Youth work in Wales - delivering for young people: integrated impact assessment

Long term trends and challenges

Welsh Government intends to bring into force a new statutory framework for youth work in Wales, consisting of statutory directions and guidance. The new framework incorporates a definition of youth work which will underpin a new statutory duty on local authorities to provide youth work within the wider services they provide for young people. 

In its final report, the Interim Youth Work Board called for action from Welsh Government to address the weak legislative basis for youth work which had contributed to uneven provision across local authority areas and a situation in which youth work services were vulnerable in the context of financial pressures on local authority budgets. A weak legislative basis had also contributed to a service which lacked a consistent approach to planning and delivery and limited accountability.

Alongside the new statutory duty, the framework will introduce a planning and accountability structure which is intended to ensure services are aligned with the needs of young people, is developed collaboratively with partners and which provides a mechanism through which local authorities can be held accountable.

This new framework will be introduced during a period of ongoing pressure on budgets in both local authorities and voluntary organisations, against a context of increasing demand for services in the post-Covid era, alongside evidence of an increase in the scale and severity of young people’s needs.

The framework is shaped by clear requirements around strategic planning and stronger accountability. The framework includes national standards to ensure greater consistency in how the youth work offer captured within this framework is designed and delivered, whilst also retaining local authorities’ ability to adopt approaches that meet local need. Partnership and collaboration are central aspects of the framework. The framework also has a clear focus on ensuring young people are continuously involved in shaping services, and how youth work can help young people also support them to exercise their rights.

Consultation on draft proposals identified challenges in relation to defining youth work. The draft proposals linked youth work to being delivered by those who hold a professional qualification. Consultation responses noted that this approach would exclude volunteers and unqualified staff, despite their vital contribution to the delivery of a rich and diverse youth work offer. Alongside a revised approach to defining youth work, further investment has been made in workforce development to support clear progression routes to help mitigate these concerns. 

Inconsistencies across local authorities could undermine the quality of strategic plans, while insufficient recognition by local authorities of the contribution of the voluntary sector may weaken collaboration. Similarly, different approaches to youth participation structures could lead to a variety in quality of evidence from young people to inform the setting of objectives within a youth work strategic plan as well as gaining their views on progress made against those objectives.

Consultation responses identified that use of terminology such as ‘entitlement’ risked confusion without clear indicators. 

Despite these risks, it is considered that the framework presents significant opportunities. Strategic plans are anticipated to lead to a greater prominence on the impact of youth work, which could in due course lead to improved resource allocation. The requirement to consult with partners to agree strategic objectives may foster greater collaboration and better alignment in services for young people and ensure services are aligned with young people’s needs. National standards for youth work will contribute to greater consistency in how services are planned and delivered whilst the focus on addressing barriers to youth work provision may lead to more equitable access to youth work across Wales. Embedding youth participation within the framework provides routes aimed at empowering young people to hold local authorities accountable for securing services that align with their needs. It will enhance accountability more generally through greater transparency in decision making and regular progress reporting. 

The definition of youth work within the final framework has been adjusted to recognise the role that qualified practitioners play alongside other practitioners, including volunteers, ensuring inclusivity while maintaining professional standards. Alongside the statutory framework, templates for youth work strategic plans will be issued to drive consistency across local authority areas, supported by a clear appraisal and compliance mechanism to monitor progress. Statutory directions explicitly reinforce the importance of collaboration and partnership and specific requirements relating to this, emphasising the role of voluntary organisations. Terminology around entitlements has been clarified, with additional indicators of quality provision included to strengthen accountability. Minimum expectations will be set for youth participation structures, ensuring continuous and meaningful involvement of young people in decision-making and evaluation.

Prevention

The proposal to legislate for a new statutory framework for youth services in Wales is intended to support the breaking of negative cycles such as poverty and poor health by strengthening the foundations of youth work and help ensure strategic planning of provision is aligned with the needs of young people. The youth work approach itself is preventative in nature, underpinned by a commitment to empower young people to make positive choices and to provide them with a range of opportunities to develop holistically. The new statutory duty for local authorities to secure the delivery of youth work is intended to elevate the status of youth work and its impact on the life chances of young people which may in turn lead to services which are better resourced. It is anticipated that the creation of the statutory duty for youth work may lead to services that are better resourced, strategically planned, and inclusive of young people’s voices. The framework helps create opportunities for young people to access safe spaces and the support of trusted adults which in turn helps them to address issues, access their rights and make informed decisions about their futures. This in turn reduces the risk of becoming NEET and (or) making ill-informed decisions about their health in turn which can lead to reduction in poverty and poor health outcomes by addressing social exclusion and empowering young people to participate in decision-making. By embedding collaboration across local authorities, voluntary organisations, and communities, the framework has the potential to encourage more sustainable practices and community resilience. The framework also highlights how youth work can offer invaluable opportunities for young people to use their Welsh language skills, helping achieve our aim of a thriving Welsh language.

