Client needs for coherent information, advice and guidance services ...

RESEARCH
Client Needs for Coherent
Information, Advice and
Guidance Services
on Learning and Work
ASW Consulting
in partnership with
Minds at Work and the Brian Ellis Consultancy
Research Report RR479

Research Report
No 479
Client Needs for Coherent Information,
Advice and Guidance Services
on Learning and Work
ASW Consulting
in partnership with
Minds at Work and the Brian Ellis Consultancy
The views expressed in this report are the authors' and do not necessarily reflect those of the Department for Education and Skills.
© Queen’s Printer 2003. Published with the permission of DfES on behalf of the Controller of Her Majesty's Stationery Office. Applications for reproduction
should be made in writing to The Crown Copyright Unit, Her Majesty's Stationery Office, St Clements House, 2-16 Colegate, Norwich NR3 1BQ.
ISBN 1 84478 099 6
1

CONTENTS
Chapter
Page
EXECUTIVE SUMMARY 4
I: BACKGROUND AND PURPOSE 10
Introduction 10
Background 10
Aims 11
Report structure 11
II: METHODOLOGY 12
Introduction 12
Sample frame 12
Research instruments 13
Pilot visits 13
Fixing the fieldwork 14
Synthesis and analysis of data 14
III: CLIENTS AND PROVIDERS IN THE SAMPLE 16
Introduction 16
Sample summary 16
Sample characteristics: providers 16
Sample characteristics: clients 19
IV: KEY FINDINGS BY THEME 23
Introduction 23
Segmentation of clients by perceived motivation 23
Awareness and understanding of IAG 24
Coherence 24
Signposting and referral 25
Links between providers 26
Barriers and gaps 26
Specific topics 27
Recommendations 28
V: COHERENCE OF IAG SERVICES: PERCEPTIONS OF CLIENTS 29
Introduction 29
Access, awareness and understanding of IAG services 29
Coherence 34
Barriers 38
VI: COHERENCE OF IAG SERVICES: PERCEPTIONS OF ADVISERS 45
Introduction 45
Services and priority target groups 45
Signposting and referral 46
Links between providers 51
Gaps and barriers 55
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Tables
Table 2.1: Pilot visits 13
Table 3.1: Sample summary by area 16
Table 3.2: Breakdown of ‘contact’ providers in the sample, by geographical area
and type 18
Table 3.3: Breakdown of ‘additional’ providers in the sample, by geographical area
and type 18
Table 3.4: Breakdown of clients by type of provider (based on original
contact provider) and area 20
Table 3.5: Summary of practitioner interviews undertaken, by area and role 20
Table 3.6: Breakdown of client contacts, by target group and status 21
Appendices
Appendix A: Key differences between client target groups, provider types and areas
Appendix B: Checklists for fieldwork
Appendix C: Organisations contributing to the research
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EXECUTIVE SUMMARY
INTRODUCTION
1. This Executive Summary presents the key findings from a study entitled ‘Client
Needs for Coherent Information, Advice and Guidance Services on Learning and
Work’. It has been prepared by ASW Consulting, in partnership with Minds at Work
and the Brian Ellis Consultancy, for the Department for Education and Skills
(DfES), on behalf of the National Information Advice and Guidance Board.
2. The overall aim of the project was defined as: “to understand the needs of clients for
coherent information, advice and guidance (IAG) services”. At the next level of detail,
the project was to identify clients’ needs for coherence and the extent to which they
perceive IAG services as meeting those needs. Particular attention was to be paid to
examining client awareness of, and access to, a range of local and national IAG
services, and the effectiveness of signposting and referral practices.
3. The specification indicated six groups of clients whose views should be canvassed,
and seven types of service providers to be included in the fieldwork. The client
groups were defined as: young people aged 16-19; young adults up to 25 with
learning difficulties/disabilities; young adults aged up to 30; adults with basic skills
needs; adults with low skills (below NVQ level 2 or equivalent) who are in
employment; and adults not in employment.
4. The types of service providers were defined as: FE colleges; HE institutions;
Jobcentre Plus; Connexions; learndirect; voluntary/community sector organisations;
and employer and other work-based training providers.
METHODOLOGY
5. The approach was unequivocally qualitative, with the emphasis on discussions with
those principally involved in day-to-day IAG: namely clients and front-line advisers.
6. The principal stages were:-
• designing a sample frame;
• drafting and refining of research instruments;
• piloting the approach;
• fixing the fieldwork in five areas;
• carrying out interviews and focus groups (see Table A below);
• synthesis and analysis of data;
• reporting.
• Table A below summarises the sample of clients and providers as a whole.
Table A:
Sample summary by area
Area
No of provider
organisations
No of client
participants
No of provider
interviews
Coventry & Warwickshire 7 46 15
Greater Manchester 8 31 20
London South 6 40 14
Suffolk 7 16 15
Tyne and Wear 7 31 12
TOTAL 35 164 76
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7. The following structure is adopted for presentation of the headline findings 1 :-
• segmentation of clients by motivation;
• awareness and understanding of IAG;
• coherence;
• signposting and referral;
• links between providers;
• barriers and gaps;
• comment on specific topics;
• recommendations to the National IAG Board.
SEGMENTATION OF CLIENTS BY PERCEIVED MOTIVATION
8. Analysis of the sample as a whole suggested that there are two main groups of
clients, when segmented by motivation (as opposed to other contextual factors).
These two groups can be distinguished, as follows:-
• clients who were receiving IAG as part of an integrated package (e.g. a
programme of learning or training). This group can be subdivided further into:
• those who are participating in learning or training as a requirement of a benefit
claim
• clients who have taken up learning or training for non-benefit related reasons;
• clients who were accessing specialist IAG services direct (e.g. one-stop shop
users), specifically in order to obtain IAG on learning and work.
9. Clients receiving IAG as a consequence of participating in learning or training are
motivated chiefly by the desire to gain skills and/or to continue to receive benefit.
The key point is that IAG is brought to them (e.g. as an integrated element of the
learning programme) at the instigation of an external agent. Furthermore, these
individuals may not have identified a personal need for IAG, prior to receiving these
services.
10. By way of contrast, clients accessing specialist IAG services direct are motivated by
an identified need for IAG support. They are themselves proactive in seeking
services to address those needs.
AWARENESS AND UNDERSTANDING OF IAG
11. In general terms, clients have a very limited awareness and understanding of the full
range of IAG services. This is a major constraint on their being able to access the
most appropriate service at the optimal moment – and, by extension, on their ability
to assess whether services are ‘coherent’.
12. Selected findings include the following:-
• with the exceptions of Jobcentre Plus and learndirect, most adults are only
aware of their current IAG provider;
• most adults use IAG only for job seeking or access to learning opportunities.
Few access services for career development planning – but such provision is
difficult to find and is often a costed service;
• there is hardly any awareness of IAG being a sector or of providers being part of
a broader network;
• many adults, other than those in the benefits system, had ‘stumbled across’
their current provider. Selection was hardly ever the result of an informed
evaluation of the various providers in the area;
1 The remainder of this chapter is based closely on the material in Chapter IV.
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• many clients said they would have used services earlier, had they been aware of
them;
• there was hardly any recognition of IAG in a workplace environment. Employers
and trade unions were not seen as being players in the IAG arena;
• brand awareness of Connexions was high. Young people were generally more
aware of the services on offer than adults.
COHERENCE
13. Most adults had not thought about the issue of coherence in IAG. Given their low
awareness and understanding of the sector, they did not have well developed
expectations of services received, against which to assess their actual experiences.
14. When prompted, clients tended to focus initially on what constituted a lack of
coherence. Examples cited tended to be frustrations with the system at a fairly
superficial level – especially over practical arrangements (e.g. appointments not
being kept or benefits being stopped).
15. At a deeper level, coherence appeared to be associated, in clients’ minds, with:-
• relevance (of a particular course of action being proposed or followed);
• client centredness (the goals defined by or with the individual, not imposed by
the provider);
• encouragement and support, especially when frustrations are experienced;
• periodic reviews and feeding in of new ideas.
16. Coherence is achieved most often when clients have an on-going relationship with an
adviser, who understands their needs and acts as a sounding board and point of
referral. When such a relationship is in place, it does not matter whether the
components of the action plan are achieved through the adviser’s own service,
through other linked services, or through the client’s own development activity; in
practice, there is likely to be a mix of these elements.
17. Perceptions of coherence are influenced significantly by the different motivations of
individuals described in paragraph 8 above):-
• those whose IAG is prescribed by others (e.g. on benefits) will be least likely to
feel any ownership of the process; for them, coherence is seen relatively
superficially. Factors appearing important are whether advisers listen and
empathise – and whether the outcome is as desired (most often finding a job);
• for those whose IAG comes as part of a package with which they feel reasonably
comfortable (e.g. as part of a course), coherence will be associated most with
relevance and helping them to achieve their goal. At the risk of labouring the
point, it should be stressed, however, that it will be the course which will have
been the original trigger for action, not the IAG;
• those accessing specialist IAG providers on their own initiative will have the most
marked ownership of the process. Key factors for them will be the extent to
which advisers are able to help them define personally relevant and achievable
goals, and the encouragement and support provided towards their delivery.
18. Other selected findings include the following:-
• often front-line advisers struggled also (i.e. as well as clients) to define the key
ingredients of coherence, other than supply-side factors, such as mechanisms
for efficient referrals;
• some clients (a minority) had difficulties with the model of an on-going
relationship with a single adviser. They felt providers ‘hung on’ to clients for
their own purposes (e.g. to provide evidence of high usage to funding bodies);
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• Connexions is seen as more coherent than adult services, although younger
clients are unsure about transition at 19+. They often have little awareness of
adult services;
• in general, clients appreciated follow-up and after care, although this was far
from standard practice across all agencies. Subsequent contacts to check on
progress provided evidence of a caring service and promoted coherence.
SIGNPOSTING AND REFERRAL
19. The terms ‘signposting’ and ‘referral’ are used inconsistently. However, signposting
is used most often to describe situations in which clients are made aware of the
services of another adviser or provider at an early stage of the process – similar, in
practice, to information giving. Referral tends to be used when clients are directed
towards a different adviser or service to facilitate further progress, after an initial
exploration of the needs as presented.
20. In terms of patterns of referral:-
• specialist IAG providers tend not to refer clients to each other, other than where
specific services (e.g. psychometric testing) are not offered by the first provider;
• IAG providers are very likely to refer clients to providers of education and
training. The reverse happens less frequently, presumably because several
education and training providers have IAG services in-house;
• referrals are made in both directions between IAG providers and other types of
support agency (e.g. for housing, health or financial queries);
• Jobcentre Plus clients are referred to contracted providers, in most instances;
• referral patterns are often influenced by familiarity with, and trust in, other
providers.
21. There is a variety of practice in terms of the formality of the referral process. Clients
had differing views as to whether they preferred appointments to be made on their
behalf or whether they were happy to access the other service in their own time.
Some advisers accompanied clients personally, especially when the latter lacked
confidence.
22. In general, client records were not transferred between agencies. From time to time,
summaries of guidance given were sent on, but only with the express approval of the
client. Advisers in Jobcentre Plus and Connexions follow up referrals to ascertain
whether appointments have been kept and what progress has been made, but this
does not involve transfer of records, other than where clients are moving to another
area (but this is a different context for referral).
23. One IAG Partnership (IAGP) was exploring an area-wide system for client referral and
tracking. This had several attractions, but ran the risk of appearing intrusive, from
a client perspective, and of making additional demands on providers’ administrative
systems.
LINKS BETWEEN PROVIDERS
24. In general, links between providers were positive. IAGPs were widely regarded as
having a beneficial impact on inter-agency relationships.
25. Advisers had a pragmatic view towards maintaining and developing links with other
providers. They recognised it was time consuming, if done effectively. In practice,
therefore, they tended to maintain closest links with organisations in a similar field
(mutually beneficial exchanges on professional development aspects) or offering
complementary portfolios of services (potential for referrals in both directions). The
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development of directories and databases by IAGPs made it straightforward to
contact providers outside the immediate circle, if need be.
BARRIERS AND GAPS
26. The point was made earlier that clients found it easier to describe examples of a lack
of coherence, than to discuss coherence as a concept or a principle. By extension,
their examples of a lack of coherence were often difficult to disentangle from
examples of straightforward bad practice that few would seek to defend - but which
may or may not be construed as evidence of a lack of coherence.
27. In terms of ‘barriers or constraints’ to coherence, the following were noted:-
• access issues (e.g. shorter waiting times sought);
• information issues (e.g. problems with interpretation of data);
• marketing issues (e.g. clients unaware of services of direct relevance to them);
• inflexibility in the system (e.g. fixed times before Jobcentre Plus clients can be
referred to training options);
• provider attitudes (e.g. lack of encouragement);
• client attitudes (e.g. lack of realism);
• dearth of suitable opportunities (e.g. jobs within reasonable travelling distance).
28. In terms of ‘gaps in the system’, the following were suggested:-
• work experience (e.g. for the long term unemployed);
• ESOL provision with a vocational slant;
• IAG services for:
- those in work
- ex-offenders
- graduates moving away from the catchment area of their HE provider;
• support services in fields such as:
- mental health
- housing
- anger management.
SPECIFIC TOPICS
29. The research team was asked to comment specifically on three topics, in addition to
the general issues around coherence. These were: use of local labour market
information (LLMI); basic skills provision; and advice on business start-up.
30. In terms of LLMI:-
• both clients and advisers reported it was not used widely;
• vacancy information is crucial for front-line advisers involved in job finding;
• a lot of published LLMI is at too high a level of aggregation. Even data at local
authority level may have a limited relevance to advisers working with clients in
defined local communities;
• ‘rough and ready newsletters’, which compile recent material from newspapers
and other local sources, are often more useful than professionally produced
bulletins showing historical trends.
31. Turning to basic skills:-
• IAG providers were generally well informed on local basic skills provision;
• clients were appreciative of the services provided;
• training courses on awareness raising had helped front-line advisers to recognise
basic skill needs. The difficulties lay in creating a climate in which clients felt
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comfortable with discussing their basic skills needs and/or persuading them to
opt in to the available provision;
• there were some difficulties with assessment procedures. They needed to be
both thorough (without being off-putting to clients) and readily accessible (long
waiting times lead to drop out).
32. There was little to report on business start-up advice. Where sought, it seemed to
be available within the local area. However, it tended to be seen as a specialist topic
– for referral to agencies outside the mainstream IAG network – rather than an
option discussed as a matter of course.
RECOMMENDATIONS
33. There is a well recognised challenge in distinguishing effectively between
information, advice and guidance. Similarly, there are boundary issues around
whether specific types of organisation are IAG providers at all, or whether they
should more properly be seen as part of a broader infrastructure of support
agencies. There is a prima facie argument here for the National IAG Board to look
again at issues of definition, perhaps with a view to segmenting providers and
services in a way which recognises recent changes in the sector.
34. Two issues were identified on which further research might shed some important
light on coherence issues from a client perspective. These are around:-
• the precise methods of facilitating referrals to other providers (e.g. informal
patterns, firm appointments, physically accompanying clients) and the
implications of each. Clearly they each have strengths and weaknesses;
• the point at which follow-up and after care (‘good’) lapses into hanging on to
clients (‘bad’). It would be instructive to compare and contrast different
practices on this and distil some good practice.
35. There is a groundswell of opinion, both from clients and front-line advisers, that
what is needed is an impartial, accessible and free IAG service for adults. There are a
number of components in place, of course (e.g. the learndirect national information
and advice helpline, the Jobcentre network and IAGPs), but it was clear that these
were not understood as being part of a bigger, coherent picture; and, moreover, that
several needs were not being met at all (especially guidance services for those
currently in employment). People in the field speak imprecisely of a need for a
‘Connexions service for adults’.
36. The Steering Group for this project briefly discussed this point at the interim report
stage. Their view was that adults do not yet have a sense of entitlement to IAG, and
that until awareness and understanding of services for adults is improved, the real
extent of demand will not be quantifiable. Taking this forward – even at the level of
a national marketing campaign, let alone expansion of provision – would have major
resource implications, of course. This study does not, therefore, offer any simplistic
recommendations; nevertheless the issue is noted for further consideration.
37. Finally, the moment might be opportune to look again at client satisfaction surveys.
Their use in the field often seemed to lack imagination: they tended to produce
complimentary – but not very useful – material, perhaps reflecting the drivers for
their introduction in the first place (typically a desire to qualify for a quality badge).
Area-wide feedback mechanisms could shed more light on coherence issues. Coincidentally,
they might appear less threatening to individual providers.
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I: BACKGROUND AND PURPOSE
INTRODUCTION
101 This report presents the findings of a study entitled ‘Client Needs for Coherent
Information, Advice and Guidance Services on Learning and Work’. It has been
prepared by ASW Consulting, in partnership with Minds at Work and the Brian Ellis
Consultancy, for the Department for Education and Skills (DfES), on behalf of the
National Information Advice and Guidance Board. The abbreviation IAG is used
throughout for information, advice and guidance.
102 This opening chapter:-
• sketches in the background to the study;
• sets out its aim and objectives;
• describes the structure for the remainder of the report.
BACKGROUND
103 In 2002/03, Government funding for IAG services in England was approximately
£1.6 billion. The purpose of this funding, delivered through DfES and the
Department for Work and Pensions 2 , was to help both young people and adults to
identify and overcome barriers to learning and work, and to enable them to make
informed choices.
104 IAG services for young people are now largely delivered through Connexions
partnerships. These bring together a broad spectrum of service providers focusing
on young people aged 13 to 19.
105 The position with adult services is currently less well structured. There is a broad
range of providers, including learndirect, Jobcentre Plus, FE colleges, HE
institutions, work-based training providers and organisations in the voluntary and
community sectors. However, IAG Partnerships are now active in all areas and are
promoting collaboration between providers, to the benefit of both delivery
organisations and clients.
106 The evaluation of IAG Partnerships 3 indicated that significant progress had been
made by many partnerships in relation to developing links and effective
communications at the strategic level, both between network providers and with
national services. However, fewer partnerships were confident of internal coherence
at the delivery level, and patterns of signposting and referral were found to be
influenced by advisers’ familiarity with, and trust in, other providers. Meanwhile,
the report ‘In Demand: Adult Skills in the 21 st Century’ 4 also underlined the need for
better information, advice and guidance - this time to support demand-led workforce
development systems.
107 This study focuses in particular on the issue of coherence. Its origin can be traced
back to the recommendation from the National IAG Board to Ministers in October
2001 for research into the linkages between the various IAG services for young
people and adults. This, in turn, will inform the Board’s work on developing a
common vision and strategy for coherent IAG services.
2 DWP funding is for Jobcentre Plus services.
3 Evaluation of Adult Information, Advice and Guidance Partnerships (DfES Research Report 359)
4 Performance and Innovation Unit, November 2001
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AIMS
108 The overall aim of the project was defined as:
“to understand the needs of clients for coherent IAG services”.
109 At the next level of detail, the specification stated that the project should identify
clients’ needs for coherence and the extent to which they perceive IAG services as
meeting those needs, with a particular focus on examining:-
• client awareness of, and access to, a range of local and national IAG services;
• the effectiveness of signposting and referral practices in helping clients to access
the IAG services which most closely meet their needs.
110 Finally, the specification indicated six groups of clients whose views should be
canvassed, and seven types of service providers to be included in the fieldwork.
111 The client groups were:-
• young people aged 16-19;
• young adults up to 25 with learning difficulties/disabilities;
• young adults aged up to 30;
• adults with basic skills needs;
• adults with low skills (below NVQ level 2 or equivalent) who are in employment;
• adults not in employment.
112 The types of service providers were:-
• FE colleges;
• HE institutions;
• Jobcentre Plus;
• Connexions;
• learndirect;
• voluntary/community sector organisations;
• employer and other work-based training.
REPORT STRUCTURE
113 The structure adopted for the remainder of this report is as follows:-
• Chapter II summarises the methodology adopted;
• Chapter III provides an overview of clients and providers in the sample;
• Chapter IV presents the headline findings and recommendations by theme (i.e.
as opposed to by key player);
• Chapters V and VI discuss the findings in more depth, from the perspectives of
clients and providers, respectively.
114 Appendix A provides additional commentary on the key differences between client
groups, provider types and geographical areas.
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II:
METHODOLOGY
INTRODUCTION
201 This chapter summarises the methodology adopted. The approach was
unequivocally qualitative, with the emphasis on discussions with those principally
involved in day-to-day IAG: namely clients and front-line advisers.
202 The principal stages were:-
• designing a sample frame;
• drafting and refining of research instruments;
• piloting the approach;
• fixing the fieldwork;
• carrying out interviews and focus groups;
• synthesis and analysis of data;
• reporting.
203 The sections below provide further information on each of these stages (other than
reporting).
SAMPLE FRAME
204 One of the key design principles of the methodology was that fieldwork should be
based in a small number of contrasting areas. The intention was to enable a crosssection
of different types of provider to be visited in each area and, crucially, a
picture to be built up of the dynamics of referral and signposting in each area. In
all, 30 providers were identified and approached across the five areas.
205 Selection of the five areas was undertaken, in consultation with the Steering Group,
to achieve coverage of the following variables:-
• urban/rural;
• high/low unemployment rates;
• perceived robustness of links between IAG services for young people and adults;
• perceived robustness of links between the local Learning and Skills Council,
Jobcentre Plus and other providers;
• perceived extent of coherence across the local IAG Partnership (IAGP).
206 The final list of areas was:-
• Coventry and Warwickshire;
• Greater Manchester;
• London South;
• Suffolk;
• Tyne and Wear.
207 Achieving a reasonable balance of different types of providers and different groups of
target clients was a significant challenge. In practice, it was an iterative process.
208 The key stages were:-
• designing a theoretical framework, specifying which types of providers and
clients should be accessed ideally in each area;
• consulting with the key contact(s) in each area to explore the potential for
securing the types of visits ideally required. The lead contact was typically the
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convenor of the IAGP, although there were exceptions (e.g. Jobcentre Plus visits
were co-ordinated nationally);
• discussions over the local providers to be approached. Often the final list was
different from the entries in the original framework. Such differences then had a
knock-on effect for other areas, since it was important for fieldwork to achieve a
reasonable balance when viewed from a national perspective;
• consulting with DfES – and where appropriate – Steering Group members to
obtain agreement to changes in the sample frame;
• negotiation with individual local providers on the logistics of each visit. Often
this resulted in another loop of amendments and consultation, since local
providers were not always able to field the profile of advisers and/or clients
ideally sought.
209 Overall, the intention was to complete:-
• 45 interviews with front-line staff from 30 different IAG provider organisations;
• 24 focus groups with a cross-section of clients, including 5 ‘mini focus groups’
with young people with learning difficulties/disabilities;
• 17 contacts with individual clients with complex needs who might be unwilling
to share their experiences in a group discussion (e.g. people with learning
difficulties/disabilities, communication and confidence issues). These would
typically be informal discussions on a one-to-one basis or in ad hoc small
groups.
210 Details of the sample that was actually achieved, together with a description of
participants’ key characteristics, are presented in Chapter III.
RESEARCH INSTRUMENTS
211 Separate checklists were drafted for fieldwork with practitioners and with clients.
These were revised several times, following consultation with the Steering Group,
and in light of practical experience during the pilot phase.
212 The final drafts are added as Appendix B. The items shown in bold are those
highlighted by the Steering Group as having a high priority.
PILOT VISITS
213 Towards the end of the preparation phase, but prior to undertaking the main
fieldwork, three pilot visits were carried out. The purpose of these was:-
• to explore the range of issues, relating to coherence, that were relevant to users
of IAG services and/or front-line advisers;
• to determine the most appropriate questioning techniques to use with clients
from a range of target groups.
214 The outline details of the pilot visits are set out in Table 2.1 below.
Table 2.1:
Pilot visits
Date Provider Clients Advisers
5/11/02 Learn and Earn (one-stop-shop) Focus group; n=6 n=1
13/11/02 Openshaw Jobcentre Plus, Manchester Interviews; n=6 n=3
15/11/02 West Suffolk College Focus group; n=10 n=1
Note: ‘n’ indicates number of participants
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215 Several adaptations were introduced to the methodology, following the pilot visits.
For example:-
• the topic guides were simplified;
• groups of young people with learning difficulties/disabilities were kept small;
• the starting point in client discussions was shifted to their experiences of IAG
services to date.
216 The key findings on ‘content’ issues have been integrated with the findings from the
main research phase.
FIXING THE FIELDWORK
217 Local LSCs and IAGPs were approached by DfES to nominate, and secure the
agreement of, a range of local IAG providers willing to participate in the research. As
noted above, providers were then approached by a member of the research team,
who explained the purpose of the research and discussed the most appropriate
arrangements for meeting with clients and front-line provider staff. The targeting of
clients was determined by both the needs of the data collection framework and the
ease with which the provider was able to secure the participation of particular types
of client.
218 In practice, fixing fieldwork proved complex and time consuming. In some
instances, the difficulties were understandable (e.g. problems with persuading
sufficient clients to attend a focus group). In other instances, however, the slowness
of response was a source of disappointment, especially since long lead times were
built in between initial contacts and target dates for visits; moreover, a budget had
been made available to offset any provider hospitality costs and/or client travel
costs. Nevertheless, the majority of providers in the final sample expressed
willingness to support the research and worked hard to secure the participation of
clients.
219 Typically, fieldwork visits included three components:-
• an introductory discussion with a management representative to highlight key
local issues for exploration;
• interview(s) with one or two front-line provider staff;
• a focus group (or interviews) with clients.
220 Where possible, one and a half hours was allocated for each client focus group and a
minimum of three-quarters of an hour for individual client interviews. Interviews
with advisers lasted approximately one hour each. Efforts were made to ensure
some flexibility was built in to the visit programme to allow time for extended
discussions, as appropriate.
221 The checklists (see paragraph 211) were used to guide discussions with clients and
advisers. This ensured that core issues were addressed across all target groups,
provider types and geographical areas. However, the focus of the study was on client
needs, making it important that clients themselves were able to influence the
agenda. Clients were therefore encouraged to talk about the IAG issues that they
considered of greatest importance in relation to service coherence; checklists were
used flexibly to facilitate this process.
SYNTHESIS AND ANALYSIS OF DATA
222 Content analysis of the qualitative data was conducted in 5 stages, as follows:-
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• Stage 1: overall analysis of data from all client interviews and focus groups,
across all provider types and areas, in order to:
- gain an overall understanding of the way in which IAG provision is perceived
by its users
- identify patterns of client interaction with IAG services
- develop an understanding of what constitutes coherence from the client
perspective
- identify factors that impact on the coherence of clients’ IAG experiences;
• Stage 2: overall analysis of data from all provider interviews, across all areas, in
order to:
- develop an overview of the way in which a variety of different IAG services are
promoted and delivered, through a wide range of different types of provider
- identify common patterns of signposting and referral, both within and
between providers
- highlight barriers to coherence from the perspective of front-line advisers
- identify common approaches and practices aimed at ensuring services are
coherent from the client perspective;
• Stage 3: analysis of client and adviser data relating to different client target
groups, in order to:
- identify issues impacting on particular types of client
- examine the extent to which services are equally coherent for a range of client
target groups;
• Stage 4: analysis of client and adviser data relating to particular types of IAG
provider, in order to:
- identify issues that are associated with particular types of IAG provider
- explore sectoral differences in approach to IAG service delivery;
• Stage 5: analysis of the similarities and differences between local approaches to
IAG coherence in order to:
- assess the extent to which different local IAG arrangements and initiatives are
impacting on client perceptions of IAG coherence.
15

