Memorandum submitted by the War Pensions
Agency (WPA 8)
EXECUTIVE SUMMARY
The War Pensions Agency (WPA) is an Executive
Agency of the Department of Social Security (DSS) and was launched
in April 1994. It is responsible for the administration of the
War Pensions Scheme.
The Agency was established with a remit to deliver
a consistent, efficient and effective service for the assessment
and payment of war disablement and war widows pensions and to
provide welfare support when needed to war pensioners, war widows
and their dependants and carers.
In meeting that remit, the Agency has a declared
purpose to work in partnership with other organisations and to
deliver the War Pensions Scheme through a modernised and high
quality customer focused service. The Agency Business Plan for
1999-2000 describes What the Agency has to deliver in the
next year in terms of priorities and targets. It also describes
the Agency values which reflect the culture and behaviour of the
organisation in How the Agency goes about its day to day
business to meet its targets.
The Agency recognises that it has a part to
play in a wider context to support Government and Departmental
priorities and it is committed to further improvements in service
delivery. We have consulted and listened to those who receive
war pensions and their representatives and we will continue to
tailor our services and targets to ensure that war pensioners
and war widows receive the best quality and most efficient services,
consistent with Government and Departmental priorities.
Our key priorities for 1999-2000 are:
To improve significantly the decision
making and appeals process for war pensioners and war widows,
in accordance with the law and in keeping with the principles
of Service First, whilst ensuring that we continually strive to
improve the quality of our service.
To work co-operatively across departmental
boundaries, particularly with the Ministry of Defence, Lord Chancellor's
Department and the Court Service, to meet the Government's wider
objectives for "joined up" government and to ensure
positive outcomes for our customers.
To further develop our constructive
partnerships with ex-service organisations to ensure that war
pensioners and war widows receive high quality welfare advice
and support.
To manage change successfully so
that we deliver our business objectives in line with the principles
of Welfare Reform, the Modernisation programme and the needs of
our war pensioners and war widows.
To ensure the Agency continues to
function effectively in the run-up to, through and beyond the
Millennium Date Change.
To support our operational priorities,
by ensuring our staff are well informed, trained, motivated and
provided with the most appropriate opportunities to deliver their
full potential to underpin the continual improvement of our service.
To manage budgets efficiently and
effectively, maintaining a sound financial regime with appropriate
controls and financial arrangements.
To provide a high standard of residential
and nursing care at Ilford Park Polish Home.
SECTION 1INTRODUCTION
1.1 The War Pensions Agency was established
as an Executive Agency of the Department of Social Security in
1994. It was formed from the War Pensions Directorate of the BenefIts
Agency and it is responsible for the administration and delivery
of war disablement and war widows pensions and for providing welfare
support to war disablement pensioners, war widows and their dependents
and carers.
Background
1.2 State provision for war pensions dates back
to the reign of Queen Elizabeth I when the first formal scheme
for war pensioners was established under Acts of Parliament passed
to make provision for those "in the Service of Her Majesty
and of the State" who were maimed or incapacitated.
1.3 There was little change to the original
provisions for those injured in conflicts until the First World
War. The number of casualties from the Great War highlighted the
fact that the arrangements for the administration and payment
of war pensions were inadequate. In 1916, a Parliamentary Select
Committee recommended that the existing pension provisions should
be incorporated into one War Pensions Scheme administered by a
new Department. In 1917 the Ministry of Pensions was established
which was later to become part of the Department of Social Security.
In 1992, it was decided that war pensions should be administered
by a separate Executive Agency within the DSS and in April 1994,
the War Pensions Agency was formally launched.
1.4 The Agency administers the War Pensions
Scheme for over 320,000 war pensioners and war widows both in
the UK and the Republic of Ireland and in over one hundred countries
throughout the world. It also provides welfare support through
a local network of field based caseworkers and it manages the
Ilford Park Polish Home, a purpose built residential care and
nursing home in Newton Abbot, Devon, established under the 1947
Polish Resettlement Act.
1.5 The Agency's Framework Document describes
its aims as delivering a consistent, efficient and effective service
for the assessment and payment of war disablement and war widows
pensions and to provide welfare support when needed to war pensioners,
war widows their dependents and their carers.
