessions during the Easter holiday. 200 places (66%) were available for one week of the Easter break only. All four providers are in the voluntary sector, with three of the four providers offering free activities and one making a small charge.

BW 040714 220914 161214 26 www.hempsalls.com

Availability of the provision and the number of places are subject to funding and support from volunteers. The table below shows a breakdown of available places by age group based on the maximum age that providers are registered to provide care for.

Easter sessional holiday provision for children aged 5-16 years old Age group 5 to 9 5 to 11 years 5 to 12 years 5 to 14 years 5 to 16* Total years years Providers - - 2 - 2 4

Places - - 72 - 232 304

29% of providers did not offer any provision at Easter.

Take Up of Easter Provision The take up for the Easter break bears some resemblance to that of the half term breaks. The three bank holidays during the period effectively mean it is also considered a shorter holiday. Consequently, parents are able to combine informal care and annual leave to reduce their commitments for formal childcare.

Discussions regarding take up for the recent Easter break also revealed significant differences in provider experiences. On one end of the spectrum there were approximately 27% of providers (4 out of 15) who felt they were still able to achieve at least 80% occupancy while approximately 20% (3 out of 15) experienced extremely low numbers during the period. One provider reported they were running the provision at a loss just so it is available for the parents that need it.

What is clear is that where possible, parents are making alternative arrangements to reduce their outgoings on childcare. This is evident in changing purchasing patterns. Where parents may previously have purchased a week of care, it is reported, they are now much more specific about the days/sessions/times that they need it. Providers that are able to sustain higher occupancy are those that are able to attract new parents to offset the reduction in hours taken up by each parent.

BW 040714 220914 161214 27 www.hempsalls.com

Three of the four providers offering activity based sessions reported a high level of demand for places. All three providers offer free activities.

6.3 Summer provision Audit findings show 63% of providers (17) offering a total of 422 places for full day provision during the summer break. Availability of provision ranged from 4 weeks to 6 weeks.

The table below shows a breakdown of the available places based on the maximum age that the providers are registered to provide care for. Three providers reported no maximum limit on their intake, suggesting that as they are based in a school they have ample space and staff appropriately to ensure they meet the ratios. Places were capped for these providers based on discussions around their typical attendance numbers.

Summer full day holiday provision for children aged 5-16 years old Age group 5 to 9 5 to 11 5 to 12 5 to 14 5 to 16 Total AT* years years years years years Providers 3 10 1 2 1 17 18

Places 64 206 32 70 50 422 447

An additional 30% of providers (8) offer 510 places for activity based sessions a few hours each day. All eight providers are in the voluntary sector, with five of the eight offering free activities while the other three charge a small fee. The places are available for varying durations in the summer holiday ranging from 1 week to 6 weeks. Availability of the provision and the number of places available are subject to funding and support from volunteers.

The table below shows a breakdown of available places by age group based on the maximum age that providers are registered to provide care for.

BW 040714 220914 161214 28 www.hempsalls.com

Summer sessional holiday provision for children aged 5-16 years old Age group 5 to 9 5 to 11 years 5 to 12 5 to 14 years 5 to 16* Total years years years Providers 1 4 - 3 8

Places 50 162 - 298 510

Provision for Children and Young People with disabilities Two providers offer places specifically for children with additional needs in the summer holiday (this provision was not available during half-terms or the Easter holidays). A total of 82 places are available. Broadmeadow offer 37 places for children aged 3- 7. This provision is for 3 days each week for 4 weeks and is only available for children attending Broadmeadow. The other provision is Penn Hall, which offers 45 places for children with physical disabilities over the period of one week. This provision is offered for children and young people aged 3 – 19 who are attending the school. Both providers indicated a high demand for the places. Penn Hall also noted that they rely significantly on volunteers so the numbers of places they provide tends to reflect the staffing support they have available.

Take Up in the Summer Holidays 75% of the providers (13 out of 17) offering full day provision indicated a consistent or increasing take up of places during the summer holiday. Feedback suggests the primary driver for increased demand is the length of the summer holiday. Whilst shorter holidays were easier for parents to manage with various solutions, the summer holiday period requires more formal arrangements.

