Agenda for Culture and Communities Select Committee

Outdoor and Field Studies Centres Review Panel

Wellington room

18 October 2007

Time	Session	Evidence
11:30 - 11:50	Stuart Nundy Head of Outdoor Centres, Recreation and Heritage	Appendix 1: Members briefing Appendix 2: Activity Plan 2007/8
11:50 - 12:10	Terry Rath Head of Management Services Children's Services
12:10 - 12:30	Karen Murray Assistant Director Property, Business and Recreational Services	Appendix 3: Report - Hillier Gardens Education Service
12:30 - 1:30	Break for lunch
1:30 - 1:50	Frances Kettlewell Principal Accountant For Children's Services
1:50 - 2:10	Ron Meekings Head of Finance Recreation and Heritage
2:10 - 2:20	Break
2:20 - 3:30	Consideration of evidence (closed session)

Appendix 1: Recreation and Heritage - Members briefing

Hampshire County Council

Select Committee Briefing Report October 18 2007

Outdoor Activity Centres - funding arrangements and approach adopted by Recreation and Heritage

Contact: Stuart Nundy ext: 5015 [email protected]

1. Background - strategic underpinning to County Council investment in outdoor activity provision (see ¹Outdoor Service Strategic Plan 2005 - 08 and annual ¹Service Plans for overarching actions to achieve outcomes)

1.1 The ¹case is well made nationally and locally that the benefits of outdoor and adventurous activities upon young people far outweigh the costs and risks involved. Much recent work has looked at the costs of NOT engaging with such activities:

i. The Human Cost - (2.5 million young people are obese, and about 1.25 million of those will die prematurely)

ii. The Financial Cost - (Crime prevention and social re-engagement costs the country millions of pounds, whilst individuals lose huge amounts through academic and work based underachievement).

iii. The Social Cost -( in school and in wider society, we struggle to get many young people to re-engage with society)

iv. The Entrepreneurial Cost - (inestimable in terms of potential new business leaders, community and political leaders, decision makers and risk takers of the future)

1.2 In taking a strategic decision to develop, fund and manage Outdoor Activity Centres, the Recreation and Heritage Department ensures that the County Council takes a lead role in achieving high quality outcomes, fully related to the potential risks and costs above, in the context of HCC Corporate Priorities.

2. Funding arrangements

2.1 The four key Outdoor Activity Centres run by Recreation and Heritage (Calshot, Tile Barn, Beaulieu and the Mountain Centre) form the core of adventurous activity provision of the Council. These centres are long standing (all emerged out of the 1960's, and a recognition of the benefits of outdoor activities on young people). Until 1989 all were part of the Education Department, but as it became clear that statutory funding within Education would potentially exclude the funding of outdoor centres, they were moved to the equivalent of the Recreation and Heritage Department, where a broader and more business orientated view could be taken. At the time of transfer, all four centres were heavily subsidised, with schools and children paying nominal fees only.

2.2 Through out the 1990s a process of financial management occurred by which the balance of costs was changed, such that the majority of running costs are now recovered in the form of fees paid by schools and individual young people/parents. The key elements to this change were

i. A change to conditions of service for all staff, from Teachers' conditions to APTC (EHCC)

ii. A business planning process which implemented phased increases in fees annually

iii. A clarity about the need to constantly improve quality of provision

iv. A decision to focus upon both a universal service, and targeted services to meet corporate priorities (underpinned by continuing managed levels of revenue support).

2.3 In addition to the directly managed centres, the Service also engages with other partners to provide a comprehensive system of provision and support for outdoor learning across Hampshire. This includes grant aid to a number of independent and charitable outdoor centres which provide opportunities which we are unable to provide directly, a continuing relationship (²currently under review) with the Southampton and Portsmouth Outdoor Centres to provide access for HCC young people, and close work with Children's Services to promote outdoor learning, provide INSET training for teachers and others and support schools to become fully engaged.