III:
CLIENTS AND PROVIDERS IN THE SAMPLE
INTRODUCTION
301 This chapter provides an overview of clients and providers contributing to the
project. The first section briefly summarises the sample as a whole; subsequent
sections provide more details of participants. In view of the fact that clients were
accessed via providers, the latter are described first. Chapters V and VI reverse this
order, recognising that client perceptions were the principal focus for the research.
SAMPLE SUMMARY
302 In total, 34 organisations were involved in the research; this included 29 of the 30
providers originally approached. 5 Table 3.1 below summarises the sample of clients
and providers as a whole.
Table 3.1:
Sample summary by area
Area
No of provider
organisations
No of client
participants
No of provider
interviews
Coventry & Warwickshire 7 46 15
Greater Manchester 8 31 20
London South 6 40 14
Suffolk 7 16 15
Tyne and Wear 7 31 12
TOTAL 35 164 76
303 In some instances, the IAG provider was unable to arrange easy access to specified
target groups through their own client base and services. In such cases, these
providers were sometimes able to secure the cooperation of colleagues and partner
organisations in order to make good the gaps. For example, focus groups with
Jobcentre Plus clients were often arranged through providers contracted to deliver
Jobcentre programmes; similarly, Connexions clients, including young people with
learning difficulties/disabilities, were sometimes accessed via specialist providers or
colleges.
304 Where possible, interviews were held with representatives of these ‘additional’
organisations, as well as with advisers from the main ‘contact’ provider. This
resulted in the involvement of a larger number of provider organisations than the
original target of 30.
SAMPLE CHARACTERISTICS: PROVIDERS
Types of provider
305 All seven types of provider, as identified in the original research specification, were
included, although coverage of in-work IAG services was minimal. Other types of
5 One visit was cancelled twice by the provider at short notice and not pursued further.
16

provider were added, either following discussion with the local IAGP, or as a result of
the nomination of ‘additional’ providers by the original ‘contact’ partners.
306 Breakdowns of ‘contact’ and ‘additional’ providers by area and sector are provided in
Table 3.2 and Table 3.3 overleaf. A full list of the provider organisations
contributing to the research is added as Appendix C.
307 It is apparent from these tables that the combination of participating providers
varied between geographical areas. Only Jobcentre Plus and voluntary and
community providers were represented in every area.
308 Two key points, from a methodological stance, should be noted here. First, the
number of providers in any single sector was small; second, there were significant
differences between organisations in the same sector. For example ‘voluntary and
community providers’ include national voluntary sector organisations and local,
community-based organisations, each with their own different emphases and
approaches to delivery. Even within seemingly more homogenous sectors such as
FE, Connexions and Jobcentre Plus, there were differences in the way IAG provision
was organised and delivered to clients.
309 These factors limit the extent to which sector specific conclusions can be drawn out
with confidence. Further comments on the implications of key variables are added
as Appendix A.
Client base of providers
310 There was considerable variation in the extent to which IAG providers targeted their
services at specifically defined client groups. Some adopted a deliberately openended
policy (e.g. drop-in centres), at any rate for information and initial advice
services. Others had strictly defined target groups (e.g. those planning to start up
their own business).
311 Most had a general policy on target groups but adopted a degree of flexibility in
practice. Factors used to describe eligibility included:-
• age (e.g. Connexions);
• labour market status (e.g. Jobcentre Plus);
• residence (e.g. local authority services);
• disadvantage (e.g. basic skills need, asylum seekers/refugees).
312 Table 3.4 on page 20 provides a breakdown of participants by target client group
across the five areas. In practice, there was considerable overlap between target
groups for the various services – an ambiguity which introduced added complexity to
the segmentation of client groups, too (see second half of this chapter).
Provider interviews
313 In terms of provider interviews, the main focus was on discussions with individuals
involved in the direct provision of services to clients. In the majority (almost three
quarters) of visits, a short discussion was held also with a management
representative, to highlight key local issues for exploration. In some cases, the
management representative was also involved in direct delivery of IAG services to
clients.
314 Each provider was asked to identify one or more front-line adviser(s) involved in the
delivery of services to clients. Where possible, advisers were selected to represent
differing roles within and between organisations.
17

Services
Table 3.2:
Breakdown of ‘contact’ providers in the sample, by geographical area and type
Type of provider
Coventry &
Warwickshire
Greater
Manchester
London South Suffolk Tyne & Wear Total
FE 1 1 - 2 - 4
HE - 1 - - 1 2
Jobcentre Plus 1 1 1 1 1 5
Connexions 1 - 1 - 1 3
learndirect - 1 - - - 1
One stop shop 1 - 1 - - 2
Voluntary/community 1 1 1 1 1 5
Workplace/WBT - - - 1 - 1
Private provider - 1 - - 1 3
Other 1 1 1 2 2 3 - - 5
Totals 6 7 6 5 5 29
Notes: 1 Business Link
2 Regeneration organisation
3 ESF funded jobs and training workshop; and IAGP worker operating from premises of voluntary organisation
Table 3.3:
Breakdown of ‘additional’ providers in the sample, by geographical area and type
Type of provider
Coventry &
Warwickshire
Greater
Manchester
London
South
Suffolk
Tyne &
Wear
Jobcentre Plus contracted training providers 1 1 - 1 1 4
Learning difficulties/disabilities specialist
providers
- - - 1 - 1
College - - - - 1 1
Totals 1 1 - 2 2 6
Total
18

315 For example, a field visit to a specialist IAG provider might have included interviews
with a front-line receptionist involved in the provision of initial information and
signposting, and with a qualified IAG specialist responsible for delivering a full range
of services to clients. At other providers, advisers may have been involved in the
provision of information and advice as part of a wider role – for example, a New Deal
adviser whose duties include monitoring against the Jobseekers Agreement, or a
lifeskills tutor who delivers information and advice as an integral part of wider
training provision.
316 In addition, a small number of individuals were interviewed who had no direct role in
relation to IAG delivery but who were nonetheless well placed to comment on key
themes of the research (e.g. a basic skills tutor working with unemployed individuals
on Jobcentre Plus programmes).
317 Table 3.5 overleaf shows the breakdown, between the five areas, of the number of
interviews undertaken with different types of provider representatives. It can be
seen that all types of adviser are well represented across the five areas.
Provider sample summary
318 Overall, we deem the wide variety of different type of providers involved to be a
strength, leading to confidence that the findings reported in subsequent chapters
fairly represent the views of IAG service users across a broad range of contexts. The
diversity within the provider sample does, however, make it difficult to draw firm
conclusions with respect to providers from a particular sector.
SAMPLE CHARACTERISTICS: CLIENTS
Client target group membership
319 As noted above, providing a breakdown of clients by target group is more difficult.
The six priority target groups identified for the research (see paragraph 110 above)
are not mutually exclusive.
320 For example:-
• ‘adults with basic skills needs’ may be unemployed or in work, and may fall into
any age category;
• any of the focus groups with adults and young people may have included some
individuals with basic skills needs. However, unless the group was specifically
targeted at those with basic skills needs, these individuals were not asked to
identify themselves;
• some adult focus groups included individuals with learning difficulties/
disabilities but, as such adults were not specified as a target group, these
individuals are included within other categories (e.g. by employment status);
• individuals participating in focus groups of ‘adults in employment’, ‘not in
employment’ and ‘with basic skills needs’, were often drawn from a wide age
range and included individuals who could also have been categorised as ‘young
adults aged up to 30’;
• many adults categorised as ‘not in employment’ were undertaking some form of
learning or training. Only those in full-time learning, and not therefore seeking
employment, were categorised separately.