Once again, the majority of parents were typically purchasing a few days each week, but overall there was a higher demand reported than for shorter, half-term and Easter holidays. With summer approaching at the time of the audit, some providers already had a limited number of spaces available for summer holiday provision.

Providers (4 out of 17) who did report a decreasing intake during the summer cited various anecdotal feedback including:

BW 040714 220914 161214 29 www.hempsalls.com

. parents inability to meet the cost of the provision . parents going on holiday . informal care – children staying with grandparents

Take up for providers delivering free/low cost activity based sessions in the summer continues to be strong with 87.5% of the providers (7 out of 8) indicating they are generally oversubscribed. Only one provider noted a decline in occupancy; at the time of the interview discussions suggested occupancy of approximately 63%. Across the board, providers in this sector suggested they would be able to provide more places for a longer duration with additional resources.

6.4 Inclusive practice All providers had some capacity and training to work with children with additional needs. The common approach is for the management team to review the level of needs on a case by case basis. Participants discussed training accessed by staff as part of qualifications training (e.g. NVQ) and attending training provided by the local authority. Participants did not provide examples or evidence of experience working with specific additional needs.

6.5 Opening times The table below shows a summary of opening hours for each holiday period. Across all holiday periods, holiday provision tends to be available in most settings between 8am and 6pm.

BW 040714 220914 161214 30 www.hempsalls.com

Opening times

Open

pm pm

am am

pm pm pm pm

8 9

3 4 5 6

10 11

2:30 5:30

Providers 3 10 1 1 2 1 2 10 Autumn half term Providers 3 10 1 1 2 1 2 10 Spring half term Providers 3 11 1 1 2 2 2 2 3 9 Easter Providers 3 9 1 1 2 1 2 9 Summer half term Providers 4 11 5 4 2 3 5 2 3 3 10 Summer holidays

6.6 Fees All providers adopted the same pricing policy for all holiday periods they were open. In calculating the average costs activity based provision costing less than £5 and free provision has been excluded. The tables below outline the average costs in each holiday period as well as the range of fees.

Average fees Autumn half- Spring half-term Easter Summer half- Summer term term Average fees/ £21.84 £21.84 £21.35 £21.99 £23.40 day Average fees/ £107.80 £107.80 £105.40 £108.40 £113.40 week

BW 040714 220914 161214 31 www.hempsalls.com

Range of fees Full day fee £15-£19 £20-£24 £25-£29 £30-£34 £35+

Providers 4 7 1 3 1

Full week £75-£95 £96-£116 £117-£137 £138-£158 £159+

Providers 4 6 3 0 3

BW 040714 220914 161214 32 www.hempsalls.com

7 Geographical distribution of registered holiday provision There are a total of 20 wards in Wolverhampton, six of which do not have any registered holiday provision: Bushbury North; Bushbury South and Low Hill; Fallings Park; Oxley; Spring Vale and; Wednesfield North. Five of these wards are located in the north of the city.

Distribution of places Whilst 14 of the 20 wards have some registered holiday provision, the number of providers and places is less in half term and easter. During half-terms, nearly half of all wards (9) do not have registered holiday provision available (Blakenhall; Bushbury North; Bushbury South and Low Hill; Fallings Park; Oxley; Spring Vale; Tettnehall Wightwick; Wednesfield North and; Wednesfield South).

The highest number of places available in half term are in East Park (78, 19% of total):

BW 040714 220914 161214 33 www.hempsalls.com

Half term holiday % of places 25.0% 19.2% 20.0% 16.3% 15.0% 9.9% 9.9% 9.9% 10.0% 7.4% 7.9% 7.9% 5.9% 3.9% 5.0% 2.0% 0.0%

Half term holidays have the fewest places available (406); numbers of places increase in the Easter holiday (to 646), largely driven by an increase in places in Heath Town which accounts for half (50%) of all places:

Easter holiday % of places 40.0% 35.9% 35.0% 30.0% 25.0% 20.0% 12.1% 15.0% 10.2% 10.0% 6.2% 6.2% 6.2% 6.2% 4.6% 3.7% 5.0% 5.0% 2.5% 1.2% 0.0%

Wards with no registered holiday provision in the Easter holidays are: Bushbury North; Bushbury South and Low Hill; Fallings Park; Oxley; Tettenhall Wightwick; Wednesfield North and; Wednesfield South.