2.4 The diagram below summaries the current overall funding detail of the R&H Outdoor Activities Service.

3. Funding principles

3.1 In order to provide the necessary local management ability to flexibly respond to a business climate, the following principles related to funding and fee setting were agreed by the Executive Member for Recreation and Heritage in December 2002 (Ref: Charging principles and fee levels at the Hampshire and Unitary Authority Outdoor Centres, Dec 12, 2002).Essentially, this gave local managers the responsibility to set fees to meet specific income targets, user targets and other Key Performance information, based upon a set of member approved principles:

i) The overall total cost of running the centre on a day to day basis.

ii) The need to maintain and improve the quality of service provision over time.

iii) The need to work within specific budget levels for revenue support set by the Executive Member for Recreation and Heritage Department.

iv) The need to address the strategic objectives of the County Council and, in particular, the issue of access and inclusion for all Hampshire's young people.

v) The need to provide Best Value in the context of a comparison with competitors.

vi) The overarching need to promote and maintain the highest possible levels of Risk Management in all residential and hazardous activities.

4. Summary

4.1 Hampshire County Council has taken a number of decisions over the past 40 years in which Members corporately indicate HCC's continuing support for the provision of directly provided and managed outdoor adventurous provision to schools, young people and others.

4.2 In recent years the focus upon targeted groups (Children in Care, excluded young people, those at risk of exclusion, young people with special needs, Family Learning, etc) has become even more specific. In addition, with the launch of the Government's Manifesto for Out of Classroom Learning, there is a clear requirement to ensure that all young people have opportunities and experience of these types of facilities.

4.3 Operating within Recreation and Heritage, the Outdoor Activities Service provides cost effective, high quality provision of national renown. Hampshire's Centres and Service is identified as one of the best such services within the UK and is frequently cited as an example of Best Practice by DCSF (DfES), National Organisations and research authors. Hampshire is seen as a trailblazer in this respect.

5.0 Related papers and documents:

a. Charging principles and fee levels at the Hampshire and Unitary Authority Outdoor Centres - Report of the Director of Recreation and Heritage. Decision Day Paper, Dec 12, 2002

b. Hampshire Outdoor Service Strategic Plan 2005-2008 (Incorporating the Service Plans for the Outdoor Activities Service [Recreation and Heritage] and the Outdoor Education Service: [Children's Services]

c. Outdoor Activities Service - Service Plan 2007-08 (Annual update to Strategic Plan)

d. Funding support for Southampton and Portsmouth Outdoor Centres - Report of the Director of Recreation and Heritage. Decision Day Paper, Jan 18, 2007 (also, considered at PRC Scrutiny Committee Jan 18, 2007)

e. Outdoor service partnership funding to independent and charitable outdoor centres Report of the Director of Recreation and Heritage. Decision Day Paper, March 27, 2007.

f. Quality Badge Provider Evaluation Form (PEF) Hampshire County Council, Calshot Activities Centre - Report of the National Inspection Team, Sept 2007

g. Manifesto for Out of Classroom Learning - DfES, November 2006

h. Education outside the classroom - Final Report of the House of Commons Select Committee - February 2005

i. A review of Research on Outdoor Learning. National Foundation for Educational Research, March 2004

j. Corporate Priorities 2005-07 - Hampshire County Council

Appendix 2: Recreation and Heritage - Activity plan 2007/8

Hampshire Outdoor Activities Service

Service Plan 2007 - 2008

Introduction.

The business of the Outdoor Activities Service comprises grant aid and partnership, direct local delivery - the Outdoor Centres, and targeted activity - the Outdoor Service.

It is this infrastructure and the web of partnerships and relationships out of which the work of the Outdoor Service delivers against the corporate, cultural and outdoor policy objectives agreed by the Council.. It also addresses the issues which are the substance of Every Child Matters, Youth Matters and the objectives of the Local Area Agreement as appropriate. The year's plan is part of a rolling programme of activity and service development identified in the Outdoor Service Strategic Plan 2005 - 2008

The service plan for 2007 - 2008 builds on the basis of the achievements within the service in 2006 - 2007 (record numbers of clients, record income generated, completion of major capital developments at Tile Barn, Calshot and the Mountain Centre, and a complete restructuring of the Beaulieu Development Centre).

