Chapter 5
The Development of Youth Work in Cork City and County
5.1 Introduction
In the course of carrying out this research a number of issues were identified for further discussion because of their relevance for youth work practice. These issues are recurrent themes in the case studies and they have been emphasised by those working at the front line of youth provision. It is hoped that this chapter will further project these issues onto a wider political platform where effective action needs to be taken. It is also anticipated that the CLVYC can play a valuable part in this process. The role of the CLVYC is further discussed in this context.
5.2 Youth Work and Funding
To date the Department of Education has not displayed a pro-active role or primer role in fields which are important from the point of social exclusion e.g. play groups, pre-schools, adult education, literacy and youth work. These are dependent on voluntary pressures to initiate services. In the 1992 budget only 1.5% of the budget was spent on 'other programmes' the remainder being spent on primary, secondary and third level education.
Youth work in our society has always operated from an inadequate resource base. It has been difficult for the service to demonstrate its achievements to those outside the service. Despite the reality that the youth service has displayed an ability to work with difficult young people through employing alternative approaches to pedagogy and discipline, it has never been securely resourced. The provision of youth services has been divided into two broad areas:
- "Mainstream Youth Work" to meet needs common to all young people.
- "Special services" for those young people requiring additional degrees of support and help to enable them to achieve the aims of "Mainstream youth work."
The report, Youth Services 2000 emphasised the importance of not viewing the two sections as mutually exclusive. As the report stated, it is very important to maintain a balance between the two strands. This can be difficult when the special services require significantly greater resources from the statutory sector. However, mainstream youth work also needs to be bolstered by adequate funding to provide support, training and programme development. This would go a long way toward integrating the two strands. There needs to be a level of services and opportunities available to young people which is 'universal' and soundly resourced and increases the overall participation of young people in their communities.
At the moment this is not happening and so there are problems which can result in the withdrawal of community support, the perception of youth work as an exercise in social control rather than an educational process and an over reliance on the special services to 'do too much too late.'
The volunteer model of youth work is effective if it is given significant recognition and if it is funded appropriately so that the required level of back-up services are provided.
5.3 The Context of Youth Work
Writing about the British situation in 1983, Akehurst complained that "no one has written down a policy on rural youth'; that rural youth work as such is non-existent; and that there is no formal statement on the "rural youth problem."
This point could be made about the Irish situation in which there is a clear lack of community strategies to respond to the difficulties that confront young people in rural areas. Progress on a national youth policy was very slow in Ireland. Substantial work was undertaken before 'In Partnership with Youth' the national youth policy was implemented in Ireland in 1985. As the case studies indicate, there are common issues in urban and rural contexts, determined by the same social and economic system. This is evidenced by the problems documented which cross urban and rural community boundaries (e.g. the lack of support for voluntary effort in youth work, the problem of resourcing youth work initiatives and the existence of groups of young people with specific needs).
Irish youth work has been considerably influenced by developments in Britain. The history of the youth work movement has its roots in a custodial type provision designed to provide a controlling function so that young people could be effectively socialised to become loyal and responsible members in society.
Davies and Gibson (1967) have identified youth work's origins in a period of change in which British society moved from an agrarian type to an urban industrialised one:
"Although one is not the 'result' of the other in any simple sense, education - recreation in situations of the socially immature came into existence because of the social conditions and requirements of an urban and mechanised way of life."
Young people, particularly young males in urban settings have always generated more concern because of their greater potential to pose a threat to the social order. This partially explains why youth intervention is often viewed as being only necessary in such settings. Another explanation stems from the reliance on 'number-crunching' criteria which allows urban needs to outbid rural demands because it is felt that it is better to support the greater number in the urban area than the lesser number in the rural location. While this report highlights the need to acknowledge structural conditions which give rise to common experiences in rural and urban settings, it does not seek to undermine the distinctive, qualitative and experiential aspects of life in these settings which bring with them their own problems. Pacione's summary of some of the basic differences in urban and rural living is useful in trying to understand the varying degrees of deprivation and the diverse needs which can give rise to particular types of youth work intervention:
There are important differences in the nature of urban and rural deprivation, stemming mainly from the basic contrasts in the physical and social environments. Thus whereas the fundamental dimensions of urban deprivation are associated with problems of environmental decay, class and ethnic conflict, overcrowding, delinquency, criminality and social disorganisation, deprived rural areas suffer more from the problems of inaccessibility, social isolation and the lack of a threshold population large enough to attract and maintain even the most basic village services and facilities.
From studying communities we can obtain some knowledge about wider social processes, but more importantly we learn to appreciate the diversity of experience characteristic of all settings both urban and rural.
The category 'rural area' should not be taken as defining a set of social phenomena which are sui generis...rather than devoting future research to the identification of social patterns supposedly inherent in rural areas as a whole, it is precisely their diversity which should command attention.
Indeed, the rural is not any one thing, it is a complex world of diversified settings punctuated by plural life-styles and multiple problems which are often sui-generis.