BW 040714 220914 161214 34 www.hempsalls.com

A higher number of providers open during the summer holidays and places increase to 932. Over a third of places are available in Heath Town ward (37%, 348 places). Wards with no registered places available are: Bushbury North; Bushbury South and Low Hill; Fallings Park; Oxley; Spring Vale and; Wednesfield North.

Summer holiday % of places 40.0% 37.3% 35.0% 30.0% 25.0% 20.0% 15.0% 8.4% 9.1% 10.0% 6.5% 7.1% 5.2% 4.3% 3.2% 4.3% 3.4% 4.3% 4.3% 5.0% 1.7% 0.9% 0.0%

BW 040714 220914 161214 35 www.hempsalls.com

8 The needs of disabled children and children with additional needs – a practitioner’s view

Kim Hatton, Charity Manager from Let Us Play was consulted to inform the assessment of holiday provision in Wolverhampton, with a specific focus on disabled children and children with additional needs.

Let Us Play is a charity organisation based in Wolverhampton working with disabled children and children with additional needs, funded by donations and fund raising activities. The organisation works regularly with around 270 children with additional needs across the spectrum, and employs in the region of 20 staff with an equivalent number of volunteers. Let Us Play offer activities all year round. During term time activities are available on most Saturdays (generally all bar one per month) and some (limited) Sundays. Activities are varied and designed to meet the needs of different age ranges and needs, and include sports (e.g. basketball, judo, and trampoline), a cycling club (using three wheeled bikes for children with more profound disabilities) and crafts. A private swim school offers children group lessons and 1:1 support. Let Us Play also aims to offer activities for older children (aged 14-17 years old), if funding allows. These include visits to the cinema, roller skating, darts and eating out.

During the school holidays activities are available on average four days a week. The majority of activities are for children and young people with a small number also supporting parents. Sessions are mainly designed to provide a break not just for the child but also the parent/carer and family. The participant reported that many children present highly challenging behaviour which can impact on the family. Of the 270 children currently involved with Let Us Play it is reported circa 40% are Autistic and very few have a purely physical disability. There is demand for 1: 1 care for children with high levels of complex needs however, it is expensive to resource and therefore places with 1:1 support are limited, and in very high demand. Access is reported to be ‘rationed’ amongst those requiring 1:1 (or sometimes 2:1) support to ensure as many children and families as possible can benefit. . All the children engaged with Let Us Play only access specialist provision.

BW 040714 220914 161214 36 www.hempsalls.com

The participant reported mainstream (non specialist) holiday provision is not equipped to work with children with complex needs, and most importantly, parents have little confidence in their ability to meet their child’s needs. Some children are reported to be very challenging, displaying inappropriate and sometimes violent behaviour. In a mainstream setting, it is argued, staff would not be able to cope with such behaviour, and there would be concern regarding the impact on other children.

Disabled children and children with additional needs can be socially isolated, in particular where they attend a special school which may not be in their immediate neighbourhood and which may not provide school based activities during the school holidays. Provision like Let Us Play provides social opportunities and aims to ensure a stimulating environment for those attending. Families of children with more complex needs also benefit from provision as it gives them a respite from caring for a child with additional needs, and time to do other things, including spending time with siblings. Parents also benefit from peer support, exchanging concerns and experiences and reducing isolation for themselves.

Demand for all activities is reported to be high. For sessions offered summer term 2014 the participant reported receiving 3,500 requests for places. Some families will request every session, in the hope they will be allocated a place on as many sessions as possible.

Summer 2014 Let Us Play had 752 places to offer, so were over-subscribed by a ratio of nearly 5 – 1.

This suggests there is a high unmet need for targeted provision to meet the needs of disabled children and children with additional needs.

BW 040714 220914 161214 37