The National Youth Policy recognises the need for substantial, informed and practical strategies which address the major needs, challenges and opportunities facing young women and men. To this end, the following sectoral strategies are described:

• education and training;
• health;
• economic participation;
• safety, security and justice;
• welfare and community development;
• sport and recreation;
• arts and culture;
• environment and tourism; and
• science and technology.

The goals and objectives of the National Youth Policy, outlined in Chapter 5, have shaped the design and form of the strategies described below. These strategies, therefore, provide a practical expression of the vision, goals and objectives of the National Youth Policy and represent the major priorities and critical concerns facing young women and men.

Education and training is a major priority in the development of young men and women, not simply because young people are often connected to the education system, but because it is through education and training that young women and men can be better prepared for life. The personal development of the individual young person, along with the development of local communities and the country as a whole is inextricably linked to the provision of quality, relevant and well managed education and training.

The legacy of apartheid and the effects of Bantu Education have left this sector with an urgent need for transformation. This affects all areas of education and training, from the development of new curricula, to the building of new schools and places of education, to teacher training and the need for new forms of governance and new attitudes towards education and training.

The Constitution of South Africa sets the framework for education and training. It does this by ensuring all citizens are provided with education and training and, in particular, to adult basic education and training.

The National Youth Policy acknowledges the Report of the National Committee on Further Education as a framework for the transformation of further education and training in South Africa. Further Education and Training (FET) is of major and direct relevance to the lives of many young men and women, especially those who previously suffered under Bantu Education as well as those who are currently out-of-school, principally because it provides training in vocational and technical fields.

VISION AND OBJECTIVES

When addressing the concerns of young women and men in the education and training sector it is important to avoid a narrow approach which can marginalise youth development issues. The education and training of young women and men must be firmly positioned as a youth development strategy. The main areas for youth development in the education and training sector which require attention are:

• access to education and training institutions and programmes so that the principles of equal access is ensured, especially through the design and administration of admission criteria;
• issues associated with student debt and the need for a new means of financing studies; and
• redressing the imbalances and inequities of the past, including the need to address institutional and procedural racism.

When addressing the issue of education and training from a youth development perspective, the following objectives for action have been formulated:

• to ensure the practical social and environmental needs of young women and men in the education and training system are addressed (including architectural design and structures which affect young people with disabilities) so they are able to make full use of the reforms and transformations in this sector;
• to respond with urgency and determination to the issues faced by out-of-school youth so as to ensure this group of young men and women are given new opportunities to engage in education and training; and
• to enhance and develop the skills, standards and behaviours amongst those who design, implement, manage and monitor youth development programmes and those who work directly with young men and women.

TARGET GROUPS

One of the most critical groups of young people in need in this sector are those who are considered "out-of-school"; young women and men who are no longer engaged in the education system, who are without employment, or any significant school qualification. These young women and men are in grave danger of being permanently unemployed or of participating in illegal or risky activities as a result of their alienation from society. Other target groups of particular concern are:

• young men and women who are disabled;
• rural young people;
• young women; and
• young men and women who are in correctional facilities.

Young men and women who are disabled require access to mainstream education along with all other young people. The provision of appropriate access and a supportive environment is essential to this group.

In addition to the specific needs of young women and men in education and training, is the need for human resource development within the youth work sector. South Africa has very few opportunities for workers with young women and men to develop and improve their skills. Thus, the education and training of youth workers is an important issue in youth development.

Finally, the National Youth Policy recognises that a sizeable number of young women and men suffer from special needs in education and training which, if not addressed, can severely limit their capacity to benefit from these services. These include, for example, young people with learning difficulties.

STRATEGIES

These objectives shall be met through the following strategies:

South Africa's new Constitution and Bill of Rights provides a framework for the protection of citizen rights. However, the legacy of apartheid has created a situation where previous cultural and procedural practices are entrenched through various public, community and business institutions. In order to promote and inculcate a new constitutional culture in line with the democratic order, the education of young women and men should inform new curriculum initiatives.

To address this, provincial departments of education should take actions to ensure civic or constitutional education is a part of the new curriculum for General and Further Education. This type of education must be linked to the National Qualifications Framework where appropriate. The Department of Education should work closely with provincial departments to ensure this strategy is effectively implemented.

Programmes and services provided by youth and community colleges shall be expanded and shall develop specific initiatives which address the needs of out-of-school young women and men, and not only those who failed matric. These shall include pre-employment training, vocational training and skills development. It shall also include remedial courses which help young people who are out-of-school to catch-up and return to school.

The National Youth Commission, in close consultation with the Department of Education, will investigate current curricula, action plans and accreditation of youth and community colleges to find ways where development and placement of out-of-school young people takes place through these institutions.

The main issues to be addressed when considering the issue of student financing are the need to ensure that a lack of personal finance does not prevent a young person from enrolling in higher education and finding a way to deal with growing student debt. Whilst addressing these issues, it is important to recognise that further and higher education should accommodate:

• strengthening of the financial aid programme for Further and Higher Education to ensure access to education for all, incorporating a revolving system of repayments into a national educational finance aid scheme;
• student financial aid be extended to distance education learners;
• some form of graduate tax be investigated and possibly linked to National Youth Service (see Strategy 8.1.4); and
• an investigation should be conducted into qualifying and offsetting student debt through internships and community work.

The Department of Education will undertake the above mentioned action, in close consultation with the National Youth Commission. Decisions on these matters will involve consultation with youth and student organisations, and other relevant stakeholders.

There has been a great deal of discussion and debate in the last few years around the concept of a national youth service programme. Indeed, there have been a number of NGOs who have been active in this work for some time (e.g. the Joint Enrichment Project and the South African Students Volunteers). The process of consultation and debate on this issue has lead to a great deal of consensus on the need for such a programme. Whilst issues of detail require further investigation and debate, the National Youth Policy sets a clear direction and rationale for the design and implementation of a National Youth Service programme.

National Youth Service combines the following four themes:

• development – where the skills and capacities of young women and men can be employed on projects and activities which promote development in South Africa;
• skills training – an opportunity for young people to gain new experiences and develop new skills which will benefit them later in life;
• national unity – where young women and men from all walks of life are given the opportunity to work together with a spirit of reconciliation and national unity;
• service – where young people and the country as a whole benefit through volunteering their services for the benefit of the broader community.