Services
Table 3.4:
Breakdown of clients by type of provider (based on original contact provider) and area
Type of provider
Coventry &
Warwickshire
Greater
Manchester
London South Suffolk Tyne & Wear Total
FE 20 3 - 7 - 30
HE - 5 - - 3 8
Jobcentre Plus 6 9 6 6 10 37
Connexions 7 - 8 - 6 21
learndirect - 2 - - - 2
One stop shop 5 - 7 - - 12
Voluntary/community 8 1 7 3 2 21
Workplace/WBT - - - - - 0
Private provider - 8 - - 10 18
Other - 3 12 - - 15
Totals 46 31 40 16 31 164
Table 3.5:
Summary of practitioner interviews undertaken, by area and role
Area Managers Information
and signposting
only
Number of provider interviews
IA(&G) as part
of a wider
remit
IAG specialist Other TOTALS
Coventry & Warwickshire 4 3 4 4 - 15
Greater Manchester 8 1 4 5 2 20
London South 4 2 5 3 - 14
Suffolk 6 1 3 5 - 15
Tyne & Wear 2 1 4 4 1 12
Totals 24 8 20 21 3 76

321 Furthermore, some focus groups involved a mix of clients from different target
groups. Where detailed information on the make-up of the focus group is available,
participants of mixed focus groups have been split into constituent target groups;
thus, if a group included a mix of employed and unemployed adults, the numbers
falling into each category have been entered separately in the tables. However, this
was not always possible.
322 Table 3.6 below provides a summary of the make up of the client sample, in relation
to the seven target groups specified for the research, plus two additional categories.
These have been added both to distinguish adults in full-time learning from other
adults not in employment, and also to record mixed client groups.
Table 3.6:
Breakdown of client contacts, by target group and status
Client target group
Number of clients participating in focus groups
C&W GM LS S T&W TOTAL
Young people aged 16-19 14 3 5 - 12 34
Young adults up to 25 with LDD - - 3 3 4 10
Young adults aged up to 30 9 6 - - 3 18
Adults with basic skills needs - - - - 10 10
Adults in employment 4 3 7 1 - 15
Adults not in employment 1 19 15 11 2 48
Adult in learning 8 1 - 3 1 - 12
Other Group (e.g. mixed) 10 2 - 7 3 - - 17
Total 46 31 40 16 31 164
Notes 1. C&W Adults in learning = access students
2. C&W Other = mix (employed, unemployed, on disability living allowance, retired)
3. LS Other = mix (ESOL and Adults with basic skills needs)
Recent experience of IAG services
323 The vast majority of clients participating in the research were current (or very recent)
recipients of IAG services from the provider organisation through which the focus
group or interview had been arranged. This was not true of all clients, however,
since a significant minority were recruited to the study as a result of their
participation in other (non-IAG) provision (e.g. a college course). However, the
sample overall is biased towards clients who have had on-going contact with an IAG
provider.
324 While a significant proportion of clients may have made a number of approaches to
different providers at different times, the sample includes relatively few clients who
have used services on a one-off basis.
Client sample summary
325 The sample of clients participating in the research is diverse, representing
individuals from across a range of target groups and with a variety of different needs
and motivations in relation to IAG services. We are satisfied that the sample also
includes clients who have experienced a broad spectrum of different IAG services
and delivery methods.
21

326 Our synthesis and analysis of client data indicated that it is meaningful to
distinguish between clients in terms of motivation, as well as contextual
characteristics. Moreover, segmentation by motivation can be applied across clients
of all ages, regardless of employment status and skill levels. We develop this point
in the next chapter.
22

IV:
KEY FINDINGS BY THEME
INTRODUCTION
401 This chapter presents the headline findings in a summary format. The material is
presented by theme (e.g. referral), rather than by key player (e.g. front-line adviser).
The data on which this summary is based is set out in greater depth in Chapters V
(clients) and VI (providers).
402 The following structure is adopted:-
• segmentation of clients by motivation;
• awareness and understanding of IAG;
• coherence;
• signposting and referral;
• links between providers;
• barriers and gaps;
• comment on specific topics;
• recommendations to the National IAG Board.
SEGMENTATION OF CLIENTS BY PERCEIVED MOTIVATION
403 It was recognised from the outset that client motivation and prior expectations of
IAG services would have a significant impact on subsequent perceptions of IAG
coherence. Our analysis of the sample as a whole suggested that there are two main
groups of clients, when segmented by motivation (as opposed to other contextual
factors).
404 These two groups can be distinguished, as follows:-
• clients who were receiving IAG as part of an integrated package (e.g. a
programme of learning or training). This group can be subdivided further into:
- those who are participating in learning or training as a requirement of a
benefit claim
- clients who have taken up learning or training for non-benefit related reasons;
• clients who were accessing specialist IAG services direct (e.g. one-stop shop
users, users of student careers services), specifically in order to obtain IAG on
learning and work.
405 Clients receiving IAG as a consequence of participating in learning or training are
motivated chiefly by the desire to gain skills and/or to continue to receive benefit;
the latter group includes many Jobcentre Plus clients. The key point is that IAG is
brought to them (e.g. in response to a course enquiry, as an input to a tutorial or as
an integrated element of the learning programme) at the instigation of an external
agent. Furthermore, these individuals may not have identified a personal need for
IAG, prior to receiving these services.
406 By way of contrast, clients accessing specialist IAG services direct are motivated by
an identified need for IAG support. They are themselves proactive in seeking
services to address those needs.
407 There are, of course, some clients who could be deemed to fall into both groups.
Examples would include:-
• an individual on New Deal who is also accessing job seeking support from a onestop-shop;
23

• a student who is part of a group receiving a careers input to an access course
and who also seeks out IAG from a specialist provider (perhaps as a result of the
former);
• a young person on a lifeskills programme who takes up an option to discuss
development needs individually with an IAG professional.
408 However, the distinction between those who seek out IAG services and those who
have IAG delivered to them, is an important one to bear in mind in relation to the
motivation of clients and their resulting perceptions of IAG services.
AWARENESS AND UNDERSTANDING OF IAG
409 In general terms clients have a very limited awareness and understanding of the full
range of IAG services. This is a major constraint on their being able to access the
most appropriate service at the optimal moment – and, by extension, on their ability
to assess whether services are ‘coherent’.
410 Selected findings include the following:-
• with exception of Jobcentre Plus 6 and learndirect 7 , most adults are only aware of
their current IAG provider;
• most adults use IAG only for job seeking or access to learning opportunities.
Few access services for career development planning – but such provision is
difficult to find and often a costed service;
• there is hardly any awareness of IAG being a sector or of providers being part of
a broader network;
• many adults, other than those in the benefits system, had ‘stumbled across’
their current provider. Selection was hardly ever the result of an informed
evaluation of the various providers in the area;
• many clients said they would have used services earlier, had they been aware of
them;
• there was hardly any recognition of IAG in a workplace environment. Employers
and trade unions were not seen as being players in the IAG arena;
• brand awareness of Connexions was high. Young people were generally more
aware of the services on offer than adults.
COHERENCE
411 Most adults had not thought about the issue of coherence in IAG. Given their low
awareness and understanding of the sector, they did not have well developed
expectations of services received, against which to assess their actual experiences.
412 When prompted, clients tended to focus initially on what constituted a lack of
coherence. Examples cited tended to be frustrations with the system at a fairly
superficial level – especially over practical arrangements (e.g. appointments not
being kept or benefits being stopped).
413 At a deeper level, coherence appeared to be associated, in clients’ minds, with:-
• relevance (of a particular course of action being proposed or followed);
• client centredness (the goals are from the individual, not imposed by the
provider);
6 Jobcentre Plus, however, is not seen as an IAG provider. It is associated almost exclusively with jobfinding for the
unemployed and the benefits system.
7 Brand awareness of learndirect is good but there is confusion between the impartial national telephone helpline and the
call centres for learndirect courses and centres.
24

• encouragement and support, especially when frustrations are experienced;
• periodic reviews and feeding in of new ideas.
414 Whilst these components are described in a positive way, most examples (as noted in
paragraph 412) were given the negative way round. Thus lack of coherence is
associated, for example, with advisers’ failure to listen or by referrals to inappropriate
services.
415 Coherence is achieved most often when clients have an on-going relationship with an
adviser, who understands their needs and acts as a sounding board and point of
referral. When such a relationship is in place, it does not matter whether the
components of the action plan are achieved through the adviser’s own service,
through other linked services, or through the client’s own development activity; in
practice, there is likely to be a mix of these elements.
416 Perceptions of coherence are influenced significantly by the different motivations of
individuals ( see paragraph 404 above):-
• those whose IAG is prescribed by others (e.g. on benefits) will be least likely to
feel any ownership of the process; for them, coherence is seen relatively
superficially. Factors appearing important are whether advisers listen and
empathise – and whether the outcome is as desired (most often finding a job);
• for those whose IAG comes as part of a package with which they feel reasonably
comfortable (e.g. as part of a course), coherence will be associated most with
relevance and helping them to achieve their goal. At the risk of labouring the
point, it should be stressed, however, that it will be the course which will have
been the original trigger for action, not the IAG;
• those accessing specialist IAG providers on their own initiative will have the most
marked ownership of the process. Key factors for them will be the extent to
which advisers are able to help them define personally relevant and achievable
goals, and the encouragement and support provided towards their delivery.
417 Other selected findings include the following:-
• often front-line advisers struggled also (i.e. as well as clients) to define the key
ingredients of coherence, other than supply-side factors, such as mechanisms
for efficient referrals;
• some clients (a minority) had difficulties with the model of an on-going
relationship with a single adviser. They felt providers’ ‘hung on’ to clients for
their own purposes (e.g. to provide evidence of high usage to funding bodies);
• Connexions is seen as more coherent than adult services, although younger
clients are unsure about transition at 19+. They often have little awareness of
adult services;
• in general, clients appreciated follow-up and after care, although this was far
from standard practice across all agencies. Subsequent contacts to check on
progress provided evidence of a caring service and promoted coherence.
SIGNPOSTING AND REFERRAL
418 The terms ‘signposting’ and ‘referral’ are used inconsistently. However, signposting
is used most often to describe situations in which clients are made aware of the
services of another adviser or provider at an early stage of the process – similar, in
practice, to information giving. Referral tends to be used when clients are directed
towards a different adviser or service to facilitate further progress, after an initial
exploration of the needs as presented.
419 More accurate signposting and referral would be achieved if entries in IAGP
directories were more detailed.
25

420 In terms of patterns of referral:-
• specialist IAG providers tend not to refer clients to each other, other than where
specific services (e.g. psychometric testing) are not offered by the first provider;
• IAG providers are very likely to refer clients to providers of education and
training. The reverse happens less frequently, presumably because several
education and training providers have IAG services in-house;
• referrals are made in both directions between IAG providers and other types of
support agency (e.g. for housing, health or financial queries);
• Jobcentre Plus clients are referred to contracted providers, in most instances;
• referral patterns are often influenced by familiarity with, and trust in, other
providers.
421 There is a variety of practice in terms of the formality of the referral process. Clients
had differing views as to whether they preferred appointments to be made on their
behalf or whether they were happy to access the other service in their own time.
Some advisers accompanied clients personally, especially when the latter lacked
confidence.
422 In general, client records were not transferred between agencies. From time to time,
summaries of guidance given were sent on, but only with the express approval of the
client. Jobcentre Plus and Connexions follow up referrals to ascertain whether
appointments had been kept and what progress has been made, but this does not
involve transfer of records, other than where clients are moving to another area (but
this is a different context for referral).
423 One IAGP was exploring an area-wide system for client referral and tracking. This
had several attractions but ran the risk of appearing intrusive, from a client
perspective, and of making additional demands on providers’ administrative
systems.
LINKS BETWEEN PROVIDERS
424 In general, links between providers were positive. IAGPs were widely regarded as
having a beneficial impact on inter-agency relationships.
425 Advisers had a pragmatic view towards maintaining and developing links with other
providers. They recognised it was time consuming, if done effectively. In practice,
therefore, they tended to maintain closest links with organisations in a similar field
(mutually beneficial exchanges on professional development aspects) or offering
complementary portfolios of services (potential for referrals in both directions). The
development of directories and databases by IAGPs made it straightforward to
contact providers outside the immediate circle, if need be.
BARRIERS AND GAPS
426 We noted earlier that clients found it easier to describe examples of a lack of
coherence, than to discuss coherence as a concept or a principle. By extension, their
examples of a lack of coherence were often difficult to disentangle from examples of
straightforward bad practice that few would seek to defend - but which may or may
not be construed as evidence of a lack of coherence.
427 Chapters V and VI contain a wealth of material on client and front-line perceptions
of ‘problems with the system’. An inclusive approach to definitions of coherence is
adopted throughout. The following bullet points provide a brief overview.
26

428 The first group summarises comments under the general heading of ‘barriers or
constraints’:-
• access issues (e.g. shorter waiting times sought);
• information issues (e.g. problems with interpretation of data);
• marketing issues (e.g. clients unaware of services of direct relevance to them);
• inflexibility in the system (e.g. fixed times before Jobcentre Plus clients can be
referred to training options);
• provider attitudes (e.g. lack of encouragement);
• client attitudes (e.g. lack of realism);
• dearth of suitable opportunities (e.g. jobs within reasonable travelling distance).
429 The second group summarises comments under the general heading of ‘gaps in the
system’:-
• work experience (e.g. for the long term unemployed or those completing learning
programmes);
• ESOL provision with a vocational slant;
• IAG services for:
- those in work
- ex-offenders
- graduates moving away from the catchment are of their HE provider;
• support services in fields such as:
- mental health
- housing
- anger management.
SPECIFIC TOPICS
430 We were asked to comment specifically on three topics, namely use of local labour
market information (LLMI), basic skills provision and advice on business start-up.
431 In terms of LLMI:-
• both clients and advisers reported it was not used widely;
• vacancy information is crucial for front-line advisers involved in job finding;
• a lot of published LLMI is at too high a level of aggregation. Even data at local
authority level may have a limited relevance to advisers working with clients in
defined local communities;
• ‘rough and ready newsletters’, which compile recent material from newspapers
and other local sources, are often more useful than professionally produced
bulletins showing historical trends.
432 Turning to basic skills:-
• IAG providers were generally well informed on local basic skills provision;
• clients were appreciative of the services provided;
• training courses on awareness raising had helped front-line advisers to recognise
basic skill needs. The difficulties lay in creating a climate in which clients felt
comfortable with discussing their basic skills needs and/or persuading them to
opt in to the available provision;
• there were some difficulties with assessment procedures. They needed to be
both thorough (without being off-putting to clients) and readily available (long
waiting times lead to drop out).
433 We have little to report on business start-up advice. Where sought, it seemed to be
readily available. However, it tended to be seen as a specialist topic – for referral to
agencies outside the mainstream IAG network – rather than an option discussed as
a matter of course.
27

RECOMMENDATIONS
434 We were not formally asked to provide a set of recommendations and have not
therefore drafted an extended section on this. Our surmise is that the National IAG
Board will wish to consider the report in its own time and prepare its own set of
actions (if any). Nevertheless, in so far as a few recommendations have occurred to
the research team, we thought it would be helpful to add them briefly here.
435 First we experienced some difficulties with terminology; hence our use of inelegant
phrases such as ‘standalone IAG providers’, or ‘in-work IAG’, in seeking to describe
different types of providers. Similarly there is a well recognised challenge in
distinguishing effectively between information, advice and guidance. 8 There are also
boundary issues around whether specific types of organisation are IAG providers at
all, or whether they should more properly be seen as part of a broader infrastructure
of support agencies.
436 There is a prima facie argument here for the National IAG Board to look again at
issues of definition, perhaps with a view to segmenting providers and services in a
way which recognises recent changes in the sector.
437 Second, we identified two issues with a direct relevance to coherence on which
further research might shed some important light. These are around:-
• the precise methods of facilitating referrals to other providers (e.g. informal
patterns, firm appointments, physically accompanying clients) and the
implications of each. Clearly they each have strengths and weaknesses;
• the point at which follow-up and after care (‘good’) lapses into hanging on to
clients (‘bad’). It would be instructive to compare and contrast different
practices on this and distil some good practice.
438 Third, we note several times throughout this report that there is a groundswell of
opinion, both from clients and front-line advisers, that what is needed is an
impartial, accessible and free IAG service for adults. There are a number of
components in place, of course (e.g. the learndirect national information and advice
helpline, the jobcentre network and IAGPs), but it was clear that these were not
understood as being part of a bigger, coherent picture; and, moreover, that several
needs were not being met at all (especially guidance services for those currently in
employment). People in the field speak imprecisely of a need for a ‘Connexions
service for adults’.
439 The Steering Group for this project briefly discussed this point at the interim report
stage. Their view was that adults do not yet have a sense of entitlement to IAG, and
that until awareness and understanding of services for adults is improved, the real
extent of demand will not be quantifiable. Taking this forward – even at the level of
a national marketing campaign, let alone expansion of provision – would have major
resource implications, of course. We do not, therefore, offer any simplistic
recommendations but nevertheless bring the point to the attention of the National
IAG Board.
440 Finally we add a point about client satisfaction surveys. Our judgement was that
these were often not being used very imaginatively. They often tended to produce
complimentary – but not very useful – material, perhaps reflecting the drivers for
their introduction in the first place (e.g. a desire to qualify for a quality badge).
441 Area-wide feedback mechanisms could shed more light on coherence issues. Coincidentally,
they might appear less threatening to individual providers.
8 Definitions used by Jobcentre Plus and the Guidance Council are added at the end of the clients checklist in Appendix B.
28