1.6 The Business Plan for 1999-2000 puts these
aims into the current context and describes the War Pensions Agency
purpose as working in partnership with other organisations to
deliver the war pensions scheme through a modernised and high
quality customer focused service.
Central Advisory Committee
1.7 In 1921, legislation was passed to introduce
a Central Advisory Committee (CAC) on War Pensions. The Committee
is chaired by the Minister with special responsibility for war
pensions. The membership is drawn from Chairmen of the War Pension
Committees, ex-servicemen, representatives of ex-service organisations
and Departmental officials. The Committee provides advice to the
Minister with special responsibility for war pensions, on matters
affecting disabled ex-servicemen and women and their dependents.
The Chief Executive of the Agency also attends the meetings and
presents a paper reporting Agency activity. A list of the current
CAC members is at Annex A.
War Pension Committees
1.8 There are 29 War Pension Committees (WPCs)
throughout the United Kingdom. Each Committee consists of 30 voluntary
members drawn from the local community. Each Committee is reconstituted
every five years and meetings take place approximately four times
a year. In addition, there is a War Pensions Advisory Committee
in the Irish Republic which operates along the same lines as the
WPC. The WPCs provide valuable assistance to the Welfare Service
in looking after the welfare of war pensioners and war widows
in their area. They advise the Agency, the Department and Ministers;
they hear complaints; and they make recommendations to the Agency
on specific cases. The Agency provides secretarial and administrative
support to the WPCs and values their experience and independent
view. The role of the WPCs and their locations is shown at Annex
B.
Role of the Chief Executive
1.9 The Secretary of State appoints a Chief
Executive, defines the scope of the Agency's activities, agrees
its objectives and annual Business Plan and sets its annual performance
targets and resources. The Chief Executive is accountable to the
Secretary of State for managing the day to day running of the
Agency and is principal adviser on these matters. He is responsible
for meeting the Agency's targets, service standards and objectives
within allocated resources. A periodic review of the Agency's
performance is held by the Permanent Secretary as the Department's
Principal Accounting Officer.
Current Organisation
1.10 There are around 900 staff employed by
the Agency. The organisation consists of:
Central Operationsbased in
Norcross, on the Fylde coast, and responsible for the assessment,
awarding and payment of war disablement and war widows' pensions
and related allowances, the processing of appeals cases and the
provision of corporate services and support functions.
War Pensioners' Welfare Servicea
nationwide network of offices in the UK and Eire, essentially
providing field based caseworkers. The Service gives advice, information
and assistance on any matter which concerns war pensioners and
widows.
Ilford Park Polish Homea residential
care and nursing home for elderly Polish people near Newton Abbot,
Devon. The original purpose of the home was to settle Polish ex-service
men and women and their dependents, who had served under British
command during WWII, into a new life in this country.
1.11 It was recognised during 1997-98, that
there were significant reductions in the claims intake and a consequent
reduction was made in the Agency's staffing resources, the reduction
being achieved through a voluntary retirement scheme in March
1998. The review of staffing requirements to match workloads ensured
that existing overhead and support functions were subject to scrutiny
and appropriate reductions were made in these areas. This also
provided an opportunity for some internal restructuring to better
group some key functions such as aligning Operations with IT support
and training and to group business support and assurance, all
with effect from April 1998. These changes were intended to be
achieved without any adverse effect on the standard of service.
That this was achieved, is confimed by the fact that the Agency
re-gained the Charter Mark during 1998-99.
1.12 Statistical forecasts indicate a continuing
trend of reductions in claims and appeals which requires staffing
resources to be kept under review.
War Pensioners' Welfare Service
1.13 The War Pensioners' Welfare Service (WPWS)
was set up in 1948 when it was deemed that the responsibilities
of the Ministry of Pensions did not cease with the award of a
war pension. Welfare Officers were appointed to offer practical
help with problems experienced by war pensioners. They provide
a professional and confidential visiting service. Advice days
and surgeries are held throughout the country.
1.14 The WPWS provides a valued service and
works closely in partnership with ex-service and voluntary organisations.