Major challenges now face us, the majority of which are focused upon the introduction of Pay and Benefits, which is calculated to lead to service pay bill increases of approximately 10% per year for the next five years. Additionally, further budget cuts designed to fund corporate activities such as the Contact Centre, help with the shortfall within Adult Services and other calls upon funding will further impact upon budgets already under pressure.

The Service Plan is focused upon new initiatives and responses to the major challenges ahead. However, the maintenance of the existing, successful, services, is critical to the way in which the centres and service is able to respond to these challenges. These day to day activities are not focused upon in detail in the 2007 - 08 plan, but are assumed to underpin all the work being carried out.

Values and responsibilities

The Outdoor Activities Service strives to develop and promote good practice in the provision of outdoor learning, outdoor training and outdoor recreational activities, and to ensure real accessibility for the people of Hampshire.

What are we trying to achieve?

- To address the Departmental Priorities for Recreation and Heritage:

· Positive opportunities and interventions for targeted groups of young people

· Services to schools and school age children

· Lifelong Learning

· Well being, increasing physical activity and promoting healthy lifestyles

· Access and inclusion - responses to MR

- By the following specific actions and activities:

· To provide resources and opportunities for schools, colleges and Youth Organisations in Hampshire to access Outdoor Education in the process of personal, social and academic development of their young people, including those identified as being `hard to reach' or requiring targeted actions (eg; Aiming High)

· To support and complement the work of Children's Services, specifically with respect to the Outdoor Education Unit, Family Learning, Children Looked After and projects within the Youth Service.

· To provide a wide range of course and recreational activities for individuals, families and companies, corporate and community groups

· To ensure that the centres are widely recognised for the excellence of their staff and activities and for adherence to the highest safety standards.

· To maintain a constant review of safety standards and practices and to ensure that staff have appropriate qualifications and receive suitable ongoing training

· To manage the Centre sites to protect and enhance features of historic and wildlife conservation interest whilst maintaining public and recreational uses

· To develop partnerships with (internal and external) organisations and training providers to enhance Centre facilities.

· To meet the equalities agenda in all our work

The current context

The Service enjoys a national reputation for quality in both the provision and delivery of outdoor learning.

Strengths:

· Established as a `best practice' service nationally

· Strong links with DfES and other national bodies

· Very high rates of positive evaluation from users - identified as `good brand' by users. Achievement of Chartermark status

· Successful in terms of income generation

· High quality staff, paid within an industry wide structure

· Well regarded by Members

Weaknesses:

· Reliant upon schools, parents and children valuing and paying for access.

· High staffing costs as a proportion of overall turnover - very staff intensive

· Strict health and safety requirements limit flexibility of staffing and client programming

· Affected by national economic performance (level of spending on non essential services)

· Competing in national market with many other providers, both commercial and local authority

The challenges.

Opportunities:

· Forthcoming DfES `Manifesto for out of classroom learning' will focus schools on the relevance and need for outdoor learning

· Quality of our service promotes `word of mouth' marketing.

· Restructuring due to imposed budget cuts will offer opportunities to cut costs

· Some staff better paid as result of P&B

Threats:

· Imposed pay inflation due to Pay and Benefits implementation will create pay levels far beyond the norm for the industry nationally, leading to increased pay bill, and the possibility that staff will remain static.

· Requirement to raise fees and prices to customers to recoup pay and benefits costs, resulting in fee levels above national norm, and loss of customers to rival providers

· Additional imposed budget cuts to meet corporate requirements for central finance (eg: Procurement savings, transport savings, Pay and benefits realisation funds, contribution to Adult Services overspend, libraries overspend and restructuring, etc) will offer little available funding for developmental work

In total, the service is facing a funding gap of approximately 10% per year in 2007 -08, and slightly lower gaps in the following four years to manage Pay and Benefits (assuming that additional cuts are not imposed ...)