V: COHERENCE OF IAG SERVICES: PERCEPTIONS OF
CLIENTS
INTRODUCTION
501 The previous chapter presented headline conclusions by theme, but without
supporting material; this was derived from the data as a whole. This chapter
focuses in on the experiences and perceptions of clients only, whilst Chapter VI
provides the parallel discussion of provider views only. These two chapters have
been drafted in greater depth since they provide the raw material on which Chapter
IV and Appendix A are based.
502 This purpose of the research with clients was defined as:-
• to gain an overall understanding of the way in which IAG provision is perceived
by its users;
• to develop an understanding of what constitutes coherence from the client
perspective;
• to identify factors that impact on the coherence of clients’ IAG experiences.
503 This chapter is based loosely on this framework. The principal sections are headed:-
• access, awareness and understanding;
• coherence;
• barriers.
ACCESS, AWARENESS AND UNDERSTANDING OF IAG SERVICES
504 Typically our discussions with clients began by exploring their experiences with, and
understanding of IAG services. This provided an essential context within which to
explore coherence issues. This material is now presented under the following sub-
headings:-
• prior awareness;
• reasons for accessing services;
• expectations of service;
• awareness of alternative sources of IAG;
• client perceptions of IAG provision.
Prior awareness
505 Only a few individuals in our sample had been aware of the existence of IAG services
for adults prior to engaging with their current provider. Where clients had prior
awareness of IAG services, this was generally limited to knowledge of specific
providers. Almost none of the clients participating in the research had any concept
of a wider network, delivering a range of complementary IAG services.
506 Whilst a significant proportion of adult clients had recognised a need for help in
relation to work or learning, few had been aware that a service with the potential to
meet those needs was available to them. In consequence, the numbers who had
been proactive in seeking out IAG services were small. Many clients felt strongly
that there is a need to promote IAG services more widely and effectively.
507 Several clients stated that, whilst they had been aware of the existence of a provider,
they had not been clear as to whom its services were aimed at; indeed, in some
cases they had refrained from using a service because they thought it was not
29

targeted at them. This point was made, for example, about learndirect and onestop-shops,
both of which aim to meet a wide range of client needs.
508 Several clients indicated that they would like to see one central, visible focal point
and/or a universal adult IAG service. However, IAG as a ‘brand name’ was felt to
mean very little to most people and fails, in practice, to convey an understanding of
what is offered by the service.
509 The picture is different where young people are concerned. The majority (although
not all) of young people demonstrated awareness of Connexions, regardless of
whether they had actually used the service since completing their compulsory
education. Many young people had been informed about the service through
presentations at school, or had been contacted by a Connexions personal adviser
since leaving.
510 Whilst most young people had at least some understanding of the purpose and
scope of Connexions, this did not always result in the young person seeking out
contact with Connexions of their own accord. Signposting and referral will continue
to have an important role in encouraging young people to make contact with
Connexions.
Reasons for accessing IAG services
511 The most common reasons given for accessing IAG services were to receive help with
job seeking or to find out about learning opportunities. A much smaller proportion
of the sample were seeking to change career; none of those we met had accessed
services in relation to an existing job or career.
512 However, while significant numbers of clients had recognised a need for help in
relation to work or learning, very few had taken the initiative to seek out IAG
services, largely for reasons of lack of prior awareness, as noted above. Rather,
take-up of services was often triggered by external factors.
513 The following examples illustrate some of the more common triggers.
• Many unemployed clients on Jobcentre Plus programmes were receiving IAG as
a result of a requirement (in the context of a claim for benefit) to participate in
training with a contracted provider.
• Many unemployed clients using one-stop-shops, project-based provision and
other specialist IAG workers (e.g. community education or IAGP advisers
working in a variety of premises) had been informed about the service by the
Jobcentre or had noticed the service in passing. Connexions offices are also an
important point of initial contact for adults, particularly where the office was
previously the base for careers services for young people and/or adults.
• Triggers for Connexions clients 9 included referral from Jobcentres (for those
claiming benefits), signposting by education and training providers (e.g. tutors),
and self-referral. Connexions is itself an important player in referring young
people to programmes, such as lifeskills training, where IAG is delivered as an
integral element of the wider programme.
• Users of college-based IAG services had often been signposted following an
enquiry to other departments in the college (e.g. course tutors), or had noticed
the IAG centre while in the college and accessed the service direct. Outreach
activities by the college IAG team (e.g. presentations during courses) had also
been a trigger for some existing learners.
• Signposting by a range of agencies (including both IAG and other providers),
word of mouth, and noticing a provider by chance, are important triggers for
9 Our sample only included Connexions clients who had left school.
30

users of one-stop-shops and other specialist IAG providers, particularly amongst
clients who are in employment or who are unemployed but not claiming benefit.
514 The frequency with which these different factors had triggered clients’ use of IAG
services varied by both client target groups and provider type. While it is clear that
signposting by a wide range of agencies had enabled many clients to find their way
to appropriate IAG services, clients often said they would have accessed services
earlier, if they had been aware of them.
Expectations of service
515 When first approaching IAG services, few adults have either a clear understanding of
the range of services on offer, or well-formed expectations of how the service may be
able to help them. This appears to be equally true whether the individual has been
referred to the service or has stumbled upon the service by chance.
516 Signposting and referral is often made in relation to a specific service (e.g. CV
preparation) but, prior to engaging with a provider, clients often remain unaware of
the wider service on offer. Clients who self-refer often do so in response to a
recognised need for help, although without clear expectations of what form that help
might take.
517 The situation tends to be different amongst Jobcentre Plus clients. Some of this
group had prior experience of New Deal training or other contracted provision and
were, therefore, clear about what to expect following referral; others had been briefed
by their New Deal adviser. However, while expectations of the nature (e.g. job search
skills) and purpose (i.e. to get a job) of services tended to be clear amongst this
group, few clients gave any indication that they really understood what it was they
needed or were getting from IAG provision.
518 Turning to young people, most of those in our sample demonstrated an
understanding of the service offered by Connexions and a recognition of at least
some of the ways in which it might help them in relation to career-related and other
issues. Even where contact with the service had been limited, most young people
appeared to recognise that Connexions is the main point of contact for support.
519 There remains, however, some confusion about the way in which Connexions
operates for those who have left statutory education. Only those services delivered
from premises clearly branded with the Connexions logo are associated with that
service; thus, for example, college students were often not aware of the distinction
between college-led IAG provision and services delivered on college premises by
Connexions personal advisers.
520 Young people with learning difficulties/disabilities tended also to be clear about the
IAG services being offered to them. However, as the majority of IAG services for this
group are delivered on an integrated basis as part of a training or learning
programme (whether in-house or by a visiting Connexions personal adviser), IAG is
rarely perceived as a separate service.
Awareness of alternative sources of IAG
521 Once engaged with a provider, the majority of clients quickly become familiar with
the range of services and resources offered by that provider. However, knowledge
and understanding of the wider network of IAG services and providers appeared to
remain fairly limited.
522 Connexions clients often suggested tutors at training providers or colleges as an
alternative source of support, while young people contacted via colleges and training
31

providers demonstrated a high level of awareness of Connexions. Many of the young
people contacted via Connexions also mentioned a number of other agencies (e.g.
concerned with housing or benefits advice), with which they had been in contact
independently, or with the support of a personal adviser.
523 However, when young people were asked where they would go for help in relation to
work or learning when the Connexions service was no longer open to them, the
majority were only able to name the Jobcentre. A large number suggested they
would return to Connexions or their training provider as a first point of call. Like
adults, few young people have any concept of a generally available adult IAG service.
524 When asked initially about sources of IAG other than their current provider, the
response from the majority of adult clients was “this is the only place I know where
you can get this type of help”. Again, the pattern was slightly different amongst
Jobcentre clients, many of whom were aware that their current provider was one of a
number of training providers that are contracted to Jobcentre Plus to deliver similar
services. However, few spontaneously named other potential providers.
525 However, this point was explored further in focus groups and interviews. When
prompted to think more deeply, several adult clients were able to suggest alternative
sources of IAG, some of which they had used in the past. The suggestions varied
between individuals and from group to group, and were as likely to include services
that are not related to learning and work (e.g. Citizen’s Advice Bureau or council
services), as they were to focus on alternative IAG specialists. However, a few clients
were able to identify providers that are part of the wider IAG network, such as
volunteer bureaux and libraries.
526 College and university prospectuses, the internet and newspapers were all
mentioned as potential sources of information; benefits advice agencies were also
suggested as an important source of IAG amongst unemployed groups and adults
with disabilities. Some interviewees mentioned employment agencies, perhaps
confirming a difficulty in disentangling the task of job finding from the concept of
IAG. However, awareness varied considerably and, in almost all groups, there were
individual members with very low levels of awareness of IAG or related services that
would potentially have been of help to them.
527 Clients rarely mentioned business start-up or related services until prompted,
although two Jobcentre Plus clients stated that they were seeking to access business
start-up training and the support package offered through the Jobcentre. When
asked directly, a few other clients indicated that they were aware of one or more
sources of advice in relation to business and enterprise activities, but only two had
used such services in the past. Only a small minority of clients had considered selfemployment
but many said that, if they were to do so, they would approach their
current provider as a first point of call.
528 A small number of respondents (including both young people and adults) suggested
learndirect, and a few volunteered straightaway that they had called the helpline.
Once prompted, most clients indicated that they recognised the brand name and
several more reported having used the service. However, it emerged through
discussion that it was often the learning line (call centre for learndirect centres and
courses) that were being referred to, rather than the impartial learning advice line.
Most people tended to have heard of learndirect through television and other media
advertisements; the down side was that they often had little or no idea about what
the service comprised. Comments such as “Is that the Gremlins” and references to
other television advertisements were common.
32

529 Colleges were also mentioned with some frequency although this was often qualified
with “… if you want to do one of their courses”. Often, when probed, clients
indicated that by ‘college’ they had meant the institution in general, rather than an
in-house IAG service specifically. Few clients (other than those who had used
college services) appeared to be aware that institutions may offer an independent
IAG service to people who are neither current nor potential students.
530 The Jobcentre was rarely mentioned spontaneously as an alternative source of IAG,
although all clients were aware of the existence of the Jobcentre and a large
proportion had been in recent contact. Indeed, many had been signposted or
referred to their current provider by the Jobcentre. It appears that Jobcentre Plus
services are only seen as a source of IAG to clients on New Deal - and then it is only
the New Deal adviser who is seen in this role. It was also clear that the Jobcentre is
perceived as having very little in common with other IAG providers, in the sense that
Jobcentre Plus front-line is (said to be) only concerned with making sure the client
gets a job – any job, rather than with the needs and aspirations of the individual.
531 Clients were rarely able to suggest alternative sources of face-to-face advice and
guidance services. The majority of the sample seemed to be under the impression
that they had found the only IAG service of this type available to them and
appropriate for their needs. It is also important to bear in mind that a large
proportion of clients expressed satisfaction with the service they had received and
had not, therefore, been actively looking for an alternative service. However a
significant number stated that they would have tried (and still would try) other
providers if they had known of any; others would like to be aware of possible
alternatives for the future.
532 In general, a significant amount of prompting was required to elicit the full range of
client knowledge of other IAG services. Even when the discussion had moved on,
clients frequently came back to this question and added other IAG services that they
had used or knew about, but which had not occurred to them when first asked
about alternative sources.
Client perceptions of IAG provision
533 An overall analysis of client responses to questions about alternative sources of IAG
reveals much about the way in which IAG services are perceived by adult clients.
534 As we have seen, many clients began by stating that they were not aware of any
other IAG providers. However, further prompting generally revealed that what they
really meant was that they were not aware of any other provider offering an
equivalent, or more in-depth service than their current provider. The fact that a wide
range of familiar sources of IAG are not brought to mind without prompting suggests
that providers are not perceived as part of an integrated IAG network. Clients also
draw distinctions between providers that are perceived as client-focused and those
that are seen as serving the needs of the organisation. 10
535 This emerging picture supports the earlier comment that few adult clients approach
IAG with any concept of a broader, generally available service; and moreover that
contact with the service does little to change this. It also indicates that, to clients,
an IAG service is a service that is provided, or facilitated by the adviser with whom
they are currently dealing: there is little indication that clients perceive any
continuity between unmediated information sources, helplines, or the Jobcentre
front-line, on the one hand, and mediated IAG provision, on the other.
10 Those mentioned most frequently in the latter group were FE colleges and Jobcentre Plus.
33

536 Many clients do appear to find their way to a good provider but it seems that this is
often as much by luck as by judgement. There was very little indication that clients
felt they had chosen a particular service – rather that they had ‘stumbled across’ it,
or had been directed to it.
COHERENCE
537 After discussing clients’ understanding of, and expectations from, IAG, we moved on
to explore their perceptions of coherence in a more explicit way. The material is
structured as follows:-
• coherence from a client perspective;
• links between motivation and perceptions of coherence;
• internal and external coherence;
• coherence with wider networks;
• on-going use of IAG.
Coherence from a client perspective
538 It is a consistent and significant finding that very few clients had thought about the
coherence of IAG services. It proved difficult on some occasions even to explain the
concept and why it might be important for users. It was often only towards the end
of the discussion that clients began to reflect on their experiences in the IAG sector
and perceive a logical sequence in the various services they had experienced (or
not!).
539 Part of the challenge was that clients’ limited awareness of the role and availability
of IAG services resulted in their lacking clear expectations against which service
coherence could be meaningfully assessed. Nevertheless, a number of issues
emerged that provide clues as to what coherence means to clients and, in particular,
what causes them to perceive services as lacking in coherence.
540 Young people and adults who reported high levels of satisfaction with IAG services
frequently stated that a key feature that had contributed to the way they perceived
the service was that it had provided them with encouragement, helped to maintain
motivation, and facilitated progress in relation to goals that were personally
important. They indicated that feedback on progress and new ideas about what to
try next were important in helping to them to feel that they were moving forward and
in maintaining the motivation and determination to keep pursuing their work and
learning aims.
541 By way of contrast, when services were criticised, it was often on the grounds that
they had undermined motivation, offered little encouragement, paid insufficient
attention to the needs of the individual, and devalued or discounted individual goals.
Clients also cited lack of feedback, inaccurate information, inappropriate referral,
and ‘being left not knowing where to go next’, as factors that detract from service
coherence (see also the final section in this chapter).
542 These findings are common across all client groups, suggesting that there are factors
that are fundamental to coherence from the client perspective: it appears that a
client-centred approach and a positive, constructive and non-judgemental attitude
amongst advisers are essential. Moreover, as noted above, clients often lack a clear
understanding of what IAG service have to offer and can find it difficult to know
what to ask from the service. Unless, therefore, they are made to feel comfortable in
exploring their own needs and formulating their questions, they are unlikely to feel
as if their needs have been adequately addressed.
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Links between motivation and perceptions of coherence
543 We commented in Chapter IV that client motivation emerged as an important
variable in relation to the way in which clients interact with IAG services. 11 These
differences in motivation are particularly relevant to clients’ subsequent perceptions
of coherence.
544 As we have seen, a significant number of clients receive IAG services without
themselves having identified a need for IAG. Individuals who make direct
approaches to learning providers are often seeking to implement a course of action,
not to identify one! Typically these clients receive services at times and in ways that
are considered appropriate by tutors and other external agents.
545 For example, advisers from voluntary and community education providers often
engage the potential learner in discussions of need prior to registration, as well as
meeting with learner groups toward the end of a course to discuss progression
opportunities and other learning options. Other examples include inputs from
employer representatives during access courses; and exercises and activities
designed to focus career aspirations, delivered as an integral part of lifeskills and
learning gateway training.
546 Providers take care to ensure IAG input is tailored to the needs of the group so far as
is possible, with activities introduced as required; the timing of delivery is clearly
another important consideration. When IAG delivered in this way is effective in
supporting clients to implement their chosen course of action and develop their
goals, services are perceived as coherent. These clients did not set out to find IAG,
but they would typically declare themselves satisfied with the support received to
help them progress in their chosen learning path.
547 The situation is different when clients are motivated to take up training as the result
of an external requirement. In such cases, the decision to take up training is not
necessarily part of a coherent plan. 12 As such, IAG services can be well-received in a
superficial sense, but without bringing about a sense on the part of the individuals
that they are making any progress.
548 Many examples of such clients come from Jobcentre Plus programmes. Their goals
are often simply “to get a job”. They may feel dispirited and believe that there is little
they can do to improve their job prospects; their aspirations are low and their only
strategy is to continue applying for jobs. Such clients may be willing to participate in
programmes but do not actively engage with the provision that is being delivered to
them.
549 This is not true of all clients on Jobcentre Plus programmes, of course. Many
individuals with longer-term career aspirations, or with the desire and confidence to
identify and work towards longer-term goals, find Jobcentre provision helpful,
especially when appropriate training is identified. This group are often individuals
qualifying for early entry to New Deal and who are, therefore, often participating
through choice, rather than as a benefit requirement. In that sense, they have more
in common with the next group considered.
550 Coherence needs are different again amongst clients who actively put themselves
forward for IAG services. These clients approach the service because they have
identified a personal need for IAG. This does not necessarily imply that these clients
have clear work or learning goals, or that they have clear expectations of how the
11 See paragraphs 403 to 408
12 as defined by the client, as opposed to the referring adviser!
35

service can help them; rather it suggests that they recognise that they need some
help to move forward from where they are now.
551 This group includes individuals with a wide range of needs. Some have clear career
goals but need help to determine an appropriate strategy for achieving those goals.
At the other end of the spectrum are clients who want to change career, or return to
work after a break, but have no idea of what they want to do. Still others might
need help to determine how best to use their existing skills and qualifications in the
current employment market.
552 Clients who actively seek IAG services appear to perceive coherence in terms of
whether they can see how different services are contributing to progress towards their
goals. Several well-motivated clients indicated that they would like an action plan,
or some other indication of the various services available and the different ways in
which they might meet help them meet their needs. One client remarked: “you need
to know where it’s all leading - the provider might know but the client doesn’t!”.
553 This group includes many unemployed individuals whose goals are not dissimilar to
those of Jobcentre clients: that is, to find a job. However, these individuals tend to
have been unemployed for a shorter duration than the majority of those contacted
through Jobcentre Plus. They also tended to be relatively well-qualified and
experienced, and with higher aspirations and confidence in their ability to find
appropriate work. Unlike many Jobcentre clients, this group had, at an early stage,
identified a need for help to maximise their chances of obtaining work.
554 For unemployed clients who had actively engaged with IAG provision, the important
factors in relation to coherence were that the service was able to support them
towards their own work goals, continued to suggest new strategies and options when
success was not forthcoming, and offered encouragement that helped the client to
maintain motivation, even in the face of apparent lack of progress. Another key
factor for clients who seek IAG is whether their initial contact results in an accurate
diagnosis of need (recognised as such by the client) which leads to an early – and
shared – understanding of how progress is to be made towards addressing that need.
Internal and external coherence
555 As noted in paragraph 535, clients are strongly focused on their current provider and
often fail to consider the wider range of information and advice sources. This may
explain why coherence seems to have a more immediate relevance for clients when
applied to services received within the same organisation (e.g. referral to different
advisers for a different type of service internally).
556 The key appears to be having an on-going relationship with a trusted adviser who
can be used as a point of reference and sounding board, even though some services
may be delivered by his/her colleagues. This finding does not only apply to IAG
services integrated within a broader programme of provision (e.g. lifeskills training).
Similar conclusions were reached at focus groups with clients of many other IAG
providers, including one-stop-shops, project-based job and training workshops and
Connexions.
557 The strengths to such an on-going relationship are:-
• trust and confidence;
• awareness of the ‘history’ (no need to keep explaining how the current position
was reached);
• understanding of the personal drivers and values (no need to keep explaining
what is important or why a particular goal is relevant).
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558 On-going contact with an adviser provides a central point to which the client can
keep returning to get help with assimilating/interpreting new information or to get
ideas/suggestions about next steps. We note here that these points apply equally to
an adviser who is making referrals to external agencies, whilst still maintaining a
watching brief and providing continuity.
559 On a similar point, it does not seem to matter to clients that they may have to seek
information from a variety of sources; indeed, many clients do not think of research
activities as using a separate service. By and large, clients do not expect one person
to be able to provide them with all the help they need, but they do value being able
to return to someone who is aware of both their needs and the action they have
already taken to address those needs.
560 Whilst continuity was seen as positive in by far the majority of instances, there were
a few examples where the same scenario was presented negatively. Clients portray
this as a particular organisation ‘getting a grip on you’ and ‘not letting you go’ - the
inference being that providers are more interested in client volumes than
researching individual need and making referrals to the most appropriate provider.
It did appear that (in two cases at least) clients had become ‘institutionalised’ and
had ceased to question whether they were making progress or even on the right
path.
Coherence with wider networks
561 For many clients – both young people and adults - perceptions of coherence are
influenced by wider needs that go beyond IAG interpreted narrowly. Providers which
address client needs for, say, benefits advice, housing advice, language training or
the development if ICT (whether internally or through referral) are described by
clients as “interested in the person as a whole”.
562 This contributes to the extent to which the service is seen as coherent in relation to
the needs of the individual. We return to the issue of providers’ links with wider
(non-IAG) networks in Chapter VI.
On-going use of IAG
563 Clients were asked about whether they perceived a need for IAG in the future. Many
intended to continue to use their current IAG provider until achieving their goal of
obtaining work. Others reported that they would return to the same provider,
following completion of a learning episode. The degree to which clients expected to
return to the same provider, irrespective of the type of future need, was striking.
However, comparatively few anticipated any future need for IAG services, once the
present issue had been resolved. Indeed, many indicated that they hoped they
would not have cause to use services in future – suggesting that many clients see
IAG services as relevant only in a crisis.
564 Employers were not seen by clients as a source of future IAG and no-one mentioned
unions or other work-based support, unless raised by the facilitator. It is clear that
users perceive IAG providers as completely distinct from, rather than having
continuity with, in-work development and progression. None of the clients in our
sample expected to seek external IAG in relation to progression within a job; nor
were in-work activities such as appraisal and development reviews raised as a
possible context for IAG.
565 Only one client reported that she had received IAG through her employer. Her view
was that, in a work context, IAG provision can be equated with good human
37