National Youth Service accommodates the needs, interests and opportunities of three target groups:

The National Youth Service programme will provide new life, work and educational opportunities to those young men and women who are no longer at school and who are unemployed. These people will be re-integrated into society through a structured skills and work experience programme which is nationally accredited and youth-focussed. It is envisaged that National Youth Service for this group of young people will be voluntary, possibly combining incentives.

The term "community service" as defined within the framework of a National Youth Service Programme as it applies to those in higher education has been described as a programme which is "linked to higher education that involves participants in activities designed to deliver social benefits to a particular community in ways that teach the participants to work jointly towards achieving the common goal." The programme targeting graduates is likely to use a combination of compulsory activities and incentives.

The National Youth Policy recognises the special needs and circumstances of young people who have returned from exile and those who have been de-mobilised. National Youth Service programme shall assist these people to be re-integrated into society through a structured skills and work experience programme which is nationally accredited and youth-focussed.

The creation of an effective National Youth Service programme will involve a range of different Government departments and ministries, including the Departments of Education, Labour, Defence and Public Works. It will also involve provincial administrations and local governments, the private sector, NGOs, trade unions, professional bodies, along with a range of youth development organisations and other role players.

The National Youth Service programme will operate along the following principles:

• inclusive of all young people, regardless of race, sex, or geographical location;
• promote a common sense of nationhood;
• promote reconstruction and development;
• link community service and internships to career-oriented studies;
• be accredited within the National Qualifications Framework (NQF);
• be linked to the national skills development strategy;
• be linked to the national strategy for economic growth;
• tap into public and private sector, as well as civil society resources;
• give special emphasis to rural development projects; and
• be linked to financial support for education;
• combine compulsory and incentive measures to encourage young people into the programme;

The National Youth Commission will prepare a detailed Green Paper on a National Youth Service Programme. This paper, which will be developed in close consultation with key stakeholders, such as those identified above, will address the following areas:

• purpose and structure of the programme;
• issues associated with curriculum and connections with the National Qualifications Framework;
• review of international experience;
• target groups (e.g. out-of-school young people; young graduates);
• types of service opportunities provided (e.g. heritage restoration, environment protection, community development);
• types of project locations (e.g. rural projects);
• financing options, which will include the mobilisation of private sector finances;
• organisational and management arrangements; and
• proposed time frames and possible pilot projects.

This detailed strategy paper will lay the basis and direction for the establishment of this programme.

The education and training of people who work with young women and men shall be improved through the creation of an accredited and specialised youth work training programme. This programme should be offered on a part-time or full-time basis and should include education and training for students in rural and remote areas (e.g. through distance education).

The National Youth Commission will work with the South African Youth Council, the Department of Education and other relevant youth and academic organisations to identify education and training needs amongst youth workers, review international training programmes and develop a proposal for a professional youth work training programme. This process should bring about a clear conceptualisation of a model for youth worker training. This model should incorporate structured education and training curricula within the National Qualifications Framework (NQF), formal accreditation of practical youth work and community development skills, recognition of prior learning, and a clear understanding of the practical and theoretical skills required for effective youth work in South Africa.

Because of the direct relationship between education and training and the enormous challenge contained within the transformation of this sector, it is essential that youth representation on the South African Qualifications Authority (SAQA) is assured. Thus, the Department of Education will negotiate with the SAQA for such representation which will be provided through the National Youth Commission.

Young women and men face a wide range of experiences in regards to their health. Whether this be through the maintenance of physical and mental well-being, or through health services which specifically address the particular needs of young people. The National Youth Policy recognises the need for policies and programmes which deal specifically with youth health.

Youth health is a multi-layered and inter-connected sector. The health of a young person can be affected by her or his access to clean water, environmental conditions, the provision of adequate sanitation, hazards faced in the workplace, and the provision of basic health education and personal hygiene. Moreover, the reason a young person engages in activities that are detrimental to health, such as through alcohol or drug abuse, may themselves be related to personal well-being and a sense of insecurity. Similarly, the impact of violence and significant social change can directly threaten the health of a young person, whilst the connection between infant and child health and the health of a young person is recognised. The efficacy of immunisation and early intervention programmes can all have repercussions on the health of an individual later in life.

The issue of access to health service is a major one for young people, especially those who are disabled.

When addressing the issue of youth health it has been particularly important to identify the influence of gender. Patriarchal attitudes, structures and procedures often undermine women, creating power relationships within which young women are often found vulnerable; in many occasions young women have less power over their own bodies than men, and are often required to be more accountable for their actions than young men are (e.g. teenage pregnancies). Violence against women affects all women and young women in particular. Thus, youth health strategies require a special emphasis on the threats to young women.

The health and well-being of young women and men can be threatened by a variety of circumstances. Not all young people share these circumstances and, therefore, the needs of specific groups must be addressed. These include:

• young women and young single mothers;
• young pregnant women who require a termination to their pregnancy;
• young men and women engaged in alcohol and substance abuse;
• young sex workers;
• young people living and working on the streets;
• young women and men with a disability; and
• young men and women with HIV/AIDS.

VISION AND OBJECTIVE

The major concerns for the health and well-being of young women and men can be addressed through the one primary objective: To develop action plans for the promotion and maintenance of youth health which address common threats to the health of young women and men, and the access young people have to health services.

STRATEGIES

This objectives shall be addressed by the following strategies:

The current efforts of the Department of Health to formulate a National Youth Health Action Plan are acknowledged and applauded by the National Youth Policy. It is essential that the following issues are directly addressed within the National Youth Health Action Plan:

• health promotion strategies appropriate to young women and men which emphasise healthy lifestyle habits and behaviours and which promote the concept of total wellness;
• access to health and rehabilitation services by young men and women, and the provision of "youth-friendly" health services and programmes;
• issues affecting the lives of young single mothers and strategies which can be implemented to help these vulnerable young women maintain their health whilst providing a healthy and safe environment to their children;
• issues affecting the mental health of young men and women, including a comprehensive understanding of mental health and an awareness of the factors which influence mental well-being;
• the identification of well-defined, gender-dis-aggregated and quantifiable data and research on a wide range of youth health matters, in particular on:
  • youth suicide;
  • alcohol and substance abuse by young men and women;
  • young sex workers;
  • traumatised young people;
  • terminally ill young people;
  • young people living and working on the streets;
  • young women and men with a disability;
  • young men and women with HIV/AIDS;
  • sexual and reproductive health; and
  • the health of young women;
• issues associated with youth suicide and high risk activities of young men and women, such as alcohol and substance abuse, violence and "unsafe" sexual behaviour;
• issues of customary practices (e.g. the circumcision of males and females) and the impact or dangers to the health of young people in consultation with the communities concerned;
• the establishment of community support structures for young men and women who require support in dealing with health, including preventative health, issues (e.g. through peer support, information and advice provided to alcohol and drug abusers, lonely or depressed young people, etc.) and
• issues associated with young sex workers.