Priorities and responses

Our priorities are to ;

i) Stabilise the budgets and financial structures across all centres to deal with the threats outlined

ii) Maintain the quality of our service to schools and other customers

iii) Ensure staff are valued and achieve development

iv) Continue to show growth, improvement and development

v) Maintain and develop key internal partnerships

Key action areas for 2007 -08

In order to achieve a reduction of 4.2% across the outdoor budget, and to pay for the calculated increased costs caused by Pay and Benefits, the following actions will be implemented in 2007/08:

· Assess staffing structures over the next 24 months and consider amalgamation of Lead Instructor posts

· Develop new programme of Trainee Instructor to create a pool of qualified individuals who can `graduate' to FT Instructor roles over time

· Increase fees to schools, children and adults, set against national benchmarks for the industry. This will require careful market analysis to ensure that such increases do not result in a loss of customers, and to ensure that HCC young people are not too adversely denied access.

· Impose altered funding levels provided for HCC groups visiting outdoor centres in Southampton and Portsmouth. Currently there is a major imbalance between the level of HCC support to these centres and the support given to our own centres. It is intended to redress this imbalance by making cuts of £30,000 to funding to the `city' outdoor centres and increasing fees to schools accordingly, to achieve a closer balance to the fees and levels of support for HCC's own centres. In addition, planning will begin to make further reductions following 2007/08.

· Review all grants provided to external bodies

· A marketing campaign designed to identify the real benefits of outdoor learning, using the forthcoming Manifesto for out of classroom learning as the focus. This is intended to attract new groups and schools to use the centres.

· Continue to build partnership with Children's Services - maintain Hampshire Outdoor Service

Progress will be measured in terms of the following indicators:

i) Residential bednights

ii) Activity session figures

iii) Budget stability

iv) Measure of residential occupancy against residential capacity

v) User evaluation outcomes

vi) Number of Trailblazer schools

Resource planning

Key issues for the service will be

Financial

· Managing the reduction of the budget by 4.2%

· Dealing with the impact of Pay and Benefits outcomes both in financial and human impact terms

· Planning the appropriate expenditure for the development of targeted activities

· Planning the reduction in funding to Portsmouth and Southampton over the next 3 years

· Planning for the potential fifth centre at Runways End

· Planning for rolling refurbishment at Calshot - accommodation

· Planning for replacement facilities at Tile Barn and Beaulieu

Human

· Manage impact of pay and Benefit in `human' terms (IPP and red circle staff, changes to Standby and other allowances)

· Completing the integration of Tile Barn and Beaulieu

· Stabilising the staffing situation in Wales

ICT

· Planning and delivery of Outdoor centre booking system - Calshot

· Linkages with Contact Centre ??

· Web development and other publicity

Asset management - issues to be managed

· Building repairs and maintenance Centre buildings - issues

· Replacement of Toilet /Shower facilities at Tile Barn

· New meeting accommodation at Beaulieu

· Refurbishment of accommodation blocks at Calshot

· Climbing wall - Calshot

Appendix 3: Report - Hillier Gardens Education Service

Hampshire County Council

Culture and Communities Scrutiny Committee

18 October 2007

Review of Outdoor/Field/Rural Study Centres in Hampshire

Hiller Gardens Education Service

Report by the Director of Property, Business and Regulatory Service

Contact: Karen Murray ext: 7876 e-mail: [email protected]

1.0 Introduction

1.1 The Education Service has been operating at the SHHG since 1988 and provides an educational resource for visiting school pupils of all ages and abilities. The service operates with one full-time officer and two part-time officers. A number of casual staff are employed on a sessional basis as teaching staff. An expanding volunteer service provides valuable assistance with programme delivery.

1.2 Based in the Visitor and Education Pavilion, the Sir Richard Storey Education Centre can cater for up to 120 school pupils per day with a double classroom and fully equipped science and technology room. Facilities also include designated children's toilets and display area.

