17 HERBERT STREET, DUBLIN 2. TEL: 353-1-676 1975 FAX: 353-1-661 2551 e-mail: [email protected] website: www.igc.ie Member of: International Association for Educational and Vocational Guidance (IAEVG) European Association for Counselling (EAC) Euro Orientation Charity Reg No. Chy 8625 INSTITUTE OF GUIDANCE COUNSELLORS INSTITIÚID NA GCOMHAIRLEOIRÍ TREORACH PRE-BUDGET SUBMISSION 2021 The Institute of Guidance Counsellors (IGC) is a professional body with over 1400 members. We represent guidance counsellors who work in a wide range of contexts, including second level schools, Further Education and Training (FET), Higher Education, Public Employment Services, Prison and Probation Services, Youth services and in private practice. In this pre-budget submission, the IGC outlines recommendations under four headings: Interdepartmental approach Allocation of guidance in second level schools Shortage of guidance counsellors in second level schools Consistency across adult guidance services The value of guidance counselling for the individual and the economy is also highlighted in this submission, followed by some background and contextual information aligning to the recommendations.
Member of: International Association for Educational and Vocational Guidance (IAEVG) European Association for Counselling (EAC) Euro Orientation Charity Reg No. Chy 8625
INSTITUTE OF GUIDANCE COUNSELLORS INSTITIÚID NA GCOMHAIRLEOIRÍ TREORACH
PRE-BUDGET SUBMISSION 2021
The Institute of Guidance Counsellors (IGC) is a professional body with over 1400 members. We represent
guidance counsellors who work in a wide range of contexts, including second level schools, Further
Education and Training (FET), Higher Education, Public Employment Services, Prison and Probation
Services, Youth services and in private practice.
In this pre-budget submission, the IGC outlines recommendations under four headings:
Interdepartmental approach
Allocation of guidance in second level schools
Shortage of guidance counsellors in second level schools
Consistency across adult guidance services
The value of guidance counselling for the individual and the economy is also highlighted in this
submission, followed by some background and contextual information aligning to the recommendations.
Member of: International Association for Educational and Vocational Guidance (IAEVG) European Association for Counselling (EAC) Euro Orientation Charity Reg No. Chy 8625
SUMMARY OF RECOMMENDATIONS
AN INTERDEPARTMENTAL APPROACH
We urgently seek a role to ensure our nation promptly develops policy that is bottom up and
therefore informed by front-line practitioners in response to the emerging challenges posed by Covid
19
We again call for a coherent national long-term guidance counselling policy, developed by an
interdepartmental group and key stakeholders
We recommend a guaranteed voice for guidance counsellors working with learners across the lifespan
on all boards and committees with mental health and/or labour market interests relevant to our
work.
We seek representation in particular on boards/committees that will work to deliver on the
recommendations arising from the recent published Indecon: “Review of Career Guidance”
ALLOCATION OF GUIDANCE HOURS IN SECOND LEVEL SCHOOLS
A return to the pre 2012 circular for guidance allocation.
In addition, an enhanced guidance allocation should be allocated to guidance counsellors to facilitate
our response to:
1. Covid 19 and fully addressing the needs of students with SEN and/or socio-
economic disadvantage
2. supporting the increased number of anxious students presenting at our doors
3. new initiatives such as the Junior Cycle Wellbeing programme
4. the promotion of apprenticeships, traineeships
SHORTAGE OF GUIDANCE HOURS IN SECOND LEVEL SCHOOLS
Provide an allowance for the Guidance Counselling Postgraduate Qualification (QQI level 9)
Release teachers for postgraduate professional training in guidance counselling and the required
professional practicum placement
CONSISTENCY ACROSS ADULT GUIDANCE SERVICES
An increase in the national budget for the Adult Guidance Services
Increased staffing levels in guidance counselling services for adults
Addition of remote working guidance options of Voip (video and Voice over internet protocol) service
delivery by qualified guidance counsellors and information officers
An allowance for the Guidance Counselling Postgraduate Qualification (QQI level 9)
Addition of active case management software for client relationship management
Member of: International Association for Educational and Vocational Guidance (IAEVG) European Association for Counselling (EAC) Euro Orientation Charity Reg No. Chy 8625
THE VALUE OF GUIDANCE COUNSELLING
The potential value of guidance counselling is well established and it is multifaceted with benefits to both the
individual and to the wider economy (Indecon 2019; Hooley and Dodd 2015; OECD 2018). Indecon (2019) has
recognised this in their report as they state:
“Enhanced career guidance also has the potential to reduce exchequer costs by contributing to
tackling unemployment levels in certain cohorts of the labour force. There is also potential for
exchequer impacts via reducing the dropout rates in third-level education and by increasing
productivity.” (p.72)
The holistic approach to guidance counselling encompasses career, personal/social and educational guidance,
all of which are intertwined and not separable. However, some of the benefits of each of the three areas of
guidance counselling are explicated here:
Career guidance counselling can ultimately increase the person’s employment prospects by
increasing the students’/clients’ knowledge about the world of work, skills needs and different routes
to employment; facilitate and encourage employer engagement; and help students/clients to develop
career management skills which are needed in an uncertain future. Hooley and Dodd (2015) state that
“The evidence shows that career guidance can have substantial benefits for the economy by
supporting individuals to enhance their capacities in ways that contribute to enhanced jobs, skills and
growth.”