esource management practice; thus staff would be given opportunities to discuss
career and personal development via support, coaching and training.
566 As has already been noted, few young people are clear about the provision available
to them once they are no longer eligible for Connexions. However, most young people
in the survey perceived their need for IAG to be short-term. Most reported that they
would no longer require IAG once their current needs had been met – something most
were confident would be achieved through their current relationship with
Connexions.
BARRIERS
567 The final group of issues probed with clients were around barriers to coherence.
Whilst clients seldom associated frustrations with the issue of coherence per se, it
was apparent from the discussions that they had experienced set backs along the
way, and that this coloured their perceptions of coherence.
568 At a superficial level, clients cited benefits being stopped or appointments being
changed as evidence of a lack of coherence. Nevertheless, through the wider
discussions, a number of more substantial barriers were identified which were
impeding clients’ progress towards realising their goals. These varied between subgroups
of the client sample and in the extent to which they applied to specific types
of provider.
569 The constraints are now discussed in turn. They range through front-end issues
(such as access and signposting), systems issues (such as client records and
referral), content issues (such as accessing information and local labour market
data) and perceived gaps; the biggest group of constraints are around ownership,
style of delivery and relationships. We end the chapter with an important balancing
point.
Access issues
570 There were relatively few access issues cited. The following list gives a flavour.
• Young people in particular stated that they were more likely to access services
that are offered on a drop-in basis.
• Many clients, including both young people and adults, indicated that they
preferred face-to-face contact, rather than telephone services, although the latter
has a distinctive contribution within the bigger picture, of course.
• Waiting times for appointments for one-to-one IAG were reported as being of two
weeks or more by some clients. Young people in particular felt this was
unreasonable, as they felt that many of their needs were urgent.
• Both young people and adults resented being kept waiting when they had a
booked appointment with an adviser. Both Jobcentre Plus and Connexions
clients complained that advisers were not always available at the agreed time.
Ineffective referral and signposting
571 For some clients, it had taken more than one attempt to find a provider able to meet
their needs. Often it was their own research, rather than a referral from a provider,
that led them to the optimal service. The sense was that, if they were unhappy with
a particular provider, they did not return to negotiate a different package: they
simply looked elsewhere. It would be unlikely, therefore, that the first provider
would be aware that the client had been dissatisfied; they would also have no way of
knowing whether, let alone where or how, the client’s needs had been met.
38

572 Where clients had moved on to other services, it was often as a result of
conversations with family members or friends, or chance remarks from other clients
they had met. In several cases, the focus group itself triggered discussions between
clients about alternative services that might be of value.
573 Despite the earlier comment about clients equating IAG services with their current
provider 13 , it became apparent later that several contributors did not expect their
needs to be met by one person - or even by one service. Where it had happened,
referral had often been welcomed, precisely because clients were able to access
other, directly relevant services. One client commented that accessing IAG is “a bit
like the doctor’s in that you have to be referred for specialist help”. 14
574 Many unemployed clients felt that the Jobcentre could do more to refer clients in the
early stages of unemployment. One client said he felt he had been “left dangling for
6 months”; others used similar language, referring to even longer periods (e.g. up to
18 months). Their perception was that it was only when they had failed to find work
that the Jobcentre Plus service became more proactive. The sense was that earlier
access to other Jobcentre Plus services (or early referral to external IAG providers)
would have helped clients to achieve work more quickly - or at least to maintain
motivation in the face of lack of success. This was true for both IAG services and
skills-refresher training. 15
575 Some clients were unable to see how their current provider could continue to help
them but still did not feel confident to pursue their goals elsewhere, without
continuing support. This was particularly common amongst clients who were
accessing specific services (e.g. CV preparation or coaching on interview skills), but
who lacked a sense of direction. Several in this group expressed a need for career
counselling but they were unsure whether such a service existed, or if it did,
whether it would really be able to help.
576 Lack of coherence was also associated with referral to inappropriate services. For
example, one client who was finding it difficult to focus on a clear career goal
complained that it had been unhelpful to be given (yet) more information about the
options open to her. Similarly, another client who perceived a need for in-depth
careers guidance considered referral to a computer aided guidance package (Adult
Directions) had been inappropriate.
577 Feedback on referrals to and from Jobcentre training provision was mixed. Some
clients were clear that their New Deal training providers had their interests at heart
and were working with them to help them achieve appropriate and sustainable
employment. For others, however, the requirement to carry out two or more weeks
of intensive job search with training providers was felt to be inappropriate: many felt
it would have been more effective for them to continue their jobsearch
independently. 16
578 Inappropriate referral was raised by one group with particular reference to ESOL
provision. These clients indicated that, while referral from IAG to ESOL assessment
worked well, the assessment did not always result in effective referral to appropriate
ESOL tuition; they questioned the accuracy of the assessment.
13 See paragraph 535 and 559
14 However, other clients recounted experiences of failed signposting and referral. For example, some adult clients had
initially approached Connexions, only to be told they were not eligible for the service but (apparently) without being
signposted to other, local services for adults.
15 One individual had been referred to New Deal to update skills only after 18 months of unemployment. She believed that
receiving the training earlier may have helped her to return to work long before now.
16 This was particularly true where the client had been told that the training would involve a job placement. In a number of
cases, this had apparently not been forthcoming.
39

Transfer of client records
579 The clients we met expressed little interest in the issue of information sharing
between providers. Jobcentre Plus clients appeared to accept the need for
information to be exchanged between the Jobcentre and contracted providers, but
few others offered any comment. 17
Difficulties in accessing information
580 Many clients reported difficulties in accessing information. The following is a
selection of points raised.
• Users of telephone helpline services indicated that they needed more help to
understand information that was given to them. One felt the information given
had been incomplete.
• Clients remarked that there is a large number of contact telephone numbers,
and it was not always clear which one should be approached. Contacting the
wrong one – and being ‘shunted from one to another’ – was described as
frustrating.
• Access students reported that some HE institutions were reluctant to discuss
courses with them until they had the entry qualifications. These students had
found it hard to gather accurate pre-course information on both access courses
and degree course and they believed that drop-out in the early stages of
programmes was due in part to lack of prior awareness about the pressures
involved and the level of support available. Nevertheless the IAG services
provided for access students, once discovered, were generally highly regarded.
• Information on funding for learning was difficult to obtain for adults who were
not in receipt of benefits.
• Some young people felt that information on the process of applying to higher
education and securing a student loan should be more widely available.
• Some clients complained that advisers (including from New Deal for Lone
Parents and learndirect) had failed to send information as promised.
• Several clients commented on the plethora of different agencies and government
bodies – all with different acronyms; this made it difficult to access information
on careers in particular trades or professions. On a linked point, several
unemployed individuals found it hard to gain access to trade and professional
journals for job seeking purposes.
• Collating and interpreting information on the range of ICT learning opportunities
available was proving difficult for some clients. They were aware of several
training opportunities but had discounted them all on grounds such as being
too expensive, at an inappropriate level, or failing to offer the individual support
they needed.
• Clients with ESOL needs indicated that they found language to be a barrier,
particularly when trying to understand what was expected of them in a formal
context (e.g. claiming benefit). This made them reluctant to return to use other
Jobcentre services. 18
581 Accuracy of information was another important issue raised by some clients; being
given inaccurate information had the knock-on effect of undermining trust in service
providers and making it less likely that clients would return. This was a particularly
sensitive issue when providers were perceived as having an interest in information
given (e.g. college-based IAG services advising on courses, or Jobcentre Plus advisers
commenting on entitlement to benefits).
17 Front-line advisers had more to contribute on this topic: see Chapter VI.
18 In at least one area, it has contributed to heavy demands on those IAG services offering interpreters and bilingual
advisers.
40

582 Overall, it is clear that many clients find it difficult to access and interpret
information from a variety of sources. This is an important area in which on-going
access to an adviser can facilitate client progress.
Local labour market information
583 The researchers were specifically requested to explore use of local labour market
information (LLMI) and its impact on IAG coherence. In practice, few clients
mentioned LLMI unprompted; when asked, most clients indicated that their
awareness of the job market came primarily from monitoring vacancy
advertisements in local newspapers and from the Jobcentre.
584 Very few adults remembered receiving LLMI input through IAG services, although
one group had attended a workshop in which the nature of the job market was
discussed. A client who had attended a return to work course reported that the
course had included useful LLMI, including information on how to fit a career
around childcare responsibilities.
585 In discussion, clients suggested several ways in which accurate labour market
information would be useful in effective career planning.
• Parents and carers would like to be able to access information on family-friendly
employment options and child-friendly employers.
• Several young graduates would have liked earlier information on opportunities
(or the lack of them) open to both A level students and graduates in their
disciplines. The sense was that some would have been better advised to enter
their chosen sector earlier and follow a part-time training route, rather than
opting for a traditional degree.
• More generally, participants in learning of all types and all levels would like
information on linked job opportunities to be more readily available.
Gaps in services
586 For many clients, the key gaps were a lack of appropriate learning provision and of
opportunities to gain work experience. Many clients contemplating a change in
career direction found the most relevant learning provision to be out of reach, owing
to cost. Often, they were undertaking courses that were less relevant but were free
and/or could be undertaken without coming off benefit. 19
587 The following is a selection of other comments made in relation to perceived gaps in
services.
• Ageism was considered a barrier by some older clients. They were dispirited by
the apparent disinclination of employers to consider experienced and competent
candidates. Some unemployed individuals favoured the return of the 50+
Jobclub model.
• ESOL clients commented that provision often embraced clients with a wide
range of existing skill levels. This resulted, in practice, to support being focused
on those with the lowest level of skill - with the consequence that progress was
often slow for those with higher levels of language. Smaller groups would be
welcomed.
• Students questioned the lack of IAG targeted at people who were considering
dropping out.
• Services for graduates who have moved away from the area in which they
attended HE was a gap identified by some clients. Similar gaps apply to those
19 One client commented that “often the free courses are not what you need or want”. On a linked point, several clients
commented that placement and work experience opportunities are hard to find, other than through volunteering.
41

who graduated several years earlier and were no longer eligible to use HE
careers services.
• Childcare is crucial for a large number of clients and, without it, many find it
difficult to pursue their chosen course of action.
Lack of overall understanding/control
588 It is clear from the earlier sections of this chapter that few clients are aware of the
full range of IAG services and therefore are rarely able to recognise when referral
may be appropriate. Few clients reported having the benefits of other services
explained to them. Thus, it was nearly always the adviser who was the one in a
position to decide when it was appropriate to make a referral.
589 This lack of knowledge represents a barrier, even to well-motivated clients, as they
do not know what sort of service they should be asking for. Many clients said they
find it difficult to formulate questions and take control of their IAG experiences in
any case; but uncertainty about other services exacerbates their sense of being
passive recipients.
Failure to focus on individual goals
590 Clients were critical of services that failed to focus efforts on achieving goals that are
important to them as individuals. Any examples cited run the risk of appearing
anecdotal, but one client reported that she had approached a one-stop-shop for help
in relation to her aim of progressing into higher education but had been pointed
instead in the direction of a secretarial job. She was angry, as she felt that her goal
of university had been dismissed. 20
591 Jobcentre Plus was the provider that most often received this kind of criticism.
Many clients felt that the focus of Jobcentre services was to ensure that the
individual obtains employment, irrespective of whether that employment is
sustainable, utilises existing skills, or is in line with the longer term goals of the
individual. However, it was not only the Jobcentre that came in for criticism: other
providers, too, were described by some as being too vague, or as undermining
clients’ goals, or as failing to make the individual feel as if they were making
progress. Whilst the option exists for clients of specialist IAG services to opt out, if
they feel their goals are being ignored, those on benefit commented that they tend to
‘play the game’. 21
592 Clients participating in IAG and training as a result of a benefit requirement often
saw little value in obtaining new skills, especially since they deemed it unlikely the
skills being taught would make any difference to their job prospects. These clients
perceived work experience as the best way of improving their chances.
Lack of encouragement and support
593 The importance of encouragement and positive feedback has already been stressed;
its absence was a frequent cause of criticism. Clients felt (rightly or wrongly) that
some Jobcentre Plus front-line advisers had little understanding of the needs of
individuals or the barriers they faced in relation to finding work; clients also
reported that some advisers did not appear very interested in job-seeking activities
20 This client went on to find information about local access courses and was making progress towards her aim of
achieving a place in HE.
21 Their tactic is to be seen to be using the job point regularly and requesting job searches from advisers in order to have a
positive record of job seeking activity at the Jobcentre - but meanwhile to use newspapers, the internet and other channels
as their preferred method of accessing suitable vacancies.
42

that were not Jobcentre generated (e.g. vacancies found through local newspapers).
This felt like a ‘tick box’ approach, rather than a service rooted in their needs.
594 Lack of on-going support was raised by several clients as a barrier to coherence. 22
Aftercare services were seen as very important as they provided on-going support
and encouragement, following IAG. For example, some projects with a focus on job
search make regular contact with their clients to inform them of new and suitable
job opportunities, or simply to find out if the individual requires further help.
Inflexibility of provision
595 The inflexibility of Jobcentre services was found to be a barrier to coherence for
some clients. In particular, clients with qualifications and experience complained
that they were required to join training programmes that were at an inappropriate
level and of little value to them. Furthermore, the training available tended to be at
a low level and offered little opportunity for progression. The requirement to
participate was linked to duration of unemployment, rather than individual need. 23
596 The continued pressure to find work was viewed as a barrier by some clients who felt
that their training could, in the longer term, lead to increased chance of sustained
employment. This was a view expressed by a group of unemployed adults on basic
skills training. All felt they were benefiting from the training and that, given time, it
would increase their chances of finding work. However, only a limited period of
training was allowed before they were taken off the programme and expected to
continue to seek work.
Factors impacting on young people
597 Several of the above issues are less relevant to young people, most of whom appear
to have an understanding of the range of ways in which Connexions can provide
support. However, one source of confusion for young people was the respective
responsibilities of Connexions and Jobcentre Plus for clients aged 16 to 19. Young
people wishing to obtain employment reported that Jobcentres had few jobs
appropriate to young people, whilst the emphasis and expertise of Connexions is
perceived as being more about learning and training than work.
598 Some young people reported that they find it difficult to access services effectively
without the support of an adult. One group commented that they had approached
several agencies in relation to their support needs without making much progress,
until they were accompanied by their Connexions personal adviser. The allocation of
a personal adviser is an important factor in facilitating coherence across a wide
range of services.
599 Other young people felt that pressure (from teachers, careers advisers and parents)
to achieve qualifications and pursue academic routes through FE and HE, had
resulted in inappropriate career choices. This group felt that the problem had been
22 For example, New Deal lone parent advisers were criticised in one area for failing to contact clients, and offering very
little support or encouragement outside of pre-arranged meetings with the adviser.
23 An example of the impact of inflexibility within the system came from an individual who was planning self-employment
and was keen to participate in the business start-up training offered through New Deal. There were no places available on
the relevant course at that time and, due to the duration of unemployment, the individual was required to attend another
training programme in which he had little interest. This was not only seen as a waste of time but also prevented the
individual taking up a place on the subsequent business start-up course, as he would not become eligible for further
training for some time.
A further example of perceived inflexibility of the Jobcentre came from a woman who was highly satisfied with the
service she was receiving through a jobs and training workshop. However, the Jobcentre was insisting that she participate
in its own contracted provision rather than continue to use what she considered to be a superior service.
43

exacerbated by media pressure to get a degree and that the failure of IAG services to
consider the interests and preferences of the individual had acted as a barrier to
their career progression. They would have welcomed more independent careers
advice to support their decision making and to help them challenge external
pressure to pursue routes that were not part of their own plan.
Concluding comment
5100 Much of this last section has appeared critical of providers. It is essential, therefore,
to bear the following balancing points in mind:-
• the majority of clients were not only ‘satisfied’ – but enthusiastic – about services
received. It will be recalled that most planned to return to their existing
providers if IAG needs arose in the future;
• more text has been directed towards controversial aspects – quite deliberately –
than points on which all is well (other than noting that this is the case). Our
intention has been to provide the National IAG Board with the raw material on
which to base an on-going – and lively – debate!
• this chapter has sought to articulate client views, on the grounds that these are
significant in their own right – whether or not they are accurate in every point of
detail. The next chapter provides a mirror image, targeted as it is on provider
views alone;
• for clients, the distinction between ‘lack of coherence’ and ‘poor service generally’
is far from clear. Many of the comments in the last section of this chapter
simply represent bad practice, rather than ‘lack of coherence’ per se.
Nevertheless we were asked by the National IAG Board to report on client
perceptions of coherence – and this is what we have sought to do, in as
dispassionate a way as possible.
44