1.3 The Children's Education Garden has enabled the Education Service to expand the range of programmes on offer to visiting school groups and provides a unique teaching and learning environment for all visitors to the Gardens.

1.4 The Education Service continues to be involved in the production, organisation and delivery of the Events and the Families in the Gardens programme.

2.0 Formal Education at SHHG

2.1 There has been a 3% decrease in the number of visitors taking part in the formal education programme over the previous academic year 2005/06 (see Fig 1).

Fig 1: Formal Education Programme Attendees: Academic Years

2003/04, 2004/05, 2005/06 and 2006/07

2.2 The decrease in attendees taking part in the formal education programme at the Sir Harold Hillier Gardens follows on from the previous academic year 2005/06 which represented a peak in attendance coinciding with the opening of the Children's Education Garden.

2.3 Primary school pupils continue to represent the majority of school visits with a visit to the Gardens firmly fixed in the school calendar. Demand continues to be high with primary schools now booking with the Education Service up to one year in advance to ensure their place.

2.4 Secondary schools are visiting the Gardens on an increasingly regular basis, with students attending the Work Related Learning Programme, Year 7 Bonding Days, specialist tours and workshops.

2.5 This academic year saw Colleges of Further Education attending the Gardens on a regular basis, with students from Itchen College and City College Southampton taking part in the Work Related Learning Programme.

2.6 The Education Service continues to offer teacher training through the INSET and Outreach Service and provides a programme of work experience for newly qualified teachers.

2.7 Youth groups, Beavers, Cubs, Scouts and Brownies continue to visit the Gardens for guided and self-guided tours mostly during the school holidays.

3.0 Work Related Learning at the SHHG

3.1 The Work Related Learning Programme continues to be popular with Secondary schools and this academic year with colleges of Further Education. Pupils attend weekly sessions at the Gardens and are given the opportunity to gain valuable work experience and life skills through practical projects and training workshops. Central to the Work Related Learning Programme is the ongoing development and maintenance of the Children's Education Garden.

3.2 To raise the profile of the Work Related Learning Programme at the Gardens and promote horticulture as a recognised subject of study within schools the Education Service, in association with Sparsholt College, will be offering accreditation to participants. Students completing two years on the Work Related Learning Programme at the Gardens will be able to work towards gaining a Level 1 Certificate in Horticultural Skills, City and Guilds. Each participant will have to complete twelve units ranging from preparation of ground for seeding or planting to mulching a bed or border, all delivered and assessed at the Gardens. On completion of the Certificate students will leave the Gardens with a recognised qualification equivalent to two GCSE's at Pass level. The Education Service will pilot this programme with two Secondary schools in the academic year 2007/08.

4.0 Teacher Training at the SHHG

4.1 The Education Service recognises the need to keep teachers involved and engaged with outdoor education. This year the Education Service teamed up with the University of Winchester to offer a programme of outdoor workshops to newly qualified teachers, the programme proved popular and will be expanded in 2007/08.

4.2 The Education Service continues to work with Southampton University Science Learning Centre. This year the Education Service, in association with the RHS delivered a Mini-beasts workshop at the Gardens.

5.0 National Science Week at SHHG

5.1 Each year in March the Education Service takes part in National Science Week. This year the Gardens offered a programme of free school visits to the Gardens, with librarians from Hampshire Children's Library Service engaging pupils with stories, poems and pictures in the Garden's own outdoor library. Post Graduate students from Southampton University School of Biological Science provided an arresting exhibition of skulls including rhino, monkey, walrus and crocodile, and Hampshire Museum Service offered spider handling workshops. National Science Week 2007 proved to be the busiest week on record for the Education Service with over one thousand pupils participating. Visiting members of the public could also view the various exhibitions and displays throughout the week.

6.0 The Children's Education Garden at the SHHG

6.1 Since it's opening in July 2006 the Children's Education Garden continues to develop and evolve. The outdoor classroom spaces provide a great teaching resource for all ages, providing an exciting and stimulating environment in which to teach. The Education Garden is also popular with all visitors to the Gardens and particularly young families and children.

