HomeMy WebLinkAboutCSD-10-032 - Youth Services StrategyREPORT
REPORT TO:
Community Services Committee
DATE OF MEETING:
May 10, 2010
SUBMITTED BY:
Mark Hildebrand, Director, Community Programs and
Services (ext. 2687)
PREPARED BY:
Lori Palubeski, Manager, Program and Resource Services
(ext. 2623)
WARD(S) INVOLVED:
All
DATE OF REPORT:
April 26, 2010
REPORT NO.: CSD-10-032
SUBJECT:
YOUTH SERVICES STRATEGY (YSS)
RECOMMENDATION:
That the Youth Services Strategy, dated 2010 and as attached to CSD-10-032, be
approved, and;
That the implementation of the Youth Services Strategy and actions be referred to the
corporate business planning and the annual capital and operating budget processes for
consideration.
BACKGROUND:
The City of Kitchener’s commitment to serving young people in our community has evolved and
intensified over time. Examples of early services include, direct programs, neighbhourhood
association recreation grants, committee participation, volunteering and support for minor sports
organizations. While our past approach to service delivery has proven effective, a strategic
direction, focus and plan for how we as a Corporation wish to serve youth needed to be
developed.
The first direction to further develop Youth Services within the Corporation was outlined in the
2000 Community Services Departmental Operational review. This direction called for the
creation of the Youth Services Unit, which was completed in 2001. Subsequent master and
strategic plans such as the Leisure Facilities Master Plan and A Plan For A Healthy Kitchener
suggested that planning for our youth be increasingly considered as a priority, and further
recommended the initiation of a “youth strategy”.
An internal staff project team, supported by a research assistant, embarked on the development
of a youth strategy in 2007. The objective of the Youth Service Strategy (YSS) was to develop
a program and service delivery model that would serve as a foundation for youth services,
providing direction and guidance to staff in planning, resource allocation, partnership
development and program/service development and delivery. Additionally, the goal was to
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define strategic recommendations that were rooted in youth input and that aligned and
supported the City of Kitchener’s Strategic Plan.
In building the YSS, the project team developed a “positive, assets-based” framework (vision,
mandate and guiding principles) that served as the strategy’s foundation. Combined with the
integration of data obtained from previous youth surveys, a research and literature review, the
implementation of an extensive community consultation process and the development of six
strategic directions, the project team is pleased to share and present the Youth Service Strategy
for Committee’s consideration.
REPORT:
It is has been said that “young people are the leaders of today”. The City of Kitchener supports
this belief and strives to create inclusive opportunities, programs and services that are
meaningful for youth. We believe that working with youth is a process of mutual enrichment. It
benefits our entire community and contributes towards the community priority “Quality of Life:”
by helping Kitchener become a place of opportunity for ourselves and for our children.
It is important to recognize and embrace the important role the municipality can serve as it
relates to serving our young people. They are our future voters, educators, parents and leaders
who will activate and carry out our strategic plans. As we plan and take action to shape a
vibrant and creative community, it is vital for us to engage youth in order to ensure that their
voices and their visions are incorporated and reflected. We know that when young people feel
supported by their community, they are more likely to establish longer term roots and make local
choices as they relate to their education, employment and future residence. According to the
2006 Census, the national youth population is expected to decrease and it is estimated that by
2020 the number of children and youth under the age of 25 will decline to 26% of the Canadian
population. However, the same source notes that in Waterloo Region, our youth population is
expected to increase between 2001 and 2031. 29.7% of our population is expected to be
between the ages of 0 to 15 and 37.9% will be between the ages of 16-30.
Three broad goals provided direction in the development of the Youth Services Strategy. The
first goal was to develop a vision, mandate and program/service delivery model for the Youth
Services unit. Second was the creation of a strategic “road map” that would assist staff in
making decisions as they relate to resource allocation, project/program development,
partnerships etc. The intention of the third goal was to serve as a “cornerstone” – whereby each
process, stage, outcome and action of the YSS be grounded in” strengths/assets based”
principles. Essentially, the project team wanted to build a strategy on a foundation of inclusivity
– one that values a young person’s strengths over their weaknesses, celebrates their assets
over their deficits and one that promotes the capacity of all staff and volunteers to serve youth.
The first phase involved the creation of a strategy framework. This was a facilitated process
that resulted in the development of a mandate, vision and series of foundational principles for
the Youth Services unit. Further details can be referenced on pages 6 and 7 in the
accompanying report. The framework is rooted in strengths based theory, supports the City of
Kitchener’s Strategic Plan and essentially defines the “business” as it relates to our service
provision for youth in our community (recreation and leisure programs, leadership development
and civic engagement).
The research phase of the project included a review and analysis of other municipal service
delivery models and plans, trends, demographics, literature and a compilation of an internal
youth opportunities inventory.
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With a commitment to utilize the data collected from previous youth surveys (2001, 2004 and
2007) yet recognizing its limitations, the project team designed an extensive consultation
process. The goal was to develop a process that would allow for a broader representation of
youth and stakeholders. A variety of tools were used – surveys, focus groups and personal
interviews. Specific groups of youth were indentified as not being well represented in current
programming and so the project team developed more inclusive processes to seek input.
These groups included, Aboriginal youth, youth with disabilities, new Canadian youth, youth
aged 18-24, Kitchener Youth Action Council and LGBTQ youth. Additional stakeholders
included neighbourhood association volunteers, City of Kitchener staff, parents, youth service
providers, minor sport volunteers and the Safe and Healthy Communities Advisory committee.
Additionally, members of Council and corporate management team were interviewed.
From the beginning of the project, it became evident that the City of Kitchener and its current
approach to service provision for youth was consistent with other municipal models. In some
circumstances, we should celebrate our commitment to ensuring youth are a priority. The
current approach to service delivery (direct programs, facilitation and partnerships) is
responsive to community and allows staff to assume a variety of roles.
Early in the development of the project, several strategic themes began to emerge and set
direction for future actions. The project team was able to build on these themes to create six
strategic directions and an implementation plan in order to ensure that the YSS is sustainable
and meets its original objective. The implementation plan (Appendices document) contains
more detail for each of the following strategic directions.
Strategic Direction #1: A “youth friendly” organizational commitment
That the City of Kitchener outlines its commitment to engaging youth in meaningful ways and
valuing them as contributing members of our community through the approval and completion of
the actions identified in the Youth Services Strategy.
Strategic Direction #2: Program and service delivery model–a partnership approach
That the City of Kitchener continue to offer youth programs using a continuum of service
delivery models (facilitation, direct delivery and partnership) with an increased focus on creating
strategic partnerships that will assist in more effectively serving Kitchener’s diverse youth
community.
Strategic Direction #3: Connecting with youth who are not currently engaged
That inclusive and preventative principles that support all youth be entrenched in operational
practices to ensure that the interests of youth are considered across all service delivery areas of
the corporation.
Strategic Direction #4: Accessible, affordable, community-based programs
That City of Kitchener staff identify and develop specific strategies to ensure youth participation
and involvement in programs, services, facilities and committees; with a particular focus given to
working in cooperation with its affiliated partners.
Strategic Direction #5:Youth-centred information, knowledge, resources and training
That staff and City of Kitchener affiliated groups are provided with general information, training
and resources in order to support the provision of services to young people.
Strategic Direction #6:Communication and marketing strategies designed to reach youth
That staff develop a communication strategy that is responsive to youth culture and that
includes specific actions designed to reach parents/guardians and youth-serving agencies.
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FINANCIAL IMPLICATIONS:
Staff is forecasting modest operating costs associated with some of the actions in the
implementation plan. Examples include costs associated with staff training and the
implementation of a communication and engagement plan. The approach in the development of
the Youth Services Strategy was to focus on how the Corporation might improve our service to
youth by building stronger relationships, directing resources in ways that support youth,
supporting staff and volunteers in service delivery and ensuring that we are using our limited
resources in planned and purposeful ways. Financial implications will be reviewed on a case-by-
case basis as youth services staff brings the Implementation Plan to action.
COMMUNICATIONS:
Youth engagement and stakeholder input was and continues to be “a way of doing business” for
staff. Grounded in community development principles, our approach to service delivery is fluid,
flexible and can not happen in isolation. Our success in our ability to achieve our strategic
directions will be closely aligned with our capacity to develop strong relationships, partnerships
and communication links with youth, staff, volunteers and community partners.
ACKNOWLEDGED BY:
Pauline Houston, General Manager, Community Services
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Youth ServicesStrategy
EXECUTIVE SUMMARY
2010
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BACKGROUND
For the past 25 years, the City of Kitchener has endeavored to provide young people in our community with
recreation and leisure opportunities regardless of their situation, ability, economic status or location.
In 2001, the first youth coordinator position was created and, since that time, the youth services unit has
increased to two full-time youth coordinators. The focus of youth services is the provision of leadership
opportunities, positive role models and youth-centered activities that improve young people’s quality of life,
increase their chances for achievement and promote healthy relationships.
Building the Strategy
Building upon our successes, and in an effort to create an even stronger community resource for the future, in
2007, the programs and resource services section of the City of Kitchener’s Community Services Department
engaged in a comprehensive strategic planning process for youth services.
The purpose of this process was to establish an inspiring vision and a clear mandate for youth services that
were based on principles and values agreed upon by the project team and sponsor. The objective of the youth
services strategy (YSS) was to develop a program and service delivery model that would serve as a foundation
for the youth services division providing direction and guidance to staff in planning, resource allocation,
partnership development and program/service development and delivery.