VI:
COHERENCE OF IAG SERVICES: PERCEPTIONS OF
ADVISERS
INTRODUCTION
601 This chapter focuses on the experiences and perceptions of service providers. As
with Chapter V (the parallel discussion of client views), the material is presented in
some depth as it provides the source for the briefer discussions in Chapter IV and
Appendix A. Provider interviews were conducted both with managers and with frontline
advisers, working in a variety of different contexts and with varying levels of
involvement in the direct delivery of IAG services.
602 The purpose of the research with providers was defined as:-
• to identify common patterns of signposting and referral, both within and
between providers;
• to identify common approaches and practices aimed at ensuring services are
coherent from the client perspective;
• to highlight barriers to coherence from the perspective of front-line advisers.
603 This chapter is based loosely on this framework. The principal sections are headed:-
• services and priority target groups;
• signposting and referral;
• links between providers;
• gaps and barriers.
SERVICES AND PRIORITY TARGET GROUPS
Services and target client groups
604 The starting point for a discussion on providers’ views should properly be a brief
description of the organisations consulted, the range of services offered and their
target client groups. However, this material has already been summarised in
Chapter III; and a full list of participating organisations is added as Appendix C.
605 For the purposes of this brief introduction, therefore, a few headline points only are
noted.
• There is much overlap of services. Most providers, for example, hold basic
information on local learning opportunities and offer first level advice. Fewer
offer in-depth guidance, however.
• Some IAG is delivered on a standalone basis (e.g. Connexions), whilst other
services are delivered as part of an integrated package (e.g. training programme).
• Most services are delivered on a face-to-face basis, but there are significant
exceptions (e.g. by telephone and, less common, by email).
• Whilst most services define client groups to be targeted (e.g. by disadvantage,
residence, age or labour market status), the criteria are often interpreted flexibly.
To put this another way, most clients would be eligible to use several different
services (even though, as we saw in Chapter V, they are often unaware of the
actual range).
• The priority target groups for the majority of providers involved in the study were
unemployed or otherwise disadvantaged groups. These included lone parents,
people with disabilities, those with basic skills and ESOL needs, the low skilled,
and residents of post-code areas designated as disadvantaged.
45

• In practice, there are often differences in the characteristics of clients accessing
services targeted at the same groups. For example, within unemployed target
groups, Jobcentre Plus clients tended to be low-skilled, have limited prior work
experience, and were often disaffected, and with low aspirations. Unemployed
clients of one-stop-shop and project based jobsearch, however, were often much
more proactive, as well as having higher aspirations and often higher levels of
skills and experience.
606 There were two providers within the sample whose services had little or no overlap
with the majority of IAG services to individuals. One of these offers a range of
services to businesses, and business start-up advice and training for individuals.
The second of these providers delivers IAG directly to staff within a work
environment; IAG is delivered in a variety of forms, including training needs
analysis, examination of team roles and strengths of individuals, and training
sessions such as ‘making the most of the appraisal system’.
Use of local labour market information to underpin services
607 Within the overall context of services delivered, we were asked to comment
specifically on the extent to which local labour market information (LLMI) underpins
the coherence of IAG services.
608 For many service providers (particularly Jobcentre Plus and centres targeted at the
unemployed), LLMI is clearly crucial. Nevertheless, in practice, most advisers rely
on indicators such as the frequency of local job advertisements and general
awareness (developed through experience in the job) of local labour markets. One
adviser commented that “the best way to maintain up-to-date LLMI is to read a
newspaper every day”.
609 Providers from two different areas stated that a newsletter produced by the IAGP and
circulated to all network members was a useful source of information on local labour
market issues. These newsletters bring together newspaper cuttings, press releases
and other information about local labour market developments.
610 Published information on LLMI (e.g. statistics on trends) was not used regularly with
clients: the sense was that it was more relevant for managers (e.g. for planning
purposes). Two providers noted that LLMI was particularly valuable when preparing
bids for external finance.
611 Advisers commented that the content of most LLMI available to them was ‘macro’ in
nature and of debatable usefulness in day-to-day service delivery. Indeed, clients
were said not to be receptive to data on labour market trends. For example, middle
aged men who had been made redundant from heavy industry might be shown
statistics demonstrating the paucity of craft vacancies and the plethora of, say, call
centre vacancies, but that did not lead in practice to a change in direction on their
part, other than in very rare instances.
SIGNPOSTING AND REFERRAL
Terminology
612 Few providers drew a clear distinction between signposting and referral. It appears
that, in general, signposting is used to make a client aware of the services of another
adviser or provider at an early stage (similar, in practice, to information giving);
while referral is used to facilitate further progress by the client with a different
46

adviser or service, after at least an initial exploration of the needs presented.
However, the distinction is blurred.
613 There is also a distinction to be drawn between internal and external signposting and
referral. Internal refers to other advisers or different services within the same
organisation, whilst external involves interaction with a different organisation
(whether for further IAG, for support with other issues, or for learning or training
provision).
Signposting
614 Signposting to internal services is often an important role of receptionists in onestop-shops
or other drop-in centres, and of student services front-line staff in
colleges.
615 Few advisers explain the full range of service options to a client internally; most
signpost only for a specific service (e.g. CV preparation). They take the view that it is
more appropriate to give this information as it becomes relevant, than to ‘bombard’
the client with too much information, much of which may not be relevant.
616 Signposting between providers occurs most often when an enquiry is made by an
individual who does not meet the eligibility criteria of the provider they have
approached. Connexions frequently signpost adults over 19 to other local providers,
for example; similarly, Jobcentres signpost young people requiring careers guidance
to Connexions and may also signpost adults who are not eligible for benefits to other
local IAG providers, although the latter appears to be less common.
617 Leaflets about other provision are often made available. This is generally viewed as
part of the ‘information giving’ process, rather than as signposting per se. A small
number of advisers reported signposting clients to telephone services such as
learndirect. However, this was not common and learndirect was more often a
resource used by advisers, as part of researching information for clients.
Referral patterns
618 Amongst specialist IAG services, referral to other IAG specialists was not that
common. Standalone providers often had a broad spectrum of services available
and advisers saw little point in suggesting an equivalent service from another
provider (other than where it was more convenient, if travel was an issue). Indeed,
many felt a responsibility to meet as many of their client’s needs as possible, since
onward referral was unlikely to be well-received and might interrupt the continuity
of service. The most common referrals were for specific services (e.g. psychometric
testing or access to software such as Adult Directions), not offered by the first
provider.
619 Training providers and Jobcentre advisers were more likely 24 to refer clients to
specialist IAG services. This was because the former providers did not perceive their
main role to be the delivery of in-depth IAG.
620 Referrals were also more likely to take place to or from providers in the wider
network of the IAGP, than between IAG specialists. For example, many providers
reported referring clients to organisations such as volunteer bureaux, community
centres and refugee councils, many of whom were listed in the network directory
produced by the IAGP. However, referrals of this type were more commonly made in
relation to implementing a plan of action, than in response to an on-going need for
IAG on learning and work.
24 i.e. more likely than other specialist IAG providers
47

621 Referral to learning providers was common for most advisers. When referring clients
for education and training, many advisers stressed their impartiality, noting that
clients were encouraged to make their own choices between learning providers.
622 There was a divergence of practice with IAG services linked to larger organisations
with an education or training remit. Some advisers would make internal referrals
where practicable and refer only externally when suitable options were not available
in-house; other institution-based IAG services were unequivocally impartial,
although it was not always easy to get this message across to clients. 25 Jobcentre
Plus referral patterns were usually linked with contracted provision.
623 Most providers make referrals primarily to other (very) local services. However, one
HE careers service reported that they were involved in directing clients to providers
on a national and international basis. As they could not hope to develop a thorough
knowledge about all the other potential referral organisations, the service often
resembled signposting more than referral.
Understanding of other providers
624 Most front-line staff in the main IAG providers felt that they had a good
understanding of the services offered by other providers in the core network.
However, several commented that there seem to be so many agencies offering similar
services that it is difficult to know the difference and be able to provide authoritative
advice as to why one would be more appropriate for a particular client than another.
625 A review of IAG network directories confirms that the description of service menus
leaves little to go on, other than a quality mark, say, or location. It is only when an
agency is targeting a specific and easily identifiable target group or is offering
different services, that there are credible grounds for selecting between providers.
626 It is clear from our visits and discussions that different styles and approaches suit
different individuals, even though services may appear identical on paper. Several
clients were unimpressed with a particular service, while others praised the same
service extremely highly. Advisers seemed quicker – and /or more willing – to
recognise the importance of the match between clients’ preferred styles and modes of
delivery in learning settings, than they were in IAG settings. There would appear to
be scope for providers to promote their distinctive approaches more effectively in
directories and promotional leaflets.
627 Many Jobcentre advisers indicated that they would like more time to visit other
providers in order to develop a more in-depth understanding of what each has to
offer. Network meetings are useful for IAGP members - and advisers value the
opportunity to learn about other services on offer. However, the emphasis of these
meetings seems to be more on the latest position with respect to the range of
services offered and the eligibility of different target groups; advisers indicated that
these meetings were less effective in building up an understanding of the strengths
of different services in relation to the different needs and motivations of clients.
628 In one area 26 , a central telephone contact line has been set up to help front-line
advisers identify the best service provider for a specific client whose needs have been
assessed but cannot be met effectively in-house. This is considered an important
resource by some advisers, who find it difficult to maintain up-to-date knowledge of
all local provision.
25 One college careers service that currently holds an IAGP contract for the delivery of information and guidance is likely
to lose this contract in the next financial year, apparently because the IAGP believes they are acting as a recruitment arm
for the college – something they adamantly refute.
26 Coventry and Warwickshire
48

External referral mechanisms
629 There were two main types of referral. The first one was typically used by providers
linked to the benefit system. Here, referrals involved contact being made with the
destination organisation and forms being exchanged in order to ascertain whether
appointments had been kept – and, if so, what action had been agreed and/or taken.
Clients appreciated the clarity of such processes, but also criticised it for being
systems-led.
630 Elsewhere, referral was nearly always informal. Sometimes advisers in the first
organisation would telephone the other agency to check whether it would be able to
address the specific issue raised and also to confirm details (e.g. directions, opening
hours). Occasionally, an appointment would be made on behalf of the client, but
often the referral simply consisted of giving out a leaflet or a note of the contact
details of the other organisation.
631 Advisers were sometimes reluctant to make firm appointments for their clients with
other providers – and often for positive reasons (e.g. not wishing to appear overbearing).
However, several of the clients said they preferred a more structured
environment: they sometimes lacked the confidence to make their own approaches
and hence would let the opportunity slip. 27
632 Advisers sometimes offered to accompany clients to other agencies, where lack of
confidence was a serious constraint. This was particularly common in the case of
Connexions personal advisers and was seen as an integral part of the role for staff
working with young people with multiple and complex needs. However, this was
also an approach taken by some providers of adult IAG services, particularly where
the other agency was located nearby. Another common step was for adult providers
to refer a client to a named individual within the receiving agency, thereby making
the referral more personal and easing the transition.
633 Some providers go further still, bringing IAG specialists to clients, rather than
referring clients to them. This includes both one-off arrangements in response to
the needs of a group, and on-going arrangements for partner organisations to deliver
their services on-site (e.g. external careers advisers delivering IAG on Jobcentre
premises). Both advisers and clients spoke positively about co-location of services.
Where clients could be referred to other advisers at the same premises (whether or
not they were employed by the same organisation), the dangers of slipping through
the net and losing momentum were reduced.
634 Referral was a process where no single process was suitable for all situations.
Despite the arguments for a more structured system, there were still many clients
for whom an informal, relaxed approach was most likely to promote continuing
involvement. In these circumstances, referrals to drop-in agencies, rather than
appointment-based services, were more effective, since such clients may fail to
attend a specific appointment but might take up the service if able to do so in their
own time and at their own convenience.
Information exchange
635 Information exchange was not a major concern for most of the providers, since
referrals were typically informal (other than those linked to the benefits system).
Even between HE careers services, the amount of information exchanged on clients
27 Advisers noted that another reason for not making definite appointments with other providers was when serious doubts
were entertained as to the clients’ commitment. There was little point in inconveniencing the other provider if the
likelihood was that the client would not keep the appointment.
49

was minimal. The main exception was Connexions, where protocols for exchanging
client data is a sensitive issue and the subject of current development work.
636 A few advisers commented that it would be useful for a ‘summary of IAG’ to
accompany the client when referred specifically for further IAG. Without this, the
IAG adviser to whom the client had been referred was obliged to start from scratch,
with disadvantage to the client as well as the receiving agency. This practice was
adopted in a few of the providers we visited, albeit on an exceptional basis, rather
than general practice – and only after discussion with, and agreement from, the
client.
637 There were two other concerns raised, but with less general applicability:-
• in one instance, the resources of a job and training shop were supplemented by
an IAG worker employed by the IAGP. The IAG worker’s practice of entering
client details on the IAGP database was in conflict with the project’s policy of
retaining client confidentiality;
• another adviser recalled a recent case where an in-depth guidance interview had
identified a need for psychometric testing. When arranging an appointment for
this service elsewhere, the adviser was told that the client would first have to
book in for an interview with one of their own advisers before being able to
undertake the testing session. Even when a ‘summary of guidance given’ was
offered to the receiving provider, the adviser was unwilling to waive this stage of
the process.
Follow-up and aftercare
638 Few providers, with the exceptions of Jobcentres, follow up or track clients to find
out if they take up services following referral. Jobcentre tracking is often concerned
with monitoring attendance, although regular meetings between clients and New
Deal advisers provide opportunities to collect feedback on the success of the referral
option. Other providers that are used by clients over an extended period (e.g. dropin
centres for the unemployed) may receive feedback on services received elsewhere;
many advisers admit that this has an important influence on their future referral
behaviour.
639 Client satisfaction surveys are common and almost always show high levels of client
satisfaction. However, such surveys rarely provide constructive criticism or
feedback on clients’ subsequent IAG activity, and are therefore of less value as tools
for future planning than they may initially appear.
640 In at least one area, 28 the IAGP has attempted to introduce a paper-based referral
and tracking system, but many of the advisers interviewed reported that they did not
regularly use the system. Nevertheless, many advisers across all areas did
acknowledge that tracking would be useful, even though the paperwork involved was
often felt to be top-heavy for a client-centred service.
641 One organisation organises a Forum for users to discuss issues of interest to them
and to provide feedback on services received. This seems an excellent idea that
would benefit from an area-based approach (i.e. providing feedback on the full range
of services and their perceived coherence across the IAGP). On a related point, our
impression was that the feedback loops to providers of education and training from
both providers of IAG and from clients themselves were not as well developed as they
might be. This also argues for an area-wide feedback mechanism. 29
28 London South
29 We are aware that area -wide feedback structures are being explored by Learning Partnerships in some areas.
50

LINKS BETWEEN PROVIDERS
642 This section discusses the links between key players in the IAG sector - and other
related services.
Links between services for young people
643 Connexions has, by its nature, strengthened links between different agencies
engaged with young people. The service also has strong links with the Jobcentre in
at least some areas, particularly through the latter’s Under 18 Advisers.
644 We did encounter difficulties between Connexions and FE colleges in two areas, but
would be reluctant to draw any general conclusions from such a small sample. In
both instances, the problem arose as a result of poor links between Connexions
personal advisers working with 16-19 students and college-based advisers working
with adults. 30
Links services for young people and services for adults
645 The links between Connexions and adult services appear to be less strongly
developed, although here, too, it would be dangerous to generalise as we only visited
Connexions in three of the five fieldwork areas. As a minimum, Connexions staff
were generally aware of the existence of one or more adult providers; and all adult
providers were aware of Connexions.
646 Typically Connexions staff are invited to communications meetings held by adult
providers and to attend IAGP practitioner events. In two 31 of the areas,
organisations leading on delivering Connexions also had contracts for delivery of
adult services. However, this did not necessarily lead to close links amongst
practitioners.
Links between different providers of IAG services for adults
The impact of IAG Partnerships
647 There was widespread support for IAGPs. Whilst there was always scope for
increasing effectiveness and improving understanding, nearly every provider agreed
that inter-agency links were better now than they had been a few years ago. 32
648 One of the two HE Careers Services visited was an example of a provider which now
had better links with other local agencies. However, few providers of either adult or
young people’s services reported strong links with HE providers generally: referral to
FE colleges with HE provision was much more common than referral to university
services.
30 To cite one of the examples: Connexions advisers are based alongside college staff but not integrated effectively with
the wider service. Neither of the personal advisers has a background in careers education and guidance – but this was felt
to be what was needed to complement existing college services. Further, the inability of Connexions advisers to see
clients aged 20+ works against the integration of the two services. This has led to situations in which adult clients have to
be asked to return at another time because no adult adviser is available, even though Connexions advisers may be
available. The college would like to see a more flexible approach that allows better integration of services so that as many
people as possible can be given at least an initial response to their enquiry without having to wait.
31 Coventry & Warwickshire, and Tyne & Wear
32 There were exceptions, of course. One provider, for example, described the local IAGP arrangements as ‘incestuous’
and questioned whether there was any added value from it. It was stated that the IAGP had done nothing to increase
understanding of this agency’s services amongst other providers and had had no impact on onward referral from other
members of the network.
51