6.2 The Workshop at the heart of the Education Garden has seen a lot of expansion this year with further raised beds installed to provide growing space for fruit and vegetables. The glasshouse has been full to capacity with tomatoes, peppers, chillies and melons grown and harvested by school pupils.

6.3 The dipping ponds are now well established with each pond providing children with a seemingly unending supply of frogs, toads, newts, and various freshwater invertebrates to study. The addition of pond dipping to the programmes on offer to visiting schools has been a great success and has proved to be our most popular and frequently requested activity.

6.4 The Gardens are currently investigating the use of cameras in the Education Garden, with nest box, underwater and free standing cameras being trialled. A recent visit to Wakehurst Place provided a valuable insight into the potential of such technology. It is hoped that in the future images captured by cameras placed in the Gardens will be linked to the SHHG website and available for viewing by all.

7.0 Community Education Programme

7.1 In 2004 the SHHG was awarded a grant from the Esmee Fairbairn Foundation to establish a Community Education Programme and enhance the role of the Gardens in reaching out and meeting the needs of the wider community, particularly aiming to involve people with special needs, ethnic minorities and the disadvantaged. This academic year the Education Service continued to deliver a programme of horticultural workshops, with the assistance of the Horticultural Team, for special needs groups. The programme has proved particularly popular with groups providing a service for visually impaired people and the hard of hearing. Subject to further funding it is hoped to continue this service throughout 2007/08.

8.0 Links with other organisations

8.1 The Education Service in partnership with the RHS Education Department is currently exploring provision of an outreach service to schools to promote the teaching of horticulture in the classroom. Horticultural training will be provided to pupils, and practical projects will be developed within the school grounds. This programme will be subject to appropriate levels of external funding.

8.2 SHHG Education Service is working with Hampshire Garden's Trust Education Committee to provide a programme of activities for high achieving Secondary school pupils. A series of one day workshops on more advanced topics such as adaptation, soil science or classification will be provided by the Education Service and funded through Hampshire Garden's Trust Education Committee.

8.3 The Education Service maintain links with Botanic Gardens Conservation International, and its offshoot organisation the Botanic Garden Education Network at a national level, and closer to home, with the Hampshire Environmental Education Group and Hampshire Gardens Trust: Education Committee.

8.4 The Education Service is involved with Hampshire County Council Outdoor Learning Department at several levels. Education Officers assist in delivery of Trailblazers: Outdoor Learning Qualification and have been speakers at Outdoor Education conferences. Education Officers regularly participate in the Hampshire School Grounds Forum, and the Early Years Learning Forum

9.0 Informal Education Programme

9.1 The Education Service continues to be involved in the production, organisation and delivery of the Events and the Families in the Gardens programme.

9.2 Tots 'n' Tinies continues to be popular with families with young children, with fortnightly sessions at the Gardens providing a gentle introduction to the outdoors through hands-on activities.

9.3 Special events this year included Books at Bedtime, Minibeast Workshops for families throughout the summer and the seasons highlight our Summer's End Picnic complete with Punch and Judy, cabaret and firework display.

10.0 The Future Development of the Education Service

10.1 The SHHG Education Service continues to operate a wide range of highly successful programmes to as broad an audience as possible. The Service continues to maintain its reputation as a provider of high quality programmes, and is perceived as being good value for money by its service users.

10.2 The Education Service operates, as does any other organisation, within constraints. These constraints are financial: operating within budget; physical: the Sir Richard Storey Education Centre has finite capacity for indoor provision; and staffing: with limited staffing and dependence on casual staff for service delivery. Plus the Gardens can only sustain a certain level of educational visits before having a negative impact on the infrastructure of the Gardens and impact on other Gardens users.

10.3 The Education Service is concentrating more now on delivery of its core services of teaching visiting school groups in the Gardens. Introduction of new services such as a schools outreach officer will be dependant on external funding.