Additionally, the goal was to define specific recommendations (rooted in youth input) that would provide
direction to youth services for the next 10 years. These recommendations and the subsequent implementation
plan will guide how and what staff plan, where they will allocate resources, how they will engage in partnership
development and how programs and services will be developed and delivered.
To accomplish this, the youth services strategy project team began by developing a youth services framework
(vision, mandate, and guiding principles) to create a foundation on which to build the strategy. A strengths-
based framework of asset-building and positive youth engagement that is inclusive and supportive has guided
the work of the unit to date and continues to serveas the cornerstone for future directions and
recommendations. Simply stated, we value the capacity and the strengths of our young people and of our
community over the weaknesses and deficits. It is our belief that a healthy community promotes wellness in
young people and young people who are well build healthy communities. This approach to service delivery has
proven effective and is consistent with the directions outlined in the Leisure Facilities Master Plan (2005). As
such, staff has served and shall continue to act as partners, facilitators and direct program providers in our
service provision.
The focus for youth services became evident during the development of the framework – to provide inclusive
and meaningful opportunities for youth participation in community life through access to resources, recreation,
leadership development and civic engagement.
Some questions remained however: How exactly should we do this? What do the youth want? Where,
specifically, should we focus our limited resources? What would be the service model? Who are our partners?
Youth Engagement
In an effort to answer these questions, the youth services strategy project team researched a variety of
municipalities and youth-serving organizations and reviewed and researched relevant City of Kitchener
literature, reports, plans, and policies as they relate to youth. The project team also conducted an internal
inventory of current youth programs, services and opportunities; reviewed literature to gain a theoretical
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understanding of youth development; and collected and examined information regarding current and future
youth trends and community demographics.
The project team also designed and executed an extensive consultation process to gather input from a variety
of community voices, using surveys, personal interviews, and focus groups toensure that community members
and young people in particular, were engaged and had a voice in this process.
Since youth services had already conducted three community surveys with youth since 2001, the project team
focused on gathering input from specific youth populations through focus groups and surveys (including
Aboriginal youth, youth with disabilities, new Canadian youth, and older youth aged 18 – 24) to determine if
any gaps were apparent and to have a clear understanding of the wants and needs of specific populations.
Feedback was also gathered from people working with youth such as neighbourhood association volunteers,
City of Kitchener staff, parents, youth service providers, Kitchener Youth Action Council and minor sports
group volunteers. Additionally, the team performed personal interviews with members of council and corporate
management.
One hundred and thirty-six (136) participants completed the surveys and more than 200 stakeholders
participated in the focus groups. The data that was collected was subsequently coded and used in the
development of recommendations that related back to the mandate of youth services and therefore
categorized under the themes: civic engagement, leadership development, recreation and leisure.
The result of these efforts is a strategic plan for the City of Kitchener Youth Services that clearly states the
unit’s mission, vision, and the strategic priorities required to fulfill them. It is a guide for their future that clearly
reflects the youth voice of the community and the commitment of youth services to engage youth.
Alignment with City of Kitchener Strategic Plans and Reports
The strategies outlined in the Youth Service Strategy support the City of Kitchener’s Strategic Plan. One of the
community priorities identified in the city’s plan is Quality of Life – that Kitchener is a place of opportunity for
ourselves and our children. City of Kitchener Youth Services has the same vision for Kitchener and feels that
the strategic directions and actions identified in this plan will help achieve that vision.
Additionally, these same strategic directions will help our youth become leaders through engaging them in city
business, processes, programs and services. In support of the objectives of the 2007-2010 Economic
Development Strategy – Our Future is Now – the Corporation should continue to fulfill it’s role in building and
shaping a vibrant and creative community that helps young people feel connected. When young people feel
supported by their community, they are more likely to establish longer term roots and make local choices as
they relate to their education, employment and future residence.
There are additional corporate plans and reports that are in various stages of development and implementation
(e.g. Leisure Facilities Master Plan, Communications Strategy, Volunteer Services Strategy, Culture Plan II)
that we suggest have one common thread as it relates to the youth services strategy. Youth are the
community members who will bring these actions to life - they are the residents of tomorrow who we are
planning for today. In order to ensure success it will be important for staff to incorporate appropriate ways to
engage youth in the development of our future directions.
HIGHLIGHTS
A few key points to highlight from the report include:
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The increase in the youth population of the coming years will result in an increasing demand for programs
and services that focus on the interests and needs of youth.
One in six children in Canada lives in poverty. Almost 19 percent of youth in Kitchener are living in higher
risk neighbourhoods. Living in poverty decreases their opportunities to participate in recreational activities
and programs.
A lack of self-confidence and, in some cases, not having English as a first language may prevent youth
from becoming involved. Virtually all focus group participants and survey respondents indicated that it
would appear that current programming does not meet the needs of Kitchener’s diverse community.
The majority of youth who participated felt that being civically engaged in their community was important (to
make positive contacts, to be involved in something productive and to be more knowledgeable of the
political process).
Neighbourhood association volunteers indicated there was a lack of interest from youth to be involved yet
youth expressed their interest in partaking in activities. This contradiction warrants further investigation of
the current opportunities and whether or not they meet the interests or needs of young people.
Additional planning and the development of communication strategies that highlight current opportunities is
needed. The most effective communication forms were reported to be word of mouth, radio,
Internet/Facebook and at school. This information was consistent with the information collected through
research contributing to the online communications strategy as well as through the Environics survey.
Barriers to participation in recreation and leisure programs have a significant impact on participation rates.
Youth stakeholders reported that they experience several barriers to participating in recreational programs
cost, transportation, school and work demands and not knowing where and when
including:
programs/activities are happening.
STRATEGIC DIRECTIONS
The project team developed six strategic directions that work towards achieving the division’s mandate of
ensuring inclusive and meaningful opportunities for youth participation in community life through access to
resources, recreation, leadership development and civic engagement.
Strategic Direction #1: A “youth friendly” organizational commitment
Recommendation:That the City of Kitchener outlines its commitment to engaging youth in meaningful ways
and valuing them as contributing members of our community through the approval and completion of the
actions identified in the Youth Services Strategy.
Actions:
1a. Conduct a youth engagement and leadership audit (corporate, departmental and community) to ensure
promising practices are implemented.
1b. Apply for youth friendly community status via Playworks.
1c. Provide training and support for staff and volunteers that integrates youth with the City of Kitchener
corporate customer service initiatives.
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1d. Ensure that there is a youth engagement component to recreation and leisure activities and planning
whenever possible.
1e. Integrate the framework principles of the community engagement strategy to develop a tool kit and
checklist to aid staff when engaging youth in consultation processes.
Strategic Direction #2: Program and service delivery model–a partnership approach
Recommendation:That the City of Kitchener continue to offer youth programs using a continuum of service
delivery models (facilitation, direct delivery and partnership) with an increased focus on creating strategic
partnerships that will assist in more effectively serving Kitchener’s diverse youth community.
Actions:
2a. Compile an inventory of potential partnership opportunities with local organizations that will address the
identified gaps, specifically in culturally diverse and female youth programs.
2b. Initiate discussions with the boards of education in order to pursue more opportunities for future
collaboration. Potential areas for investigation include access to facility space, sharing
communication/marketing opportunities and joint programs/projects.
2c. Create strategic partnerships with cultural organizations to ensure that youth have opportunities to enjoy
culturally relevant events and programs.
Strategic Direction #3: Connecting with youth who are not currently engaged
Recommendation:That inclusive and preventative principles that support all youth be entrenched in
operational practices to ensure that the interests of youth are considered across all service delivery areas of
the corporation.
Actions:
3a. Develop partnerships with community agencies to explore further opportunities to engage and support “at
risk” youth.
3b. Develop a training/education module for staff and volunteers that provides information and helpful tools
when serving youth who may be considered "at risk".
3c. Youth services adopt the guiding principles of relationship-based programs, youth engagement and asset-
based approaches and embed them into operational practices.
Strategic Direction #4: Accessible, affordable, community-based programs
Recommendation:That City of Kitchener staff identify and develop specific strategies to ensure youth
participation and involvement in programs, services, facilities and committees; with a particular focus given to
working in cooperation with its affiliated partners.
Actions:
4a. Develop a communication plan designed to ensure youth and families are aware of Leisure Access and
other program fee subsidies.
4b. Review the current inventory of programs and services and work with various divisions, KYAC and
community agencies to identify and ensure a broader repertoire of diverse programming.
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4c. Design direct and indirect programs using the following guiding principle: “That programs are affordable,
positive, inclusive, safe and supervised ways for young people to safely take risks within their
neighbourhood”.
4d. Include transportation details (e.g. maps, bus routes) in all program/event communication.
Strategic Direction #5:Youth-centred information, knowledge, resources and training
Recommendation:That staff and City of Kitchener affiliated groups are provided with general information,
training and resources in order to support the provision of services to young people.
Actions:
5a. Develop a resource package for staff and affiliated groups that includes information relating to working with
and providing successful programs and services for youth.
5b. Develop and implement training programs for staff, volunteers and parents that includes information on
youth development theory and asset-based approaches to program delivery. Additionally, investigate
potential opportunities to leverage the delivery of these programs within existing internal training sessions.
5c. Compile and share community youth demographic information which can be used by staff and affiliated
groups in program planning.