649 In some areas, the IAGP itself employs a team of IAG development workers who
deliver one-to-one information and advice services from a range of premises,
including libraries and voluntary sector organisations. These advisers also deliver
information and advice services on the premises of other IAG providers (including a
one-stop-shop, Connexions drop-in centre, and a job and training workshop) where
they provide an additional resource.
650 Some advisers had reservations about this arrangement. While the extra help was
welcomed, IAG workers’ inputs were part-time and limited to information and advice
(guidance was not funded). In practice, this made it difficult to integrate these
individuals with a team of staff committed to delivering a full range of services.
Links between Jobcentres and IAG providers
651 The links between Jobcentres and other adult providers were said to be improving,
although progress varies between and within areas. However, relatively few
Jobcentre advisers seemed to be aware of the IAG Partnership itself, and its role.
652 A number of Jobcentres now contract with IAG providers as intermediaries and can
claim outcomes achieved by the intermediary as counting towards Jobcentre Plus
targets. There were also examples of IAG providers offering one-to-one services on
Jobcentre premises, and New Deal advisers having the option to refer clients for
independent guidance.
653 Advisers from a variety of providers refer clients to the Jobcentre in relation to
claims for benefit or entitlement to training. However, some advisers told us that
their clients had negative views about the Jobcentre and this sometimes made
referrals more difficult in practice.
General links between IAG providers
654 For most providers, there was what might be described as an inner and outer circle
of linked providers. The inner circle of providers would include:-
• nearby providers which provided a different, but complementary range of
services. Here, there would be a steady stream of client referrals in both
directions;
• similar types of providers in other areas. Here, the contacts would be more
about professional development (e.g. exchanging information or convening joint
training events).
655 The outer circle of providers would include all the others listed in IAGP
directories/databases. Here, the contacts would be more ad hoc, but providers
recognised clear benefits from being able to find out more about other agencies in
the area, as and when a need arose. Most front-line advisers had a pragmatic view
on this; in practice, it was not feasible to keep in regular touch with large numbers
of neighbouring organisations.
Maintaining links
656 One of the reasons given by providers for failing to maintain up to date knowledge of
the services offered by other providers was the constant change experienced by the
sector. It was suggested that now is an important time for consolidating services
and taking stock, following major changes. Advisers argued that too much change
in government-funded programmes, in particular, has made it difficult to convey to
clients a clear and unambiguous offer of IAG services to adults.
657 Many providers were keen on undertaking visits to other providers or in hosting
communications events that bring local providers together to share information and
52

increase awareness of one another’s services. Regular communications meetings,
joint marketing activities and co-ordinated bidding for funding bring providers
together with a shared agenda and help to develop mutual trust. This lays the
groundwork for taking advantage of opportunities for joint working and co-location
of services.
658 A number of the providers visited during the research are partnership-based in an
immediate, structural sense, with staff seconded from a range of other
organisations. For example, one project is managed by a secondee from what was
the local careers company and is now a main supplier of Connexions services;
Jobcentre advisers work from the project’s premises and an IAG development worker
operates on set days each week, also. Through involvement in the project,
information updates are received from a variety of sources and the project provides
an opportunity for staff from different backgrounds to develop a good understanding
of each other’s approaches.
659 Outreach work is an important part of the marketing and delivery strategies of many
IAG providers. Links with a wide range of organisations - including libraries,
community groups, ethnic minority organisations, schools, and voluntary
organisations - are constantly being developed and extended.
Links with other services
Basic skills provision
660 The links between IAG and basic skills provision was specifically identified as an
issue for exploration through the research. It was encouraging that the relatively
few clients with basic skills needs to whom we were able to speak were positive
about the provision and the support they had received in accessing it.
661 One difficulty raised by Jobcentre clients on basic skills training was that they were
not able to continue their training beyond the allocated six months; advisers
commented that this could lead to a further deterioration of skills before the client
next became eligible for training. 33 Alternative provision was not always felt to offer
the level of support required by many of these clients.
662 Several advisers had received training on basic skills awareness. However, some
were resistant to using (what they felt to be) somewhat crude methods of basic skills
assessment with clients. 34 Advisers commented that they frequently became aware
of clients’ basic skills needs anyway, and would take opportunities to explore these
with the client. However, few were willing to pursue the issue, if the client was
unwilling to discuss it.
663 Advisers noted that clients would themselves raise basic skills needs – for example,
by commenting that they needed help with spelling, or were dyslexic; other signs
were when clients were enthusiastic when offered help with completing application
forms or drafting letters. Advisers were quick to pick up on these points and to
encourage clients to take advantage of local provision.
664 All advisers were aware of local basic skills providers. Similarly, all were clear as to
where they would refer a client who was interested in taking up provision.
665 One Connexions provider reported that the recent introduction of on-site basic skills
provision was proving successful. Based in a one-stop-shop, it enabled clients to
33 We were told that this could be up to 18 months.
34 For example, one adviser stated that it was insulting and patronising to clients to ask them to complete a checklist
designed to identify basic skills. S/he refused to use it.
53

combine their visit with other activities and therefore not have to face the stigma of
being seen to attend classes. Where basic skills provision was available as an
integrated part of other learning or training provision, there appeared to be far less
resistance from learners. Indeed one lifeskills provider stated that several of the
young people on the training would “spend all day, every day with the basic skills
tutor, if that was an option”.
666 Providers reported that basic skills is regularly combined with other learning
options: almost any learning activity can be designed to include an element of basic
skills. Promoting stand-alone basic skills courses was seen as less effective;
marketing using the ‘Gremlins’ logo had not proved very productive. Several
providers felt that the term ‘basic skills’ itself needs reviewing; they suggested that
an approach that emphasises ‘skills development’ or ‘skills improvement’ would be
more attractive.
667 Jobcentre clients are screened every six months for basic skills needs and are
encouraged to take up provision; this is sometimes made a condition of the
Jobseekers Agreement for long-term unemployed clients. 35 It was suggested by
some advisers that the repeated screening of the same client every six months is an
inappropriate use of resources. However, there is no system in place to ensure that
the results of basic skills screening are seen by subsequent advisers or at the point
when a previously screened client returns to make a new claim after a period of
employment.
668 The consensus was that assessment services should be more widely available, and
offered with the minimum of waiting time, so that those clients willing to pursue that
route could be seen without loss of momentum. Assessors would need specialist
training, however: this was not seen as part and parcel of front-line IAG.
learndirect
669 By far the majority of (but not all) advisers were aware of the learndirect advice line
and several reported that it is useful when trying to identify unusual or obscure
training opportunities. One adviser had found it particularly helpful when working
with prison inmates who could be released to anywhere across the country.
However, few advisers signpost clients to learndirect unless they are unwilling or
unable to access face-to-face IAG services.
670 Learndirect advisers have ready access to information about major IAG agencies and
are able to signpost clients to these services effectively. However, learndirect
advisers do not have contact details for ‘ultra’ local services (e.g. specialist
community based agencies working with particular ethnic groups). Such services
are subject to constant change and it can be counterproductive to give out
inaccurate or out-of-date details.
In-work IAG
671 One of the providers involved in the research offers in-work IAG, funded by the
IAGP, through arrangement with employers. Links are strong with at least some
other core members of the IAGP and this private sector organisation is regularly
involved in organising and contributing to IAGP events and meetings.
35 One specialist basic skills tutor raised concerns about the quality of Jobcentre Plus screening and commented that initial
diagnoses were often incorrect. This tutor argued that the limited training given does not enable advisers always to be able
to distinguish specific weaknesses in numeracy and/or literacy from dyslexia or a more general learning
difficulty/disability.
54

672 In general, links between IAG advisers and employers, trade unions and other inwork
providers appeared limited, as regards employee development services.
However, job finding agencies such as Connexions and Jobcentre Plus were in
regular contact with employers over vacancies for unemployed (and ‘betterment’)
clients.
673 On a related point, some providers offer IAG to their own employees – something
that is seen as reflecting good HR practice.
Business and enterprise services
674 Within the research sample, IAG services specifically aimed at people wishing to
start their own business were delivered by Jobcentres and by Business Link. A
small number of other providers indicated that they stocked books and other paperbased
resources relating to self-employment; and a few advisers reported that they
had, at some point, helped individuals to develop a business plan.
675 New Deal includes an option for those wishing to start their own business. Training
is provided - and arrangements are made through which clients are able to continue
receiving benefits while the business becomes established. This option was valued
by the two unemployed clients in the sample for whom these services were currently
directly relevant.
676 Business Link provides business start-up training on contract to the Jobcentre, with
courses also open to other individuals. Referrals are received from other providers
within the IAG network and, in turn, Business Link refers on individuals who
contact the service with training enquiries. The majority of Business Link services
are targeted at employers (including training), although this can include basic skills
provision for employees.
677 It was not possible during the study to arrange access to Business Link clients - and
the sample as a whole includes very few clients who were considering selfemployment
as an option. It is difficult to comment further, therefore, on whether
the signposting arrangements currently in place are enabling clients to access
appropriate providers or whether their IAG needs are being addressed in a coherent
way; we were not made aware of any major problems, however.
GAPS AND BARRIERS
678 This final section discusses the factors constraining coherence, as suggested by
managers and front-line advisers. These include gaps in the system, client-related
issues and resource constraints. We end the chapter with an important balancing
point.
Gaps in IAG provision
679 Among the gaps in IAG services highlighted by providers were the issues related to
job finding for graduates, as mentioned in the parallel section of the clients’ chapter
(i.e. gaps in services for recent graduates, once they move away from the area, and
for those who graduated several years earlier and are no longer eligible to use HE
careers services).
680 Lack of provision for offenders on release from custodial institutions was highlighted
as a gap by two advisers. Offenders receive support while in prison but, on their
release, find little by way of support to help them utilise newly gained skills or to
support them in overcoming barriers to employment.
55

681 There was a lack of suitable provision for individuals requiring confidence building,
although this was available to a limited extent in some areas. In particular, there is
a need for more one-to-one services. Many existing services are delivered to groups,
a practice which thereby (and somewhat ironically) excludes some of those most in
need, but who lack the confidence to participate in group situations.
682 Advisers reported that it was hard for well-motivated people in employment to find
suitable, in-depth IAG. This includes those seeking a career change for a variety of
reasons, including those for whom the stress of their current position is taking a toll
on health and well-being. Few opportunities exist for such individuals to explore
alternative career options (other than costed services from private providers) or to
retrain (while continuing to meet their financial commitments).
683 Jobcentre advisers commented that lack of time to spend with clients serves to limit
the impact of services. Many clients are demotivated, depressed and lack belief in
their own ability to drive forward and take responsibility for their own development;
many also have other problems such as drug or alcohol dependency, homelessness
and a range of complex social problems. Dealing effectively with such clients
requires a more flexible approach to service delivery than is achievable in a targetdriven
environment.
Gaps in learning and training provision
684 Lack of work experience opportunities, particularly for adults, is a major gap
identified by a large number of providers.
• Many unemployed adults are reluctant to participate in training, particularly
where past experience of training has failed to help them secure employment.
• For those completing programmes of education and training (e.g. young
graduates), lack of experience is often a major constraint to finding suitable
employment.
• Lack of work experience and placement opportunities are also a problem for
adults wishing to change career, many of whom would welcome the opportunity
to get a taster of alternative areas of work.
685 Many advisers stressed that general opportunities for adults to retrain are poor,
other than for those who have experienced long periods of unemployment. Few
adults, whether recently unemployed or seeking to return to work, change career or
improve prospects within their existing line of work, have easy access to free
training 36 , and many cannot afford to take up the options that are available. Even if
willing and able to pay, it is extremely difficult for adults to find suitable training in
traditional craft trades (e.g. plumbing or carpentry), as training places are limited
and usually aimed at young people.
686 The Modern Apprenticeship infrastructure was said to be complex, especially for
young adults aged between 19 and 24. For example:-
• difficulties have been experienced in obtaining accurate information at the frontend;
• the requirement, in some instances, to have a job first before being taken on by
a training provider, presents a further barrier to many clients.
Pressure on ESOL provision
687 There is considerable pressure on ESOL in several areas and many advisers feel that
the provision available is not always appropriate for the needs of the client group.
36 Employers are a possible source of funding, although only the far-sighted will look favourably on courses designed to
raise awareness of broader career opportunities.
56

Advisers would like to see more ESOL provision that offers language development
within the context of seeking work, as pure language tuition often results in slow
progress and does not address the issues most relevant to the client group (e.g.
dealing with interviews and application forms).
688 Refugees and asylum seekers are eligible for early entry to New Deal. However,
without bilingual provision, there is often little if any suitable provision until their
language skills have developed sufficiently for participation in New Deal training.
This leaves an unproductive period at the front end.
689 Coincidentally, the high proportion of clients with English as a second language puts
pressure on Jobcentre advisers. Interpreters can be arranged, but more time is
required for the interviews; moreover, advisers still find it difficult to identify the real
needs and issues that are acting as barriers to these clients.
Gaps in support services
690 The following gaps in support services were mentioned as having a negative impact
on coherence.
• A number of advisers reported serious difficulties for young people aged 16 and
17 who are homeless. There is very little housing available to this group, despite
significant numbers who are estranged from their families and have become
homeless.
• Anger management provision is rarely available for young people (and adults).
• Lack of mental health provision and/or lack of effective links with mental health
specialists were identified as significant gaps by some providers. 37
Limited in-work provision
691 As noted already, we only visited one in-work provider, and so our comments on this
aspect need to be treated with caution. The consensus, from mainstream IAG
providers, was that few employers 38 promote training and development, and that
employers are sensitive about external intervention, particularly when they suffer
chronic staff retention problems.
692 There appears to be an on-going need to work with employers, arguing the case for
employee development and promoting IAG services generally. 39
Client attitudes
693 Many advisers mentioned client attitudes as an important barrier to making
progress (and hence coherence). The following examples were cited:-
• Lack of realism, low confidence and low expectations were all seen as barriers
that prevent clients from moving forward.
• Many clients, particularly amongst the unemployed, are unwilling to consider
opportunities that are not close to home - and transport difficulties are a barrier
for many jobs even within the locality. Even where local public transport is
good, many industrial estates (and other areas where jobs are concentrated) are
poorly served by the local transport system.
• Where clients are unwilling to accept the need for help (e.g. with basic skills or
substance abuse) there is often little advisers can do to address the issues.
37 This was particularly acute in one area where no support could be found to help a young person who was not in
education, even though services were available for other groups (including those in full-time education). This put a lot of
pressure on the adviser who was reluctant to ‘drop’ the client, but felt out of his/her depth in relation to the specific need.
38 especially employers with high proportions of blue-collar workers
39 However, few IAG providers currently target employers.
57

• Some advisers working with the 18-24 age group in Jobcentres reported that
client inertia was a barrier, particularly amongst clients living with parents.
Many of this group appear unwilling to take responsibility for their own
progression and development.
• Many IAG providers, particularly those in the community and voluntary sector,
find it difficult to attract men to use their services. It was suggested that there
are cultural barriers that prevent men from seeking help and advice.
Lack of client awareness
694 Lack of awareness amongst clients of services that do exist was cited as a barrier by
many advisers, thereby mirroring comments made by clients themselves. Clear
branding and increased marketing were seen as one way of addressing this. Those
providers which had used local advertising had found it did increase demand,
especially in rural areas where awareness of outreach sessions was often limited.
695 Several advisers stated that they would like to see a centrally funded guidance
service for adults. One-stop-shop models offering a range of services and acting as a
central point of referral were favoured by many; for others, national marketing and
awareness raising was seen as the best way of raising expectations and increasing
demand for IAG services, at any rate in the short term.
Lack of job opportunities
696 Lack of suitable job opportunities presents a real barrier to many clients. This
applies at all levels but is particularly acute for individuals with learning difficulties/
disabilities, basic skills needs, low skills and other social needs. Many of these
clients are genuinely keen to find work but are not competitive in the current
employment market.
697 Many long-term unemployed clients just keep going round the system but,
realistically, are unlikely to find work; the current system often achieves little
progress with such clients. This was seen as a poor use of resources; an alternative
approach is needed, if these clients are to be helped to contribute to society in a
meaningful way.
698 Furthermore, many are caught in a ‘benefit trap’, through which undertaking work
results in little financial gain, in addition to offering little job security or opportunity
for progression; such clients were sometimes described as being in a ‘comfort zone’
on benefits. Considerable investments of time and effort are required to encourage
them to take a longer-term view and to work towards sustainable employment.
699 There is also a lack of suitable jobs for young people in many areas. Whilst
Connexions advisers are able to put forward alternative opportunities (most often in
the learning arena), the fact remains that some young people want a ‘real job’, and
there is often little that can be done to help in this respect.
Inflexibility of the system
6100 Some of the inflexibilities in the Jobcentre Plus system have already been
mentioned. We refer, for example, to the fixed time delays before training options
can be accessed, and the limited time available for in-depth work with clients with
multiple needs.
6101 Turning to the IAGP, the clear distinction between information, advice and guidance
elements of the service were deemed a constraint by some providers. In at least two
areas, the IAGP will only fund the majority of partners for the delivery of information
and advice services. However, guidance may be required before the client is in a
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position to make effective use of information and advice – for example, clients with
no idea of what they want to do. Guidance is often funded through alternative
sources, or is provided anyway, despite the fact that the adviser is unable to claim
for this service.
6102 Several providers felt that the unit price for delivery of IAG episodes was low and
that this was having a negative impact, especially as regards services to ‘difficult’
clients. There is clearly a temptation for providers to ‘cherry pick’, in a situation
when the same income is generated, irrespective of the degree of complexity involved
in service delivery 40 : increased levels of funding for work with more challenging
clients would ensure those most in need continue to receive adequate support.
6103 The limited funding available is seen as a particular barrier to the increased
involvement of commercial providers.
Funding for learning
6104 As noted earlier, advisers identified lack of funding for learning as a barrier for many
clients, particularly those on low incomes. Several advisers felt that Individual
Learning Accounts had been helpful in this respect and, while acknowledging that
the ILA system had been abused, would like to see an alternative funding
mechanism for adult learners introduced.
Concluding comment
6105 As with the previous chapter, this chapter has presented several issues where
difficulties have been identified and frustrations felt. This runs the risk of
presenting an unbalanced picture.
6106 The point to stress is that the constraints described were all suggested by the
providers themselves. Moreover, they were not put forward in the context of a
general discussion of strengths and weaknesses: they were all suggested as factors
which might have a bearing on coherence - and are therefore central to the objectives
for this study.
6107 We are very grateful for the candour shown by front-line advisers. This suggests to
us that there is a topicality to the debate and a genuine desire to make progress, to
the benefit of clients, local communities and local economies.
40 Nevertheless, many providers take a highly principled stance and would vehemently resist such pressures.
59