The proposal primarily addresses underlying causes rather than just symptoms. The Interim Youth Work Board’s final report concluded that the current legislative basis for youth work services in Wales is weak and open to interpretation. This has historically led to fragmented services, inconsistent quality, and limited recognition of youth work as a profession. By creating a statutory framework, the Welsh Government is tackling the structural issues that undermine youth services, such as lack of consistency, poor resource allocation, and insufficient youth participation. 

Whilst the principle of taking early action to improve our environment, our economy, our society and our culture are embedded within the framework, the framework could include more specific details on how youth work strategic plans should to incorporate measures for reducing waste and resource use, promoting low-carbon operations, and ensuring services are delivered in ways that minimise emissions and protect air quality. Socially, the framework could avoid negative impacts on community cohesion by valuing the role of the voluntary sector – with ‘grassroots’ organisations often having particularly strong links to the communities they serve. Youth work has a key role in creating safe spaces for young people in keeping them off the streets and reducing anti-social behaviour within communities. By establishing clear national standards, consistent guidance, and transparent appraisal mechanisms, the framework can balance accountability with flexibility, ensuring that youth services strengthen rather than fragment communities.

Integration

The proposal to create a statutory duty for local authorities to provide youth work links directly to wider public policy agendas and is a Programme for Government commitment. It supports the shift towards prevention, set out in the Well-being of Future Generations Act, by helping young people build resilience, skills, and confidence. This reduces demand on health, justice, and social care services while promoting equality, safeguarding, and our ambitions for a thriving Welsh language. The benefits extend across society, from healthier communities to stronger cultural identity and more inclusive opportunities.

Local authorities will be required to produce five-year strategic youth work plans that align with the seven well-being goals. These plans will be expected to be developed with local partnerships of youth organisations and other public bodies, helping ensure coherence with local well-being assessments. Practical steps include embedding youth participation structures, and a requirement for collaboration between local authorities, voluntary organisations and other partners.

Collaboration

The framework makes clear that youth work in Wales is not delivered by local authorities alone, but is assisted by a broad partnership of organisations and stakeholders who share an interest in supporting young people aged 11 to 25. These partners include voluntary youth work organisations, statutory services such as health boards and the police, schools and colleges, community groups, and national bodies like the Education Workforce Council. Each of these partners has a stake in ensuring that young people have access to safe, inclusive, and empowering opportunities that help them thrive socially, emotionally, and educationally.

In developing the proposal, these partners have been actively engaged through consultation processes, working groups, and collaborative planning forums. A taskforce was established in the to provide a practitioner’s perspective and support the development of the framework. This group met regularly throughout the period of development and was reconvened following the period of formal consultation to consider responses and to discuss possible mitigations. 

This was complemented by targeted engagement with the Chair of the Principal Youth Officers Group and other local government representatives as well as the Council for Wales of Voluntary Youth Services, as a representative body of the voluntary youth sector. 

We have been careful to ensure a broad range of voices and practices across the youth work sector have been captured to reflect the diversity of provision within Wales. 

Local voluntary organisations, for example, have provided testimony on their experiences at the grassroots delivery and their ability to reach diverse communities. National voluntary sector organisations have shaped our thinking around how best to plan across local authority boundaries. Statutory partners have likewise advised on the contribution of youth work in helping to achieve some of their own priorities and how best to ensure that youth work aligns with wider public service priorities. 

Looking ahead to delivery, each partner will play a distinct but complementary role. Local authorities will have responsibility for engaging partners in producing and implementing five‑year strategic youth work plans, working together to deliver a collective vision for how best to meet the needs of young people within our communities. Young people themselves are also recognised as key partners, with mechanisms built into the guidance to ensure their voices shape both the design and evaluation of services. Statutory partners will support integration with health, education, and justice systems, ensuring youth work contributes to broader wellbeing goals. Workforce bodies will help maintain professional standards and training, while young people will contribute through participation structures that keep services responsive to their needs. Together, this collaborative approach ensures that youth work in Wales is not only consistent and accountable, but also dynamic and rooted in the lived experiences of young people.

Involvement

The framework was developed through a process that actively involved those most affected — young people, youth workers, voluntary organisations, and local authorities. The Welsh Government sought input through consultation exercises, engagement events, and dialogue with representative bodies. Young people were invited to share their experiences and priorities, ensuring that the guidance reflects their voices rather than being imposed from above. Similarly, practitioners and voluntary sector partners contributed their expertise, helping shape practical recommendations that align with the realities of delivering youth work on the ground. A task and finish group was also set up, with representatives from across the sector, who worked with officials to identify specific issues and consider various solutions. This collaborative approach aims to ensure the framework focuses on those who will benefit from it.