Strategic Direction #6:Communication and marketing strategies designed to reach youth
Recommendation:That staff develop a communication strategy that is responsive to youth culture and that
includes specific actions designed to reach parents/guardians and youth-serving agencies.
Actions:
6a. Develop a youth communication strategy that includes an online component and that is designed to include
parents/guardians, schools and agencies as targeted audiences.
6b. Plan and implement a civic engagement awareness campaign that would focus on how young people can
become more involved in the life of our community (i.e. voting, volunteering, committee participation, how
to deal with issues in the community, mobilization). This action supports and is integrated with the
corporation’s efforts towards developing future adult voters as noted in the People Plan – A Culture of
Community Stewardship.
IMPLEMENTATION
Included in Appendix B is the youth services strategy implementation plan outlining actions related to initiatives
that will help the section reach its goals. It is anticipated that the actions will be implemented beginning in 2010
over a four year period.
The timing identified in the action plan is subject to budget availability, staff resources, community trends and
partnership opportunities. An annual review of the recommendations and actions will be conducted and
modifications will be made as required.
CONCLUSION
A core value of youth services is to listen to and engage youth in meaningful ways. The research is clear -
engaged youth are healthy, happier, and supported in their community networks. As such, we believe it is
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important for people who work with youth to do so using an asset-based model that concentrates on working
with and developing their strengths, rather than “fixing” their deficiencies.
The feedback provided through this strategic planning process was consistent with the previous surveys
conducted with youth and builds on the data recently collected. Deliberate actions were planned during the
consultation process to ensure that a more diversified group of youth had the opportunity to voice their
thoughts and opinions. A continued commitment to meaningfully engage our youth supports the healthy
community vision and strategically places the Youth Services Strategy as an operational vehicle for which to
realize the intended outcomes.
Ultimately, this strategy provides direction for youth services staff enabling them to support youth in our
community while also contributing to the achievement of the vision and priorities outlined in the City of
Kitchener strategic plan.
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Youth ServicesStrategy
FINAL REPORT
2010
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TABLE OF CONTENTS
Page #
1.0Related Definitions and Theories 1
2.0How did we get here? 3
3.0The objective of the Youth Services Strategy 5
4.0Youth Services Strategy Framework 6
4.1Vision, Mandate & Foundations of Our Work 6
5.0Service Delivery 7
6.0Youth Services Strategy Methodology 7
7.0Demographics 9
8.0Civic Engagement 12
9.0Leadership Development 12
10.0Recreation and Leisure 14
11.0Strategic Recommendations and Actions 15
12.0Youth Services Strategy In Action – Implementation 21
13.0Conclusion 21
Appendix A – Project Budget
Appendix B – Youth Services Strategy – Implementation Plan 2010-2013
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1.0 RELATED DEFINITIONS AND THEORIES
Adolescence
Adolescence is a time of great change. During the period of adolescence, youth are experiencing many
developmental changes including physical, cognitive and psycho-social developmental changes. It is
these changes that youth are experiencing that can affect their behaviour in several ways. For example,
the physical changes youth are experiencing may make them clumsy, require more sleep and can
contribute to inconsistencies in controlling their emotions. Cognitive developmental changes may affect
youth behavior by creating a belief that no one has experienced similar feelings and emotions, by
heightening their self-consciousness and by becoming more cause-oriented creating an “it can’t happen
to me” attitude. Psycho-social changes occur and youth spend more time with friends, have an
increased desire for privacy and generate more questions about sexuality. It is through understanding
these important developmental changes that can help adults better relate to youth.
Adolescence is a key transitional time when youth acquire important skills, knowledge, attitudes, and
values. During this unique period of development youth need to be treated appropriately as adolescents
and not as children or adults. When interacting with youth it is important to be aware and remember the
developmental stages to avoid placing unfair expectations on youth and to continue to provide structured
environments for youth that offer many opportunities for praise and exploration. Youth continue to need
ongoing positive experiences with caring adults.
Affiliated Organizations
An affiliated organization is a not-for-profit group that is legally distinct from the city but has a purpose
and mission that benefits or is otherwise related to the city's mission and vision for the community. For
example, organizations currently affiliated with the City of Kitchener include neighbourhood groups and
associations, which help to facilitate recreational and leisure program delivery at community centres, and
minor sports groups that organize affordable recreational, instructional and competitive programs from
local to international caliber.
Civic Engagement
Civic engagement is defined as “feeling a sense of responsibility to the community”. Examples include
getting involved in the community, making the community better by sharing ideas and helping make
important decisions and voting.
Leadership Development Opportunities
The Youth Services Strategy has defined leadership as “setting an example”. Leadership skills develop
with training, practice and coaching and it is important that opportunities are available for youth to “try
out” these skills. Such opportunities may include committee membership, organizing an event or
becoming a Youth Drop-In leader.
LGBTQ
This acronym refers to lesbian, gay, bisexual, transgender and questioning youth in the Waterloo Region.
It is a term intended to emphasize a diversity of “sexuality and gender identity based cultures” and is
used to refer to anyone who is non-heterosexual.
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Recreation and Leisure
For the purposes of this strategy, recreation and leisure refers to organized or structured activities
available outside of school that involve voluntary participation.
Youth
For the purposes of this report, youth has been defined as between the ages of 12-24.
Youth-at-Risk
For the purposes of the youth services strategy, youth-at-risk is the term referring to youth who are not
participating in civic engagement, leadership opportunities and/or recreation and leisure opportunities. As
with any definition, there is the risk of excluding other youth who may not belong to the created definition.
Lack of participation may be due to a variety of reasons that are not addressed in this strategy, however,
the strategy seeks to understand how to better serve the group of youth who are at-risk-based and
unable to participate.
Youth Engagement
According to the Centre of Excellence for Youth Engagement, youth engagement is “the meaningful
participation and sustained involvement of a young person in an activity, with a focus outside of him or
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herself” (Centre of Excellence for Youth Engagement, 2004, p. 1). It is not a “what” or a “where”—young
people can become engaged in almost any kind of activity and it can happen in almost any kind of
setting. Rather, engagement is a “how”. It is a process that provides “opportunities for youth to take
responsibility and leadership while working with caring adults who value, respect and share power with
2
them” (Ontario Trillium Foundation, 2007, p. 2). It is also a connection that is meaningful to the young
people who are involved.
Young people are not the only ones to benefit from youth engagement; the adults and organizations who
work with them can also experience benefits. In a study conducted by Zeldin and colleagues, it was
found that working in partnership with young people helped many adults feel more positively about youth
in general, become more confident in their ability to work with and relate to youth, and gain a better
understanding of young people's needs and concerns. This resulted in the adults being able to offer
programming that was more effective and responsive to young people's needs. The organizations also
benefited from their partnerships with youth as they became better connected to their communities, more
aware of the importance of engaging a diversity of community members in decision making, and adopted
the engagement philosophy as part of the organizational culture (Zeldin, McDaniel, Topitzes, & Calvert,
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2000).
1
Centre of Excellence for Youth Engagement (2004). What is youth engagement? Toronto: Centre of Excellence
for Youth Engagement.
2
The Ontatio Trillium Foundation (2007). Research Brief 102 – Meeting the need of Ontario's youth. Available
online at http://www.trilliumfoundation.org/cms/en/cms/html/briefs.aspx?menuid=258.
3
Zeldin, S., McDaniel, A. K., Topitzes, D., & Calvert, M. (2000). Youth in decision-making: A study on the impacts
of youth on adults and organizations. National 4-H Council: University of Wisconsin-Madison.
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Youth-Friendly
For the purposes of the strategy, youth-friendly is defined as actively supporting youth and providing
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youth with opportunities to grow and develop.
Intervention and Prevention Approaches
In the context of social development programs and our work in Youth Services, we understand how
important it is to provide positive opportunities and programs for youth to partake in – prevention.
Intervention type strategies seek to eliminate or manage an issue or problem that already exists by way
of understanding it and learning to control its course. According to the Youth Crime Fact Sheet
published by the Waterloo Region Crime Prevention Council (2007), it costs $95,826.37 to imprison a
young person for one year. Alternatively, if those dollars were used to fund a full years’ worth of
recreation programs and any associated equipment and transportation costs, approximately fifty youth
would benefit.
2.0HOW DID WE GET HERE?
It is often said that “young people are the leaders of today”. The City of Kitchener supports this theory
and strives to create inclusive opportunities, programs and services that are meaningful for youth. We
believe that working with youth is a process of mutual enrichment and benefits our entire community and
contributes towards the community priority “Quality of Life” by helping Kitchener become a place of
opportunity for ourselves and our children.
Additionally, these same strategic directions will help our youth become leaders through engaging them
in city business and processes.
Our work does not, and cannot happen in isolation – partnerships, collaborations and networks with
neighbourhood associations, police services, local youth-serving agencies, staff and community/sports
groups are vital to ensuring a holistic approach to service provision.
The City of Kitchener’s commitment to serving young people in our community has evolved and
intensified over time. Examples of early programs and services that were delivered directly by staff
included summer camps, summer youth drop-in, a summer youth leadership development program and
a recreation grant program that supported neighbourhood associations in the delivery of recreation and
leisure programs in community centres. It is important to note the valuable role that neighbourhood
associations have and, continue to have, in the delivery of recreation programs for youth and the
distinction between programs delivered directly by city staff and those delivered indirectly by
neighbourhood associations.