Personal/social guidance counselling is an essential aspect of guidance counselling as a person’s
wellbeing and mental health influence their ability to engage in education and the labour market.
Guidance counsellors are trained at postgraduate level to provide confidential guidance counselling,
and refer out to appropriate services when needed. Students/clients who suffer from mental health
issues are often reluctant to seek help from public health services, and some studies have found that
guidance counsellors are often the only professionals they turn to (Dowling and Doyle 2017; Ystgaard
et al. 2009). This makes it all the more important that we have professionally trained guidance
counsellors in each school, available to students who are at risk.
Educational guidance counselling relates to student retention and attainment and to subject choices
to match specific career paths for example. For example, there is evidence that access to guidance
counselling in secondary education has a positive effect on 3rd
level retention rates and can mitigate
socio-economic disadvantage (OECD 2010; HEA 2018).
The OECD (2018) states that effective transitions to education and employment depend on intense guidance
provision. They further describe guidance counselling as a “key tool to help students self-identify their
aspirations and abilities”. The rapidly changing labour market and skills demands, and complex transitions,
intensifies the need for guidance counselling.
CONTEXT / BACKGROUND
Our members are providing support and resources to our students/clients during Covid 19, the IGC is
proactively organising online CPD to meet our students current and emerging needs. We know from
experience, that some of the key student issues which our members triage to respond to are of a very serious
and complex nature. A majority of our members support students with mental health issues (e.g. anxiety, self-
harm, suicide ideation) on either a daily (64%) or weekly (32%) basis (IGC 2019). The increase in mental health
issues in our young population is now well established. For example, AHEAD (2018; 2019) has recorded a
persistent trend in the increase of students with a mental health condition in 3rd level institutions, where
numbers recently rose to a staggering 24% (from 2015/16 to 2016/17). The issue of waiting times for mental
health services is significant and nearly two thirds of guidance counsellors (63%) report challenges related to
Member of: International Association for Educational and Vocational Guidance (IAEVG) European Association for Counselling (EAC) Euro Orientation Charity Reg No. Chy 8625
‘holding’ students for prolonged periods due to referral difficulties (IGC 2019). Minister Jim Daly stated (in the
Dail, January 2019) that “The total number of children on CAMHS waiting lists was approximately 2,560 at the
end of November 2018” and that nearly 300 of them had been waiting for over 12 months. Such long waiting
times to access appropriate mental health supports can be deeply distressing for students and guidance
counsellors are often left holding these vulnerable young students. Ireland has also the fourth highest
incidence of teenage suicide in the 37 study countries of the EU/OECD region (UNICEF 2017).
Both the Action Plan for Education and the Indecon report, emphasise the importance of ‘employer
engagement’ and the development of apprenticeships and traineeships. IGC is one step ahead with our current
CPD on Labour Market Skills Shortages and New Initiatives in the areas of Apprenticeships and Traineeships,
which we have developed in collaboration with EGFSN, SOLAS, all Institutes of Technology and ETBs
nationwide, local employers and apprenticeship providers, such as ESB, CIF, ATI and CareersPortal. One of the
effects of this CPD has been that guidance counsellors from all 16 of the IGC branches are equipped with
cutting edge information about labour market skill shortages and new initiatives around apprenticeships and
traineeships, information they can now communicate to their students though one to one appointments/class
and to their parents during annual presentations. Furthermore guidance counsellors are afforded the
opportunity to network with Labour Market stakeholders and to invite them to their schools, to work with
them to organise appropriate work placements for their students/clients. Already the apprenticeship providers
have reported they are visiting schools/centres/services, more frequently at the invitation of the guidance
counsellors who attended this CPD. This CPD initiative designed for the purpose of responding to skill
shortages and addressing the aims of the Action Plan for Education, needs to be an annual event and would
benefit from Government acknowledgement and support going forward to further embed this good practice.