The preparation of this plan which should be developed in consultation with all relevant government departments, should involve close liaison with the National Youth Commission and the South African Youth Council.

The National Youth Policy recognises the importance of the National AIDS Plan as a national framework for containing the spread of HIV and AIDS and treating those who are HIV Positive. The high incidence of HIV amongst young women and men, and the vulnerability of this group to future infections is an extremely serious concern. It is imperative, therefore, that the issues facing young women and men in this field are directly and comprehensively addressed.

A National Youth HIV and AIDS Strategy will be developed by the Department of Health and in conjunction with the National Youth Commission, the South African Youth Council and other relevant youth and health non-government organisations. This strategy shall address:

• education and awareness raising amongst young women and men in regards to HIV transmission and safe sex;
• education and awareness raising regarding safe sex practices and the role of responsible sexuality in the lives of young people;
• strategies for ensuring access to condoms;
• education and training for young people, especially young women, in the negotiation of safe sex;
• access to HIV testing and counselling services;
• access to medical services for young HIV Positive and AIDS patients;
• the roles and promotion of positive living role models;
• community support measures for young HIV Positive and AIDS patients;
• training for health workers;
• issues facing young HIV Positive and AIDS patients in the workplace and in the community.

The development of this strategy will involve close participation by young men and women who are living with HIV/AIDS.

Chapter 2 has referred to the manner in which teenage pregnancy has limited the access many young women have had to education. The expulsion or exclusion of young women from school as a result of pregnancy is an unfair and unjust practice. Not only are such practices sexually discriminatory, they condemn many young women to a life of ignorance and perpetuate the cycle of disadvantage.

Young women who become pregnant whilst still at school require support and assistance to deal with the responsibilities of motherhood and to complete and further their studies. Young fathers, on the other hand, need to be held responsible for their roles and the well-being of their partner and off-spring. Such approaches must recognise the complexities of these relationships whilst endeavouring to promote the empowerment, responsibility and education of the young people involved.

The Department of Education shall revise its current approaches and practices in regards to pregnant students and shall develop a detailed policy to address these situations. This policy should identify ways in which young pregnant students can be allowed and, indeed, supported to complete their studies. It should also consider the potential roles and responsibilities of the father, particularly where the father is also a student. In preparing this policy, the Department of Education shall consult closely with the Department of Health, the National Youth Commission and the Department of Welfare.

There are a range of laws in respect of youth health which need to be carefully reviewed and assessed. These include the ages at which a young women or man can consent to sexual intercourse, purchase alcohol and tobacco, enter into marriage, and enter into a contract of employment. Consultations with many youth health and youth development agencies have identified the need for review and reform in many of these areas. To this end, a Youth Law Team shall be established by the National Youth Commission. The terms of reference of this Team is described in Chapter 9.

The term "economic participation" is used in reference to strategies which can address the issues of young women and men's involvement in employment and enterprise. As described in Chapter 2 (2.4.5), young people, especially young women and young black women in particular, experience high levels of unemployment. When reviewing the issues facing young people and employment it has to be recognised that the South African economy and its labour market is required to compete in an international market. Currently, productivity and competitiveness is low and measures to increase youth participation in the economy should reflect a broader orientation for increased productivity and global competitiveness.

YOUTH EMPLOYMENT

There is a close and important connection between a young person's employment prospects and education. Education institutions need to recognise their responsibilities and roles in providing career counselling and employment advice to young people. This should be based on sound labour market information – dealing with supply and demand information, as well as employment trends. To achieve this, collaboration between organised labour, business and other stakeholders is required.

VISION AND OBJECTIVES FOR YOUTH EMPLOYMENT

Young women and men need to be equipped with a wide range and vocational and life skills, if they are to find and maintain employment. Specific training should be provided to address the multiple needs required by young women and men to get a job.

In addressing the critical concerns for young men and women in the employment sector, the following objectives have been set:

• to ensure that students and job-seekers are provided with relevant, up-to-date information regarding the labour market, potential job opportunities and pathways to employment; and
• to establish a comprehensive training and employment support strategy which assists young women and men in obtaining and retaining employment.

YOUTH EMPLOYMENT STRATEGIES

The National Youth Policy proposes three specific areas of action to enhance young people's participation in the labour market. When implementing these strategies the need for accessibility by young women and men with disabilities will be addressed.

There is a need for young women and men to be able to access information and receive guidance on existing job opportunities. This should be built into educational curriculum so that students are able to make career and study choices based on a clear understanding of the labour market and emerging job opportunities.

The Department of Labour will work with the Department of Education to find ways through which up-to-date labour market information can be incorporated into school curriculums. The Department of Education shall improve its career guidance services to students in schools and higher education institutions so that students have relevant and meaningful information on which they can base decisions relating to further education, training and employment.

For those young women and men who are not students and who are unemployed, specific Youth Career Guidance Centres shall be established. These centres should be community-based organisations supported by government, the private sector and the local community. They should provide career information guidance and information services through collaborative efforts between education and training institutions, as well as business and labour organisations.

The Department of Labour, with support from the National Youth Commission, shall investigate the feasibility of a national strategy for the establishment of Youth Career Guidance Centres. Should this concept be proven feasible, a national Youth Career Guidance Centre Programme will be formulated, providing practical support for the establishment and management of local centres.

At the local level, Youth Career Guidance Centres should involve local governments, non-government and community-based youth and development organisations. Youth Career Guidance Centres may, where appropriate, be located within multi-purpose youth centres (see Strategy 8.5.2).