In 2000, the Community Services Department’s Operational Review was completed by F.J. Galloway
Associates Inc. (March, 2000). The review highlighted three “higher need service areas” – one of which
was youth. It further suggested that our role was not to be a sole mechanism to support youth but rather
to be a key community partner in ensuring the development of youth in our community. A direct outcome
of the review was the creation of one full time Youth Services Coordinator position.
The Leisure Facilities Master Plan (F.J. Galloway Associates Inc., 2005) provided a comprehensive
foundation for the development of facilities and services. This plan has assisted the department with the
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www.playworks.ca
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provision of a vast array of services for our richly diverse community. Specifically, it recommends that
the city ensure that there is priority given to youth services and that a “youth strategy” be initiated.
The Community Strategic Plan, A Plan for a Healthy Kitchener (2007 to 2027) provides a single strategic
approach to delivering results that are essential to the health and vitality of the city. A Plan for a Healthy
Kitchener concurs with the recommendations in the Leisure Facilities Master Plan that are noted above
and further suggests that youth services need to be increasingly considered as a priority for city operated
and/or supported community resource centres.
More importantly, connecting with, listening to and engaging youth has, and continues to be, a core
value in Youth Services. Since 2000, three youth surveys have been completed in different
neighbourhoods in Kitchener. A brief summary of the purpose of these surveys is as follows:
1. Reflections on Youth, 2002:
Reflected on the correlation of access to recreation for youth and crime
reduction. Over 230 youth and various youth-serving organizations, school board trustees, members of
the business community and community leaders in the City of Kitchener were consulted to understand
the current reality for youth.
2. Reaching Out to Youth, 2004:
An issue paper produced by Youth Services which reports on
research conducted in the Centreville Chicopee neighbourhood and area. Essentially, the process
involved asking youth a variety of questions relating to their motivations and barriers for/to participation.
Over 185 youth, 12-17 years of age, with the mean age of 14.6 years old were surveyed.
3. Reaching Out to Youth, 2007:
This survey was conducted in the Doon Pioneer Park area. Over 630
youth aged 10-19+ years were surveyed. The goal of this survey was to develop an understanding from
youth as it related to their awareness of current services available to them and their wants and needs
regarding appropriate leisure and social development activities and programs.
Interestingly, common themes and trends emerged from each survey. They are as follows:
Barriers to engagement and participation in recreation programs included access to transportation,
communication/marketing (respondents were not aware of the programs that currently exist),
user/registration fees, facilities not being “youth friendly” or welcoming for youth.
Youth tend to be involved in low cost or free activities that do not require a great deal of equipment or
resources such as basketball or soccer.
Activities that they would like to try or experience more frequently included those that were more
costly or extreme sports activities such as organized sports, out-of town skate parks, video parks,
entertainment centres, playing music, skiing, snowboarding, rock-climbing.
Young people reported that the activities they do without the need for resources or support include
hanging out with friends, shopping, going to parties, listening to music, internet, watching television
and playing video games.
Staff were then left with the question, what did we learn from the surveys and what does it mean for our
service delivery model? While the specific recommendations and next steps will be discussed later in this
report, it is important to highlight that the knowledge we gained through these processes essentially
provided the backdrop and served as a catalyst for the development of the youth services strategy.
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Several of the themes were consistent with best practice research. They are summarized below:
Youth interests are varied and youth programs/events should reflect this.
Opportunities where youth can bring their friends, make new friends, learn through challenge and
competition, have a voice in programming and a place to just hang out are important.
Programs with high registration fees need to be discounted.
Program design should be geared to specific age groups and, at times, gender.
Communication mediums need to be consistent with young people’s preferred communication styles.
Programs need to be low-cost or free.
Programs and facilities should be “youth friendly”. This includes a broad range of options including
facility design, staff that are skilled in supporting youth and programs that are designed with youth
interests in mind.
Parents and guardians play an important role in supporting participation.
Neighbourhood based programming provides improved access and can assist with the transportation
barriers.
Encourage youth to bring friends to activities.
3.0 THE OBJECTIVE OF THE YOUTH SERVICES STRATEGY
The objective of the youth services strategy (YSS) was to develop a program and service delivery model
that would serve as a foundation for youth services providing direction and guidance to staff in planning,
resource allocation, partnership development and program/service development and delivery.
From the conception of the YSS terms of reference, the project team stressed the importance that the
program and service delivery model be grounded in a strengths-based/asset theory. As such, the project
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as a thread for the YSS. Through extensive
team adopted the 40 Developmental Assets framework
research, the Search Institute (2002) has identified 40 Developmental Assets which powerfully influence
adolescent behaviors. These assets include positive relationships, opportunities, competencies, value
and self-perceptions that divert youth from risky behaviours and promote positive behaviors and civic
engagement.
The 40 Developmental Assets (Search Institute) framework demonstrates that, through relationships with
caring adults, youth build the strengths and skills that they need to thrive as adults. The Search Institute
also found that while everyone can build assets, many young people are not experiencing them. Staff
and volunteers who use the asset framework - through relationship based programming – can enhance
young people’s experiences and thus promote the development of healthy, successful young people.
Providing responsive programming to youth is important because “[young] people need opportunities –
outside of school – to learn and develop new skills and interests with other youth and adults” (The Asset
Approach, 40 Elements of Healthy Development, Search Institute, 2002).
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Search Institute, The Asset Approach, 2002
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4.0 YOUTH SERVICES STRATEGY FRAMEWORK
6
A report published by the United Way Toronto (2008) reviews youth policy models from Canada and
other jurisdictions and states that policy development without supporting frameworks can lead to an
isolation of goals and outcomes. A youth policy framework is defined as:
A practical demonstration and declaration of the priority and directions that a country intends to
give to the development of its young women and men. A [youth policy framework] specifically
represents an inclusive statement that encapsulates the elements of vision, framework and
realistic guidelines from which strategies and initiatives can be developed to facilitate meaningful
youth participation and development. (The Commonwealth Youth Programme, 1990).
The report concluded that while there is progress being made through policy responses to youth issues,
there continues to be “no overarching vision unifying these initiatives” (United Way, 2008). It was
determined that a youth policy framework that is outcomes based could help in building a coordinated
system between government action and other partners involved with youth to assist in guiding the
strategies and promoting positive outcomes for youth.
Recognizing the value of framework development for ensuring long term sustainability, the Youth
Services Strategy project team developed a “Youth Services Framework”. This process was facilitated by
Doris T’Mikulu from the Waterloo Region Crime Prevention Council. The framework includes a vision
and mandate for youth services, as well as foundational principles for service provision for young people.
The framework served as a cornerstone in the development of the youth services strategy and will
continue to guide the work of staff in youth services.
4.1 VISION, MANDATE AND FOUNDATIONS OF OUR WORK
Vision: We are a leader in building a community in which youth in all their diversity are active and
influential members; they feel safe, supported in their development, valued and connected.
Mandate:We ensure inclusive and meaningful opportunities for youth participation in community life
through access to resources, recreation, leadership development and civic engagement.
Foundations of our work (our work with youth is anchored in knowledge and framed by values):
Every youth has strengths.
Youth’s transition from childhood to adulthood is marked by searching for identity, by challenging
traditional values and ways of doing things, and by struggling against boundaries.
Youth thrive when they know they belong and feel connected, and when the community, in turn,
includes youth.
Every young person has the potential of developing leadership skills, given a supportive environment
with positive role models, challenging situations and experiential learning.
Youth civic engagement happens when young people develop and act upon a heightened sense of
responsibility to their community within a wide range of activities and within a supportive
environment.
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United Way, Youth Policy: What Works and What Doesn’t, 2008
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Youth reflect the diversity of society, be it ethnicity, race, religion, gender, sexual orientation, ability,
language, socio-economic status or lifestyle.
Diversity is integrated by youth in new and enriching ways.
Information, programs and services must be responsive to the diverse characteristics and needs of
youth.
Youth-centered services and programs within the City of Kitchener require equitable resources,
advocacy and coordination to make them affordable and accessible.
The diverse capacities of young people can best be addressed through collaborative agreements
among many community sectors and organizations.
We have a crucial role to play in forming and nurturing partnerships for the benefit of all youth, and
ultimately for the benefit of the community as a whole.
A youth friendly community is a stronger, safer and healthier community.
5.0 SERVICE DELIVERY
There does not appear to be any one “best practice” regarding how to deliver services to youth.
Common or “promising” practices among other municipalities that were researched (Ajax, Markham,
Pickering, Vaughn, Whitby, Richmond Hill, Oshawa, Oakville, Brampton, St. Catharines) included the use
of a combination of facilitation, partnerships and direct delivery of services. In using a combination of
these three approaches, the opportunities for resource sharing, improved communication and
collaboration among service providers is enhanced.
We can celebrate that our current approaches to program and service delivery are consistent with other
models and position the City of Kitchener well. Whether it be direct delivery (summer playgrounds,
aquatics programs, youth drop-in), facilitation (supporting minor sports organizations and neighbourhood
associations in the delivery of youth programs and services) or partnership initiatives (ONE KCI, Pride
Prom) staff will need to continue to adapt, support and respond to specific opportunities as appropriate.
In order to address the competing demand for programming space and financial barriers to participation,
greater effort may be considered in partnership development initiatives.
6.0 YOUTH SERVICES STRATEGY METHODOLOGY
Utilizing project management principles, the development of the youth services strategy was completed
through the implementation of six main phases:
1.