The case-studies of urban and rural areas in this report highlight the distinctiveness of the different communities' experiences. Rural and urban are general terms and can cover a vast array of socio-economic units from the very prosperous to the most disadvantaged. Assuming a false dichotomy or a homogeneity of experience could only have negative consequences for the practice of youth work in these different settings.
5.4 Placing Rural Youth Work on the Agenda
Undoubtedly 'disadvantage' is difficult to define and its manifestations can vary considerably. The strong focus on urban disadvantage has been justified by research findings from a variety of sources. However, the impetus to place rural youth work on the agenda stems from the reality that the rural issues have never been fully addressed.
This report has highlighted some of the salient problems in rural areas which require a community youth work involvement. The reality is that there tends to be an urban bias in much of the youth work literature. Very often it is only the youth in our cities who are targeted for youth work initiatives. Romanticised and stereotypical descriptions of rural bliss simply undermine the needs of many young people residing in rural areas. However, as McLaughlin stated " a chocolate box image of country life sits incongruously upon the ugly realities of rural deprivation.'
There is a case for the promotion of a rural youth work approach in Irish society. Research, as well as specialist training for youth work in rural settings could assist this process. Rural based voluntary youth and community organisations like Foróige, Macra Na Feirme and Muintir Na Tire should be invited to work together to highlight the rural issues of young people bringing these issues out of the villages and onto the regional and national agenda.
5.5 Youth Work and Volunteerism
Youth work in Cork has in the past depended upon and continues to depend upon getting a strong response from people; it is firmly rooted in the principle of volunteerism. Numerous reports have recognised the primacy of the volunteer:
The Volunteer will continue to be the primary agent of youth policy.
We share the view that the future development of a comprehensive youth service should be firmly based on the promotion and development of voluntary and community involvement in the delivery of services.
The Government recognises the primary role of the community in ensuring that the developmental and recreational needs of its young people are met through the provision of voluntary youth services. An indication of the esteem in which an organisation is held in the community is its ability to secure support, financial and otherwise from the community.
In 1989, it was estimated that 500 youth workers were employed full time and approximately 2000-3000 active volunteers were involved in youth work in Ireland (NYCI 1989). A recent report on 'The State of Youth Work' found that there were 40,560 voluntary youth leaders in the 32 voluntary youth organisations who provided information. In the context of professional practice, the youth services have always occupied a marginal position continuously battling for recognition in the field of informal education for young people. The youth work role is accorded low status in our society and by policy makers in particular.
This lack of recognition has negative consequences for paid workers but it is particularly detrimental for the volunteer workers who often work long, unsociable hours for little or no remuneration. This combined with problems caused by the lack of funding, the lack of training and support all serve to discourage people from volunteering. Furthermore if volunteers are made feel inadequate and if new problems continually surface volunteers are more likely to withdraw from youth work roles completely. More recently, voluntary organisations have experienced considerable difficulties recruiting volunteers for youth work. The reality is that this contribution has been taken for granted for too long. Many of the problems experienced by volunteers are connected to the low priority given to youth work in our society. This issue has to be addressed at policy level if volunteerism is to be further developed and fostered for the benefit of the service.
5.6 Gender and Participation
"The Sport here is more for boys than for girls".
'While the provision on Sunday afternoons was for girls only, the poor attendance of girls meant that boys were subsequently included in the provision.'
A common theme in many of the case studies is the issue of female participation in youth work. Recent research into youth participation in youth provision highlighted that "rates of current participation among young men is at least 20% higher than among young women." A more disturbing finding is that "approximately three in every four (76.1%) young women without qualifications reported that they have never been members of any youth club or organisation.
Gaetz highlighted the point that youth needs are in many ways defined in terms of the needs of teenage boys, largely because since they are more "visible" they gather in large numbers and operate under fewer constraints than do teenage girls.
Treacy showed that "the stable diet of programmes is dominated by the interests of males resulting in their significantly higher participation rates." He concluded that the 'difficulty of catering for young women....is not a problem of knowledge but one of values, attitudes and expectations.'
The degree to which the youth service has moved on from a custodial type provision has to be questioned when one considers the absence of a female agenda in youth work. The prevailing attitudes appear to be that the needs of boys are greater or that the needs of both sexes are essentially the same.
Services for youth have to respond directly to the needs and life conditions of girls and these should not be given less priority on the grounds that they are not as visible. The promotion of opportunities for girls to define their own situations and problems, to identify their own needs should be an intrinsic part of all provision.
5.7 Youth Work - Premises and Facilities
The Government accept that young people need adequate recreational, community and sport facilities.
In both rural and urban areas the youth service has a long standing dependence upon access to premises rented or borrowed. Such dependency has been a huge source of conflict. Equipment has to be stored or taken away and anything that might change the physical appearance or the atmosphere of the building is impossible. The style and tenor of youth work with its emphasis on activity and noisy entertainment makes it less desirable to caretakers or owners of buildings who prefer to accommodate senior citizens or other groups who appear less demanding.