More contextual information and evidence supporting the four areas which we have focused on in this pre-
budget submission are outlined next.
INTERPDEPARTMENTAL APPROACH
Whilst the Department of Education and Skills is the Government department most closely aligned with our
work as guidance counsellors, an interdepartmental approach is needed in terms of developing coherent
national long-term guidance counselling policy (Indecon 2019). As Indecon (2019) outlines, our work relates to
Department of Business, Enterprise and Innovation (e.g. for identifying future skills needs, Labour Market
Information and for those working in Public Employment Services), Department of Employment Affairs and
Social Protection (e.g. referrals to and from employment services/Intreo), and to the Department of Health
(e.g. referral of students/clients who have health/mental health issues and those working in the Supported
Employment and educational services). By working collaboratively, government departments could save
precious manpower, money and expedite policy targets.
RECOMMENDATIONS
We urgently seek a role to ensure our nation promptly develops policy that is bottom up and
therefore informed by front-line practitioners in response to the emerging challenges posed by
Covid 19
A coherent national long-term guidance counselling policy, developed by an interdepartmental group
and key stakeholders
A guaranteed voice for guidance counsellors working with learners across the lifespan on boards and
committees with a mental health and labour market interest.
We seek representation on the implementation task force that will work to deliver on the
recommendations arising from the recent published Indecon “Review of Guidance” to ensure we
Member of: International Association for Educational and Vocational Guidance (IAEVG) European Association for Counselling (EAC) Euro Orientation Charity Reg No. Chy 8625
develop policy that is bottom up and therefore informed by practitioner as well as policy that is top
down.
ALLOCATION OF GUIDANCE HOURS IN SECOND LEVEL SCHOOLS
Since the 2012 Budget, the IGC has focused on ensuring that the hours are restored and we have audited our
members to inquire about the consequences of the drastic cuts. Whilst 500 of the 600 posts have been
reinstated to schools it is not clear that they have been allocated to the guidance counsellor, furthermore,
simply restoring the hours to pre-2012 levels may not suffice as the workload of school guidance counsellors
has grown in particular if we are to deliver a robust guidance counselling service to those in our care.
The latest IGC survey (2020) has found that the average time spent on the Wellbeing Programme in Junior
Cycle has increased from 1.2 to 1.5 hours since 2019, while an additional 4 hours a week are spent on
academic subject teaching, SPHE and other classroom teaching/activity. When combined with classroom
teaching of guidance counselling which equates to 5.1 hours, guidance counsellors are now spending 10.6
hours weekly in the classroom (IGC, 2020). At the same time, the survey found that 10.6% of full-time
qualified guidance counsellors in second level schools are not practising at all, while at the same time
22.4% of schools report using unqualified internal staff to deliver guidance counselling, equating to 6.4
hours per week; and 26.4% of schools report using external providers for counselling, equating to 7.40
hours weekly.
All of the above puts additional pressures on guidance counsellors who are already overstretched working
with fewer contact hours and a larger student population. Furthermore, this current generation of students
have unprecedented high levels of anxiety and mental health issues and this heightens the need for
additional allocation of hours, access to supervision and additional CPD for our members (AHEAD 2018;
OECD, 2017; Mental Health Commission 2018; Unicef 2017).
The current allocation model has led to an inequitable guidance provision and it lacks transparency as a
majority of IGC members are not privy to the information about the DES allocation in their school (IGC 2019).
The ex-quota guidance allocation system which was in place prior to Budget 2012, was separate to the teacher
allocation and it was standardised and thereby provided a more equal distribution of care. It was not
dependent on the individual principal/management having sufficient knowledge about the value of guidance
counselling (Harkin 2015). An equitable, transparent and objective ex-quota system is urgently needed. In
tandem with further increased resourcing at Further Education and Training guidance levels of service, to
provide the lifelong guidance model called by service and review and by employer groups in (Indecon, 2019) &
(IBEC, 2018).