APPENDIX A
KEY DIFFERENCES BETWEEN CLIENT TARGET GROUPS,
PROVIDER TYPES AND AREAS
INTRODUCTION
38. The project specification sought comments on key differences between findings by
client target groups, and by provider types; we were also asked by the Steering Group
to comment on key differences by geographical areas. The main report has included
several references to all three variables and we have therefore kept this additional
commentary to a minimum.
39. This appendix briefly considers each variable in turn.
CLIENT TARGET GROUPS
40. The analysis of the characteristics of the client sample (paragraphs 319 to 321)
highlighted a number of difficulties in differentiating clearly between client target
groups. This makes it complex, in practice, to make unequivocal comparisons
between groups. Nevertheless, some differences do emerge that are of particular
relevance to one or more client group as defined by demographic variables. 41
41. We comment first on differences between client groups, in terms of the amount of
practical support and one-to-one support they require.
• HE students are often well-motivated and capable of accessing and utilising
information from a variety of sources. Emphasis on self-help resources is
appropriate for this group.
• By contrast, many unemployed clients, particularly the long-term unemployed,
and individuals with complex needs, benefit from significant levels of one-to-one
support and practical help in identifying job vacancies, making effective
applications and increasing employability skills. Projects that offer this level of
support tend to secure higher levels of positive and sustainable job outcomes.
• Clients in employment and seeking a career change, recent graduates and wellqualified
and experienced individuals who have recently become unemployed,
tend to be better able to make effective use of self-help resources. Nevertheless,
support from advisers remains important to this group.
• Young people are another group who often require significant one-to-one and
practical support from advisers. Many of those using Connexions post-16 have
complex needs that require on-going support and individual attention.
42. Client groups differ also in the extent to which they engage with and actively
participate in IAG services.
• Many users of one-stop-shops, project based provision and Connexions use the
service over an extended period of time in order thoroughly to address a need;
these will often be well-motivated clients seeking work. Access to vacancy
information, ICT and other information resources, together with opportunities to
develop IT skills, and underpinned by advice and encouragement – all under one
roof - provide a coherent support package for motivated and goal-directed
jobseekers.
• Participants in Jobcentre programmes often have access to similar resources but
fail to engage in the same way. Many of these clients, particularly in the 25+ age
41 It was also noted (paragraphs 403 to 408) that it may be more meaningful to differentiate between client groups in terms
of motivation rather than demographics, when analysing coherence.
60

group, are long-term unemployed and often have a range of needs in relation to
employability skills. Their only interest is in finding work; hence, pressure to
participate in other activities is often seen as a barrier to achieving this goal.
Few appear to recognise the potential benefits of engaging with IAG services and
most appear to lack belief in their own potential to develop skills and secure
sustainable and satisfying employment.
• Young people and adults on learning and training programmes often receive IAG
as part of a wider learning support package and are willing recipients of the
service. IAG often contributes to the coherence of the learning experience,
rather than being perceived as a separate service. Young people often have
contact with Connexions, as well as with their training provider. However, few
adults appear to seek alternative sources of advice.
• Young people with learning difficulties/disabilities are similar to the above
group, in that most do not distinguish between IAG and their wider support
system. This is one of the main reasons why this group appear to be amongst
the least likely actively to seek out specialist IAG services. This is not true of
young people with other complex needs (e.g. financial or mental health), who are
often quite demanding on the time of Connexions personal advisers.
• Clients lacking in clear career goals (including some returners to the labour
market, students, new graduates, career changers and unemployed adults)
appear to find it difficult to make best use of the services that are available;
many may recognise that it is their own responsibility to identify goals, but
nevertheless find it challenging to do so. For these individuals, careers guidance
and counselling may be necessary before they are able to take advantage of other
services in a coherent way.
PROVIDER TYPES
43. It has already been noted that the research involved a wide variety of different types
of provider, in terms both of sector and delivery arrangements. Chapter III noted
that it was only Jobcentre Plus and the voluntary and community sector that were
represented in every area; and that, whilst Jobcentre Plus services and approaches
are fairly consistent across areas, the voluntary and community sector organisations
are quite different in each area, making it difficult to draw conclusions concerning
this sector as a whole. 42
44. There are also variations within sectors, in the way in which IAG services are
targeted and delivered. Here, too, the small number of each type within the sample
makes it difficult to draw firm conclusions about a specific type of provider.
45. There are, however, some issues that emerge as more relevant to specific types of
provider. 43 We note first some differences between providers in terms of the way
they are perceived.
• Jobcentre Plus has the highest profile amongst adults, although few perceive it
as a provider of IAG. Connexions has a high profile amongst young people and
is seen clearly as an IAG provider. The Jobcentre is also well-known to many
young people and is sought out by those who are looking for work, as opposed to
training or learning. Many adults recognise Connexions as being linked to the
former careers service but have low awareness of most other IAG provision.
• Jobcentre Plus and some of its contracted provision is viewed (rightly or wrongly)
by many clients and other providers as placing greater emphasis on achieving its
own targets, than on identifying and meeting individual needs. The majority of
42 See paragraphs 307 and 308
43 Other supply side variations are associated more with differences in the approach to delivery, the range of services
offered or the target client base of the provider, rather than the provider type per se.
61

other providers, including a number contracted to Jobcentre Plus, were
perceived as offering services which are more client-centred.
• Some advisers and clients of other providers questioned the independence of
institution-based services. However, clients who had used college services did
not express this view and many college-based services strive to offer impartial
IAG to adults and young people, as a matter of principle.
46. There is considerable variation in the way providers interact with their clients. 44
• Jobcentre Plus delivers information and advice to clients through front-line and
New Deal advisers, as well as referring clients to jobsearch and training
programmes (at which attendance is monitored).
• Connexions services are delivered in a variety of ways, including through onestop-shops
and drop-in centres. Clients are seen on a drop-in and/or
appointment basis, depending on the specific circumstances. Connexions
advisers are also located in colleges and involved in outreach work with young
people in a variety of work, training and other contexts.
• One-stop-shops and project-based services for adults invite clients to use
premises-based resources and services on a drop-in and/or appointment basis.
The choice of services is often left to the client. Adult IAG providers within
colleges and other education and training providers deliver services in a variety
of ways including:
- inputs to courses to promote services and deliver information to students
- outreach presentations to promote learning to community groups
- central and outreach services for individual IAG on a drop-in or appointment
basis.
• Community Education IAG workers, development workers employed directly by
the IAGP, and advisers from some of the larger IAG specialist providers deliver
one-to-one IAG services (drop-in and appointment) in outreach premises, such
as libraries and voluntary organisations. Outreach activities include direct
inputs to existing groups (including Surestart, drug rehabilitation projects,
mental health projects and refugee groups).
• Specialist training providers, working intensively with young people with
learning difficulties/disabilities or with disaffected and disadvantaged young
people, deliver IAG as an integral part of a wider lifeskills programme, sometimes
with inputs from other IAG specialists.
• learndirect services are delivered on-line and by telephone. A telephone service
(including bi-lingual services) was also offered by one provider from the
voluntary and community sector.
• One provider secures the support of employers to work with employees to
identify training and development needs and encourage staff to take
responsibility for their own in-work development.
• One organisation was concerned primarily with services to business, delivered in
a range of ways, including initial telephone signposting and referral, teams of
consultants working with business, and business start-up training for
individuals.
47. Providers also vary in the extent to which there are active links, at adviser level, with
other members of the IAG network.
• There were differences between areas in the extent to which HE providers are an
integral part of the IAG network. However, links between individual providers
and local HE institutions were good in all areas; and the needs of HE students in
FE colleges are often met through the latter’s own IAG services.
44 There is some overlap of material between paragraphs 9 to 11 of this appendix and Chapter VI, but the information is
relevant to both passages.
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• Jobcentre advisers, and staff of training providers offering Jobcentre
programmes and training for young people, tend to have less awareness of, or
involvement with, the wider IAG network. However, links are strong between
training providers and both New Deal advisers and Connexions personal
advisers.
• Links are generally effective between Connexions and specialist advisers in
Jobcentres. Some providers of services to adults have good links with Disability
Employment Advisers or New Deal lone parent and disability advisers at the
Jobcentre. However, direct links between IAG providers and Jobcentre advisers
generally seemed limited, with the exception of one or two project-based
providers.
• Partnership projects facilitate strong links and good lines of referral between
partner organisations.
• Links between advisers from other types of provider are often based more on
shared interests and training, than in working relationships based on client
needs.
48. Finally, we comment on differences in signposting and referral patterns between
providers.
• Jobcentre Plus advisers refer primarily to contracted providers. However, in
some areas, intermediary agreements with IAG providers have increased
signposting of clients who do not qualify for New Deal, to other providers.
• learndirect advisers signpost a high proportion of callers to specialist
information sources and local IAG providers.
• Many of the main IAG providers tend to be recipients of referrals, rather than
regular referrers of clients to other IAG providers. Much effort is invested by
these providers in developing relationships to increase signposting and referral
into their services from local non-IAG services and groups. They tend to see
their role as meeting as many of the client’s IAG needs as possible, without the
need for onward referral. Referral from these providers is most commonly to
sectors outside the IAG sector (e.g. housing or debt counselling).
GEOGRAPHICAL AREAS
49. The research was not designed to examine differences in the infrastructure in each
area; rather, selection of the five areas was designed to ensure coverage of a range of
variables across the sample as a whole (see paragraph 205). The purpose of
selecting a diverse mix of areas was to ensure that the emerging issues represent the
views of clients and providers from a wide range of contexts. This increases
confidence that the findings reflect issues that are relevant to coherence in IAG
provision across the country as a whole.
50. IAG infrastructure was not discussed directly with providers. However, in debate, a
number of differences did emerge in terms of the way in which the IAGPs operate
and the relationships between Connexions and the IAGP. These differences impact
on the way in which providers are funded and the role of the IAGP in delivery of
services.
51. In two areas, the IAGP employs development workers to deliver services directly,
both in partnership with other providers and independently. In one area, a
Connexions provider holds a small contract to deliver services to adults, while in
other areas Connexions providers deal only with young people. In at least two areas,
IAGP funding is targeted primarily at information and advice services, while this
distinction seemed to be less clearly enforced in other areas. It appeared that only
one of the IAGPs had contracted with a provider which specifically targets employees
in work.
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52. Many providers’ staff expressed views about the effectiveness of the different
arrangements. However, these views were not always consistent within areas and
the small number of provider visits to each area cannot be considered as giving a
representative picture of the local IAG network as a whole. This problem is
exacerbated further by the different mix of provider types visited in each area.
Direct comparisons cannot be drawn between areas, therefore.
53. We did examine the data to see whether any reliable conclusions could be reached
on the relationship between client views and the local infrastructure, but this was
made even more complex by the different composition of client samples between
areas, both in terms of demographic characteristics and IAG experience. There was
also considerable variation of views between client groups within each area.
54. Overall, and with all these caveats noted, we found little to suggest that views of
clients from different areas differ in any consistent way. In short, the main issues
impacting on client coherence appear to be equally relevant across all areas. This
seems to reinforce the conclusion that it is the individual IAG adviser, rather than
the system, that makes services appear coherent (or not!) to the client.
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Fieldwork Checklists
APPENDIX B
CHECKLIST FOR DISCUSSION WITH CLIENTS
INTRODUCTION
• Thank participants for attending
• Explain purpose of discussion group, role in overall project
• Explain system for payment of expenses
• Assurances on confidentiality
A. KNOWLEDGE AND EXPERIENCE OF IAG SERVICES
A.1 Provide definition of ‘Information, Advice and Guidance about learning and work’:
e.g. “Advice and support you receive to help you get work or training or learning”
A.2 Introductions – each participant to state: Name; Age (group); Employment
status; Most recent experience of IAG (including source, nature of service and
reason for seeking IAG).
A.3 How did you decide where to go/who to go to for IAG (Ask each participant
what led up to most recent IAG experience).
A.4 Have you received IAG from other providers in the past Who What services
(some prior experience of IAG providers may already have been identified in
A.3 above).
A.5 Do you know of any other services that are available to you (or other people) if
you need them How do you know about these services Types of service
Provider Who aimed at
A.6 Has anyone heard of ……. (list providers not yet mentioned e.g. learndirect, JC+,
Connexions). What do you know about these
A.7 Has anyone ever received help with self employment Where from Where would you
go if you needed this type of help
A.8 Has anyone ever been given information about the types of job opportunities that
exist locally/the skills local employers are looking for (LLMI) Who from In what
context Has it been helpful
A.9 If experience of employment - has anyone ever had/thought of getting IAG from their
employer Union Other employer body
A.10 Which of the IAG providers/services mentioned so far were previously
unfamiliar to the group
B. ONGOING NEED FOR IAG SERVICES
B.1 Have you been able to meet all your IAG needs through the services you have
used so far If not, what needs went unmet
B.2 If unmet needs – do you know of services that are available to meet these need
Details
B.3 Is anything stopping you from getting the IAG help/support you need Details
B.4 Is there anything that would make it easier to get the IAG help/support you need
B.5 Do you think you will need IAG again in future (e.g. after you leave college,
once you find a job, once you know what course to do).
B.6 What sort of IAG do you think you will need in future Is this available Where
would you go for IAG
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C. COHERENCE OF IAG SERVICES
C.1 Please think back on your recent experience of IAG – all the IAG you have had since
….. you started looking for a job or course/first thought about retuning to work/first
started thinking about your career etc. Think about all the IAG that has helped you
get to the point you are now.
C.2 Has it been a smooth, on-going process – always knowing what your next step
should be and where to go for the help you needed next OR Has it been a struggle
to get the help you have needed, with lots of dead ends, delays, not knowing where
to go next etc.
C.3 What has helped to make it a smooth, on-going process (including referral systems,
continuity of adviser, accessibility of services).
C.4 What sort of difficulties have made it a struggle (including delays in getting
appointments, gaps in services, transport difficulties, always seeing a different
adviser, repetition of questions asked by different providers).
C.5 Have you felt in control of the process Had choice about services or providers
Understood the process
C.6 Do you feel that IAG services have been able to help you in the ways you expected
C.7 How could IAG services be more effective in helping you to keep progressing
(e.g. additional services, better referral)
DEFINITIONS OF IAG SERVICES
Jobcentre Plus
Information: general details which help customers to make decisions about learning and
work, e.g. issuing the ‘Financial help if you are looking for work’ booklet, a leaflet about
Worktrain or the learndirect telephone number.
Advice: support which helps customers to understand the information available
Guidance: a process which helps customers to consider the learning, work and welfare
support options available. For example, a Jobcentre Plus advisory interview in which job
goals are identified and necessary steps to achieve are agreed or a discussion about benefit
entitlement in relation to the individual
Guidance Council
Information: data on learning and work opportunities conveyed through printed matter,
audio visual materials, computer software, or through information officers in careers or
other helpline services such as learndirect.
Advice: providing an immediate response to the needs of the client who present an enquiry
or reveal a need that requires more than a straightforward information response. It is
usually limited to helping with the interpretation of information and with meeting needs
already clearly understood by the client and may or may not include signposting to a
guidance interview where a more in-depth response can be provided.
Guidance: An in-depth interview or other activity conducted by a trained adviser which
helps clients to explore a range of options, to relate information to their own needs and
circumstances and to make decisions about their career (i.e. progression in learning and
work). It may or may not include psychometric assessment.
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CHECKLIST FOR DISCUSSION WITH PRACTITIONERS
INTRODUCTION
• Overview of research project
• Purpose of pilot interview
• Assurance of confidentiality
A. BACKGROUND TO PROVIDER ORGANISATION
A.1 What services are offered by the provider (IAG and other services)
A.2 What is the role of the interviewee in delivering services
A.3 How do IAG and other services complement each another
A.4 What are the priority target groups for IAG in local area
A.5 What are the main target client groups of the provider
A.6 How does the provider link to other local services (Focus on practitioner links.)
B. SIGNPOSTING AND REFERRAL
NB It may be necessary to clarify use of the terms ‘signposting’ and ‘referral’ prior
to exploring the issues in this section.
B.1 What are the common patterns of signposting and referral of clients to other services
(internally and to other providers)
B.2 What are the common reasons for signposting/referring clients to other IAG
services
B.3 What systems are used for signposting/referring clients to the IAG services they
need Are they effective and adequately resourced
B.4 How are basic skills needs identified At what stage (e.g. at initial point of contact
or only after further IAG)
B.5 How comfortable do you feel about signposting/referring clients to other IAG services
in the locality/outside the locality
B.6 What are the general rules re. exchange of client information Are difficulties
experienced in not receiving information from referral agencies
B.7 How do you ensure that the client’s needs are met during and after
signposting/referral
B.8 To what extent is there trust between agencies in the quality of each others’
assessments, and quality of other IAG services
B.9 Are there occasions when you are unable to meet the needs of clients
B.10 What are the gaps in local services
B.11 What do you do if you are not able to meet the client’s needs (either in-house, or
through signposting/referral)
B.12 Do you use client feedback to identify gaps in service delivery/to improve service
delivery
B.13 What are the main barriers to helping clients meet their needs
C. LINKS WITH OTHER PROVIDERS
C.1 Do practitioners have a clear understanding of other IAG services (incl.
learndirect, Jobcentre Plus, Connexions)
C.2 What systems are in place to ensure practitioners maintain up-to-date information
about other IAG services
C.3 What links does the provider have – at practitioner level – with other local and
national IAG services How are links developed and maintained Are they effective
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C.4 Are there links with HE careers services (Is HE careers Service seen as part of
network etc.)
C.5 What links does the provider have – at practitioner level - with employers, employer
services (e.g. Small Business Service) and trades unions How are links developed
and maintained Are they effective
C.6 How are links between providers developed and maintained (i.e.
personal/individual links/contacts, or more formalised systems)
C.7 Has the local IAG Partnership had an impact on links between services In what
way
C.8 How is LLMI collected/used/shared amongst IAG providers How good is LLMI How
is LLMI used to support services to clients
C.9 Are local services coherent from the perspective of front-line providers What does
IAG service “coherence” mean from the front-line practitioner’s perspective What
are the benefits of coherence
D. CLIENT NEEDS FOR COHERENCE
D.1 How do you explain to clients the benefits of using IAG
D.2 How do you ensure that clients have realistic expectations of IAG services
D.3 How do you ensure that clients are aware of the full range of services that are
relevant to their needs
D.4 What do you do if the client does not understand their own needs
D.5 What are the main barriers that prevent clients from accessing the full range of IAG
services that are relevant to their needs How could barriers be overcome
D.6 How can IAG services be made more coherent for clients
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ORGANISATIONS PARTICIPATING IN THE FIELDWORK
Coventry and Warwickshire
Bankfield House Jobcentre Plus, Coventry
City College Coventry
Connexions Coventry and Warwickshire
Coventry and Warwickshire Business Link
Focus
Learn and Earn
Workers Educational Association
Greater Manchester
Action for Employment
Employment and Regeneration Partnership
Learndirect (national service)
Manchester University
Openshaw Jobcentre Plus
Opportunities for Women
Standguide
Stockport College
London South
Connexions/Prospects Wimbledon
East Croydon Jobcentre Plus
Kingston Voluntary Action/IAGP Development Worker
Learning Curves
Sutton College of Learning for Adults
The Training and Job Shop, Hawthorne Centre
Suffolk
Ipswich Jobcentre
Papworth Trust
Resurgam Group
SEETEC
Suffolk College
Suffolk Community Education
West Suffolk College
Tyne and Wear
Connexions Tyne and Wear (Gateshead)
ETEC Sunderland
Shildon House Jobcentre, Gateshead
NEETA
Northumbria University
South Tyneside TEN
APPENDIX C
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