Development of terms of reference, project plan, project team
2.
Research – internal/external inventory of programs, services, best practices, trends, review of other
municipal youth strategies, youth development theory, review of demographics, literature review of
relevant City of Kitchener reports and plan.
3.
Development of a youth services framework
4.
Implementation of a consultation process
5.
Generation of a report
6.
Implementation and next steps
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A budget was allocated to the development of the YSS and the details of this budget can be reviewed in
Appendix A.
An intra-departmental project team was created in order to ensure a broad perspective into the
development of the YSS. Project team members included:
Jenn Campbell, Aquatics Supervisor, Briethaupt Centre
Colleen Collins, Marketing and Communications Associate
John Cooper, Coordinator of Athletics
Wynne Dawson, District Facilitator, Downtown Community Centre
Susan Josic, Resource Centre Coordinator, Centreville Chicopee Community Centre
Janice Ouellette, Facilitator of Volunteer Resources
Marla Pender, Youth Coordinator
Breanna Pilon, Youth Coordinator
Kristy Themistocleous, Information Assistant
Lori Palubeski, Manager, Program and Resource Services, Project Lead
Kathleen Woodcock, Manager, Departmental Planning, Research and Technical Support, Project
Facilitator
Mark Hildebrand, Director, Community Programs and Services, Project Sponsor
Natalie Forde, Forde Consulting, Research Assistant
In the initial conceptual discussions of the YSS, the project team decided to honor the voices and input of
youth who had previously participated in the various surveys. We have been told by youth to “stop asking
and start doing”. The previous youth surveys had provided a rich foundation of information from youth
already involved in programs. Therefore, the project team decided to build on the data that had already
been collected and spent considerable resources on designing a consultation process that would engage
stakeholders who had not been heard previously. As such, an intensive stakeholder consultation process
was designed that included:
Focus groups with City of Kitchener advisory committees (Safe and Healthy Community Advisory
Committee, Kitchener Youth Action Council)
One-on-one interviews with Council and Senior Management
Focus groups and surveys with neighbourhood associations
Parent surveys and parent focus groups
Staff surveys and staff focus groups
Focus groups for youth who have not traditionally been consumers of our services: LGBTQ, youth
aged 18-24, Aboriginal youth, immigrant youth, youth involved with ROOF and youth with disabilities
Surveys with minor sports organizations
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One hundred and thirty-six participants completed the surveys and over two hundred stakeholders
participated in the focus groups. The data that was collected was subsequently coded and used in the
development of recommendations that support the mandate of youth services and therefore categorized
under the themes: civic engagement, leadership development, recreation and leisure.
The process used in collecting feedback from youth for this strategy was in line with the directions
outlined in the city’s strategic plan with regard to diversityand leadership and engagement. By ensuring
youth had a voice in developing this strategy, and ensuring we heard from youth with disabilities and
immigrant and aboriginal youth, we attempted to collect input from a group reflective of our community.
7.0 DEMOGRAPHICS
The following provides a general overview of the demographics that the project team utilized and referred
to during the development of the youth services strategy.
National Profile
The youth population is expected to decrease: In 2004, 32% of all Canadians were children and
youth under age 25, numbering more than 10 million. It is estimated that by 2020, the number of
children and youth under age 25 will decline to 26% of the population of Canadians.
Youth poverty: One in six children in Canada lives in poverty. Living in poverty decreases their
opportunities to participate in recreational and leisure activities and programs. Children living in
lower-income families participate less often in recreational activities than those living in higher-
income families.
Employment: Sixty-eight percent of youth between the ages of 18-24 are either employed or actively
looking for work. The unemployment rate for youth was 10.3% in 2004, despite youth being more
highly educated than ever before.
Volunteerism:In 2003, 39% of youth between 18-24 were volunteering in their communities. Young
Canadians, aged 15 to 24, have a higher rate of volunteering (55%) in Canada than any other age
group. Their average annual volunteer hours were 169 in 2004. Total annual volunteer hours for this
age group were 9.4 million hours in 2004. They represent 16% of the population but do 19% of the
volunteer hours. Two-thirds or 65% of 15 to 19 year olds volunteered in 2004. Forty-three percent of
20 to 24 year olds volunteered in 2004.
Youth voter rates: Youth voting rates are lower than those of older Canadians.
Diversity:Thirty-seven percent of immigrants who arrived in Canada in 2004 were under the age of
25. In the Aboriginal population, fifty-one percent are youth. There appears to be gaps in
demographical information for LGBTQ youth. A growing population of youth are living at home longer
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and delaying families of their own. Youth with disabilities also struggle with participating in various
activities and programs due to their disability.
Waterloo Region Profile
The youth population is expected to increase:According to the 2006 Census, the youth population
accounted for 161,940 out of 478,120 of the population. Between the year 2001 and 2031, the youth
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Time online edition, 2004
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8
population in the Region is expected to increase. Youth aged 0-15 is estimated to increase by
29.7%. Youth aged 16-30 is expected to increase by 37.9%.
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Youth poverty:According to Waterloo’s Vital Signs, 2007, the child poverty rate for the Region of
Waterloo was 16.4% in 2005. Twelve percent of all families in Waterloo Region are considered to be
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.
low income
Employment:The youth unemployment rate in Waterloo Region age 15-24 in 2006 was 9.8%.
Volunteerism: The volunteer rate in Waterloo Region age 15+ in 2000 was 27.1%.
Youth voter rates are consistent with the national trend: In 2006, during an online chat with the Senior
Globe Writer, Michael Valpy, he stated that the statistics in youth voter turn out continues to be very
low largely due to the low priority in youth interests/issues in most election campaigns.
Diversity: Of all the immigrants in Waterloo Region, forty-two percent are under 20 years old. There
appear to be gaps in demographical information about LGBTQ youth.
City of Kitchener Profile
Youth population: The City of Kitchener has a population of 224,500 (Region of Waterloo, 2008). The
total population of youth aged 10 to 24 is 42,080 which represents 20.6% of the population (2006
Census).
Table 1: Population Age Profile – Statistics Canada 2006
KitchenerOntario
Age Cohort TotalMaleFemaleTotalMaleFemale
Total population
204,665100,750103,91512,160,2855,930,7006,229,580
0 to 4 years
12,2656,3055,960670,770343,475327,290
5 to 9 years
12,2956,3605,930721,590369,670351,920
10 to 14 years
13,3606,8156,550818,445420,705397,740
15 to 19 years
13,6956,9806,715833,115427,185405,925
20 to 24 years
14,9557,4307,525797,255400,445396,815
Median age of the population
36.635.737.639.038.139.9
% of the population aged 15 and over 81.580.782.381.880.982.7
*Data presented in the above table will have some addition errors based on a procedure Statistics Canada applies
to Census data to protect the confidentiality of Canadians.
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Regional Growth and Our Human Services, 2006
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Waterloo’s Vital Signs, 2007
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Enhancing Services and Supports for Immigrant Youth, 2000
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Population projections: According to the Region of Waterloo, the youth population in Kitchener will
increase by the year 2031 as illustrated in Figure 1:
It is forecasted that the increase in the youth population will result in increasing demand for programs
and services that focus on the interests and needs of youth.
Youth poverty: According to the 2006 Census, 4,230 youth between the ages of 15 and 24 lived in a
“low income situation”. Almost nineteen percent of youth in Kitchener are living in higher risk
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neighbourhoods.
Volunteerism:There appears to be some gaps in the information for volunteer rates, however, there
are many opportunities within the City of Kitchener to volunteer and there are many incentives to
volunteer within the community (i.e. community service hours for school, experience for future
employment).
Diversity:Immigrants coming to Waterloo Region settled primarily in Kitchener in the late 1990’s.
Nine hundred seventy-four children between the ages of 0-17 arrived in Kitchener between 1996 and
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1998. Although there is little demographical data for LGBTQ youth, there are a number of programs
available to this youth group, including OKTOBME and the Lesbian, Gay, Bi, Trans Youth Line.
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Programs and services must reflect this
There are 2,005 Aboriginal youth living in Kitchener.
diversity.
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Region of Waterloo, Planning, Housing, and Community Services (2007). Area Municipal Five-year Cohort
Projections to 2031 Based on the Interim Population Forecasts of Feb. 2006
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Neighbourhood Poverty: Urban Poverty in Canada, 2000.
13
Enhancing Services and Supports for Immigrant Youth in the Waterloo Region, 2000.
14
Census 2006
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8.0 CIVIC ENGAGEMENT
For the purposes of the youth services strategy, the project team defined civic engagement as “feeling a
sense of responsibility to the community”. While it is important to recognize that civic engagement means
different things for different people, some common examples include volunteering, voting, sharing ideas
in a community forum or organizing neighbourhood events. Specifically, the Kitchener Youth Action
Council (KYAC) is one opportunity for youth to become civically engaged. It was found that other
municipalities (Ajax, Waterloo, and Brampton) also support the facilitation of “youth advisory councils” as
a means of ensuring youth input. Kitchener is to be commended for its long history in ensuring that there
is an opportunity for youth to have a voice.