The issue of youth unemployment is recognised as one of the country's greatest priorities. The waste of human resource and the debilitating effects of unemployment require this issue to be urgently addressed. In addressing the needs of young unemployed women and men, a National Youth Employment Strategy will be prepared which addresses, amongst others, the following issues:

• Preparation for employment programmes should be established for young unemployed women and men. These programmes should cover "soft" (i.e. life skills) and "hard" (i.e. vocational) skills and should acknowledge the wide range of needs young people face and include structured and experiential training (e.g. on-the-job training and work experience).
• Structured "learnership", apprenticeship or traineeship opportunities must be provided to young men and women who are unemployed. These training opportunities should be vocationally oriented. Such programmes should be undertaken by the Department of Labour in close consultation and cooperation with employers. Employers should also be required to contribute financially to cover some of the costs of the programme.
• Training contracts or agreements between training institutions and large employers or employer organisations should be established. These compacts shall be agreements for employment of those who have achieved specified skills in nominated vocational fields.
• Employer incentives should be developed to encourage private sector employers to train and employ a young unemployed person. Such incentives may include wage subsidies or tax rebates.
• Employment internships should be made available within the public and private sectors to provide young women and men with practical employment experience.
• Specific programmes should be designed to address the particular employment and recruitment needs of young people and other disadvantaged groups (e.g. young women, young men and women with a disability, addressing racial imbalances).

These elements should be contained in a comprehensive and integrated National Youth Employment and Training Strategy. This Strategy shall be prepared through collaboration between the Department of Labour and the National Youth Commission.

The representation of young women and men on agencies which are responsible for the governance of employment and training programmes is an important prerequisite to the design and implementation of programmes which benefit young people. The National Youth Commission shall consult with the Department of Labour, the National Training Board, and other appropriate bodies to find ways where youth interests can be adequately represented.

YOUTH ENTERPRISE

Currently, however, self-employment is often considered by young people only as an option of last resort, when other education, training or employment options have been exhausted.

The National Small Business Promotion and Development Strategy and the National Small Business Act (1996) provide a national framework for the promotion of small business. Youth self-employment (with a focus on school leavers and unemployed youth) have been identified as an important target group within the National Small Business Strategy. Unfortunately, however, there have been few programmes and services described in this Strategy to ensure the needs of this target group are met. In spite of this, the Ntsika Enterprise Promotion Agency supports two programmes which focus on young entrepreneurs. In addition, a Youth Entrepreneurs Network has been created with support from Ntsika with the aim of bringing together young entrepreneurs and youth enterprise development practitioners, to share information, promote best practice approaches, identify needs and design new support programmes. Moreover there are a number of non-government organisations involved in youth enterprise promotion, including, for example, Youth Enterprise Society, the Education with Enterprise Trust and the Centre for Development Opportunities. The National Youth Policy applauds the efforts of these groups and proposes efforts which both strengthen and builds upon the successes of these activities.

VISION AND OBJECTIVES FOR YOUTH ENTERPRISE

Self-employment and small business ownership and management should be promoted as a more favourable career choice, rather than an option of last resort. Business skills training is required, especially in the fields of business planning and tendering procedures. Training should be linked to emerging business opportunities and should endeavour to assist young women and men in overcoming the barriers they face to self-employment. Barriers young people face to entry into small business (e.g. lack of experience, perceived lack of reliability) need to be addressed directly through the provision of information, training and practical advice. Small business or youth entrepreneurship programmes should be practical and action-oriented. The successes of young men and women in business need to be highlighted (e.g. the promotion of role models). Support services should also be offered to those young men and women who already own and manage small businesses to become more competitive and not just those who are entering small business.

The objectives for the promotion of youth enterprise are:

• to establish a comprehensive entrepreneurial support strategy which assists young women and men in starting and managing their own enterprises; and
• to promote youth enterprise as a viable career option for young women and men and to ensure youth enterprise development programmes address the main barriers and opportunities facing young people.

YOUTH ENTERPRISE STRATEGIES

The National Youth Policy proposes the following strategies must be designed and implemented to promote youth enterprise. When implementing these strategies the need for accessibility by young women and men with disabilities will be addressed.

The school environment can have an important impact upon young women and men and is a significant influence on the life and career aspirations of young people. The opportunities for self-employment as a career option for young men and women should be promoted more widely and effectively. Self-employment should be recognised as a legitimate and meaningful career option and not just as an option of last resort.

The Department of Education and Ntsika Enterprise Promotion Agency shall cooperate in the development of career information related to self-employment, the pathways for young women and men who are interested in exploring this option, and the resource agencies which can assist.

Finally, "enterprise education" has become a significant part of many education and training institutions around the world. It is seen as an important ingredient in preparing young women and men for their movement from school, college or university to the workplace for students to understand and consider self-employment as a career option. There are two general types of enterprise education: learning about business development, administration and management; and developing the skills of enterprise through teaching methods will encourage responsibility, initiative and problem solving. The Department of Education shall investigate ways where the notion of enterprise education can be used more extensively in the school curriculum.

A national youth enterprise support and information service should be established for the promotion of youth enterprise. This initiative should be developed through the efforts of the Centre for Small Business Promotion in the Department of Trade and Industry and should ensure participation of the three major institutions engaged in small business promotion, namely the National Small Business Council, Ntsika Enterprise Promotion Agency and Khula Enterprise Finance Limited. Key youth agencies such as the National Youth Commission and other relevant agencies shall also be engaged as project partners. This initiative shall provide information and support to young women and men and youth and business development organisations in the start-up and expansion of small businesses. It shall work through existing youth and business development organisations to monitor and review youth enterprise promotion services whilst promoting best practices in youth enterprise development.

As an initial task, this agency should develop, in association with key national small business promotion agencies and youth organisations, a national youth enterprise strategy. This strategy should address the barriers young people face to entry into small business (e.g. lack of experience, perceived lack of reliability) and design practical measures which overcome these. In addition, a youth enterprise budget and audit should be prepared outlining the funds spent on youth enterprise by the major small business promotion agencies and how many young women and men benefit through the activities of these agencies.

When undertaking this work attention will be given to the special needs of out-of-school young women and men, and young returnees.