It also supports the War Pension Committees and has modernised
its role, responding to provide support before and following significant
life events and establishing field-based caseworkers and personal
advisers, thus providing a gateway to a range of services for
war pensioners and war widows.
Ilford Park Polish Home
1.15 Ilford Park Polish Home (IPPH) is a residential
care and nursing home, managed by the Agency under the terms of
the Polish Resettlement Act 1947. The Home first opened in 1948
to resettle members of the Polish Forces into a new life in Great
Britain. Over the years, it has evolved into a residential care
and nursing home for elderly Poles and through the efforts of
the management and staff, has retained a strong sense of community
and commitment to Polish values and traditions.
1.16 Over the course of the year, the average
occupancy rate in the Home has been 95 per cent. However, it is
recognised that this will be increasingly difficult to maintain
in the long term because of the diminishing pool of potential
residents and their increasing average age, which is now over
eighty. The Prior Options Review of the Agency is expected to
examine this issue.
Ministry of Defence
1.17 The Agency depends on the Ministry of Defence
(MoD), to provide certain service evidence and medical records
under the terms of a Memorandum of Understanding which commits
the MOD to a turnaround time of 20 working days for disablement
claims and 10 working days for widows claims.
Ex-Service Organisations
1.18 The value of working in partnership with
ex-service organisations, the MoD and Pensions Appeal Tribunals
(PAT) has already been acknowledged and we will continue to give
priority to developing effective relationships. The Agency has
pursued an active policy of strengthening links with ex-service
organisations via both formal and informal avenuesspecific
initiatives have included consulting customers/interest groups
about proposed changes. Additionally, the Chief Executive regularly
visits the organisations and key individuals to address issues
and to identify further areas for improvement. The law allows
certain organisations to act as Agents for the Agency in taking
claims and a Memorandum of Understanding has formalised this arrangement.
A list of the ex-service organisations that we deal with most
regularly, including the authorised agents, is shown at Annex
C.
Prior Options Review
1.19 As a Next Steps Executive Agency, the War
Pensions Agency is required to undertake a Prior Options Review
of its Framework Agreement every three to five years. Standard
practice is to examine the available options prior to assessing
the continuing need for an agency. Typically, these are to consider
if there is scope for whether; the function can be abolished,
privatised, contractorised or carried out by another agency.
1.20 As the Agency was launched in 1994, it
is currently subject to the first of these reviews to examine
the available options for administering the war pensions scheme
for the next five years. The results of the review will be announced
in Autumn 1999 after Ministers have agreed the findings.
SECTION 2WAR
PENSIONS POLICY
2.1 The main business of the Agency is the assessment
and payment of war disablement and war widow's pensions. The principal
legislation on which these payments are based is the Naval, Military
and Air Forces etc (Disablement and Death) Service Pensions Order
(SPO) 1983. Details of the main Scheme and legislation covering
the other Schemes dealt with by the Agency are included at Annex
D.
2.2 Policy matters are the responsibility of
the Department's Policy Group. Close relations between the Agency
and Policy Group are maintained through regular, formal meetings,
together with colleagues from the Analytical Services Division,
Solicitors Branch and the Department's Planning and Finance Division
and through regular close liaison at all levels.
2.3 The legislation governing war pensions allows
the scheme to be administered in such a way as to take account
of emerging changes in medical/scientific understanding as and
when they arise. Scientific developments, which might affect war
pensions entitlement are monitored by the regular examination
of current literature and through consultation with experts in
particular fields.
Special Sections
2.4 Special sections have been created to deal
with the more complex and sensitive cases such as Far Eastern
Prisoners of War, the Ulster Defence Regiment, Mercantile Mariners,
Civilian Internees and others including Gulf War cases to ensure
consistent treatment and service as well as the development of
expertise by staff in those areas. Cases dealt with in these areas
tend to be more complex than normal claims and require special
attention. To ensure uniformity in approach and to enhance customer
service, a Gulf War Liaison Officer is fully engaged in dealing
with difficult cases.
Gulf War Cases
2.5 Recently published research compares the
health of Gulf servicemen with men who had served around the same
dates but had not gone to the Gulf and with a third group of men
who had served in Bosnia. The study found the same multiple non-specific
symptoms and disorders in all 3 groups. The difference was that
the rate of ill-health was higher in the Gulf servicemen. These
findings are not supportive of a unique Gulf illness but suggest
that adverse health effects may be associated with different types
of service experience. The results confirm that war pensions certification
practice for Gulf claims is in line with current medical understanding.