Review and analysis of the data collected from the stakeholder process indicated that the majority of
youth who participated felt that being civically engaged in their community was important. They
expressed that it has afforded them opportunities to make positive contacts, to be involved in something
productive and to be more knowledgeable of the political process. Youth noted that a lack of self-
confidence and, in some cases, not having English as a first language prevented them from becoming
involved. Virtually all of the stakeholders cited barriers to involvement as costs, transportation, being too
busy with school and work and not knowing how or where to become involved. Additionally, youth
stakeholders commented that community meetings are not “youth-friendly”. They do not feel welcome
and they feel disconnected from current communication mediums. Youth with disabilities cited a lack of
accessibility as a barrier (e.g. wheelchair access). Staff indicated the need for additional training in
ensuring a high level of customer service for youth. Youth stakeholder participants described voting as a
confusing process and were not clear on where to get information. They shared that their opinions are
not heard and that there are not enough opportunities to become involved.
One theme that emerged through the consultation process was that youth noted that there were a limited
number of opportunities for them to become civically engaged. When asked what civic engagement
opportunities the City of Kitchener should consider offering, stakeholders suggested: fundraising,
volunteering, voting, leading youth events and additional promotion of the KYAC. Interestingly, interviews
with senior management and Council indicated that there are opportunities for youth to become civically
engaged. It would appear that additional planning and the development of communication strategies that
highlight current opportunities is needed. When asked how youth may become more involved in the life
of the corporation, senior management and council members interviewed suggested the development of
opportunities for youth to participate on committees, ensuring that our website was responsive to how
youth seek out information and youth engagement in municipal politics. It was stated that youth seem
“once removed” from corporate plans and initiatives and there was concern that the voice of our youth is
not being adequately reflected.
9.0 LEADERSHIP DEVELOPMENT
Leadership opportunities, formal or informal, can provide young people with a safe and supported
opportunity to learn a new skill. As with civic engagement opportunities, there are more leadership
opportunities offered for youth then they would appear to realize. Currently, a range of leadership
development opportunities exists within the City of Kitchener including:
Employment (summer playgrounds, youth drop-in, community resource centres, arenas, parks
operation, aquatics)
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Volunteer (community service hours, special events, youth drop-in, neighbourhood associations,
aquatics)
Co-op and school placements (university, college, high school)
Minor Sports (coaching, officiating, board of directors or fundraising)
Leadership development programs (Building Youth Leadership Development program)
City of Kitchener advisory committees (KYAC, Safe and Healthy Community Advisory Committee)
Kitchener Youth Crew (core component of the City of Kitchener youth programs offering youth the
opportunity to learn and practice new skills and contribute in meaningful ways to the program)
Research of other municipalities (Vaughan, Waterloo, Brampton, Richmond Hill, and Pickering) indicated
Kitchener’s approach to offering a broad range of leadership development opportunities was not unique.
However, the design and the development of the “Kitchener Youth Crew” can be considered as “out of
the box”, supports adolescent development theories and allows youth staff to respond and support young
people informally.
The stakeholder group of youth between the ages of 18 and 24 cited that they would like more “life
skills” programs and information on available opportunities (i.e., where to apply for scholarships).
Additionally, they expressed that there were not enough “leadership type” program opportunities in
Kitchener. The Kitchener Youth Action Council indicated there was a need for additional youth mentors.
All of the youth who responded to the survey stated that they either already participate or would like to
participate in leadership development programs or opportunities. As well, they stated that they felt
leadership development was important and that there is a need for increased opportunities. Elements
that would make leadership experiences more attractive included experiences that they could share with
their friends and those that were “run” by youth.
Sixty-five percent of the neighbourhood associations who participated indicated that they offer leadership
opportunities, including volunteer program leader positions. Some of the challenges to offering such
programs were noted by respondents as a lack of interest from youth, not a program priority and a lack of
space. It is interesting to note that neighbourhood association volunteers cited a lack of interest from
youth yet youth expressed their interest in partaking in such activities. This dichotomy warrants a deeper
review of leadership development opportunities that are currently available and whether or not they meet
the interests or needs of young people.
Fifty-seven percent of City of Kitchener staff felt that there were not enough innovative leadership
opportunities being offered. When asked what opportunities should be considered, they listed
engagement in youth councils, mentoring programs and community-based leadership programs. Staff
also cited wanting training on “how to focus on youth’s strengths”, programming ideas on how to create
leadership opportunities and more flexibility in their jobs so that they may spend more time engaging with
and developing relationships with youth.
Leadership development suggestions that were generated from senior management and councillor
interviews included: job shadowing, youth conferences, a mentorship program, on the job training, and
youth observers on committees.
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It is important to note that stakeholders repeatedly questioned how the city may better engage or reach
the youth in our community who maybe considered “on the fringe” or “at risk”.
10.0 RECREATION AND LEISURE
An internal and external inventory performed by the project team confirmed that the City of Kitchener and
its affiliated minor sport organizations and neighbourhood associations provide a vast “menu” of
recreation and leisure programs for youth such as drop-in programs, recreational and competitive league
sports, special events and a mobile skateboard park. Despite this wide range, barriers to participation (as
noted below) in recreation and leisure programs have a significant impact on participation rates. Virtually
all focus group participants and survey respondents indicated that it would appear that current
programming does not meet the needs of Kitchener’s diverse community. Specifically, there is a need for
more programming for female youth, more gender equity in sport programs and more attention given to
ethnic and cultural recreational and leisure interests.
As would be expected, youth indicated an interest in a variety of recreational and leisure activities and
age, gender and demographics influenced what choices they make. All of the data that was gathered by
youth stakeholder participants indicated that they enjoyed both structured and unstructured activities.
Consistency, planned activities and being aware of upcoming programs were noted as advantages of
structured programs compared to the advantages of unstructured programs; program flexibility and not
having to commit to attending a program on a regular basis. The following is a list of programs that youth
reported as having participated in:
attending dances
sports (recreational and competitive)
baking/cooking
hanging out with friends, shopping, going to the movies
listening to music
online/computer, video games
volunteering
When asked what activities youth would like to try, they offered:
“extreme” sports for example skydiving, paintballing, rock climbing, hand gliding, parasailing, bungee
jumping
skiing
karate
photography
mountain biking
hot-air balloon ride
We can summarize from both of the above lists that program costs and ease of access are key factors in
the choices youth make regarding how they spend their leisure time. Youth stakeholders reported that
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they experience several barriers to participating in recreational programs including cost, transportation,
school and work demands and not knowing where and when programs/activities are happening. The
most effective communication forms were reported to be word of mouth, radio, Internet/Facebook and at
school. Safety was not cited as a barrier, nor did participants report feeling concerned with their personal
safety while attending programs. However, concerns relating to the safe arrival home after leaving
programs were expressed.
In a focus group with participants who, for the purposes of this strategy are categorized as “at risk”, youth
expressed that while they were aware of some programs, cost prevented them from becoming involved.
Additionally, young people did not feel welcome in community centres and reported that they would like
more space to “hang out”. They recommended using Grand River Transit buses and radio as tools for
communicating program information. Similarly, word of mouth was a popular way of learning what
activities their friends were participating in. Parents of this youth demographic reported that program fees
created increased barriers for families and that they were not aware of the program fee subsidies (e.g.
Leisure Access). Parents also cited busy schedules as an additional challenge to participation.
Neighbourhood association respondents and staff shared the need for additional resources (dollars and
facility space) and training in order to provide increased programs for youth. It was suggested that
components of a training program could include effective communication with youth, how to design a
youth-friendly space or facility, tools for youth engagement and youth cultural norms.
Parents felt that the program locations are safe, the times are convenient and that it is a positive social
experience for their children. When asked what they might change, they suggested providing a wider
variety of programs, including youth in the program planning and ensuring that programs are affordable.
Parents reported that they are aware fee subsidy programs exist but feel access to these is limited and,
in some cases, were unaware of how to access them. Further, parents shared that there is a need to
ensure that programs are age appropriate and designed to support smaller age cohorts. Additional
barriers to participation were listed as not being aware of what is being offered, their daughter/son being
too busy or not interested in the programs and job schedules. Generally, parents felt that programs were
safe, however, they did clarify that there could be increased supervision within the programs.
11.0 STRATEGIC RECOMMENDATIONS AND ACTIONS
Encouragingly, the analysis of the consultation data and the review of the relevant research confirmed
that indeed the City of Kitchener invests in and values the involvement of youth in our community. What
has been of particular interest to the project team was the clear emergence of six strategic directions
during the development of the youth services strategy. These directions have essentially provided the
context for the development of recommendations for future action.
Strategic Direction #1: A” youth friendly” organizational commitment
Youth friendly organizations which have achieved success in engaging youth and creating a youth
friendly culture share similar practices as they relate to ensuring that a youth perspective is considered in
decision-making and that youth feel welcome. Certainly, the City of Kitchener has made advancements
in this regard however there are opportunities for further development.
A youth friendly organization values the involvement of youth and ensures that all attempts are made in
order to include young people at the beginning of processes. Organizations understand that the roles
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youth assume have meaning and are relevant for their stage of development. Youth perform tasks that
allow them to feel in control and that they are contributing to decision making, that they feel heard and
that they are given the support and tools they require in order to successfully complete the task at hand.
Ultimately, youth friendly organizations create an environment where youth feel connected while working
with others to contribute to their community.
Youth stakeholders reported that adults don’t listen, that “things” are not youth friendly at city facilities
and that they are battling negative perceptions in regards to their age group. It does take time to engage
youth and this investment is necessary in order to provide an optimal environment that will ensure youth
feel welcome to participate. Examples of strategies that organizations can implement include avoiding
“tokenism”, providing training and mentorship opportunities and scheduling accessible meetings that are
not limited by transportation, education or experience.