The OECD (2018) warns that high guidance counsellor to student ratio leads to superficial and insufficient
guidance provision. Within the Action Plan for Education 2019, the DES has already committed to ‘enhance’
guidance counselling in second level schools and we expect that this will inform Budget 2021. Indecon (2019)
also identified that “there is no additional or separate guidance support for children with special education
needs and there is currently no policy to support an alternative or separate guidance provision for children
with special education needs in mainstream post-primary”.
COVID-19
Covid 19 presents significant challenges for guidance counsellors in second level schools, colleges of further
education and adult education. Guidance Counselling practice has now been altered in an unprecedented
fashion. For the duration of this pandemic, Guidance counsellors will be faced with an overwhelming
demand for support for students/clients experiencing a range of mental and/or psychological stress and
Member of: International Association for Educational and Vocational Guidance (IAEVG) European Association for Counselling (EAC) Euro Orientation Charity Reg No. Chy 8625
emotional problems. Hard decisions were made at Governmental level to keep students and parents safe;
such as school/service emergency closures, isolation from friends and postponed examinations. This has
resulted in a loss of routine, an uncertainty about the future for students and the workforce, a loss of
connection to vital emotional and career support networks which has a knock on effect for our citizens
young and old. GCs have been catapulted into delivering a remote service and are digging deep and
showing their creativity, resilience and flexibility as they strive to deliver support to those in their care
using remote service provision in which they have had little or no training. This shift in how we deliver our
guidance counselling function has ramifications around remaining GBDR compliant, guaranteeing
confidentiality, safety and privacy. Our members are working flat out to resolve how we can meet these
obligations and still deliver a professional service to students experiencing anxiety, bereavement, poverty,
loneliness, lack of purpose.
There will be a further added dimension to guidance counselling post Covid 19. This pandemic will have an
ongoing impact on the lives of all citizens and the economy, and the problems of parents will impact
children. Further macro-economic pressure of a shock to the Irish labour market will require investment in
guidance services and support to aid in recovery from projected labour market shock during 2020 (ESRI,
March 2020). In-school, FET and Adult services, guidance counselling will be of paramount importance in
creating an atmosphere of unity, care and empathy, and safety as our society works together to pick up the
pieces post Covid 19.
RECOMMENDATIONS
A ring-fenced allocation of hours, specifically to manage the fallout from Covid-19, and a
restoration of all qualified guidance counsellors to the practice of full guidance counselling-only
positions, to be agreed in consultation between the Department of Education and the IGC as a
matter of the highest priority.
A return to the ex-quota guidance allocation system and the pre 2012 circular for allocations.
An enhanced guidance allocation should be allocated to guidance counsellors to enable us to
adequately support students through new initiatives like: the Junior Cycle Wellbeing programme,
promote apprenticeships, traineeships, support students/clients identified as benefitting from
additional guidance (e.g. students with SEN and/or socio-economic disadvantage) and students
presenting with anxiety.
SHORTAGE OF GUIDANCE COUNSELLORS IN SECOND LEVEL SCHOOLS
In the 2017/18 academic year, Guidance Counselling was the 6th
most challenging post to fill in second level
schools according to a study by JMB. The previous year it was the 9th
most challenging, and the year before the
10th
. In other words, the shortage of guidance counsellors is increasing and may continue to do so unless
addressed. IGC research (2018; 2019; 20) also show that in some schools (currently 22.4%), some aspects of
guidance counselling are delivered by non-qualified personnel. This could have serious consequences and put
personnel, school management and students at risk as guidance counselling requires specific competencies,
skills and knowledge of confidentiality/ethical issues (IGC 2017).
Providing an allowance for the guidance counselling qualification would encourage uptake of the course and
help to address the shortage of qualified guidance counsellors. Given the substantial professional training and
qualifications we have as guidance counsellors, there should be an allowance in recognition of this, particularly
as the qualification is a requirement and not optional (DES 2016).