Many young men and women are directly affected by the issues of crime and justice. Young women and men are often victims of crime and can be exposed to threatening or unsafe environments. However, some young women and men also participate in crime. Thus, there are safety and security issues for young victims of crime, as well as justice and rehabilitation issues for the perpetrators.

Social conflict in South Africa has pronounced political and social dimensions. The role of young women and men in the struggle and the legacy of violence continues to affect young people. Many local communities have a high tolerance of crime and violence which is easily exacerbated by poor socio-economic conditions (e.g. inadequate and over-crowded housing, high rates of unemployment, and the dislocation of families). Amongst those young women and men who are engaged in crime it is common to find a "culture of violence"; where fighting is a common practice, social status is gained by carrying guns and the romanticised portrayals of a "hero's funeral" are encouraged. However, there is often a great lack of self-esteem and personal confidence amongst these young people; positive young role models are few and negative images, including those portrayed in the media, make crime more attractive. Such high risk activities are often indicative of a poor self-concept. The involvement of young people in drug and alcohol abuse is also closely connected to criminal behaviour.

Young offenders who come in contact with the police and criminal justice system are often faced with highly threatening circumstances. Most young people have to cope with adult prisons, even when awaiting trial. The opportunities for correctional and rehabilitative services outside prison are extremely limited.

The South African Law Commission has established a special Project Committee on Juvenile Justice which is preparing and recommending legislation on young people in trouble with the law. It is anticipated that the final recommendations from the Law Commission will be presented in mid-1998. The issue of criminal capacity is an important issue. Children older than seven years, but younger than 14 cannot be convicted of a crime unless the state proves the child can tell the difference between right and wrong and knew the offence was wrong at the time she or he committed it. The Law Commission is currently investigating this issue which will also be addressed through the Youth Law Review Team, described in Chapter 9.

TARGET GROUPS

When addressing the issue of safety, security and justice the following target groups require particular attention:

• young men and women who are at risk, i.e. those who have a greater potential for undertaking criminal activities as a result of their life circumstance or participation in risk-taking activities (as described in Target Groups, Chapter 7);
• young women and men who are in contact with the law (e.g. arrested, attending court, in prison or correctional facilities); and
• young victims of crime – who may be greatly traumatised as a result and require specific assistance and support.

VISION AND OBJECTIVES

The National Youth Policy shall address the following objectives in relation to young people and the need for safety, security and justice:

• to promote community-based preventative measures to youth crime; and
• to sensitise the police and justice system to the specific concerns of young women and men.

It is understood that in addressing these objectives a range of strategies described in other sectors are relevant. The involvement of young men and women in crime can be symptomatic of broad social and economic circumstances; where out-of-school young people, for example, may be more likely to participate in criminal activities. Thus, youth crime requires a broad holistic understanding of these issues and the response to them.

STRATEGIES

With this broader context in mind, the following strategies have been designed to address the above mentioned objectives:

The current SAPS Youth Desk is a good first step in addressing the concerns of young women and men in the police system, however, this initiative needs to be strengthened and expanded. SAPS Youth Desks should be established in every province and, where possible, in every major population centre. The functions of the Youth Desk should be expanded to include:

• data collection on young people who come into contact with the police;
• the development of strategies which improve the way young men and women are dealt with by police;
• closer liaison with different sectors of society, including families and local communities;
• greater contribution to the development of strategies which improve the way young women and men are prevented from offending; and
• the training of police personnel on youth issues.

The SAPS shall undertake actions which lead to the strengthening and expansion of the Youth Desk, in consultation with the National Youth Commission and the Inter-Ministerial Committee on Young People at Risk.

The National Youth Policy recognises the Government's desire to find alternatives to incarceration wherever possible. This desire has been best articulated by President Mandela who said "... the Government will, as a matter of urgency, attend to the tragic and complex question of children and juveniles in detention and prison. The basic principle from which we will proceed from now onwards is that we must rescue the children of the nation and ensure that the system of criminal justice must be the very last resort in the case of juvenile offenders."

There are many possible alternatives to the incarceration of young women and men – especially for first offenders or those who have not committed serious crimes. These include community service orders, community intervention programmes, occupational skills training and rehabilitation programmes. The rehabilitation of young people under the age of 18 years will also require different measures than those who are older.

In addressing this situation, the National Youth Commission will consult with the Inter-Ministerial Committee on Young People at Risk and relevant non-government organisations to establish a mechanism whereby the alternatives to incarceration can be systematically and practically assessed.

The notion that it takes a whole village to raise a child is based on a spirit of humanity encompassing a principle of people caring for each other's well-being within an attitude of mutual support. The impact of colonialism, urban migration and apartheid along with the breakdown of family life has dramatically affected village and community life. As a result, many communities contain young women and men who have been abandoned, abused, neglected or threatened. Young people "at risk" are often alienated from community support structures and their families. Thus, the National Youth Policy encourages the development and maintenance of supportive communities which nurture the growth of its young people.

The welfare of a young person is, therefore, a community responsibility. Whilst government has its role to play, the whole community must find ways to nurture the development of young women and men and to protect vulnerable and most at risk.

TARGET GROUPS

The Department of Welfare has identified the following target groups of young people as those who deserve particular attention:

• out-of-school and unemployed young people;
• pregnant and teenage mothers, young men and women in dysfunctional families;
• young women and men with disabilities;
• young people involved in substance abuse;
• young offenders, young victims of crime and violence;
• homeless young women and men and those who live on the street;
• young HIV Positive and AIDS patients;
• young people who are sex workers;
• young men and women in gangs; and
• young returnees.

The National Youth Policy recognises the importance of these young people at risk and the need for programmes and services which are designed to assist these groups. The Department of Welfare's Flagship programme, designed to assist mothers with children under the age of five years, is also recognised as a valuable new programme which addresses the needs of these predominantly young women.

VISION AND OBJECTIVES

The National Youth Policy promotes the development of local communities which provide practical support measures for the development of young people and protects and nurtures vulnerable and disadvantaged young women and men. Self-help and community-owned and managed initiatives are specifically encouraged.