All disablement causally linked to service, under the legislation
relevant to the claim is accepted, but not using the term Gulf
War Syndrome.
Noise Induced Sensorineural Hearing Loss
2.6 Under the War Pensions Scheme, a war disablement
pension may only be paid for disablement which is due to service.
A pension cannot be paid for hearing loss which is due to other
causes such as ageing. In December 1996, the approach to the assessment
of Noise Induced Sensorineural Hearing Loss (NISHL) was changed
to ensure it was in line with current medical understanding of
that condition which was that NISHL does not increase with time
after removal from the noise. Pensions for NISHL were thus no
longer increased as overall hearing loss increased with age.
2.7 A review of the scientific basis for the
Department's approach to the assessment of NISHL in war pensions
was carried out in 1998. The review team of experts chaired by
the Government Chief Medical Officer, confirmed unanimously that
hearing loss due to noise does not deteriorate after removal from
that noise and existing hearing loss caused by noise does not
increase as age-related loss is added to it. This decision confirmed
that the Agency's assessment of NISHL was correct within the context
of existing war pensions legislation. The Review Team also recommended
the matter be looked at again in one year's time. Baroness Hollis
agreed the recommendation and asked the war pensions Medical Policy
Advisor to report to her by the end of February 1999 on any relevant
developments.
2.8 The report of this further review was placed
in the libraries of the House of Commons and the House of Lords
on Tuesday 2 March 1999 and copied to the members of the CAC and
the Chairmen of the WPCs. The findings of the review confirm that
no new medical or scientific evidence has arisen since March 1998
which would affect the DSS approach to the assessment of hearing
loss on war pensions so as to allow for an assessment for NISHL
to be increased as overall hearing loss worsens with age. The
Department remains open to new information and will consider any
future evidence which may provide a further insight into the aetiology
of any particular condition.
Ministry of Defence/Department of Social Security
Joint Review of Compensation
2.9 On 8 December 1998,[1]
Dr Reid then Minister of State for the Armed Forces, announced
a comprehensive review of compensation arrangements for service
personnel. The Agency is working closely with colleagues in Policy
Group and the MoD to consider whether it is possible to introduce
a new compensation scheme to replace the current complex arrangements.
2.10 The existing war pensions scheme will continue
to be available to all those who have already left the Forces.
Once the joint review has progressed, there will be full consultation
on the findings, providing an opportunity for discussion of any
proposals.
SECTION 3PERFORMANCE
TARGETS
Performance against Secretary of State (SoS) Targets
for 1998-99
3.1 Performance against the 1998-99 Secretary
of State targets for the month ending February 1999 is detailed
at Annex E.
SoS Targets for 1999-2000
3.2 The context in which the Agency will operate
in the coming year requires changes in the way in which performance
is measured. The SoS has set targets which are focused on achieving
the aims of the Government and Departmental agendas but which
also seek to considerably improve Agency performance. The targets
provide stakeholders, customers and partners with meaningful measures
of how successful the Agency has been in achieving objectives
and in meeting priorities. Our targets have been set out in terms
of the priority areas for the coming year and are detailed in
Annex F. The following section provides background narrative as
to how the targets have been framed.
Putting Service First
3.3 The Agency has been awarded the Charter
Mark and we aim to adhere to principles of the Government's Service
First programme. It is this initiative that embodies the Agency's
focus on Putting Service First. Additionally, the quality target
measures whether the decision is correct and the resulting payment
is accurate.
To deliver a first class service to war pensioners
and war widows by achieving the standards set in the Agency's
Service First Principles (see Annex H).
For 90 per cent of all claims to meet the quality
criteria.
Working in Partnerships
3.4 In response to feedback from our clients,
the Agency is seeking to improve the "end to end" decision
making and appeals process with a view to making significant improvements
to clearance times, notifications and outcomes.