Many of the premises used at community level are cold, damp, unsafe and unsuited to youth work. The use of such buildings further confirm for young people their poor status in society. Despite successive governments acknowledgement of the importance of appropriate facilities, they continue to ignore the need for grant allocation to cover the cost involved in the development of facilities. Funding to cover the running costs of projects is provided but no consideration is given to the problem of locating these projects. In Cork, youth work activities are held in premises ranging from portacabins, derelict buildings and rundown flats to community centres and schools. The problem of premises can yet again be attributed to the inability of the youth service to secure basic resources.
The Department of Education should provide adequate grant schemes for the renovation of premises for youth work. The need for Community facilities has also to be taken into account in future planning decisions.
5.8 Youth Work and Insurance
Insurance is undoubtedly one of the greatest administrative problems confronting youth work today. The use of certain facilities and engaging in certain activities can very often be out of the question because there is no insurance cover provided. There is often confusion about what exactly is covered and both paid and unpaid workers spend considerable time dealing with administrative tasks around the whole issue of insurance. It is generally felt that the 'insurance problem' possibly acts as a disincentive for people to volunteer for youth work initiatives because they fear the consequences of liability.
It would appear that there is a need for the interested parties to come together to discuss how best insurance cover can be provided in a way that will promote the development of youth work in a safe environment.
5.9 The Future Role of the Cork Local Voluntary Youth Council
5.9.1 Addressing Issues
The research has indicated a number of issues preventing the development of youth work in Cork. These issues highlight the need for action at both local and national level. The recent White Paper on Education stated:
Some aspects of youth work policy are best addressed at national level and others at regional or local level.
RECOMMENDATION
The Cork Local Voluntary Youth Council should now formulate a policy framework for the future development of youth work in the Cork region. This should involve prioritising the issues identified and setting realistic goals for the Council to achieve progress on these issues. The Council should also liaise with statutory bodies so as to represent adequately the interests of the voluntary youth organisations.
5.9.2 Responding to Community Needs
The recent White Paper on Education stated:
The need for specific youth services in any particular region or locality can best be assessed by a regional or local body, having regard to the requirements of the area. There is a need for the further empowerment of local communities to play a role in the development of responses to the needs of young people in youth work. Gaps in provision at local or community level need to be identified, with priority being accorded to the youth work needs of the disadvantaged areas.
RECOMMENDATION
In fulfilment of its defined role, the council should continue to respond to communities needs through the dissemination of information and the promotion of the process of building models of positive youth work practice in Cork City and County.
5.9.3 Promoting a Bottom Up Approach
Youth work in Ireland is almost solely based on the contribution of voluntary organisations, each with its own particular ethos;
The diversity in programmes and particular objectives that is found among the various youth organisations reflects the wide range of objectives that can be pursued and the methods that can be legitimately used.
The case studies have indicated that the capacity to generate and support youth work is not evenly distributed across all communities as resource endowments and potentials vary as do the stages of development of communities.
RECOMMENDATION
The diversity characterising much of youth work activity points to the value of engaging in a bottom up approach. The CLVYC should promote this approach, ensuring that development objectives and paths are pitched at levels appropriate to local situations.
5.9.4 Opening Windows on Practice and Experience
Youth Work never lends itself to wholesale copying but it is best when developed afresh, preferably from the bottom-up. Having said that, there is still much value in sharing practice: seeing how other people do things can be revealing and stimulating, even inspirational.
Since its establishment in November 1994, the CLVYC has opened windows on practice and experience in youth work.
RECOMMENDATION
The CLVYC should continue to provide a forum for local voluntary youth organisations to discuss the future development of youth work policy and provision, bringing to bear their own practice and experience at the front line.
5.9.5 Stimulating Co-Operation
The problem of co-ordination was highlighted in Youth Services 2000 as follows:
Clearly youth service in its widest sense touches many government departments and many semi-state, public, private and voluntary bodies. It therefore poses a management problem as to how best to co-ordinate its varied services, functions and areas of concern.
Since its inception, CLVYC has fulfilled the need for co-ordination at local level. It has succeeded in bringing together a number of very different voluntary organisations, motivated by different philosophies and modes of operation. Representatives of these organisations have worked together on a number of projects (e.g. the production of a Youth Directory and as a Steering Committee for this research).
RECOMMENDATION
The CLVYC should continue to stimulate co-operation between the different organisations so as to provide a comprehensive service in the Cork area avoiding the risk of duplication or neglect. This co-operation should be based on mutual respect for each organisation's autonomy and philosophy.
5.9.6 Concluding Note
This research project marks the first step in drawing together and making more readily available information from a range of sources. The work of the different voluntary organisations is outlined; a picture of the youth activities available in Cork City and County is provided; the case studies offer opportunity for more indepth analysis of the issues at community level thus opening windows on practice and experience. It is hoped that the issues highlighted and the recommendations made will provide the foundation for positive action at both local and national level for the development of youth work policy and practice.