For young people, what matters most is that youth work remains accessible, inclusive, and responsive to their needs. They value opportunities to influence decisions, to have safe spaces where they can build relationships, and to access support for their well-being, education, and future prospects. The guidance acknowledges this by embedding participation standards, requiring local authorities to create clear pathways for young people to shape services. In delivery, young people might be involved through youth forums, advisory panels, or co-designing specific projects. Their ongoing involvement ensures services remain relevant and empowering.

For practitioners and organisations, what matters is sustainability, recognition of professional standards, and adequate resources to deliver high-quality provision. They are likely to be involved in delivery through partnership boards, workforce development initiatives, and collaborative planning with local authorities. By maintaining strong networks between statutory and voluntary providers, the guidance ensures that those delivering youth work can continue to innovate while meeting the diverse needs of young people across Wales.

Impact

The guidance aims to improve consistency, quality, and accessibility of youth work across Wales. By requiring five‑year strategic plans and annual reporting, it aligns youth work with national priorities linked to education, health, community, tackling poverty and Welsh language, along with the Well-being of Future Generations Act. The success of the Youth Engagement and Progression Framework and the NYTH/NEST framework in establishing a whole system approach to supporting young people is testament to the value of a coordinated and inclusive approach to planning provision for young people. This ‘no wrong door’ approach creates multiple entry points through which young people can access youth work provision and be signposted to additional and (or) alternative provision where relevant. Furthermore, the emphasis on workforce development and Welsh language use is seen as strengthening equity and opportunity.

Potential risks include the burden of resources and capacity, particularly for smaller voluntary organisations that may struggle to feed into the development of these strategic plans. There are also gaps in evidence about the long‑term impact of youth work on outcomes like employability and health, and uncertainty about how digital and international opportunities can be delivered equitably. These gaps are acknowledged, with plans for improved monitoring, annual progress reports, and further research. The guidance has been widely explored through collaboration with local authorities, voluntary organisations and others, ensuring diverse perspectives inform its development.

Costs and Savings

There are no direct, material costs to implementing the statutory framework. Nonetheless, local authorities will need to establish and maintain local partnerships and effective mechanisms for early and continuous engagement with young people.

The development of the strategic plan itself will likewise require resource to map existing provision, explore alignment with other local services and to agree priorities with partners.

Many of these streams of work are already happening. What the framework will do is bring these individual streams of work together in one place.

Mechanism

A Regulatory Impact Assessment is not required.

How have people most likely to be affected by the proposal been involved in developing it

Extensive engagement, alongside formal consultation, has been undertaken to develop and refine the statutory framework for youth work. This has included:

• a series of engagement events with representatives across the youth work sector and beyond to explore specific issues and themes prior to consultation
• formal consultation running from October 2024 to January 2025
• inviting youth workers with pre-existing relationships with young people to discuss the draft proposals and feed back their thoughts and areas for improvement
• targeted engagement with focus groups of young people
• a taskforce of representatives from across the youth work sector to consider the issues that emerged across these various engagement approaches and explore approaches that addressed those issues

Across these different strands, we have involved:

• children and their representatives: youth workers were specifically encouraged to facilitate discussions with young people to help them understand the proposed changes and to support them in sharing their experiences and opinions with Welsh Government on our proposals and how they could be strengthened, and a series of focus groups with young people were held in autumn 2024 to gather structured feedback from a range of young people 
• people with protected characteristics: across the various strands set out above, responses were invited from a wide range of individuals and organisations, including organisations involved in the design and delivery of youth work, including organisations with a particular focus on supporting young people with protected characteristics, helping us better understand how the framework could be strengthened in terms of its support for underrepresented groups
• Welsh speakers and Welsh language specialist groups: in addition to responses young people attending Welsh-medium youth work settings, and the inclusion of specific questions in the consultation in relation to the Welsh language and how the proposals could support our wider ambitions as set out in Cymraeg 2050, the taskforce established to work in detail with us on refining our proposals included a representative from a voluntary organisation centred around providing opportunities for children and young people through the medium of Welsh

What are the most significant impacts, positive and negative

The statutory framework for youth work in Wales creates a statutory duty for the delivery of youth work for the first time in a Welsh legislative context. That, along with the introduction of a consistent planning and accountability requirements, provides a stronger legislative basis for youth work helping ensure youth work is better valued and understood. Effectively developed and implemented youth work strategic plans provide a platform for a range of positive impacts. The strong focus on collaborative approaches to meeting the needs of young people across communities, as well as supporting a vibrant culture, a thriving Welsh language, a more prosperous Wales and the economy and, indirectly, the environment. Emphasis on the voluntary engagement of young people, working with young people to help identify their needs, and clear prioritisation of needs are anticipated to help support work across the seven well-being goals. 

Engagement through the consultation process demonstrated that young people and practitioners value clarity, consistency and dependable access to youth work, with respondents highlighting the centrality of trusted relationships and informal education in promoting young people’s confidence and resilience. 