To agree improvements in the end to end Decision
Making and Appeals process with the Agency and the Pensions Appeal
Tribunal to reduce the overall time taken for clearance of decisions
and appeals, to improve notifications and the subsequent implementation
of decisions together with improved monitoring and meaningful
targets.
Managing Change
3.5 There are arrangements to evaluate the performance
of each Agency on a three to five yearly cycle by conducting a
Prior Options Review. As WPA came into effect on 1 April 1994,
this is the first review. The purpose of the review is to assess
the performance of the Agency against its initial objectives and
to make recommendations for the future delivery of war pensions
which provide value for money, increased efficiency and contribute
to "joined up" government.
To implement the proposals approved by the SoS,
from the Prior Options Review, to the agreed standards and timetable.
Valuing Our People
3.6 The Government is committed to reducing
sick absence levels in the public sector and this is reflected
in the PSA published by all government departments. The DSS is
also attempting to devise a Staffing Index with each of its executive
agencies which will provide an objective measure of how efficient
staff resources have been used. Work is ongoing within the Agency
to compile a staffing index which will contribute to the Departmental
initiative.
3.7 The WPA recognises that to reduce sickness
levels we need a range of measures to monitor sickness absence,
to contact absent staff and to arrange "back to work"
interviews. In addition, we aim to provide an environment that
encourages, supports and values people. We will also focus on
our leadership and communications as they have a significant role
to play in managing attendance.
Valuing our People Target
To work with the department in developing a staffing
index and to reduce our sickness absence levels by 7 per cent
during 1999-2000.
Improving Efficiency
3.8 To ensure that we continue to make best
use of public funds, the Department is developing a mechanism
for monitoring and measuring how effective it has been in providing
an efficient service. Tight controls over public expenditure mean
the Agency must look for more efficient ways of delivering its
services whilst accepting that efficiencies can often be ploughed
back into service improvements.
To agree with the Department the principles and
baseline for the operation of Efficiency Indices and to commence
pilot operations in 1999-2000
To generate efficiencies during 1999-2000 that
will enable WPA to absorb the impact of financial pressures equivalent
to 4 per cent of running costs.
Management Targets 1999-2000
3.9 To supplement the SoS targets, the Agency
Management team has set a range of demanding internal targets
to ensure that claims and appeals are processed promptly and quickly
in accordance with the feedback from consultation with customers
and their representatives. The relevant management targets are
detailed at Annex G.
SECTION 4 OUR
VALUES
4.1 The Agency will focus on aligning with the
Government's modernisation programme whilst ensuring that our
challenging objectives are achieved. In support of this commitment
and recognising the special status of war pensioners and war widows,
we have articulated five values to ensure our workforce, as well
as those who we serve and those we work with, are clear about
the culture and behaviour which we encourage.
4.2 Our five values are as follows:
Working in Partnership;
Putting Service First
4.3 We value the service we provide to pensioners.
In recognition of the quality and level of service already provided,
we have again been awarded the Charter Mark Standard. We recognise
that this sets a benchmark of achievement but still leaves scope
for further improvement.
4.4 Specific initiatives to be pursued in this
context include:
Further improvement of our notifications
by providing Reasons for Decisionwhen we notify
the outcome of a claim, at the same time we will issue easily
understood reasons explaining how the decision was reached. We
are also improving other notifications, especially "tick
box" forms.
An independent review of the overall
end-to-end decision making and appeal process. This commenced
in 1999 and includes the elements which involve the Pensions Appeal
Tribunals and organisations representing appellants (such as the
Royal British Legion and Royal Air Forces Association). From this,
we expect to see improved processes, reduced timescales and more
meaningful targets for the future which we aim to pilot and implement
by April 2000.
The continued development of the
Welfare Service to ensure we adopt the role of Caseworkers
and Personal Advisors to provide a responsive and personal
approach, ensuring a Gateway to Services for war pensioners
and war widows.
The continued development of Business
Continuity Plans which aim to ensure a seamless service in
the event of major disruption. The plans use risk assessment techniques
to identify the potential for disruption to payment systems, especially
during the Millennium Date Change.