The National Youth Policy addresses the following two objectives which are of primary concern when considering the welfare of young men and women and the communities in which they live, work and study:

• to encourage the development of community-based youth development programmes and services; and
• to promote the design and implementation of services and facilities and encourage and enhance the use of existing facilities which support young women and men who are at risk, or in danger of coming into risk.

STRATEGIES

In order to address these objectives the following strategic framework is proposed:

• promote and support inter-departmental (at central, provincial and local levels), inter-governmental and inter-sectoral collaboration and networking between government departments, the National Youth Commission, non-government organisations and community-based organisations;
• increase the accessibility of all services to young women and men;
• integrate programmes for young people with special needs with other comprehensive and generic services;
• facilitate participation and involvement of young men and women in youth services;
• design and develop innovative programmes which are youth-driven and are inclusive of young people with disabilities.

The following strategies are specifically proposed:

Access to information is a key component in addressing the needs of young women and men and their communities. Youth information services should be regionally based and would principally achieve access for young people to information, referrals, advice and assistance on a wide range of issues concerning young people.

A youth-specific information services shall be developed to provide young women and men with access to a wide range of information, support and resource services which can address their particular needs, concerns, problems or opportunities. This information service will be based on a free telephone (0800 number) calling service, where young people in need of assistance can call from anywhere in the country.

The youth information service shall offer information on a wide range of issues including crisis help, health services, employment support programmes, unemployment support services, drug and alcohol advice, emergency services and youth rights.

The development of the youth information service will be preceded by a comprehensive conceptual and feasibility study. This will describe the roles and operational functions of the service along with management and funding considerations. It is anticipated that private sector sponsorship will be used to supplement government funds in the establishment and operations of the service. The National Youth Commission will take prime responsibility for this task.

In addition, the National Youth Commission will investigate the possibility of creating a Youth Card, which provides young people to a wide range of services, information and supports.

Many local communities across the country have few or inadequate facilities in which youth development programmes, services and activities can be located. Whilst the National Youth Policy recognises the danger of promoting new facilities which can be expensive to build and which distract limited funds away from support services being provided directly to young women and men, the need for specialised youth facilities in some communities is paramount. In many cases new buildings will not be necessary, since existing ones can be modified and refurbished.

The concept of a multi-purpose youth centre has been broadly accepted as an effective means of drawing together youth-specific services in a local community setting. As the name suggests, a multi-purpose youth centre can accommodate a range of youth-related activities in a "youth-friendly" and accessible location. It is anticipated that these centres would be community owned and managed. They may draw on financial and technical assistance from a range of sources, depending of the activities and programmes undertaken. The roles of local youth development organisations and local government, and the potential for partnerships between these bodies, is particularly important.

The Department of Welfare shall work with the National Youth Commission to develop the concept of a multi-purpose youth centre further and to establish a pilot programme. In all cases, a multi-purpose youth centre, or any other youth facility, shall be based on identified needs whilst maximising the use of existing resources (e.g. buildings, personnel, agencies) where ever possible. It is anticipated that the Department of Welfare will take responsibility for administering a support programme for the development and management of multi-purpose youth centres.

Community initiatives which are initiated and driven by young women and men and nurture their development is a fundamental development strategy. Community initiatives can be used to focus on youth health issues, employment and unemployment concerns, as well as general support and counselling services. They can also promote youth leadership training and peer support services. The creation of young womens' forums is also a particularly important form of community initiative which should be encouraged. However, to achieve these types of initiatives, attention must be given to building the capacity of local communities and community-based organisations.

The promotion of community initiatives will involve a dual programme of support. It will firstly require the Department of Welfare, in association with the National Youth Commission, to prepare a programme of support which promotes self-help and community youth development initiatives. This programme will contain information on a wide range of themes including:

• community and youth development processes;
• ways to identify community and youth needs;
• how to plan and manage community initiatives;
• support and training to relevant service providers and care-givers; and
• resource agencies (where to go to for help).

The second area of promotion shall be undertaken by the National Youth Commission, in association with the Department of Welfare and the South African Youth Council. This will involve the provision of information and training to help youth workers and community development practitioners to become better able to plan, implement and manage community youth development initiatives.

In South Africa, where sports and recreation have often been organised through local school structures, apartheid policies often prevented this in all schools. Thus, many civic sporting bodies also played an important role in mainstreaming sport and promoting it as a valued means of youth development. The combining of sport and recreation through the education system makes good sense because it encourages access, promotes a rounded education and builds confidence. The Department of Education's policy on educational curriculum, Curriculum 2005, supports this view, but is unclear as to precisely how sport and recreation should feature in school curriculums.

For many young women and men, participation in sport and recreation has been frustrated by the limited financial support provided to facilities and the great variations in the standards of facilities that are available (especially between rural and urban areas). The National Youth Policy promotes the participation of young men and women in recreation, leisure and sporting activities. To this end, coordination, the development of facilities and access by young people to these facilities, the provision of services (e.g. training and guidance) and the involvement of all sectors (i.e. government, community and private sectors) in these endeavours is essential.

VISION AND OBJECTIVES

From the perspective of youth development, the National Youth Policy has two central objectives in regards to sport and recreation:

• to broaden the participation of young men and women in a wide range of sporting and recreational pursuits; and
• to promote excellence in sports by young people at national and international levels.

TARGET GROUPS

The above objectives have a particular emphasis on those young people who have previously been denied access, or only given limited opportunities, to participate in sport and recreation; this includes young black women and men, young women, and young men and women with disabilities. The problems of young people in rural areas also deserve particular attention since many rural communities have inadequate facilities compared to urban settings.

STRATEGIES

To address this objective the following actions should occur:

A sports and recreation ethic or culture should be promoted throughout local communities in a way that the principles of fair play and physical well-being are encouraged. This will require parents, community leaders, politicians, local government, youth clubs and sporting organisations to promote and encourage participation in a wide variety of sports and recreational activities. Positive role models of young sports-people are required, along with generic entry level programmes in schools and local communities.

The participation of young women and men in sporting organisations is also essential if these organisations are to effectively respond to the needs and aspirations of young women and men. Thus, youth participation in decision-making structures is desirable and necessary.

The Department of Sport and Recreation shall take responsibility for working closely with the National Youth Commission and the South African Youth Council to design strategies which promote a positive and active attitude toward sport and recreation by young men and women. It is anticipated that these strategies will utilise the broad network of sporting clubs, youth clubs and youth development organisations that can be found across the country.