Member of: International Association for Educational and Vocational Guidance (IAEVG) European Association for Counselling (EAC) Euro Orientation Charity Reg No. Chy 8625
To further address the shortage of professionally trained guidance counsellors, the DES should support the
training of new Guidance Counsellors, given the cost to the individual teacher to undertake a 2 year masters in
guidance counselling with no additional salary allowance currently for those who do so. The DES could also
release teachers for such postgraduate professional training and practical placements.
RECOMMENDATIONS
Provide an allowance for the Guidance Counselling Postgraduate Qualification (QQI level 9)
Release teachers for postgraduate professional training in guidance counselling and the required
professional practicum placement
CONSISTENCY ACROSS ADULT GUIDANCE SERVICES
FET guidance counselling services are under-resourced and under-staffed, and their remit has been widened in
recent years (IGC 2019; NCGE 2018). There is currently a lack of consistency across adult guidance services. In
our most recent research (IGC 2019) we found that our members in the adult guidance sector work in 12
different types of services. Furthermore, although they all have professional postgraduate guidance
counselling qualifications, a total of 24 different professional titles are reported, and they work under eight
different types of contracts (e.g. permanent, fixed term and CID) and no contract. This lack of a distinct
professional identity carries the risk of demoralisation and a fragmented professional role may also damage
the public’s trust in our profession (Neary 2016).
As Indecon (2019) concludes “A key objective should be to provide a consistent level of career guidance
regardless of location or type of FET programme” (p.66). A central national service, with a national budget, and
with regional/local services across the country, could facilitate a more unified and equitable delivery”.
The AEGS alone provided guidance to over 51,365 beneficiaries during 2018 (NCGE, p16, 2019) and if
resourced sufficiently, they could reach even more clients and are thereby be incredibly cost effective and
beneficial in comparison to private actors such as Turas Nua and Seetec. In fact, the Government and SOLAS
have already identified the AEGS model of guidance provision as the most suitable ‘building block’ for a future
adult guidance service in FET (DES 2014; SOLAS 2014). However, to meet public demand for quality and
impartial guidance and information, the adult guidance services urgently need investment. (Oireachtas, May
2019). Based on our research and on the views of practitioners on the ground, the key issues experienced
relate to insufficient staffing levels and the physical resources in which they work (i.e. the premises which can
be inaccessible and not provide a confidential space for vulnerable clients) (IGC 2019).
RECOMMENDATIONS
An increased national budget specifically for the Adult Guidance Services to manage Covid-19
labour market skills impacts in line with employer needs
Increased staffing levels of qualified guidance staff in guidance counselling services for adults to
deliver qualified guidance support to people impacted by Covid-19 loss or upskilling needs
Suitable and adequate physical premises (which are both accessible and confidential)
Addition of remote working guidance options of Voip (video and voice over internet protocol) service
delivery by qualified guidance counsellors and information officers
Addition of active case management software for client relationship management to replace passive
CRM systems in client engagement
Introduce guidance counselling psychometric testing, (level A and B) psychometric skills/
interest/personality/ values matched to career opportunities.
Enable Qualified and skilled career guidance staff to assess training needs to explore, assess barriers
Member of: International Association for Educational and Vocational Guidance (IAEVG) European Association for Counselling (EAC) Euro Orientation Charity Reg No. Chy 8625
CONCLUSION
The IGC asks the Government to utilise the full potential value of guidance counselling by ensuring that
guidance counselling services are sufficiently resourced and funded at all levels and across the lifespan. The
need for such investment is underpinned by the times in which we live, where the labour market changes
rapidly, with an ever-greater need for upskilling/reskilling throughout one’s career. In addition to this, we are
calling on our policy makers to resource our members so that we can respond appropriately to the rise in
mental health issues amongst our youth, the future labour force, now more than ever in the context of
Covid 19. We look forward to engaging in the next phase and to continue to build on the positive and
collaborative working relationship with key stakeholders which were formed during the review process.
AGA Role Document (October 2017) http://www.aegai.ie/wp-content/uploads/2017/03/17Oct-The-Role-of-the-AEGS.pdf
AHEAD (2019) Numbers of Students with Disabilities Studying in Higher Education in Ireland 2017/18, available:
Member of: International Association for Educational and Vocational Guidance (IAEVG) European Association for Counselling (EAC) Euro Orientation Charity Reg No. Chy 8625
National Centre for Guidance in Education (NCGE) (2018) Quantitative and Qualitative Report of the Adult Educational