Working in Partnership
4.5 We work in partnership with organisations
such as the Ministry of Defence and the Lord Chancellor's Department
when processing claims and appeals and we deliver welfare services
in partnership with ex-service organisations. We aim to build
upon this, where appropriate, by working more closely with other
departments and agencies and with the voluntary and private sectors
to provide a more streamlined service to our customers. In particular,
we will:
Work more closely with Pension
Appeal Tribunalto reduce the amount of time an appeal
takes from initial intention to appeal, preparation of casework,
awaiting hearing, through the actual appeal hearing and ultimately
notifying the outcome and implementing any change.
Focus on our relationships with the
ex-service organisations and the MoD to make existing
operations more effective. Particular aims are to ensure there
is earlier involvement to support the widow when a serviceman
dies in service and to identify training needs for those invalided
from service.
Managing Change
4.6 We recognise that we have to proactively
manage an increasing level of change on a number of fronts; the
trend of reducing workloads, a new Government agenda for modernisation,
the Department's commitment to welfare reform under the Public
Service Agreement, as well as technological advances which can
modernise the way we work. Successful management of these changes
will ensure that we achieve our objectives whilst handling inevitable
change in a positive way. We will continue to co-ordinate and
steer the changes through activities such as:
Strengthening Leadership at
all levels of management by ensuring commitment to a clear vision;
by being visible and talking to staff on a regular basis, listening
and acting on their input; by building trust and respect through
being seen to be open, fair and honest, giving credit where it
is due; and by acting quickly, fairly and consistently to address
inappropriate behaviour.
Improving Communication, ensuring
that our communications will be clear, concise, targeted and delivered
using the most appropriate medium and building on the communication
strategy put in place during 1998-99. Improved communications
will ensure that there is consistency in the messages across the
Agency and make the reasons for change, and its likely impact,
readily understandable and promote change in a positive manner
throughout the Agency.
Building on our Information Technology
Framework, recognising that IT can be a powerful enabler for business
and service improvements. We will roll out a programme of enhancements
to modernise our IT infrastructure. These enhancements will ensure
the Agency is ready for the Year 2000 and will also provide a
platform for future change, allowing the Agency to be flexible
and responsive to the Government and Department's objectives and
to take advantage of evolving IT networks such as the Government
Secure Intranet.
Valuing our People
4.7 We are committed to providing an environment
which encourages, supports and develops people, enabling them
to achieve their potential. The Agency will continue to ensure
staff development remains consistent with business aims and objectives.
We will continue to demonstrate our commitment as an Investors
in People accredited employer by:
Offering Greater Career Development
Opportunities all staff will have an equal opportunity
to add value to the Agency's performance through lateral and upward
career development. Our service will be enhanced through a shared
understanding and wider perspective of all aspects of the Agency's
service delivery.
Continuing to focus on our Training
and Development by technical training to underpin
process changes as a result of improved technology and by developmental
training, focusing on integrated team working and leadership skills.
Proactively creating an environment
to encourage innovation and the potential for individuals
to Make a Difference. Also ensuring that the process to
review performance is used effectively to ensure that there are
lessons learnt which will benefit the Agency, war pensioners and
war widows
Undertaking a further Staff Attitude
Survey to benchmark and measure progress on culture change
and to show the positive effects of the steps taken as a result
of the last survey to highlight future areas for improvement.
Promoting health at work by
developing a specific strategy and to reduce the level of sickness
absence.
Improving Efficiency
4.8 The Agency has a duty to provide value for
money from public funds through established accounting procedures,
Corporate Governance and business assurance. In particular we
will:
Meet the requirements of Corporate
Governance across the range of Agency activities to ensure
probity and integrity in everything we do and to demonstrate value
for money and adherence to Government Accounting requirements.
Through the implementation of Resource
Accounting and Budgeting, ensure that public funds are better
accounted for and that the effective use of funds is clearly demonstrated.
At the same time, raising accounting standards will reduce the
opportunity for fraud and error.
Refine Project Management and
Integrated Planning mechanisms to better coordinate the planning
of the Agency's programme of work to aid the delivery of business
objectives. An improved understanding and use of best project
management controls, will lead to a more effective coordination
of the Agency's work programme.
Improve the Security and Integrity
of our systems by conducting a programme of Information Technology
system accreditation.
1 This was amended to 1997 during evidence. See Q101. Back
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