In designing these strategies it is essential that the needs of specific target groups are addressed, particularly young women and young women and men with disabilities. It is also imperative that the racial imbalances currently found in participation levels for sport and recreation are addressed as a matter of urgency.

Finally, it is recognised that many people begin to participate in sporting and recreational activities before they become a youth (i.e. before 14 years of age). Thus, entry into sporting and recreational pursuits is also an important issue for child development. With this in mind, there is a crucial need for a Junior Sports Policy. The National Youth Commission will support the efforts of the Department of Sport and Recreation and other relevant agencies in the formulation of such a policy.

Efforts should be made to promote greater support for sport and recreation through the school system. This means that sport and recreation facilities need to be established in local schools and, where it may not be possible to create these facilities now, space and plans should be created for the establishment of such facilities in the future. Furthermore, the education system should provide generic skill programmes which promote and encourage sport and recreational activities amongst young men and women.

In proposing this strategy the National Youth Policy supports the Government's White Paper on Sport and Recreation and the Department of Sport and Recreation in its insistence that "physical education and the provision of basic equipment should form an integral part of the entire school education programme. Physical education instruction should be compulsory, be offered during the normal school day and [by] suitably qualified teachers..."

In designing these facilities and programmes it is essential that the needs of specific target groups are addressed. Particularly young women and young women and men with disabilities. It is also imperative that the racial imbalances currently found in participation levels for sport and recreation are addressed as a matter of urgency.

The Departments of Education and Sports and Recreation, in association with the United Schools Sports Association of South Africa, shall take responsibility for ensuring these facilities and programmes are developed wherever possible.

Sport and recreation facilities in local communities are, on the whole, inadequate or non-existent. There is a need for local communities to maximise the use of existing facilities and, where possible, to make use of facilities which were not originally envisaged for such uses. The development, maintenance and use of parks is particularly important for the promotion of sports and recreation within local communities. Thus, the Department of Sport and Recreation shall negotiate with the following agencies to facilitate use by local communities of facilities. In particular:

• the Department of Education will investigate ways in which school facilities can be used by the local community for sport and recreation after school hours; and
• the Departments of Public Works, Defence and Public Enterprises and the National Parks Board will investigate the use of state owned facilities, including parks, for community sport and recreation purposes.

In addition, local governments should actively identify and facilitate opportunities for community sport and recreation facilities. (Chapter 9 provides more details on the roles of local government in this regard.)

The process of implementing those strategies outlined above will require a determined commitment to consult with key stakeholder groups. In particular, representative organisations of young people with disabilities and young women should be engaged in all these activities. The National Youth Commission shall facilitate inter-departmental integration and co-operation of the strategies outlined above and shall monitor the role of government departments, national sporting federations and other relevant groups in their efforts to promote more rounded and participatory sport and recreation programmes and services to all young women and men.

Arts and culture are important sectors for young women and men. Through arts and culture, young men and women are able to express their personal and collective views on society and the world in which they live. Arts and culture promotes creativity and a questioning of the norms, values, directions and make-up of society. At the same time, it can be a powerful means of communication, can create social networks whilst educating, informing and breaking through the barriers to social and cultural diversity. It also contributes to the promotion of reconciliation. Arts and culture is also an important industrial sector. One where new economic and employment opportunities can be generated and where human creativity can directly contribute to the national economy.

During the apartheid era many artists found they were exploited and restricted in their work. There is a need to redress these experiences amongst artists and to promote a new environment which nurtures artistic expression and recognises the important role of art and culture in society. This should be done whilst linking art and culture to other developmental strategy areas.

The challenge for many existing arts and culture programmes is to address the diverse needs, interests and opportunities of young women and men in this sector. Whether this is achieved through the design of specific youth programmes or by broadening existing programmes so that they can effectively accommodate young people, it is clear that youth participation in such programmes is essential.

VISION AND OBJECTIVES

When promoting youth participation in arts and culture, it is important to encourage artistic freedom and integrity whilst appreciating and maintaining diversity. Young people's participation in arts and culture should cover all mediums. It should expose young people to different forms and recognise the need for gender equality.

When addressing the issue of arts and culture amongst young women and men the following objectives have been formulated:

• to promote the participation of young women and men in all forms of art and culture; and
• to ensure young men and women have a sound understanding of the national culture and heritage.

TARGET GROUPS

In addressing the above objective and within all the strategies for arts and culture described below, it is important to ensure the needs of specific youth target groups are addressed. These include out-of-school young men and women, young women, and young men and women with a disability.

STRATEGIES

The National Youth Policy promotes the following strategies in pursuit of these objectives:

The Department of Education's policy, Curriculum 2005, identifies arts and cultural education as one of the eight learning areas within the new curriculum framework. This is a recognition of the ways in which education in arts and culture develops creativity through the exploration of diverse cultures as well as the spiritual, intellectual and emotional aspects of life.

The efforts of the Department of Education are supported in this regard, although it is clear that further detail on how arts and culture will be taught in the education system will be required. Emphasis should be given to providing a broad introduction to this field of study, exposing students to a wide variety of forms and expressions. This will require good teaching skills and preparedness to allow students to explore and experiment.

In community settings, arts and culture can provide a significant focus for development efforts. To this end, local communities should be encouraged and supported in undertaking a range of arts and cultural activities. These may include, for example, community projects which:

• preserve local heritage and historical sites;
• use drama as a means of communicating a health or development message;
• encourage the writing of local stories and songs based on the culture and history of the community;
• expose local artists to both local and international markets; and
• provide facilities for local performances.

The Department of Arts, Culture, Science and Technology shall, with the support of the National Youth Commission, and a representative from the South African Youth Council, prepare a guide book for local communities on the ways in which young women and men can become involved in community-based arts and culture activities. This will be a practical guide with many examples, ideas and information on how to access resources.

The representation of young men and women's interests in arts and culture decision-making bodies is essential, if participation by young people is to be increased. In particular, young women and men should be represented on the two peak national arts and culture bodies, being the National Arts Council and the proposed National Heritage Council. This representation shall be coordinated by the National Youth Commission in consultation with these two Councils.