It is our hope that the City of Kitchener can strive to be a leader in youth friendly organizational
processes. We recognize that a healthy community in its broadest sense embraces and supports its
youth members. This is not something that we can accomplish on our own and there are examples of
communities where agencies, groups, organizations and businesses have collaborated to strive for a
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defines a community
youth friendly community. Playworks: The Ontario Partnership for Active Youth
that is youth friendly as communities that ensure their youth (ages 13 - 19) have continuous access to a
diversity of 'play' (play being anything a young person does in his/her free time which could include sport,
recreation, drama, dance, music, the arts, volunteerism, leadership development, service leadership
and/or civic engagement). Playworks has instituted a Youth Friendly Community Recognition Program
that acknowledges the work communities are doing in this area.
Corporately, the City of Kitchener is challenged to ingrain and make official the corporate commitment to
engaging youth. This commitment can be reflected in policies, procedures, programs and actions within
the organization. Whether a young person wishes to involve themselves in a committee of council, have
input into a future park development or simply enjoy the amenities of our facilities, it will be necessary for
the organization to remove the barriers to their participation.
Recommendation:That the City of Kitchener outlines its commitment to engaging youth in meaningful
ways and valuing them as contributing members of our community through the approval and completion
of the actions identified in the Youth Services Strategy (YSS).
Actions:
1a. Conduct a youth engagement and leadership audit (corporate, departmental and community) to
ensure promising practices are implemented.
1b. Apply for youth friendly community status via Playworks.
1c. Provide training and support for staff and volunteers that integrates youth with the City of Kitchener
corporate customer service initiatives.
1d. Ensure that there is a youth engagement component to recreation and leisure activities and planning
whenever possible.
1e. Integrate the framework principles of the community engagement strategy to develop a tool kit and
checklist to aid staff when engaging youth in consultation processes.
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www.playworks.ca
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Strategic Direction #2: Program and service delivery model–a partnership approach
There does not appear to be one clear promising practice regarding how to deliver services for youth.
Promising practices among researched municipalities (i.e. Ajax, Markham, Pickering, Vaughn, Whitby,
Richmond Hill, Oshawa, Oakville, Brampton, and St. Catharines) suggest the implementation of a
combination of approaches (facilitation, partnership and direct delivery) depending on a variety of factors
including the program objectives, the municipality’s capacity to deliver the program and existing
community partnerships. By implementing a combination of these three approaches, a wider variety of
programs and services are possible and a greater diversity of youth can be served.
Facilitation, partnership and direct program delivery are service delivery models currently used by the
City of Kitchener. Examples of programs that are delivered using a facilitation model include minor sports
programs that are implemented by the various minor sport organizations and recreation and leisure
programs that are offered by neighbourhood associations. Each receives support, resources and
consultation from community services staff. Direct programs and services are implemented via staff and
examples include aquatic programs, summer playgrounds and youth drop-in (YDI). Lastly, partnerships
with community agencies, organizations and school boards ensure that a broader range of young people
have access to programs. It is our experience that by working with community organizations such as
Reaching Our Outdoor Friends (ROOF), the Mennonite Coalition for Refugee Support (MCRS), and
YWCA of Kitchener-Waterloo, the City of Kitchener can better ensure that a diversity of youth become
connected and engaged in what the city has to offer. Other examples of successful partnerships in which
youth services is currently involved include:
ONE KCI - Community collaboration with participation from various youth stakeholders in Kitchener’s
downtown that has secured funding via the Urban and Priority High Schools Funding from the Ministry of
Education. This funding has enabled the Waterloo Region District School Board to partner with the City
of Kitchener to develop and implement a new youth drop-in program.
Pride Prom - In partnership with the Kitchener Youth Action Council and KW Counselling's OK2BME
program, the first annual Pride Prom was organized in 2008. This is a youth-led event for LGBTQ youth
and their allies. This event is the first of its kind in this area and is one of the key ways that Youth
Services is currently serving LGBTQ youth. This partnership has grown beyond the Pride Prom—
OK2BME has been accessing programming space and attending Youth Drop-in at the Downtown
Community Centre and OK2BME staff is providing training and resources for youth services summer
staff.
To date, this approach to service delivery has proven effective and is consistent with the directions
outlined in the Leisure Facilities Master Plan (2005). It is important to note however that survey and focus
group responses revealed a need for an increase in programs and services in the areas of programming
for female youth as well as for increased cultural and ethnically diverse recreational and leisure interests.
Given that there are local agencies with expertise in these areas, it will be necessary for staff to explore
further opportunities to work with the appropriate partners in order to implement new and creative
opportunities for youth that we could not otherwise offer on our own.
Recommendation:That the City of Kitchener continue to offer youth programs using a continuum of
service delivery models (facilitation, direct delivery and partnership) with an increased focus on creating
strategic partnerships that will assist in more effectively serving Kitchener’s diverse youth community.
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Actions:
2a. Compile an inventory of potential partnership opportunities with local organizations that will address
the identified gaps, specifically in culturally diverse and female youth programs.
2b. Initiate discussions with the boards of education in order to pursue more opportunities for future
collaboration. Potential areas for investigation include access to facility space, sharing
communication/marketing opportunities and joint programs/projects.
2c. Create strategic partnerships with cultural organizations to ensure that youth have opportunities to
enjoy culturally relevant events and programs.
Strategic Direction #3: Connecting with youth who are not currently engaged
As each young person progresses through their stages of development, various forms or elements of risk
may manifest. How a young person reacts and what choices they make when faced with such situations
depend on a variety of factors including their relationships with adults and their peers, their sense of self
worth and value, their connectedness to their community and the love and support that they receive from
their family.
When considering the definition of youth “at-risk” within a technical theory, one can surmise that all youth
are at risk of pretty much anything that can measured. For this reason, statistics that claim to define or
measure “at risk youth” can be misleading. This philosophy of all youth being at risk at some point in their
development is very much supported by youth services. Having said that, for the purpose of this strategy,
we acknowledge that there are youth who experience significant challenges in participation and who
require more creative approaches to outreach and service delivery.
One example of an inclusive approach to engaging "youth at risk" is "relationship-based" programming
which requires staff to be "multi-faceted and flexible: involved and able to make connections; be
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consistent, compassionate, empathetic and patient".
Organizational structures that support youth from all backgrounds and cultures and that create a focus
on relationship building need to be nurtured and sustained. In order to ensure that the programs and
services offered by the City of Kitchener are inclusive and reflect the interests of our diverse youth
community, it will be important for staff to be continuously cognizant of barriers that hinder access and
participation.
Youth at risk expressed that while they were aware of some programs, cost prevented them from
becoming involved. Additionally, young people did not feel welcome in community centres and reported
that they would like more space to “hang out”. Parents of this youth demographic reported that program
fees created increased barriers for families and that they were not aware of the program fee subsidies
(e.g. Leisure Access). Parents also cited busy schedules as an additional challenge to participation.
Recommendation:That inclusive and preventative principles that support all youth be entrenched in
operational practices to ensure that the interests of youth are considered across all service delivery
areas of the corporation.
16
Bocarro, J. & Witt, P.A. (2003). Relationship-based Programming: The Key to Successful Youth Development in Recreation
Settings. Journal of park and Recreation Administration. Volume 21, number 3.
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Actions:
3a. Develop partnerships with community agencies to explore further opportunities to engage and
support “at risk” youth.
3b. Develop a training/education module for staff and volunteers that provides information and helpful
tools when serving youth who may be considered "at risk".
3c. Youth services adopt the guiding principles of relationship-based programs, youth engagement and
asset-based approaches and embed them into operational practices.
Strategic Direction #4: Accessible, affordable, community-based programs
Youth want to be included! The majority of all stakeholder groups expressed the desire either to be more
involved in activities/programs or the desire to be able to more effectively engage youth. Youth
expressed that being civically engaged was important and that they did wish to be included and involved,
despite the barriers that hinder their participation. It was noted that there is currently not enough
leadership opportunities and, in addition, there is an insufficient variety in what is available for youth. A
larger “menu” of recreation and leisure opportunities was also noted as an area of future growth.
Specifically, input from stakeholders suggested that there was a need for the city to consider additional
programming that would reflect the cultural diversity and interests of a wider variety of young people.
Program fees were consistently noted as a barrier to participation and parents and youth reported not
being aware of fee subsidy services. The majority of opportunities all included a cost element – whether
it is bus fare, registration fees or equipment/supply costs. The financial costs of participation can
ultimately derail any attempts to engage youth. Youth reported that transportation was a barrier both in
the context of cost and in navigating the transit routes. When planning events, it will be important for staff
to consider and implement strategies in order to address the transportation barriers experienced by
youth.
School, work and other commitments can interfere with participation. Participants reported wanting to be
more involved but felt that they were already over committed. As staff and affiliated organizations plan
programs or request involvement from youth in traditional adult forms of engagement (i.e. committee
meetings) they will need to be mindful of the time capacity some young people have to commit to longer
term opportunities.
In order to ensure that a program or a facility is accessible, youth shared that it was important for them to
feel safe and to see themselves reflected in the fabric of the program or the facility. For example,
members of a LGTBQ stakeholder focus group suggested that the city ensure that staff who work with
youth reflect the broad diversity of our community and that a facility is welcoming and safe for all
participants.
Recommendation:That City of Kitchener staff identify and develop specific strategies to ensure youth
participation and involvement in programs, services, facilities and committees; with a particular focus
given to working in cooperation with its affiliated partners.