However, these positive impacts come with potential challenges. Strengthened statutory duties will require additional capacity, particularly during the earlier phases of the implementation of the framework as these new arrangements are adopted. These changes will draw on the limited capacity within local authorities, voluntary organisations and other partners during what are challenging times. Local authority reports indicate uncertainty about financial implications, raising the risk that improvements may not be evenly realised across all regions if sustained funding is not secured to accompany this framework. 

The framework reflects broader commitments to the Welsh language and a vibrant culture. The framework reflects wider ambitions in terms of the Welsh language. However, there will need to be ongoing support to develop workforce capacity, particularly the availability of sufficient Welsh‑speaking practitioners who can confidently deliver youth work through the medium of Welsh, to ensure these ambitions can be achieved, and will requiring ongoing investment. 

Economically, the introduction of statutory duties is expected to stabilise and professionalise the youth work sector. The guidance aligns with national well‑being goals relating to fair, secure work and a more prosperous Wales, promoting structured workforce development and clearer career pathways. Recent sector evidence already shows increased engagement with professional learning, with more than 1,200 youth workers and volunteers accessing qualifications and training in a single year, reflecting strong interest in CPD. However, this interest in developing skills and expertise will need to be supported with ongoing investment in workforce development opportunities across both voluntary and maintained settings within the sector. 

Environmental impacts are limited but still present. While the framework does not directly target environmental outcomes, its emphasis on collaborative, localised delivery encourages efficient use of community assets and reduces duplication of services. This, in turn, aligns with the well‑being goal of a globally responsible Wales by promoting sustainable service models and potentially reducing resource consumption through coordinated planning.

Compared to current arrangements, the new framework represents a major shift in approach, focusing on clear statutory duties, national standards for youth work delivered within this framework, and clear planning and accountability arrangements.

In light of the impacts identified, how will the proposal maximise contribution to our well-being objectives and the seven well-being goals and (or) avoid, reduce or mitigate any negative impacts

The statutory framework for youth work in Wales has strong potential to highlight and maximise youth work’s contribution to over-arching aims such as the Welsh Government’s well‑being goals and the aims set out in Cymraeg 2050. The national standards within the framework set key hallmarks for quality youth work delivered via the framework, whilst enabling different approaches to be taken, driven by local need. 

The framework also places a strong focus on facilitating children’s rights – both in terms of ensuring young people’s role in the development and ongoing delivery of local youth work strategic plans, but also in terms of highlighting how youth work can provide a platform to help ensure young people can exercise their other rights.

Negative impacts identified in the consultation relate to the key role voluntary organisations play in the delivery of a rich and diverse youth work offer, and ensuring those organisations play a meaningful role in the delivery of this framework. Several actions have been taken to mitigate this risk. The framework requires local authorities to work in close collaboration with other partners, including voluntary organisations. In addition to requirements set out in the guidance itself, steps have been put in place to engage with organisations across the voluntary sector during consultation and beyond to ensure opportunities to discuss concerns, share different approaches and develop innovative solutions to respond to the needs of young people.

Beyond this the framework supports inclusive practice by requiring youth work to be delivered in all local authorities for the first time in a Welsh legislative context. To further maximise its contribution, Welsh Government can ensure that further information to support the implementation of this framework focuses on setting out clear expectations on engaging young people, in particular those who are typically under-represented, as well as those who may not currently engage with youth work.

The benefits of this new statutory framework are considered to outweigh the risks of inaction, particularly given evidence that the youth work services have historically been vulnerable to cuts and inconsistency. However, clear communication, phased implementation timelines and ongoing evaluation will help ensure that burdens remain manageable. A review of the framework in autumn 2029 will also provide a valuable point to take stock of progress to date and consider opportunities to strengthen the approach.

How will the impact of the proposal be monitored and evaluated as it progresses and when it concludes

The impact of the proposal will be monitored and evaluated through the statutory mechanisms set out in the draft guidance. Each local authority must produce a five‑year youth work strategic plan outlining its objectives, delivery approach and expected outcomes. Progress against this plan must then be reported annually, creating a recurring monitoring cycle that tracks implementation and impact over time. These strategic plans will also act as a core reference point for inspection and quality assessment arrangements, providing an independent means of evaluating effectiveness and consistency across Wales. 

Post‑implementation evaluation is built into the statutory framework. The requirement for ongoing annual reporting means that local authorities will continually assess progress, highlight emerging challenges and identify areas for improvement. The five‑year strategic planning cycle ensures that at the conclusion of each period, delivery is reviewed holistically, allowing Welsh Government and partners to update priorities, revise objectives and adjust practice based on evidence about what has worked well. These processes also support national oversight by enabling Welsh Government to gather system‑wide information key priorities across local authorities in the context of youth work.