Young women and men can perform a significant role in the environment and tourism sectors. These sectors provide a focus for specific youth concerns, whilst opening new opportunities for employment and enterprise.

YOUNG PEOPLE AND THE ENVIRONMENT

In its broadest sense, the environment contains the conditions or influences under which any individual or thing exists, lives or develops. These include the natural environment (including renewable and non-renewable resources such as air, water, land and all forms of life); the social, political, cultural, economic and working conditions that affect the nature of an individual or community; and natural and constructed spatial surroundings, including urban and rural landscapes and ecosystems and those qualities which contribute to their value.

When considering young people and the environment there are two broad issues. The first concerns the impact of environmental degradation on young people. Where, for example, pollution and waste management affects the quality of life all people experience. Young people, as with people of all ages, have a right "to an environment that is not harmful to their health or well-being; and to have the environment protected for the benefit of present and future generations (Constitution, Section 24). The second issue concerns environmental management and improvements; where young women and men can take an active role in participating in programmes and activities which improve the environment. Examples may include recycling, tree planting, community "clean-ups" and land reclamation.

Apartheid policies have made a significant contribution to a number of negative environmental impacts. The black majority were forcibly moved from commercial farming land to over-crowded and under-serviced rural and urban settlements. Often they had to live close to industrial areas and waste dumps, exposed to environmental hazards. Survival sometimes demanded unsustainable and environmentally damaging practices.

ENVIRONMENTAL VISION AND OBJECTIVE

The National Youth Policy has adopted one primary objective to deal with environmental concerns and young people: to increase awareness amongst young women and men of the issues associated with the environment and actions that can be taken to improve local environments.

ENVIRONMENT TARGET GROUPS

In addressing environmental and tourism concerns the needs of rural and poor communities should be given special attention.

ENVIRONMENT STRATEGIES FOR YOUTH DEVELOPMENT

The following strategies have been designed to address this objective:

Provincial departments of education and environment shall investigate ways through environmental awareness can be promoted through the school curriculum. This awareness raising shall include aware of local environmental issues, sites and heritage. It shall also include an emphasis on individual and collective actions – the things that can be done to improve and protect the environment.

The Department of Environmental Affairs and Tourism shall consult with the National Youth Commission, the South African Youth Council and relevant environmental NGOs to prepare a guide outlining the actions young women and men, youth clubs and youth development organisations can take regarding community initiatives to improve or protect the environment.

In addition, the National Youth Commission, when conducting its investigation into a national youth service programme (Strategy 8.1.4) will consult with the Department of Environmental Affairs and Tourism to identify ways in which community-based environment projects can be assisted through this programme.

YOUNG PEOPLE AND TOURISM

Tourism is the largest and fastest growing industrial sector in the world and South Africa is well placed to develop within this sector as international interest in the country grows. Whilst high rates of crime may deter some visitors, South Africa is becoming a gateway to the rest of Africa. The opportunities for eco- and cultural tourism are especially significant within this sector.

TOURISM OBJECTIVE

When addressing the issue of young people and tourism the National Youth Policy has adopted the following objective: to promote a conducive environment for economic opportunities for young men and women in the tourism sector.

TOURISM STRATEGY

The following strategy has been designed to address this objectives:

Employment within the tourism sector can present particular opportunities for young people. To realise these, however, young women and men require career guidance and access to vocationally oriented training and work experience. The National Youth Employment Strategy (see Strategy 8.3.3) should contain specific reference to the ways in which training and employment in the tourism sector can be addressed.

Similarly, the National Youth Enterprise Development Initiative (see Strategy 8.3.6) should include the identification of opportunities for youth enterprise in the tourism sector.

Science and technology are changing the world at unprecedented rates. Scientific understanding and the introduction of new technologies affect many areas of life; how people live, the type of jobs they have, the way they communicate, the way they travel and the way they are entertained. For young women and men, science and technology can offer new opportunities and new challenges. It is, however, important for young women and men to be fully informed of the opportunities in this sector and able to make use of such developments.

Apartheid created a situation in South Africa where only white students were exposed to new developments in science and technology. Black students were not encouraged to study or work in these fields. Thus, addressing the legacy of apartheid requires special measures and encouragement to assist those who were previously excluded from this sector. This will require education and training, and the provision of community-based and accessible facilities.

In addition, rural communities have suffered as a result of access to technology. Where urban centres exhibit a thirst for new technologies, many rural environments are vastly under-resourced and unable to make full use of even the most basic facilities.

VISION AND OBJECTIVES

The Information Age has opened schools, young people, work places and local communities to new and vast sources of information from around the world. It is important that all young women and men in South Africa are able to operate in this environment and to make the most of the opportunities these changes bring. For many, the key to the future lies in access to information.

Key objectives of the National Youth Policy in addressing these issues are:

• to raise awareness amongst young men and women of the opportunities in science and technology;
• to bridge the knowledge and information gaps found in South African society, including the gap between particular racial groups, and
• to enable young women and men and youth development agencies to use new and appropriate technologies which enhance their development opportunities.

STRATEGIES

The following strategies have been designed to address these objectives:

Young women and men need to become aware of the developments in science and technology and the ways these can improve their life and future opportunities. The promotion of science in schools, especially amongst young female students, is very important.

The promotion of science and technology role models and networks will be pursued through the following initiatives:

• Youth science awards – the Department of Arts, Culture, Science and Technology to negotiate with the Department of Education, CSIR and potential private sector sponsors (e.g. Siemens) on the organisation and promotion of an annual Young Science award. This award programme should highlight the involvement of young women and men in the sciences.
• Encouragement of science and technology clubs – especially within schools. The Department of Education, along with provincial ministries of education, shall provide a programme of support for the establishment of science and technology clubs within schools. These clubs shall promote peer networks and interest groups around science and technology.

Information technology has the potential to enable rural and remote communities to access new sources and supports in the field of education and training. Consistent with the objectives of education and training within the National Youth Policy (see 8.1) and the development of community-based youth facilities such as multi-purpose youth centres (see 8.5.2), information technology centres should be established in rural and remote areas as support facilities for distance education learners.

The Departments of Education and Arts, Culture, Science and Technology shall, in liaison with groups such as CSIR, co-operate to investigate ways in which information technology centres can be created to support distance education and training.