Actions:
4a. Develop a communication plan designed to ensure youth and families are aware of Leisure Access
and other program fee subsidies.
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4b. Review the current inventory of programs and services and work with various divisions, KYAC and
community agencies to identify and ensure a broader repertoire of diverse programming.
4c. Design direct and indirect programs using the following guiding principle: “That programs are
affordable, positive, inclusive, safe and supervised ways for young people to safely take risks within
their neighbourhood”.
4d. Include transportation details (e.g. maps, bus routes) in all program/event communication.
Strategic Direction #5:Youth-centred information, knowledge, resources and training
Volunteer and staff stakeholders identified the need for additional tools and techniques that would enable
them to more effectively serve youth. Specifically, staff cited the need for additional training as it relates
to customer service, practical techniques on how to focus on strengths and guidance on the development
of programs that foster leadership opportunities. Suggestions for further training included: effective
communication with youth, how to design a youth-friendly space or facility, tools to encourage youth
engagement and training on youth cultural norms.
The openness expressed by staff and volunteers was very encouraging and it demonstrates the
importance of ensuring that people who work with youth have the appropriate tools in order to best
support young people. While the principles of excellent customer service are the same for all age
groups, there are specific approaches that have proven positive results when engaging youth.
Recommendation:That staff and City of Kitchener affiliated groups are provided with general
information, training and resources in order to support the provision of services to young people.
Actions:
5a. Develop a resource package for staff and affiliated groups that includes information relating to
working with and providing successful programs and services for youth.
5b. Develop and implement training programs for staff, volunteers and parents that includes information
on youth development theory and asset-based approaches to program delivery. Additionally,
investigate potential opportunities to leverage the delivery of these programs within existing internal
training sessions.
5c. Compile and share community youth demographic information which can be used by staff and
affiliated groups in program planning.
Strategic Direction #6:Communication and marketing strategies designed to reach youth
As indicated in the responses, youth and parents consistently reported that they were unaware of the
programs and services available. This can be frustrating for all who are involved as it was evident
through the development of the internal inventory that the City of Kitchener and its affiliated organizations
do offer an extensive amount of programs, services and opportunities for civic engagement.
Currently, staff uses a variety of mediums in an effort to communicate with youth including Your
Kitchener, media releases, Facebook, the Leisure Guide, the City of Kitchener website and posters
displayed in City of Kitchener facilities. When asked, youth shared that the most effective methods of
communicating program information to their peer groups were word of mouth, Facebook/internet, parents
and through their school.
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According to the 2009 Environics data 71% of residents aged 18-34 use Facebook or Myspace either
daily or weekly and 55% view or post videos on sites like YouTube daily or weekly. Of the 102 18-34
year olds that completed the survey, 39 respondents were under 24.
In order to ensure that youth and their families are aware of all of the opportunities available, staff will
need to put concerted effort into understanding and responding to current communication trends in youth
culture. As part of the online communications strategy the corporate communications and marketing
division conducted in 2009-2010, staff interviewed members of KYAC to get feedback on the
recommendations being proposed. The responses supported the feedback staff had heard in previous
discussions with youth identified above, that word of mouth, Facebook/Internet and through the school
were the best methods to reach youth.
Recommendation:That staff develop a communication strategy that is responsive to youth culture and
that includes specific actions designed to reach parents/guardians and youth-serving agencies.
Actions:
6a. Develop a youth communication strategy that includes an online component and that is designed to
include parents/guardians, schools and agencies as targeted audiences.
6b. Plan and implement a civic engagement awareness campaign that would focus on how young people
can become more involved in the life of our community (i.e. voting, volunteering, committee
participation, how to deal with issues in the community, mobilization). This action supports and is
integrated with the corporation’s efforts towards developing future adult voters as noted in the People
Plan – A Culture of Community Stewardship.
12.0 YOUTH SERVICES STRATEGY IN ACTION – IMPLEMENTATION
It is important to share that there was significant input and ideas generated during the development of
the strategy and that decision making around which actions would be presented for recommendation was
difficult. In order to help ensure that the outcomes of this strategy were impactful and achievable, the
project team strived to ensure that the actions would support the mandate of youth services and be
facilitated through recreation and leadership programs, leadership development opportunities and civic
engagement and participation.
As noted in the youth services strategy action plan, a four year approach to implementation has been
designed beginning in 2010. Measuring and evaluating success is a component of implementation. Staff
have developed indicators of accomplishment for each action in the implementation plan. These
indicators will assist staff in determining whether they have indeed achieved success as planned. The
timeframes are recommended and it is expected that further amendments may be made as staff consider
factors such as budget availability, staff resources, community trends and partnership opportunities.
13.0 CONCLUSION
A core value of youth services is to listen to and engage youth in meaningful ways. The research is clear
- engaged youth are healthy, happier, and supported in their community networks. Developing a service
delivery approach that is grounded in asset based models assists staff in achieving our desired
outcomes.
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The three previously conducted youth surveys have illustrated how important our work with youth is.
They provided staff with excellent information related to participation barriers, activities that youth are
currently doing in their leisure time and potential program ideas. This data served as a springboard for
the youth services strategy providing suggestions on where the project team should focus its consultation
efforts and highlighted that several of the programs and services currently being offered were of interest.
As importantly, the time and efforts of all who participated in these surveys were thoroughly analyzed
and used in the development of this strategy.
The youth services strategy highlighted several key themes:
organizations need to be youth friendly;
community-based programs need to be accessible and affordable,;
those that work with and for youth require youth-centred information, knowledge, resources and
training;
a partnership approach is crucial to the success of a program and service delivery model geared to
youth;
there needs to be new and innovative communication and marketing strategies to reach youth; and,
there needs to be a concerted effort to reach youth who are not currently engaged.
These discoveries are consistent with the previous surveys conducted with youth and it is reassuring that
the youth services strategy was successful in building on the previous data collected. Additionally, the
youth services strategy widened the scope and ensured a diverse group of youth had the opportunity to
have their voices heard, as illustrated in the various youth groups who participated in the consultation
process. Through the continued commitment by the City of Kitchener the youth services strategy came to
be and in turn has become a strong resource for future planning and decision-making.
As with any new strategy, there were challenges to address for future learning and implementation of the
youth services strategy. For example, defining youth who are not currently engaged presented some
challenges. It was difficult to determine who represented that particular group of youth and there were
many definitions of at-risk youth and youth who were not engaged in their community. A definition of at-
risk youth was created for the purposes of the youth services strategy. As with any definition, there is the
risk of excluding other youth who may not belong to the created definition for various reasons. Therefore,
we can assume there are youth groups that were not represented and did not have a voice in the youth
services strategy. In future, more time spent on determining the various reasons for lack of participation
and how to reach those varied groups would assist in a better understanding of how to reach these
youth. The youth services strategy includes recommendations and action items for how to make the
organization more youth friendly, however, there is the challenge of changing the negative perceptions of
those that work with and for youth. Although people can follow guidelines and procedures, actual
perceptions by people are much harder to change and until those perceptions change, for an
organization to be truly youth friendly will remain a challenge.
There are action items listed to ensure the youth services strategy can sustain itself and be successful,
however, future evaluations will be the true test of success. We cannot fully know the success of the
strategy until time has passed and implementation has begun and been put into practice.
The youth services strategy proposes the following recommendations:
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That the City of Kitchener outlines its commitment to engaging youth in meaningful ways and valuing
them as contributing members of our community.
That the City of Kitchener continue to offer youth programs using a continuum of service delivery
models (facilitation, direct delivery, and partnership) with an increased focus on creating strategic
partnerships that will assist in more effectively serving Kitchener’s diverse youth community.
That inclusive and preventative principles that support all youth be entrenched in operational
practices to ensure that the interests of youth are considered across all service delivery areas of the
corporation.
That City of Kitchener staff identify and develop specific strategies to ensure youth participation and
involvement in programs, services, facilities and committees; with a particular focus given to working
in cooperation with its affiliated partners.
That staff and City of Kitchener affiliated groups are provided with general information, training and
resources in order to support the provision of services to young people.
That staff develop a communication strategy that is responsive to youth culture and that includes
specific actions designed to reach parents/guardians and youth-serving agencies.
Ultimately, this strategy provides direction for youth services staff enabling them to support youth in our
community while also contributing to the achievement of the vision and priorities outlined in the City of
Kitchener strategic plan. One of the community priorities identified in the city’s plan is Quality of Life –
that Kitchener is a place of opportunity for ourselves and our children. City of Kitchener Youth Services
has the same vision for Kitchener and feels that the strategic directions and actions identified in this plan
will help achieve that vision.
Young people are the community members who will action our future corporate plans and directions –
they are the residents of tomorrow who we are planning for today. It will be important for us to engage
our developing leaders so that as adults, they feel connected to and reflected in our community.
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Youth Services Strategy
APPENDICES
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APPENDIX A - Project Budget
In January 2006, Council approved report CSD-06-161 which detailed recommendations and the
associated costs that were specific to outcomes of the Leisure Facilities Master Plan. This report
designated a $25,000 budget to support the development of the Youth Services Strategy. The YSS
project budget details are as follows.
Opening Balance ($25,000)
Part-time wages$86.00
Contract Services$23,500.00
Administration (meeting expenses,
$336.00
printing, celebrations, consultation
process)
Total Expenditures$23,922
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